A Message from the Secretary

The annual Financial Report of the U.S. Government provides the public a comprehensive 

overview of the Government's current financial position, as well as critical insight into our long 

term fiscal outlook. The Fiscal Year 2015 Financial Report reflects that the Nation's finances 

continue to benefit from the strengthening economy. 

Since President Obama took office seven years ago, the Nation has made considerable progress 

in coming back from the worst recession since the Great Depression, and this Administration's 

agenda continues to improve the Nation's finances. Throughout the country, businesses are 

adding jobs, and wages and salaries have increased. The unemployment rate has been cut in half 

since peaking in 2009, and more Americans have access to affordable health care than ever 

before. And in the face of headwinds in the global economy, the world is counting on the 

continued strength of the U.S. economy.

In Fiscal Year 2015, the Nation's economic gains contributed to increased revenue and reduced 

the deficit by $44.5 billion. The Government’s net operating cost decreased by more than a third 

from last year. And the Government’s estimated long-term fiscal gap continues to be reduced 

by the provisions of the Affordable Care Act of 2010, Budget Control Act of 2011, and the 

American Taxpayer Relief Act of 2013. These and other measures have put our country on solid 

fiscal footing for the next decade, securing us the time necessary to address our longer-term 

challenges.

To keep on the path of long-term fiscal sustainability, we must make important investments in

education, infrastructure, and innovation that keep our economy strong, and we must create new

opportunities so that our growth is broadly shared by all Americans. Through these efforts, I am

confident that we can lay the foundation for durable economic growth and broadly shared 

prosperity. 

Jacob J. Lew

February 25, 2016 
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Contents 

 

A Message from the Secretary of the Treasury 

A Citizen’s Guide ............................................................................................... 1 

Management’s Discussion and Analysis .......................................................... 9 

Statement of the Comptroller General of the United States .......................... 37 

 

Financial Statements 

 Introduction ....................................................................................................... 47 

 Statement of Net Cost ........................................................................................ 54 

 Statement of Operations and Changes in Net Position ...................................... 56 

 Reconciliations of Net Operating Cost and Unified Budget Deficit .................. 58 

 Statements of Changes in Cash Balance from Unified Budget and Other 

 Activities ............................................................................................................ 59 

 Balance Sheets ................................................................................................... 60 

 Statements of Long-Term Fiscal Projections ..................................................... 61 

 Statements of Social Insurance .......................................................................... 62 

 Statement of Changes in Social Insurance Amounts ......................................... 65 

 

Notes to the Financial Statements 

 Note 1. Summary of Significant Accounting Policies ....................................... 67 

 Note 2. Cash and Other Monetary Assets .......................................................... 79 

 Note 3. Accounts and Taxes Receivables, Net .................................................. 81 

 Note 4. Loans Receivable and Loan Guarantee Liabilities, Net ........................ 82 

 Note 5. Inventories and Related Property, Net .................................................. 86 

 Note 6. Property, Plant, and Equipment, Net ..................................................... 88 

 Note 7. Debt and Equity Securities .................................................................... 90 

 Note 8. Investments in Government-Sponsored Enterprises ............................. 93 

 Note 9. Other Assets .......................................................................................... 96 

 Note 10. Accounts Payable ................................................................................ 97 

 Note 11. Federal Debt Securities Held by the Public and Accrued Interest ...... 98 

 Note 12. Federal Employee and Veteran Benefits Payable ............................... 102 

 Note 13. Environmental and Disposal Liabilities .............................................. 111 

 Note 14. Benefits Due and Payable ................................................................... 113 

 Note 15. Insurance and Guarantee Program Liabilities ..................................... 114 

 Note 16. Other Liabilities .................................................................................. 115 

 Note 17. Collections and Refunds of Federal Revenue ..................................... 118 

 Note 18. Prior-Period Adjustments .................................................................... 121 

 Note 19. Contingencies ...................................................................................... 122 

 Note 20. Commitments ...................................................................................... 127 

 Note 21. Funds from Dedicated Collections ...................................................... 130 

 Note 22. Fiduciary Activities ............................................................................. 136 

 Note 23. Social Insurance .................................................................................. 138 

 Note 24. Long-Term Fiscal Projections ............................................................ 161 

 Note 25. Stewardship Land and Heritage Assets ............................................... 166 
 Note 26. Subsequent Events .............................................................................. 167 

Required Supplementary Information (Unaudited) 

 The Sustainability of Fiscal Policy .................................................................... 169 

 Social Insurance ................................................................................................. 179 

 Social Security and Medicare .......................................................................... 179 

 Railroad Retirement, Black Lung, and Unemployment Insurance .................. 201 

 Deferred Maintenance and Repairs .................................................................... 212 

 Other Claims for Refunds .................................................................................. 213 

 Tax Assessments ................................................................................................ 213 

 Risk Assumed .................................................................................................... 214 

 Federal Oil and Gas Resources .......................................................................... 215 

 Federal Natural Resources Other than Oil and Gas .......................................... 217 

 

Other Information (Unaudited) 

 Unexpended Balances of Budget Authority ..................................................... 219 

 Tax Burden ....................................................................................................... 219 

 Tax Gap ............................................................................................................. 221 

 Unmatched Transactions and Balances ............................................................. 222 

Required Supplementary Stewardship Information (Unaudited) 

 Stewardship Investments ................................................................................... 225 

 Non-Federal Physical Property ........................................................................ 226 

 Human Capital ................................................................................................. 226 

 Research and Development ............................................................................. 226 

Appendices 

 Appendix A: Reporting Entity ........................................................................... 229 

 Appendix B: Acronyms ..................................................................................... 233 

U.S. Government Accountability Office Independent Auditor’s Report..... 239 
List of Social Insurance Charts 

 

Chart 1 OASDI Beneficiaries per 100 Covered Workers, 1970-2089 ............. 184 

Chart 2 OASDI Income (Excluding Interest) and Expenditures, 1970-2089 185 

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

Percent of Taxable Payroll, 1970-2089 ............................................... 186 

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

Percent of GDP, 1970-2089 ................................................................ 187 

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

Income as a Percent of GDP, 1970-2089 ........................................... 191 

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

1970-2089 ........................................................................................... 192 

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

a Percent of Taxable Payroll, 1970-2089 ............................................ 193 

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

a Percent of GDP, 1970-2089 ............................................................. 194 

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

and Expenditures, 1970-2089 ............................................................. 195 

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

and Expenditures as a Percent of GDP, 1970-2089 ............................ 196 

Chart 11 Estimated Railroad Retirement Income (Excluding Interest and 

Financial Interchange Income) and Expenditures, 2015-2089 ............ 202 

Chart 12 Estimated Railroad Retirement Income (Excluding Interest and 

Financial Interchange Income) and Expenditures as a Percent of 

Tier II Taxable Payroll, 2015-2089 ..................................................... 203 

Chart 13 Estimated Black Lung Disability Trust Fund Income and 

Expenditures (Excluding Interest) in Constant (or InflationAdjusted) Dollars, 2016-2040 ............................................................. 207 

Chart 14 Estimated Unemployment Trust Fund Cash Flow Using Expected 

Economic Conditions in Constant (or Inflation-Adjusted) Dollars, 

2016-2025 ........................................................................................... 209 

Chart 15 Unemployment Trust Fund Solvency as of September 30, 2015 ....... 211 

 
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2 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 

Citizen’s Guide to the Fiscal Year 2015 

Financial Report of the United States Government 

The Citizen’s Guide to the Fiscal Year 2015 Financial Report of the U.S. Government (Financial 

Report) summarizes the U.S. Government’s current financial position and condition and discusses key 

financial topics, including fiscal sustainability. This Guide and the Financial Report are produced by the 

U.S. Department of the Treasury in coordination with the Office of Management and Budget (OMB) of 

the Executive Office of the President. The Secretary of the Treasury, Director of OMB, and Comptroller 

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

discussed in this Guide is important to all Americans. 

Where We Are Now 

 Comparing the Budget and the Financial Report 

Together, the Budget of the United States Government (Budget) and the Financial Report of the 

U.S. Government (Financial Report) 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 presents the President’s proposed receipt and spending plan. 

The Budget focuses on receipts, or cash received by the U.S. Government (Government) and outlays, 

or payments made by the Government to the public. An excess of receipts over outlays is called a 

budget surplus; an excess of outlays over receipts is called a budget deficit. 

 The Financial Report focuses on the Government’s costs and revenues (what went out and what came 

in), assets and liabilities (what it owns and owes), and other important financial information. The 

Financial Report compares the Government’s revenues (amounts earned, but not necessarily 

collected), with its 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) 2011-2015. During FY 2015: 

 A $227.9 billion increase in 

receipts more than offset a $183.4 

billion increase in outlays to 

reduce the budget deficit by $44.5 

billion (about 9 percent) to $438.9 

billion. 

 Net operating cost decreased 

$271.6 billion or 34.3 percent to 

$519.7 billion, due largely to a 

$267.9 billion increase in tax and 

other revenues, which more than 

offset a slight $21.8 billion 

increase in net cost. 

 The $80.8 billion difference between the budget deficit and net operating cost is primarily due to 

accrued costs (incurred but not necessarily paid) associated with 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. 
 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 3 

What Went Out and What Came In 

The Government’s “bottom line” net operating cost (revenue less net cost of Government operations 

with some adjustments) of $519.7 billion in FY 2015 is calculated as follows: 

 Starting with total gross costs 

of $4.3 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 liabilities for 

federal employee and veterans 

benefits to derive its net cost of 

$3.9 trillion, a slight increase 

of $21.8 billion or 0.6 percent 

from FY 2014. This net 

increase is the combined effect 

of many offsetting increases and decreases across the Government. For example: 

o The Department of Health and Human Services (HHS) and the Social Security Administration 

(SSA) experienced net cost increases of $78.0 billion and $38.3 billion, respectively, largely due 

to increases in benefit expenses from the social insurance programs administered by those 

agencies (e.g., Medicare, Social Security). Net costs at the Department of Defense (DOD) 

decreased by $88.7 billion due largely to decreases in costs for future military retirement and 

health care benefits. Chart 2 shows that the largest shares of the Government’s total FY 2015 net 

cost came from HHS, SSA, and DOD. 

o The Department of Energy’s net costs increased $19.9 billion due mostly to changes in 

environmental and other liability estimates, while the Department of Education’s net costs 

decreased $11.4 billion due 

largely to decreases in loan 

program costs and increases 

in interest earned on loans. 

 The Government deducts tax 

and other revenues from its net 

cost (with some adjustments) to 

derive its “bottom line” net 

operating cost of $519.7 billion, 

a decrease of $271.6 billion 

from FY 2014. From Chart 3, 

total Government tax and other 

revenues grew by $267.9 billion 

or 8.7 percent to more than $3.3 

trillion for FY 2015. 

o This increase can be 

attributed to a stronger economy and growth in wages and salaries. 

o Together, individual income tax and tax withholdings, and corporation taxes accounted for about 

86.5 percent of total revenues in FY 2015. Other revenues include excise and unemployment 

taxes, and customs duties. 
4 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 

What We Own and What We Owe 

Chart 4 summarizes what the Government owns in assets and what it owes in liabilities. As of 

September 30, 2015: 

 The Government held about 

$3.2 trillion in assets (mostly 

$1.2 trillion in net loans 

receivable (primarily student 

loans) and $893.9 billion in 

net property, plant, and 

equipment). 

o Beyond these assets, 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 ($21.5 trillion) consist mostly of: (1) $13.2 trillion in federal debt securities held by 

the public and accrued interest and (2) $6.7 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 $5.1 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 in Treasury-issued federal debt securities, creating trust fund assets 

and Treasury liabilities. These amounts are included in the financial statements of investing 

agencies and Treasury, respectively, but offset each other when consolidated into the 

governmentwide financial statements. Thus, they are not reflected in Chart 4. 

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”). 

 When delays in raising the debt limit occur, as they did during both fiscal years 2014 and 2015, 

Treasury implements “extraordinary measures,” on a temporary basis, to enable the Government to 

protect the full faith and credit of the United States by continuing to pay the Nation’s bills. 

o 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 Congress suspended the debt limit during FY 2014 and FY 2015: from October 17, 2013 

through February 7, 2014; and again from February 15, 2014 through March 15, 2015. In 

November 2015, the debt limit was again suspended through March 15, 2017. The debt limit 

was last raised to $18.1 trillion in March 2015. 

As budget deficits continue to occur, the Government will have to continue to borrow from the 

public. Instances where the debt held by the public increases faster than the economy for extended 

periods can pose challenges to the sustainability of current fiscal policy. 

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

financial results in a broader context. During FY 2015, the economy continued to grow, job growth 

accelerated, and the unemployment rate declined. These and other economic and financial developments 

are discussed in greater detail in the Financial Report. 
 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 5 

Where We Are Headed 

An important purpose of this Guide and the 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 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 this Guide assume 

current policy will continue indefinitely and draw out the implications for the growth of the debt-to-GDP 

ratio.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, and total spending expressed as a percent of GDP. 

 The difference between the receipts and non-interest spending shares of GDP (the primary deficit-toGDP ratio) grew rapidly in 2009 due to the financial crisis, the recession, and the policies pursued to 

combat both. The ratio remained high from 2010 to 2012, despite shrinking in each successive year, 

and fell significantly in 2013 

and 2014. 

 The primary deficit is 

projected to shrink in the next 

few years as spending limits 

called for in the Budget 

Control Act (BCA) continue 

and the economy continues to 

recover, becoming a surplus 

starting in 2019 that peaks at 

0.5 percent of GDP in 2024. 

 After 2025, however, 

increased spending for Social 

Security and health 

programs2

 due to the 

continued retirement of the 

baby boom generation and 

increases in the price of health care services is expected to cause primary surpluses to steadily 

deteriorate and become a primary deficit starting in 2028 that reaches 1.0 percent of GDP by 2038. 

After 2038, the age composition of the population is expected to stabilize and the pace of health care 

 

1

 Current 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

 The 2015 Medicare Trustees Report projects that the Hospital Insurance (HI) Trust Fund will remain solvent until 2030 (unchanged from last 

year’s report). Under current law, tax revenue would be sufficient to pay 86 percent of estimated HI cost in 2030 and 84 percent by 2089. As for 

Social Security, under current law, the Old-Age, Survivors, and Disability Insurance (OASDI) Trust Fund reserves, considered on a theoretical 

combined basis, are projected to be depleted in 2034 (one year later than shown in last year’s Financial Report), at which time the projected share 

of scheduled benefits payable from trust fund income is 79 percent, declining to 73 percent in 2089. The Disability Insurance (DI) Trust Fund 

alone was expected to deplete by the end of 2016, at which time 81 percent of scheduled benefits would be payable. However, the impending 

depletion of the DI Trust Fund was circumvented by the passage of the Bipartisan Budget Act of 2015, which reallocated a portion of the payroll 

tax rate from the Old Age Survivors Insurance Trust Fund to the DI Trust Fund. This reallocation is expected to ensure full payment of disability 

benefits into 2022. The projections assume full Social Security and Medicare benefits are paid after the corresponding trust funds are exhausted. 

See http://www.ssa.gov/oact/trsum/index.html pp 3, 10, 11
6 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 

price increases is expected to slow, causing the primary deficit to gradually decrease and become a 

primary surplus in 2085 that reaches 0.1 percent of GDP in 2090. 

o In these projections, the Affordable Care Act (ACA) 3 provision of health insurance subsidies and 

expanded Medicaid coverage boost federal spending, and other ACA provisions significantly 

reduce per-beneficiary Medicare cost growth. 

o Overall, the ACA is projected to substantially reduce the growth rate of federal expenditures for 

Medicare over the next 75 years. However, as noted in the Financial Report, there is uncertainty 

about the extent to which the ACA’s provisions will result in reduced health care cost growth. 

Even if those provisions work as intended and as assumed in these projections, Chart 5 still shows 

a persistent gap between projected receipts and total spending. 

The primary deficit projections 

in Charts 5 and 6 (left axis), along 

with those for interest rates and 

GDP, determine the debt-to-GDP 

ratio projections shown in Chart 6 

(right axis). 

 The debt-to-GDP ratio was 74 

percent at the end of FY 2015, 

and under the long-term fiscal 

projections of current policy is 

projected to be 67 percent in 

2025, 106 percent in 2045, and 

223 percent in 2090. The debtto-GDP ratio rises at an 

accelerating rate 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. The 

continuous rise of the debt-to-GDP ratio after 2025 indicates that current policy is unsustainable. 

 These debt-to-GDP projections are generally lower than the corresponding projections in both the FY 

2014 and FY 2013 Financial Reports. For example, the debt-to-GDP projection for 2088 (the final 

projection year for the 2013 report) is 217 percent in this year’s Financial Report, was 315 percent in 

the FY 2014 Financial Report, and was 277 percent in the FY 2013 Financial Report.

4

The Fiscal Gap and the Cost of Delaying Policy Reform 

 It is estimated that preventing the debt-to-GDP ratio from rising over the next 75 years would require 

some combination of spending reductions and receipt increases that amount to 1.2 percent of GDP on 

average over the next 75 years, 0.9 percentage points smaller than the 2.1 percent estimate in 2014. 

 The timing of changes to non-interest spending and receipts that close this “75-year fiscal gap” has 

important implications for the well-being of future generations. 

o For example, relative to a policy that begins immediately, if action is delayed by 10 years, it is 

estimated that the magnitude of reforms necessary to close the 75-year fiscal gap will increase by 

about 25 percent; if action is delayed by 20 years, the magnitude of reforms necessary will 

increase by nearly 60 percent. 

 

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 low-income 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 23 and the Required Supplementary 

Information section of the Financial Report, and the 2014 Medicare Trustees Report for more information). 4 See the Required Supplementary Information section of the FY 2014 Financial Report of the U.S. Government for more information about 

changes from the long term fiscal projections for FY 2014.
 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 7 

o Future generations are harmed by a policy delay of this sort 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 

 The Government took significant steps towards fiscal sustainability by enacting the ACA in 2010, the 

BCA in 2011, and the American Taxpayer Relief Act (ATRA) in 2013. The ACA holds the prospect 

of lowering long-term per beneficiary spending growth for Medicare and Medicaid, the BCA 

significantly curtails discretionary spending, and ATRA increased revenues. Together, these three 

laws substantially reduce the estimated long-term fiscal gap. 

 But even with these laws, the Government’s debt-to-GDP ratio is projected to remain relatively flat 

over the next ten years, and then commence a continuous rise over the remaining projection period 

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

 Subject to the important caveat that changes in policy are not so abrupt that they slow continued 

economic growth, the sooner policies are put in place to avert these trends, the smaller the revenue 

increases and/or spending decreases will need to be to return the Government to a sustainable fiscal 

path. 

The Nation By The Numbers 

The Financial Report provides the President, Congress, and the American people a comprehensive 

view of how the Government is managing taxpayer dollars. It discusses the Government’s financial 

position and condition, its revenues and costs, assets and liabilities, and other responsibilities and 

commitments, as well as important financial issues that affect the nation and its citizens both now and in 

the future. The table on the following page presents several key indicators of the Government’s financial 

position and condition, which are summarized in this Guide and discussed in greater detail in the 

Financial Report.

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

financial statements can be found beginning on page 239 of the full Financial Report. For the reasons 

discussed below, GAO was prevented from expressing (disclaimed) an opinion on these consolidated 

financial statements. GAO disclaimed an opinion on the 2015 Statement of Long-Term Fiscal 

Projections; the 2015, 2014, 2013, 2012, and 2011 Statements of Social Insurance (SOSI); and the 2015 

and 2014 Statements of Changes in Social Insurance Amounts because of significant uncertainties 

(discussed in Note 23 in the Financial Report) primarily related to the achievement of projected 

reductions in Medicare cost growth and certain other limitations. In addition, GAO disclaimed an opinion 

on the remaining FY 2015 and 2014 financial statements in the Financial Report due to certain material 

financial reporting control weaknesses and other limitations on the scope of its work. 
8 A Citizen's Guide to the 2015 Financial Report of the U.S. Government 

Find Out More 

The 2015 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/fsreports/rpt/finrep/fr/fr_index.htm ; 

 OMB’s Office of Federal Financial Management, 

http://www.whitehouse.gov/omb/financial/index.html; and 

 GAO, http://www.gao.gov/financial.html.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 9 

MANAGEMENT’S DISCUSSION AND 

ANALYSIS 

Introduction 

The Fiscal Year (FY) 2015 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 finances, i.e., 

its financial position and condition, its revenues and costs, assets and liabilities, and other obligations and 

commitments. The Financial Report also 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

 – the central component of the Financial Report – to the President and 

Congress no later than six months after the September 30 fiscal year end. To encourage timely and relevant 

reporting, OMB accelerated both individual agency and governmentwide reporting deadlines. 

The Financial Report is prepared from the audited financial statements of specifically designated federal 

agencies, including the Cabinet departments and many smaller, independent agencies (see organizational chart on 

the next page). As it has for the past eighteen years, GAO issued a “disclaimer” of opinion on the accrual-based, 

consolidated financial statements for the fiscal years ended September 30, 2015 and 2014. GAO also issued 

disclaimers of opinion on the 2015 Statement of Long-Term Fiscal Projections (SLTFP); the 2015, 2014, 2013, 2012 

and 2011 Statements of Social Insurance (SOSI); and the 2015 and 2014 Statement 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 2015, 332

 of the 39 most significant agencies earned unmodified opinions on 

their financial statement audits.3

 

The FY 2015 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. 

 In addition, a Citizen’s Guide is included to provide the American taxpayer with 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.” Congress authorizes and agencies implement 

programs as missions and initiatives evolve over time in pursuit of key public services and objectives, such as 

providing for national defense, promoting affordable health care, fostering income security, boosting agricultural 

productivity, providing veterans benefits and services, facilitating commerce, supporting housing and the 

 

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 have elected to include certain financial information on the legislative and 

judicial branches in consolidated financial statements as well. 2 The 32 agencies include the Department of Health and Human Services, which received disclaimers of opinion on its 2015, 2014, 2013, 2012, 

and 2011 SOSI and on its 2015 and 2014 SCSIA. 

3 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. However, because these entities operate on a calendar year basis (December 31 yearend), their 2015 audits are not yet complete. Statistic reflects 2014 audit results for these organizations. In addition, neither the Defense Security 

Cooperation Agency (DSCA) nor the General Fund of the U.S. Government were subject to audit for FY 2015.
10 MANAGEMENT’S DISCUSSION AND ANALYSIS 

transportation systems, protecting the environment, contributing to the security of energy resources, and helping 

States provide education. Exhibit 1 provides an overview of how the U.S. Government (Government) is organized. 

Exhibit 1 

THE CONSTITUTION

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 Printing Office 

Library of Congress 

Congressional Budget Office 

U.S. Capitol Police 

THE UNITED STATES GOVERNMENT

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 

MILLENIUM 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 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 11 

The Government’s Financial Position and Condition 

 A complete assessment of the Government’s financial or fiscal condition requires analysis of historical results, 

projections of future revenues and expenditures, and an assessment of the Government's long-term fiscal 

sustainability. 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 provides insight into how the 

Government’s financial condition may change in the future. 

$ %

Gross Cost (4,253.7) $ (4,251.4) $ 2.3 $ 0.1%

Less: Earned Revenue 375.6 $ 417.9 $ (42.3) $ (10.1%)

Gain/(Loss) from Changes in Assumptions 19.3 $ (3.5) $ 22.8 $ 651.4%

Net Cost1 $ (3,837.0) (3,858.8) $ 21.8 $ 0.6%

Less: Tax and Other Revenues 3,334.0 $ 3,066.1 $ 267.9 $ 8.7%

Unmatched Transactions & Balances 5.1 $ (20.4) $ (25.5) $ (125%)

Net Operating Cost2

$ (791.3) (519.7) $ (271.6) $ (34.3% )

Assets3

:

Cash & Other Monetary Assets 305.1 $ 264.9 $ 40.2 $ 15.2%

Loans Receivable, Net $ 1,125.7 1,216.0 $ 90.3 $ 8.0%

Inventories & Related Property, Net $ 318.4 320.6 $ 2.2 $ 0.7%

Property, Plant & Equipment, Net 893.9 $ 878.3 $ 15.6 $ 1.8%

Other 494.2 $ 478.0 $ 16.2 $ 3.4%

Total Assets 3,229.8 $ 3,065.3 $ 164.5 $ 5.4%

Liabilities3

 :

Federal Debt Held by the Public & Accrued Interest (13,172.5) $ (12,833.6) $ 338.9 $ 2.6%

Federal Employee & Veterans Benefits (6,719.3) $ (6,672.6) $ 46.7 $ 0.7%

Other (1,559.9) $ (1,259.8) $ 300.1 $ 23.8%

Total Liabilities (21,451.7) $ (20,766.0) $ 685.7 $ 3.3%

Net Position (Assets minus Liabilities) (18,221.9) $ (17,700.7) $ 521.2 $ 2.9%

Social Insurance Net Expenditures4:

Social Security (OASDI) (13,440) $ (13,330) $ 110 $ 0.8%

Medicare (Parts A, B, & D) (27,940) $ (28,483) $ (543) $ (1.9%)

Other (108) $ (103) $ 5 $ 4.6%

Total Social Insurance Net Expenditures (41,487) $ (41,916) $ (429) $ (1.0% )

Total Noninterest Spending Less Receipts5 

$ (4,700) (4,100) $ (600) $ (12.8% )

Unified Budget Deficit6

$ (483.4) (438.9) $ (44.5) $ (9.2% )

FINANCIAL MEASURES

Table 1

The Federal Government's Financial Position and Condition

Dollars in Billions 2015 2014 Increase / (Decrease)

4 Source: Statements 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 (Social Security, Medicare Parts A, B, & D, Railroad 

Retirement - Black Lung is projected through 2040). Amounts reflect 'Open Group' totals (all current and projected program 

participants during the 75-year projection period). 

Note: Totals may not equal sum of components due to rounding.

5 Represents the 75-year projection of the federal government's receipts less non-interest spending as reported in the Statement of 

Long-Term Fiscal Projections.

BUDGET DEFICIT

1 Source: Statements of Net Cost.

SUSTAINABILITY MEASURES

3 Source: Balance Sheet.

2 Source: Statements of Operations and Changes in Net Position. 

6 Source: Final Monthly Treasury Statement (as of 9/30/2015 and 9/30/2014).
12 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 stayed essentially flat, increasing by only $2.3 billion or 0.1 percent to $4.3 

trillion. Deducting $375.6 billion in revenues earned for goods and services provided to the public (e.g., 

Medicare premiums, national park entry fees, and postal service fees) and deducting $19.3 billion in net 

gains from changes in assumptions (e.g., interest rates, inflation, disability claims rates) results in the 

Government’s net cost of $3.9 trillion in FY 2015 a slight increase of $21.8 billion or 0.6 percent from FY 

2014. 

 Tax and other revenues increased $267.9 billion or 8.7 percent to $3.3 trillion, which, when offset against 

the Government’s net cost, with some adjustment for unmatched transactions and balances, results in a 

“bottom line” net operating cost of $519.7 billion for FY 2015, a decrease of more than a third ($271.6 

billion or 34.3 percent) from FY 2014. 

 Comparing total 2015 Government assets of $3.2 trillion to total liabilities of $21.5 trillion (comprised 

mostly of $13.2 trillion in federal debt held by the public and accrued interest payable4

, and $6.7 trillion of 

federal employee and veterans benefits payable) yields a negative net position of $18.2 trillion. 

 The sum of debt held by the public excluding accrued interest ($13.1 trillion), and intragovernmental debt 

($5.1 trillion) equals gross federal debt, which, with some adjustments, is subject to the statutory debt limit. 

As of September 30, 2015, the Government’s total debt subject to the debt limit was $18.1 trillion. 

Congress suspended the debt limit from February 15, 2014 through March 15, 2015 (P.L. 113-83), after 

which Treasury began implementing “extraordinary measures” on a temporary basis, which were still in 

effect as of September 30, 2015, to enable the Government to protect the full faith and credit of the United 

States Government by continuing to pay the Nation’s bills. On November 2, 2015, Congress again 

suspended the debt limit, this time through March 15, 2017 (P.L. 114-74). 

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

condition. Under federal accounting rules, social insurance spending as reported in the Statement of Long-Term 

Fiscal Projections; and social insurance expenditures, as reported in the Statement of Social Insurance (SOSI) are 

not considered liabilities of the Government. They can, however, provide a valuable perspective on the 

sustainability of the Government’s fiscal path: 

 Total projected spending, including other major programs (e.g., defense, Medicaid, and education) and tax 

revenues provide another perspective of the Government’s projected fiscal condition. Over the next 75 

years, under current policy, the present value (PV) of the Government’s total non-interest spending 

(including its social insurance programs) is projected to exceed the PV of total receipts by $4.1 trillion. 

 The SOSI compares the actuarial present value5

 of the Government’s projected expenditures for scheduled 

benefits for Social Security, Medicare Parts A, B and D, and other social insurance programs over 75 years6

to a subset of the revenues7

 supporting these programs. For 2015, these projected expenditures exceeded 

projected revenues by about $41.5 trillion, a $429 billion decrease from 2014 social insurance projections. 

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) 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. 

For example: 

 The unified budget deficit (i.e., including the consolidated receipts and outlays from federal funds and the 

Social Security Trust Fund) decreased from $483.4 billion or 2.8 percent of GDP in FY 2014 to $438.9 

billion (the lowest since 2007) or 2.5 percent of GDP in FY 2015, the lowest deficit-to-GDP level since 

 

4 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. 5 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. 

6 The Black Lung Program is projected through September 30, 2040. 

7 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. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 13 

Chief Financial Officers (CFO) Act Agency Audit Opinion

Department of Agriculture (USDA) Disclaimer

Department of Commerce (DOC) Unmodified

Department of Defense (DOD) Disclaimer

Department of Education (Education) Unmodified

Department of Energy (DOE) Unmodified

Department of Health and Human Services (HHS)1

Unmodified

Department of Homeland Security (DHS) Unmodified

Department of Housing and Urban Development (HUD) Disclaimer

Department of the Interior (DOI) Unmodified

Department of Justice (DOJ) Unmodified

Department of Labor (DOL) Unmodified

Department of State (State) Unmodified

Department of Transportation (DOT) Unmodified

Department of the Treasury (Treasury) Unmodified

Department of Veterans Affairs (VA) Unmodified

Agency for International Development (USAID) Unmodified

Environmental Protection Agency (EPA) Unmodified

General Services Administration (GSA) Unmodified

National Aeronautics and Space Administration (NASA) Unmodified

National Science Foundation (NSF) Unmodified

Nuclear Regulatory Commission (NRC) Unmodified

Office of Personnel Management (OPM) Unmodified

Small Business Administration (SBA) Unmodified

Social Security Administration (SSA) Unmodified

Table 2: FY 2015 CFO Act Financial Statement Audit Results 

1 Received disclaimer of opinion on Statement of Social Insurance and Statement of 

Changes in Social Insurance Amounts.

2007 and less than the average of the last 40 years. The deficit-to-GDP ratio has declined by about threequarters since 2009 – the fastest sustained deficit reduction since just after World War II.8

 The budget deficit is primarily financed through borrowing from the public. As of September 30, 2015, 

debt held by the public, excluding accrued interest, was $13.1 trillion (about 74 percent of GDP). 

 The projected $41.5 trillion net present value excess of expenditures over receipts over 75 years for the 

programs reported in the 2015 SOSI represents about 3.7 percent of the present value of GDP over 75 

years. The excess of total projected non-interest spending over receipts of $4.1 trillion discussed in the 

‘Statement of Long Term Fiscal Projections’ represents 0.3 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. 

Fiscal Year 2015 Financial Statement Audit Results 

 For FY 2015, GAO issued a nineteenth 

consecutive disclaimer of audit opinion on the 

accrual-based, governmentwide financial 

statements. In addition, GAO issued disclaimers 

of opinion on the 2015 Statement of Long-Term 

Fiscal Projections (SLTFP); the 2015, 2014, 2013, 

2012 and 2011 SOSI; and the 2015 and 2014 

SCSIA. The SOSI, SCSIA, and SLTFP 

disclaimers stem from significant uncertainties 

(discussed in Note 23, Social Insurance), 

primarily related to the achievement of projected 

reductions in Medicare cost growth and certain 

other limitations. 

Twenty-one 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 

Appendix A).9

 

The Governmentwide Reporting 

Entity 

This Financial Report includes the financial 

status and activities of the executive, legislative, 

and judicial branches of the federal government. 

The legislative and judicial branches are not 

required by law to submit financial statement 

information to Treasury; however, these branches 

provided cash and a significant amount of accrual 

basis financial information to include in the 

Financial Report. Appendix A 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. 

A number of entities and organizations are excluded 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 Government-Sponsored 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 

 

8 Final Monthly Treasury Statement (as of September 30, 2015 and 2014), 10/15/15 press release – Joint Statement of Treasury Secretary Jacob 

J. Lew and OMB Director Shaun Donovan on Budget Results for Fiscal Year 2015 9 The 21 agencies include the Department of Health and Human Services, which received disclaimers of opinions on its 2015, 2014, 2013, 2012, 

and 2011 SOSI and its 2015 and 2014 SCSIA. 
14 MANAGEMENT’S DISCUSSION AND ANALYSIS 

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. Appendix A includes a list of the agencies and entities contributing 

to this Financial Report.

10

The following pages contain a more detailed discussion of the Government’s financial results for FY 2015, 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), prepared primarily on a “cash basis”, and which provides a plan for future initiatives 

and the resources needed to support them, as well as prior year fiscal and performance results; and this Financial 

Report, which provides the President, Congress, and the American people a broad, comprehensive overview of the 

cost on an “accrual basis” of the Government’s operations, the sources used to finance them, its balance sheet, and 

the overall financial outlook. 

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.11 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. 

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. 

 

10 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. 11 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 through September 30, 2040 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. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 15 

Budget Deficit vs. Net Operating Cost 

The Government’s primarily cash-based12 budget deficit decreased nearly $44.5 billion (about 9 percent) from 

approximately $483.4 billion in FY 2014 to about $438.9 billion in FY 2015 (the lowest since 2007) due to higher 

receipts that more than offset an increase in outlays in FY 2015. The $227.9 billion (7.5 percent) increase in receipts 

can be attributed to a stronger economy. Growth in wages and salaries made collections of individual and payroll 

taxes strong throughout the year. Corporation income tax collections also increased in FY 2015 due to growth in 

taxable profits. Outlays increased $184 billion (5 percent) due to the net effect of: (1) spending increases for Social 

Security, Medicare, and Medicaid, along with lower dividend receipts from the GSEs, Fannie Mae and Freddie Mac 

(recorded as offsets to spending), partially offset by (2) spending decreases in the Departments of Agriculture, 

Defense, Housing and Urban Development, and Labor, among other agencies.13 The Government’s largely accrualbased net operating cost also decreased by $271.6 billion, or 34.3 percent, from $791.3 billion to $519.7 billion 

during FY 2015. As explained below, net operating costs are affected by both changes in revenues and costs. 

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). 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. Similarly, the difference 

between the budget deficit and net operating cost can also be affected by changes in certain asset valuations, such as 

investments, and in other liabilities, such as estimated insurance and guarantee program liabilities. The longer-term 

estimated costs of these programs are included in the Government’s net operating cost, calculated on an accrual 

basis as described above, but are not included in the largely cash-based budget deficit. In addition, the costs of 

certain assets, such as property plant and equipment, are recorded in the budget as outlays when purchased but are 

capitalized as assets and included in net operating cost as depreciation expense (an accrual cost) as they are used 

over the useful life of the asset. Significant changes in the Government’s net operating cost, including those related 

to the aforementioned longer-term estimated costs, are discussed in the next section. 

 The Reconciliation of Net Operating Cost and Unified Budget Deficit Statement, Table 3 summarizes how 

the Government’s net operating cost as reported in the primarily accrual-based financial statements relates to the 

more widely-known and primarily cash-based budget deficit. Table 3 shows how many of the elements described 

above contribute to the $80.8 billion net difference between the Government’s budget deficit and net operating cost 

for FY 2015, the majority of which is attributable to: (1) a $46.7 billion net increase in liabilities for Federal 

employee and veteran benefits payable, and (2) a $42.5 billion increase in environmental and disposal liabilities. 

These and most of the other “Change in” amounts summarized in Table 3 affect net operating cost, but not the 

budget deficit. 

 

12 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 

(excluding administrative costs), or the credit subsidy cost. Credit programs record cash payments to and from the public in non-budgetary 

financing accounts.

13 10/15/15 press release -- Joint Statement of Treasury Secretary Jacob J. Lew and OMB Director Shaun Donovan on Budget Results for Fiscal 

Year 2015.
16 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: "What Went Out & What Came In" 

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.

 14 

Table 4 shows that the Government’s “bottom line” net operating cost decreased by more than a third, from 

$791.3 billion in FY 2014 to $519.7 billion in FY 2015. This $271.6 billion or 34.3 percent decrease is largely 

attributable to a $267.9 increase in tax and other revenues that more than offset a slight net increase in net cost 

amounts across agencies 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 $4.3 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 $3.9 trillion, a slight $21.8 billion or 0.6 

percent increase over FY 2014. 

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 change in net cost during FY 2015 included: 

 an $88.7 billion decrease at DOD due largely to decreases in costs for future military retirement and health 

care benefits, largely driven by plan amendments, changes in actuarial assumptions, and other actuarial 

gains and losses. Specifically, these changes from actuarial assumptions resulted in a $27.5 billion gain 

(cost decrease) at DOD. Across the government, the net gain from changes in actuarial assumptions 

associated with the Government’s civilian and military benefits programs amounted to $19.3 billion in FY 

2015 as compared to a $3.5 billion loss in FY 2014, resulting in a $22.8 billion combined decrease in net 

cost. Agencies administering these types of programs employ a complex series of assumptions, including 

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

levels, disability claims rates, and cost of living to make annual actuarial projections of their long-term 

benefits liabilities. In addition to DOD, the Department of Veterans Affairs (VA) ($13.0 billion gain) and 

 

14 As shown in Table 4, 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. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 17 

the Office of Personnel Management (OPM) ($17.1 billion loss) reported significant gains and losses, 

respectively from changes in these assumptions for FY 2015; 

 $78.0 billion and $38.3 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 $19.9 billion cost increase at the 

Department of Energy, largely 

associated with changes in 

environmental and other liability 

estimates15; 

 an $11.6 billion cost decrease at 

the Department of Housing and 

Urban Development (HUD) due 

largely to subsidy cost reestimates by the Federal Housing Administration (FHA) and a decline in interest 

expenses for insurance and mortgage programs and funds16; and 

 an $11.4 billion cost decrease at the Department of Education (Education), primarily due to a combination 

of decreases in gross costs related to subsidy cost reestimates (e.g., for updates for actual loan activity, 

changes and updates to loan 

program interest and discount 

rates) for Education’s largest 

loan programs, and increases in 

earned or exchange revenues 

(interest earned on loans).17 

Chart A shows the composition of 

the Government’s net cost. In FY 2015, 

nearly two-thirds of total net cost came 

from DOD, the Social Security 

Administration (SSA), and the 

Department of Health and Human 

Services (HHS). These three agencies 

have consistently incurred the largest 

agency shares of the Government’s total 

net cost in recent years (Chart B). As 

indicated above, HHS and SSA net costs 

for FY 2015 ($1,029.5 billion and $944.7 billion, respectively) are attributable to major social insurance programs 

administered by these agencies. The Statement of Long-Term Fiscal Projections (SLTFP), the Statement of Social 

Insurance (SOSI), and the related analysis and discussion included in this Financial Report, discuss the projected 

future revenues, expenditures, and sustainability of federal government programs in general and of social insurance 

programs in particular in greater detail. DOD net costs of $573.6 billion relate primarily to operations, readiness, 

and support; personnel; research; procurement; and retirement and health benefits. Chart A shows that the 

Department of Veterans Affairs (VA) as well as interest on debt held by the public contributed an additional 

combined 10 percent, and the other agencies included in the Government’s FY 2015 Statement of Net Cost 

accounted for a combined 24 percent of the Government’s total net cost for FY 2015. 

 

15 Department of Energy FY 2015 Agency Financial Report, p. 23 16 Department of Housing and Urban Development FY 2015 Agency Financial Report, p. 35 17 Department of Education FY 2015 Agency Financial Report, pp. 32-36
18 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Tax and Other Revenues - Getting to the “Bottom Line” 

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 C shows that 

increases in each of the three taxes and other revenue categories shown - individual income tax and withholdings, 

corporation income taxes, and other revenue - combined to increase total Government tax and other revenues by 

$267.9 billion or 8.7 percent to nearly $3.3 trillion for FY 2015. This change is primarily attributed to an overall 

improvement in individual and corporation 

income tax collections.18 As noted in the 

earlier discussion of budget receipts, these 

increases largely stem from a stronger 

economy and growth in wages and salaries. 

Earned revenues from Table 4 are not 

considered “taxes and other revenue” and, 

thus, are not shown in Chart C. Individual 

income tax and tax withholdings and 

corporation income taxes accounted for about 

76 percent and 10 percent of total revenue, 

respectively in FY 2015; other revenues from 

Chart C include excise taxes, unemployment 

taxes, and customs duties. 

As previously shown in Table 4, the 

increase in tax and other revenues more than 

offset the slight increase in net cost, resulting 

in a net operating cost decrease of more than one-third ($271.6 billion or 34.3 percent) from $791.3 billion for FY 

2014 to $519.7 billion for FY 2015. 

Assets and Liabilities: "What We Own and What We Owe" 

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 5). It is important to note that the balance sheet 

does not include the financial value of the Government’s sovereign powers to tax, regulate commerce, and set 

monetary policy. It also excludes its control over nonoperational resources, including 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, when such items as the Government’s future social insurance exposures (namely, Medicare 

and Social Security), as well as other fiscal projections, commitments and contingencies, are taken into account. 

These exposures are discussed later in this Management Discussion and Analysis (MD&A) section as well as in the 

financial statements and RSI sections of this Financial Report. 

 

18 Department of the Treasury FY 2015 Agency Financial Report, p. 27 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 19 

Assets – “What We Own”

As of September 30, 2015, the Government held about $3.2 trillion in assets, an increase of $164.5 billion (5.4 

percent). The Government’s assets are comprised mostly of net loans receivable ($1.2 trillion) and net property, 

plant, and equipment ($893.9 billion).19 From Note 4, the Department of Education’s (Education’s) Federal Direct 

Student Loan Program accounted for $880.6 billion (72.4 percent) of total net loans receivable. Education’s direct 

student loan program receivables balances have more than doubled 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.20 

 

Liabilities – “What We Owe” 

As indicated in Table 5 and Chart D, of 

the Government’s $21.5 trillion in total 

liabilities, the largest liability is federal debt 

securities held by the public and accrued 

interest, the balance of which increased $338.9 

billion (2.6 percent) to $13.2 trillion as of 

September 30, 2015. 

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 $46.7 billion (0.7 percent) during FY 

2015, to $6.7 trillion. 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 2.8 million retirees and 

annuitants. 

Federal Debt 

The unified 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 Unified Budget and Other Activities

reports how the annual unified 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, which is reported 

on the Government’s balance sheet as a liability, 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. Federal debt held by the public and accrued interest totaled $13.2 trillion as of September 

30, 2015. 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 2015, new 

borrowings were $7.0 trillion (decrease from FY 2014) and repayments of maturing debt held by the public were 

$6.7 trillion (slight increase from FY 2014). 

In addition to debt held by the public, the Government has about $5.1 trillion in intragovernmental debt 

outstanding, which arises when one part of the Government borrows from another. It represents debt issued by the 

 

19 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 25 – Stewardship Land and Heritage Assets. 20 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), beginning in July 2010, no new loans were originated under the Federal Family Education Loan (FFEL) Program (FY 2015 

Federal Student Aid Financial Report ). See also: U.S. Department of Education FY 2015 Agency Financial Report p. 30. 
20 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Treasury and held by Government accounts, including the Social Security ($2.8 trillion) and Medicare ($261.6 

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 2015, debt subject to the 

statutory limit (DSL) was $18.1 trillion. 

Prior to 1917, Congress approved 

each debt issuance. In 1917, to facilitate 

planning in World War I, Congress 

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. In February 2013, 

enactment of the No Budget, No Pay Act 

of 2013 (Public Law 113-3) suspended the debt limit, enabling the debt to increase as needed through May 18, 2013. 

In accordance with provisions of the Act, the debt limit was reinstated on May 19, 2013 at a level of $16.7 trillion. 

Because the new debt limit was set at the level of then outstanding debt, Treasury began implementing 

“extraordinary measures”, on a temporary basis, which were still in effect on September 30, 2013, to keep the DSL 

under the statutory limit. On October 17, 2013, P.L. 113-46 again suspended the debt limit, this time through 

February 7, 2014, after which the limit was re-instated at a level of $17.212 trillion. P.L. 113-83 again suspended 

the debt limit, this time from February 15, 2014 through March 15, 2015. On March 16, 2015, Treasury again 

implemented extraordinary measures, on a temporary basis, which were still in effect on September 30, 2015, to 

keep the DSL under the statutory limit of $18.1 trillion.21 Most recently, in November 2015, the Bipartisan Budget 

Act of 2015 (P.L. 114-74) again suspended the debt limit through March 15, 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. 

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

country’s debt to the size of its economy, making this measure sensitive to changes in both. Over time, the debt-toGDP ratio has varied widely. For most of the nation’s history, the debt-to-GDP ratio has tended to increase during 

wartime and decline during peacetime. That pattern continued to hold following World War II until the 1970s. As 

shown in Chart E, wartime spending and borrowing had pushed the debt-to-GDP ratio to an all-time high of 106 

percent in 1946, but it decreased rapidly in the post-war years, falling to 79 percent by 1950, 44 percent in 1960, and 

the postwar low point of 23 percent in 1974. Since then, the ratio has increased, growing rapidly from the mid1970s until the early 1990s. In the 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, generated a 

significant decline in the debt-to-GDP ratio over the course of the 1990s, from a peak of 48 percent in 1993-1995, to 

 

21A delay in raising the statutory debt limit existed as of September 30, 2015. When delays in raising the statutory debt limit occur, Treasury 

often must deviate from its normal debt management operations and take a number of extraordinary measures to meet the Government’s 

obligations as they come due without exceeding the debt limit. Extraordinary measures taken by Treasury during the period of March 16, 2015, 

through September 30, 2015 resulted in federal debt securities not being issued to certain federal government accounts. As a result of Treasury 

securities not being issued to: the Government Securities Fund (G Fund) of the Thrift Savings Plan (TSP) , Treasury reported miscellaneous 

liabilities in the amount of $204.6 billion that represent uninvested principal of and related interest for the G Fund that would have been reported 

as Federal Debt Securities Held by the Public and Accrued Interest had there not been a delay in raising the statutory debt limit as of September 

30, 2015, and had the securities been issued. In addition, uninvested principal of and related interest for the Civil Service Retirement and 

Disability Fund and the Postal Service Retiree Health Benefits Fund that would have been reported as intragovernmental debt totaled $146.1 

billion. See Note 11, Federal Debt Securities Held by the Public and Accrued Interest and Note 16, Other Liabilities. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 21 

FY 2015 FY 2014

Real GDP Growth 2.2% 2.9%

Residential Investment Growth 9.4% 0.5%

Average monthly payroll job change (thousands) 227 226

Unemployment rate (percent, end of period) 5.1% 6.0%

Consumer Price Index (CPI) 0.0% 1.7%

CPI, excluding food and energy 1.9% 1.7%

Treasury constant maturity 10-year rate (end of period) 2.06% 2.52%

Moody's Baa bond rate (end of period) 5.35% 4.81%

Table 6: National Economic Indicators*

* Some FY2014 data may differ from the FY2014 Financial Report due to updates and revisions.

31 percent in 2001. During the last decade, much of this progress was undone as 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. 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 74.4 percent as 

of September 30, 2014, but the ratio declined slightly during FY 2015 to 73.8 percent despite a slight increase in 

borrowing to finance the deficit.22

The Economy in Fiscal Year 2015 

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 6, the 

economy continued to expand at 

a moderate pace during FY 2015. 

Employment rose steadily and 

the unemployment rate declined 

during the fiscal year to its 

lowest level in more than seven 

years. 

Real (i.e., inflation-adjusted) GDP expanded 2.2 percent during FY 2015, slowing from the 2.9 percent 

increase recorded over the four quarters of FY 2014. The moderation in the pace of expansion was due in part to a 

deterioration in the net export deficit. Growth of consumer spending accelerated during FY 2015 to 3.2 percent, and 

the recovery in the housing sector picked up sharply, with residential fixed investment increasing by 9.4 percent, 

compared with a rise of 0.5 percent during FY 2014. Growth of nonresidential fixed investment slowed to a 2.2 

percent advance during FY 2015 from 7.6 percent during the previous fiscal year. 

Labor market conditions improved further during FY 2015. The economy added 2.7 million nonfarm payroll 

jobs during the course of the fiscal year, matching the number of jobs added during FY 2014. On a monthly basis, 

nonfarm payroll employment rose at an average rate of 227,000 jobs per month, close to the average monthly 

increase of 226,000 during FY 2014. The number of unemployed persons fell from 9.3 million in September 2014 

to 7.9 million in September 2015. The unemployment rate declined 0.9 percentage points, from 6.0 percent in 

September 2014 to 5.1 percent in September 2015. At the end of FY 2015, the unemployment rate was 4.9 

percentage points lower than the peak of 10.0 percent, reached in October 2009. 

Inflation remained low during FY 2015. The consumer price index (CPI) was flat during FY 2015, reflecting 

sharply lower energy prices and slower growth of food prices. Consumer price inflation was 1.7 percent during FY 

2014. Underlying core inflation (the CPI excluding food and energy) was 1.9 percent during FY 2015, compared 

with 1.7 percent during the previous fiscal year. 

Growth of real disposable (i.e., after-tax) personal income accelerated during FY 2015, reflecting lower 

inflation. The level of corporate profits fell 5.1 percent during FY 2015, compared with a gain of 5.8 percent during 

the previous fiscal year. 

 

22 Joint Statement of OMB Director, Shaun Donovan and Treasury Secretary, Jacob Lew. 
22 MANAGEMENT’S DISCUSSION AND ANALYSIS 

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

While the Government’s immediate priority is to ensure that the economic expansion is sustained, there are 

longer-term fiscal challenges that must ultimately be addressed. The Government took potentially significant steps 

towards a sustainable fiscal policy by enacting the Affordable Care Act (ACA) 23 in 2010, the Budget Control Act 

(BCA) in 2011, and the American Taxpayer Relief Act (ATRA) in 2013. The ACA holds the prospect of lowering 

long-term per-beneficiary spending growth for Medicare and Medicaid, the BCA significantly curtails discretionary 

spending, and ATRA increases revenues. Together, these three laws substantially reduce the estimated long-term 

fiscal gap. However, persistent growth of health care costs the retirement of the “baby boom” generation24, 

increasing longevity, and lower birth rates will make it increasingly difficult to fund critical social programs, 

including Medicare, Medicaid, and Social Security. 

Pursuant to federal accounting standards, this FY 2015 Financial Report introduces a Statement of Long-Term 

Fiscal Projections as a basic financial statement and a related Note Disclosure (Note 24). This statement, note 

disclosure, and additional related information had previously appeared collectively in the Financial Report as 

Required Supplementary Information (RSI). The Statement displays the present value of 75-year projections of the 

federal government’s receipts and non-interest spending25 for FY 2015 and FY 2014 (see Table 1). Additional 

information about these projections may be found in Note 24 and the RSI section of this Financial Report. 

Fiscal Sustainability 

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. A sustainable policy is one where the 

debt-to-GDP ratio is stable or declining over the long term. 

To determine if current fiscal policies are sustainable, the projections of the deficit and debt discussed here 

assume current policy (i.e., current law, with certain adjustments, such as extension of expiring policies that are 

expected to continue)26 will continue indefinitely and draw out the implications for the growth of debt held by the 

public as a share of GDP. 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 indicate 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 6 percentage points over the next 

decade before commencing a steady rise to 223 percent in 2090 and is expected 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 1.2 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. 

It is important to address the Government’s fiscal imbalances soon. Delaying action increases the magnitude 

of spending reductions and/or revenue increases necessary to stabilize the debt-to-GDP ratio. For example, it is 

estimated that the magnitude of reforms necessary to close the 75-year fiscal gap is about 25 percent larger if 

reforms are delayed by just ten years, and nearly 60 percent larger if reform is delayed 20 years. 

The estimates of the cost of policy delay in this Financial Report 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. However, abrupt 

and poorly designed deficit reduction could also be counterproductive for the economy, particularly if it takes the 

form of reducing investments in infrastructure, education, or innovation that are essential for robust longer-term 

economic growth. 

 

23 P.L. 111-148, as amended by P.L. 111-152. The ACA expands health insurance coverage, provides health insurance subsidies for low-income 

individuals and families, includes many measures designed to reduce health care cost growth, and reduces the annual increases in Medicare 

payment rates. 

24 Refers to the segment of the population born during the post-World War II era during which time birth rates in the U.S. were higher than 

normal. 

25 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. 26 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 23 

The Primary Deficit, Interest, and Debt 

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

the debt-to-GDP ratio that the Government controls directly. (The other determinants are interest rates and growth 

in GDP). Chart F shows receipts, non-interest spending, and the difference – the primary deficit – expressed as a 

share of GDP (primary deficit-to-GDP ratio). The primary deficit-to-GDP ratio grew rapidly in 2009 due to the 

financial crisis and the recession and the policies pursued to combat both. The ratio remained high from 2010 to 

2012 despite shrinking in each successive year, and fell significantly in 2013 and 2014. The primary deficit is 

projected to shrink in the next few years as discretionary spending limits called for in the BCA continue and the 

economy continues to recover, becoming a primary surplus in 2019 that peaks at 0.5 percent of GDP in 2024. After 

2025, 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 expected to cause the primary surplus to 

steadily deteriorate and become a primary deficit starting in 2028 that reaches 1.0 percent of GDP by 2038. After 

2039, the age composition of the population is stable and the pace of health care price increases slows, causing the 

primary deficit to gradually decrease and become a primary surplus in 2085 that reaches 0.1 percent of GDP in 

2090. 

Receipts as a share of GDP fell substantially in 2009 and 2010 and remained low in 2011 and 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 rose to 

18.1 percent in 2015, exceeding its 30-year average due to continued economic growth and the higher tax rates 

enacted under the ATRA. After 

2020, receipts are projected to 

grow slightly more rapidly than 

GDP 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 2027, and 

to then rise gradually to 20.9 

percent of GDP by 2040 and 

21.4 percent of GDP in 2090. 

The reductions in the noninterest spending share of GDP 

over the next few years are 

mostly due to the expected 

reductions in spending for 

overseas contingency operations, 

caps on discretionary spending, and the automatic spending cuts mandated by the BCA; the subsequent increases are 

principally due to faster growth in Medicare, Medicaid, and Social Security spending (see Chart F). 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, 1.6 percentage points, and 0.4 percentage points, 

respectively. After 2040, the Social Security spending share of GDP gradually declines, returns to 2040 levels in 

2060, and then increases slightly, 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. The ACA provision of health 

insurance subsidies and expanded Medicaid coverage boost federal spending, and other ACA provisions 

significantly reduce per-beneficiary Medicare cost growth. On net, the ACA is projected to substantially reduce the 

growth rate of Medicare expenditures over the next 75 years. However, as discussed in Note 23, these projections 

are subject to much uncertainty about the ultimate effects the ACA will have on health care cost growth. 
24 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Period of Delay

No Delay: Reform in 2016................ 1.2 percent of GDP between 2016 and 2090

Ten Years: Reform in 2026............... 1.5 percent of GDP between 2026 and 2090

Twenty Years: Reform in 2036......... 1.9 percent of GDP between 2036 and 2090

Table 7

Costs of Delaying Fiscal Reform

Change in Average Primary Surplus

Note: Amounts represent the change in the average primary surplus over the specified period necessary to yield 

the current year debt-to-GDP ratio. Reforms occurring in 2015, 2025, and 2035 from the 2014 Financial Report 

were 2.1, 2.5, and 3.1 percent.

The primary deficit-to-GDP projections in Charts F and G (left axis), along with projections for interest rates, 

determine the debt-to-GDP ratio 

projections shown in Chart G 

(right axis). That ratio was 74 

percent at the end of FY 2015 

and under the long-term fiscal 

projections of current policy is 

projected to be 67 percent in 

2025, 106 percent in 2045, and 

223 percent in 2090. The debtto-GDP ratio rises at an 

accelerating rate 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.27 The continuous 

rise of the debt-to-GDP ratio 

after 2025 indicates that current 

policy is unsustainable. 

These debt projections are 

generally lower than the 

corresponding projections in both the FY 2014 and FY 2013 Financial Reports. For example, the debt-to-GDP 

projection for 2088 (the final projection year for the 2013 report) is 217 percent in this year’s Financial Report, 315 

percent in the FY 2014 Financial Report, and 277 percent in the FY 2013 Financial Report.

28 

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 rise above current-policy levels in order for the 

debt-to-GDP ratio in 2090 to equal its level in 2015 (74 percent). This fiscal gap is estimated to equal 1.2 percent 

of GDP. It is the difference between the average level of primary surpluses over the next 75 years that would result 

in the 2090 debt-to-GDP ratio equaling its 2015 level (0.9 percent), and the average level of primary surpluses over 

the next 75 years under current policies (-0.3 percent, i.e., primary deficits averaging 0.3 percent). The 75-year 

fiscal gap is 6.1 percent as large as the 75-year present value of projected receipts and 6.0 percent as large as the 75-

year present value of non-interest spending, and is 0.9 percentage points smaller than the 2.1 percent estimate in 

2014. 

It is noteworthy that preventing the debt-to-GDP ratio from rising over the next 75 years requires that primary 

surpluses be substantially positive on average. This is true because projected GDP growth rates are, on average, 

smaller than the projected government borrowing rate over the next 75 years. The implication is that debt would 

grow faster than GDP if primary surpluses were zero on average. For example, if the primary surplus was precisely 

zero in every year, then debt would grow at the rate of interest in every year, which would be faster than GDP 

growth. 

Table 7 illustrates the cost of delaying policy to close the fiscal gap by comparing three policies that begin on 

different dates. The first 

policy begins immediately and 

calls for increasing primary 

surpluses by 1.2 percent of 

GDP in every year between 

2016 and 2090. This is 

accomplished by invoking 

some combination of spending 

reductions and revenue 

 

27 The change in debt each year is also affected by certain transactions not included in the unified 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. 28 See the Required Supplementary Information section of the FY 2014 Financial Report of the U.S. Government for more information about 

changes from the long term fiscal projections for FY 2013.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 25 

increases that amount to 1.2 percent of GDP in every year over the 75-year projection period. The second policy in 

Table 7 begins in 2026. Because the same fiscal consolidation must be compressed into ten fewer years, this policy 

change is more abrupt, calling for primary surplus increases amounting to 1.5 percent of GDP in every year between 

2026 and 2090. Similarly, if debt is allowed to accumulate unabated for 20 years, then closing the 75-year fiscal gap 

would require even more abrupt primary surplus increases amounting to 1.9 percent of GDP in every year between 

2036 and 2090. The differences between the primary surplus boost starting in 2026 and 2036 (1.5 and 1.9 percent of 

GDP, respectively) and the primary surplus boost starting in 2016 (1.2 percent of GDP) is a measure of the 

additional burden policy delay would impose on future generations. Future generations are harmed by a policy 

delay of this sort 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 Government took potentially significant steps towards a sustainable fiscal policy by enacting the ACA in 

2010, the BCA in 2011, and ATRA in 2013. The ACA holds the prospect of lowering long-term per-beneficiary 

spending growth for Medicare and Medicaid, the BCA significantly curtails discretionary spending, and ATRA 

increases revenues. Together, these three laws substantially reduce the estimated long-term fiscal gap. But even 

with these laws, the debt-to-GDP ratio is projected to remain relatively flat over the next ten years and then 

commence a continuous rise over the remaining projection period and beyond if current policies are kept in place. 

This trend implies that current policies are not sustainable. Subject to the important caveat that changes in policy 

are not so abrupt that they slow continued economic growth, the sooner policies are put in place to avert these 

trends, the smaller the revenue increases and/or spending decreases will need to be to return the Government to a 

sustainable fiscal path over the long term. 

While this Financial Report’s projections of expenditures and receipts under current policy are highly 

uncertain, it is nevertheless nearly certain that current policy cannot be sustained indefinitely. 

These and other issues concerning fiscal sustainability are discussed in further detail in Note 24 and the RSI 

section of this Financial Report. 

Social Insurance 

The preceding analysis of the Government’s long-term fiscal projections considered Government receipts and 

spending as a whole. The Statement of Social Insurance (SOSI) provides a more focused perspective of the 

Government’s “social insurance” programs: Social Security, Medicare, Railroad Retirement, and Black Lung. 29 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. 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 2015 and 2014 SOSI, the amounts eliminated totaled $24.8 trillion and $24.7 

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 24). 

 The SOSI provides perspective on the Government’s long-term estimated exposures and costs for social 

insurance programs. While these expenditures are not considered Government liabilities, they do have the potential 

to become expenses and liabilities in the future, 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 for future benefits.

 

29 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 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Table 8 summarizes amounts reported in the SOSI, showing that net social insurance expenditures are projected 

to be $41.5 trillion over 75 years as of January 1, 2015 for the “Open Group,” a decrease of $429 billion over net 

expenditures of $41.9 trillion projected in the 2014 Financial Report.

30 The 2015 amounts reported for Medicare 

reflect current law31 and the 2014 amounts reflect the “projected baseline scenario” for Part B.32 

Table 9 on the following page summarizes the principal reasons for the changes in projected social insurance 

amounts during 2015 and 2014. The following briefly summarizes the significant changes for the current valuation 

(as of January 1, 2015) as disclosed in Note 23, Social Insurance. See Note 23 for additional information. 

 

30 '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. 31 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. 32 The projected baseline scenario includes the assumption that the current-law physician updates will be legislatively overridden and that 

physician updates that were required at the time of publication of the 2014 Medicare Trustees Report will be 0.6 percent each year starting with 

2016. (2014 Medicare Trustees Report, p. 8/footnote 5)
 MANAGEMENT’S DISCUSSION AND ANALYSIS 27 

 Change in valuation period: This change replaces a small negative net cash flow for 2014 and replaces it 

with a much larger negative net cash flow for 2089. As a result, the present value of the estimated future 

net cash flows decreased (became more negative) by $1.9 trillion. 

 Changes in economic and other healthcare assumptions: The assumption changes, specific to the Medicare 

projections, included, but were not limited to: for the current valuation (beginning on January 1, 2015), the 

only change to the ultimate economic assumption was that the ultimate real wage differential is assumed to 

be 1.17 percent in the current valuation period, compared to 1.13 percent in the prior valuation period. The 

higher wage differential assumption is more consistent with recent experience and expectations of slower 

growth in employer sponsored group health insurance premiums from the Centers for Medicare and 

Medicaid Services (CMS) Office of the Actuary. 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. 

o 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: (1) the ratio of average taxable earnings to the average wage 

averages about 0.6 percentage points higher during the long-range period compared to the previous 

valuation; and (2) the projected suspense file contains fewer wage items, which is consistent with 

having fewer workers (many of whom are undocumented immigrants) with wages on the suspense file 

and more of these workers with earnings in the underground economy, compared to the previous 

valuation. 

o The following health care assumptions, specific to the Medicare projections, were changed in the 

current valuation: (1) lower long-range growth rate assumptions; (2) utilization rate assumptions for 

inpatient hospital services were decreased; (3) lower assumed hospice spending; (4) higher assumed 

enrollment in Medicare Advantage plans where benefits are more costly; and (5) introduction of highcost specialty drugs used to treat hepatitis C. 

The net impact of these changes increased (made less negative) the present value of the estimated future 

cash flows by $3.2 trillion. For Part A, these changes resulted in an increase to the present value of future 

expenditures and income, with an overall increase in the estimated future net cash flow. For Parts B and D, 

these changes decreased the present value of estimated future expenditures (and also income). 

 Change in projection base: Actual income and expenditures in 2014 were different than what was 

anticipated when the 2014 Trustees Report projections were prepared. Medicare Part A income was 

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

total income and expenditures were also higher 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, 2014 and January 1, 2015 is incorporated in the current valuation 

and is slightly more than projected in the prior valuation. These changes had an overall net effect of 

decreasing (making more negative) the estimated future net cash flows by $1.2 trillion. 
28 MANAGEMENT’S DISCUSSION AND ANALYSIS 

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 23, there continues to be uncertainty about whether the 

projected cost savings and productivity improvements will be sustained in a manner consistent with the projected 

cost growth over time. Note 23 includes an alternative projection to illustrate the uncertainty of projected Medicare 

costs. As indicated earlier, GAO disclaimed opinions on the 2015, 2014, 2013, 2012 and 2011 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 2035 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.33 According to the Medicare Trustees’ 

Report, spending on Medicare is projected to rise from its current level of approximately 3.5 percent of GDP to 5.6 

percent in 2040 and to 6.0 percent in 2089.34 The Hospital Insurance (HI) Trust Fund is now expected to remain 

solvent until 2030, (unchanged from last year’s report). Under current law, scheduled HI tax revenue would be 

sufficient to pay 86 percent of HI costs after depletion in 2030 and then gradually increasing to 84 percent by 2089. 

As for Social Security, combined spending is projected to increase gradually from its current level of 4.9 

percent of GDP to about 6.0 percent by 2035, declining to 5.9 percent by 2050 and rises to 6.2 percent by 2089. The 

Social Security Trustees’ Report indicates that annual OASDI income, considered on a theoretical basis, including 

interest on trust fund assets, will exceed annual cost and trust fund assets will increase every year until 2020, at 

which time it will be necessary to begin drawing down on trust fund assets to cover part of expenditures until asset 

reserves become depleted in 2034 (one year later than indicated in last year’s Report). Continuing tax income would 

be sufficient to pay 79 percent of scheduled benefits in 2034 and 73 percent of scheduled benefits in 2089. The 

Disability Insurance (DI) Trust Fund alone was expected to deplete much sooner, by the end of 2016. However, the 

impending depletion of the DI Trust Fund was circumvented by the passage of the Bipartisan Budget Act of 2015, 

which reallocated a portion of the payroll tax rate from the Old Age Survivors Insurance (OASI) Trust Fund to the 

DI Trust Fund. This reallocation is expected to ensure full payment of disability benefits into 2022.35 The 

projections assume that full Social Security and Medicare benefits are paid after the corresponding trust fund assets 

are depleted. 

As noted earlier, it is apparent that these programs are on a fiscally unsustainable path (as was previously 

discussed and as noted in the Trustees’ Reports). Additional information from the Trustees Reports may be found in 

the RSI section of this Financial Report. 

 

33 2015 Annual Trustees Reports on Social Security and Medicare (Summary), pp. 3, 9-10. 34 Percent of GDP amounts are expressed in gross terms (including amounts financed by premiums and state transfers). 35 2015 Annual Trustees Reports on Social Security and Medicare (Summary), pp. 3, 9-10.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 29 

Systems, Controls, and Legal Compliance 

Systems 

As federal agencies demonstrate success in obtaining opinions on their audited financial statements, the federal 

government continues to face challenges in implementing financial 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) was 10 in both FY 2015 and FY 

2014, and the number of auditors reporting lack of substantial compliance with one or more of the three Section 

803(a) FFMIA requirements was 12 in FY 2015 and 11 in FY 2014. These results underscore the importance of 

current initiatives to standardize the financial management practices across the federal government. 

Controls 

Federal managers have a fundamental responsibility to develop and maintain effective internal controls. 

Effective internal controls help to ensure that programs are managed with integrity and resources are used efficiently 

and effectively through three objectives: effective and efficient operations, reliable financial reporting, and 

compliance with applicable laws and regulations. The safeguarding of assets is a subcomponent of each objective. 

In response to major management challenges to agency mission and goals, agencies are increasingly 

recognizing the importance and utility of Enterprise Risk Management (ERM) as a tool for identifying, assessing, 

mitigating, managing and preparing for risk. Effectively implemented, ERM contributes to improved decisionmaking, adopting a proactive rather than a reactive approach towards risk. ERM has the potential to change the 

perception that internal controls are limited to just compliance and financial reporting. Instead, internal controls can 

play a key tool to address management challenges that cut across multiple agency functions. ERM is currently 

practiced in both the private and public sectors as well as internationally, with examples in governments of the 

United Kingdom, Canada, and Japan, among others. In an effort to improve taxpayers’ trust in government and 

prepare for future challenges, OMB has promoted ERM best practices across agencies. The upcoming update to 

OMB Circular No. A-123 will further explain and highlight ERM. 

The Office of Management and Budget (OMB) Circular No. A-123, Management’s Responsibility for Internal 

Control, is the policy document that implements the requirements of 31 U.S.C. 3512 (c), (d) (commonly known as 

the Federal Managers’ Financial Integrity Act or FMFIA). Circular No. A-123 primarily focuses on providing 

agencies with a framework for assessing and managing risks more strategically and effectively. The Circular is 

currently being revised to reflect changes incorporated in GAO’s recently updated Standards for Internal Control in 

the federal government. The revised Circular will be available to the Agencies in the near future. The Circular 

contains multiple appendices that address, at a more detailed level, one or more of the objectives of effective internal 

control. 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. Appendix D defines new requirements for 

determining compliance with the FFMIA and will contribute to efforts to reduce the cost, risk, and complexity of 

financial system modernizations. 

The total number of reported material weaknesses for the CFO Act agencies was 40 and 35 for FYs 2015 and 

2014, respectively. Effective internal controls are a challenge not only at the agency level, but also at the 

governmentwide level. GAO reported 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 diligence and commitment are needed. 

The Department of Health and Human Services (HHS) and the Department of the Treasury (Treasury) each 

have responsibilities for ensuring payment accuracy in programs created under the Affordable Care Act. Performing 

comprehensive risk assessments is critical to establishing an effective program for achieving payment accuracy in 

future years. In FY 2015, both Departments finalized plans for and began to perform comprehensive improper 

payment risk assessments to determine areas that might affect Advance Premium Tax Credit (APTC), Premium Tax 

Credit (PTC), Cost-sharing Reduction and Basic Health Plan payment accuracy. Both Departments are leveraging 

non-profit contractors known as Federally Funded Research and Development Centers (FFRDC) for the risk 

assessments, which will facilitate interagency coordination and provide a complete assessment of risk that takes into 

account activities by the Marketplaces created under the ACA, HHS and the Internal Revenue Service. An update 

on the status and preliminary results of the FFRDC supported risk assessments will be reported in the FY 2016 

Agency Financial Reports (AFR). In addition, both Departments have established internal controls to provide for 

effective program operations, reliable financial reporting, and compliance with laws and regulations. 
30 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Legal Compliance 

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

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

Compliance is addressed as part of agency financial statement audits. Agency auditors test for compliance with 

selected laws and regulations related to financial reporting. 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. 

Financial Management Progress and Priorities 

Since the passage of the CFO Act of 1990, the federal financial community has made important strides in 

instilling strong accounting and financial reporting practices. For FY 2015, 21 of the 24 CFO Act agencies obtained 

an opinion from the independent auditors on their financial statements, three agencies received disclaimers36. In 

addition, 40 auditor-identified material weaknesses were reported in FY 2015, an approximately 30 percent decline 

from the material weaknesses that were identified in the early 2000s (see Table 10 on the following page). An 

increasing number of federal agencies have initiated and sustained disciplined and consistent financial reporting 

operations, implemented effective internal controls around financial reporting, and have successfully integrated 

transaction processing and accounting records. These efforts have resulted in improved results on financial 

statement audits. However, weaknesses in basic financial management practices and other limitations continue to 

prevent three of the CFO Act agencies, and the Government as a whole, from achieving an audit opinion. 

Today, accountability means providing transparent information to the public about where and how federal 

dollars are being spent. It means protecting against fraud. It means avoiding wasteful or excessive use of taxpayer 

funds. It means ensuring that the federal government is not only responsible stewards of taxpayer dollars, but frugal 

stewards as well, looking for every opportunity to save money and create greater efficiencies. 

The federal government has come a long way since the passage of the CFO Act in 1990. Today, the federal 

financial management community is focused on three important improvement initiatives: 

 Improving the quality, utility, and transparency of financial information; 

 Protecting against waste, fraud, and abuse; and 

 Helping agencies maximize the impact of their limited financial resources. 

 

36 The 21 agencies include HHS, which received a clean opinion on all statements except the Statement of Social Insurance and the Statement of 

Changes in Social Insurance, both of which received a disclaimer of opinion. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 31 

Improve the Quality, Utility, and Transparency of Federal Financial Information 

DATA Act 

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 machine-readable format. This data includes obligations, outlays, budgetary 

authority, unobligated balances, and other budgetary resources for each appropriations account. It also expands 

federal award reporting previously required under FFATA. In May 2015, OMB and Treasury issued financial data 

definition standards and policy guidance outlining the first set of DATA Act implementation requirements. By 

2017, all agencies must report this data to a centralized website and adhere to the data standards and guidance issued 

by OMB and Treasury. Posting this financial information will allow spending comparisons across and within 

agencies that have never been possible before as well as unlock spending data for use by the public. 

Since the DATA Act was signed into law, OMB and Treasury have been partnering to lead governmentwide 

implementation. They have established a robust governance structure with representatives from agencies and 

functional communities fostering collaboration on data standards, policy changes, USAspending.gov improvements, 

and agency implementation. The implementation plan was developed to be collaborative, iterative, incremental, and 

agile, with a data centric focus. This approach sets the foundation for future success with shorter term and 

intermediate deliverables. 

USAspending.gov

USAspending.gov was established to provide clear information on federal award spending. Continuing to 

improve the quality, utility and transparency of this federal spending information is a foundational Administration 

Agency Beginning New Resolved Consolidated Ending

Department of Agriculture (USDA) 2 00 0 2

Department of Commerce (DOC) 0 00 0 0

Department of Defense (DOD) 13 0 0 0 13

Department of Education (Education) 0 00 0 0

Department of Energy (DOE) 0 00 0 0

Department of Health and Human Services (HHS) 1 00 0 1

Department of Homeland Security (DHS) 4 01 0 3

Department of Housing and Urban Development (HUD) 8 32 0 9

Department of the Interior (DOI) 1 21 0 2

Department of Justice (DOJ) 0 00 0 0

Department of Labor (DOL) 0 10 0 1

Department of State (State) 0 00 0 0

Department of Transportation (DOT) 1 00 0 1

Department of the Treasury (Treasury) 1 00 0 1

Department of Veterans Affairs (VA) 1 30 0 4

Agency for International Development (USAID) 1 00 0 1

Environmental Protection Agency (EPA) 1 00 0 1

General Services Administration (GSA) 1 01 0 0

National Aeronautics and Space Administration (NASA) 0 00 0 0

National Science Foundation (NSF) 0 00 0 0

Nuclear Regulatory Commission (NRC) 0 00 0 0

Office of Personnel Management (OPM) 0 10 0 1

Small Business Administration (SBA) 0 00 0 0

Social Security Administration (SSA) 0 00 0 0

Totals 35 10 5 0 40

Table 10: Auditor-Reported Material Weaknesses: FY 2015
32 MANAGEMENT’S DISCUSSION AND ANALYSIS 

commitment to open government, as identified in the U.S. Government’s National Action Plan for Open 

Government. To continue its efforts to improve the quality of spending data, OMB and Treasury will issue 

additional policy guidance to adjust USAspending.gov reporting requirements and procedures pursuant to the 

DATA Act. 

To align our federal spending and financial management transparency efforts, the Administration has 

transferred responsibility for USAspending.gov from the General Services Administration (GSA) to Treasury. In 

March 2015, Treasury released a new version of USAspending.gov with improved search capabilities and 

visualizations of data. Treasury’s leadership in executing a governmentwide vision for spending transparency 

enables the federal government to move forward in achieving the objective of making spending data more useful, 

accurate, and timely – consistent with the agency’s other work through financial reporting, work on improper 

payments, among other priority areas. 

Moving forward, in concert with Treasury, OMB will continue to collaborate with federal and non-federal 

stakeholders to evolve the Administration’s governmentwide spending transparency framework to effectively 

provide the public with transparent information about how taxpayer dollars are being spent. 

Protect Against Waste, Fraud, and Abuse 

Improper Payments

Addressing improper payments is a central component of the Administration’s overall efforts to eliminate 

waste, fraud, and abuse. When the President took office in 2009, the improper payment error rate was 5.42 percent, 

an all-time high. Since then, the Administration, working together with Congress, has made progress by 

strengthening accountability and transparency through annual reviews by agency Inspectors General, and expanded 

requirements for high-priority programs. As a result of this concerted effort, in FY 2013 the Administration 

reported an improper payment rate of 3.53 percent. In FY 2014 and FY 2015, the governmentwide improper 

payment rate was 4.02 percent and 4.39 percent, which corresponds to an improper payment dollar amount of 

$124.6 billion37 and $136.9 billion, respectively.38 The Medicare Fee for Service (FFS) program continues to 

account for the largest portion of the government-wide total in FY 2015, whereas Earned Income Tax Credit (EITC) 

and Medicaid combined, account for approximately a third of the government-wide total. In addition, agencies 

recovered roughly $20 billion in overpayments through the payment recapture audits and other methods in FY 2015. 

Prior to FY 2015 reporting, agencies were required to categorize their improper payment estimates based on 

three categories of improper payments: (1) documentation and administrative errors; (2) authentication and medical 

necessity errors; and (3) verification errors. However, those categories proved to be limited and not necessarily 

applicable to most programs. Therefore, OMB—in consultation with agencies—developed new improper payment 

categories. FY 2015 marked the first year of the new OMB reporting requirement for root causes reporting as 

shown in Chart H. Approximately $45 billion of the government-wide improper payments in FY 2015 are caused 

by insufficient documentation. A lack 

of supporting documentation could be 

a situation where there is a lack of 

supporting documentation necessary 

to verify the accuracy of a payment 

identified in the improper payment 

testing sample such as a program not 

having the documentation to support a 

beneficiary’s eligibility for a benefit. 

Approximately $31 billion of the 

government-wide improper payments 

in FY 2015 were caused by the 

inability to authenticate eligibility. 

The inability to authenticate eligibility 

is a situation in which an improper 

payment is made because the agency 

is unable to authenticate eligibility 

criteria such as no database or other 

 

37 Due to updates made in some agencies FY 2015 AFRs to reflect their prior year estimates the new revised estimate for FY 2014 is $124.6 

billion compared to the $124.7 billion FY 2014 estimate previously reported. 38 DOD's Commercial Payments were first included in the government-wide rate in FY 2013. When the DOD commercial payments are 

excluded from the government-wide figures the FY 2015 rate is 4.82 percent.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 33 

resource exist to help the agency make a determination of eligibility or statutory constraints exist preventing a 

program from being able to access the information that would help prevent the improper payment. This additional 

detail behind the root causes of improper payments provides more granularity on improper payment estimates and 

will be used to inform more effective corrective actions and more focused strategies for reducing improper 

payments. 

The Administration continues to use the Budget to build on congressional and Administration action to reduce 

improper payments. For example, the President's FY 2016 and 2017 Budget included a number of program integrity 

proposals aimed at reducing improper payments and improving government efficiency. The FY 2016 proposals 

included a robust package of Medicare and Medicaid program integrity proposals, strategic reinvestment in the 

Internal Revenue Service (IRS), and an equally robust package of Social Security program integrity proposals, in 

addition to many other proposals for other programs also aimed at reducing improper payments. The President’s FY 

2017 Budget also includes a number of new program integrity proposals. 

The Government is also advancing data analytics and improved technologies to prevent improper payments 

before they happen. In doing so, as part of the President’s Do Not Pay Initiative, the Administration established a 

Do Not Pay System of Records at Treasury and launched data informed insights reports for agencies to improve 

their payment accuracy and program integrity. OMB’s and Treasury’s combined work with agencies to implement 

the Do Not Pay Initiative, outlined in Section 5 of IPERIA, and OMB Memorandum 13-20, Protecting Privacy while 

Reducing Improper Payments with the Do Not Pay List, has catalyzed agencies to improve their payment business 

operations, reduce improper payments, and incorporate multiple databases and analytics resources as they verify 

entity eligibility for awards or payments. Agencies have reported over $2 billion of improper payments stopped 

through the Do Not Pay initiative and other efforts in FY 2014, as identified in OMB's report to Congress 

transmitted on December 4, 2015. The Administration looks forward to continued work with Congress on 

Administration priorities including the sharing of death data from states to prevent improper payments to the 

deceased while maintaining privacy to ensure program integrity and payment accuracy. 

Combating improper payments within the federal government is a top priority for the Administration and it 

will continue to explore new and innovative ways to address the problem. Each dollar paid in error represents a loss 

of public resources, and this Administration is committed to reducing waste, fraud, and abuse and continuing to 

improve payment accuracy with every tool at its disposal. 

Improving Grants Management 

On December 19, 2014, 28 federal awarding agencies adopted final guidance to better target risk and reduce 

waste, fraud, and abuse (2 CFR Part 200—Uniform Administrative Requirements, Cost Principles, And Audit 

Requirements for Federal Awards). The culmination of a three-year collaborative effort across federal agencies and 

its non-federal partners, the rule effectively implements OMB guidance on grant-making across the 28 federal 

agencies. This effort streamlined eight existing OMB Circulars on financial management into one consolidated set 

of guidance in the CFR, reduced the total volume of financial management regulations for federal grants and other 

assistance by 75 percent, and reduced administrative burdens and risk of waste, fraud, and abuse for the 

approximately $600 billion awarded annually in federal financial assistance. 

Specifically, the revised policies emphasize risk-based decision making to reduce administrative burden and 

waste, fraud, and abuse by: 

• Eliminating duplicative and conflicting guidance; 

• Focusing on performance over compliance for accountability; 

• Encouraging efficient use of information technology and shared services; 

• Providing for consistent and transparent treatment of costs; 

• Limiting allowable costs to make the best use of federal resources; 

• Setting standard business processes using data definitions; 

• Encouraging non-federal entities to have family-friendly policies; 

• Strengthening oversight; and 

• Targeting audit requirements on risk of waste, fraud, and abuse. 

The Council on Financial Assistance Reform (COFAR) has established metrics, as outlined in the OMB issued 

Memorandum M-14-17, Metrics for Uniform Guidance, that will measure the effectiveness of the new policies and 

is working with federal and non-federal stakeholders to develop additional training and outreach resources. The 

administrative metrics for the base year are published on the COFAR website at https://cfo.gov/cofar/. 

To help with the implementation of the Uniform Guidance during the initial year of applicability, OMB has 

issued a set of technical corrections to the Uniform Guidance and developed a set of Frequently Asked Questions 
34 MANAGEMENT’S DISCUSSION AND ANALYSIS 

that provide additional instructions and clarifications to the provisions in the Uniform Guidance (https://cfo.gov/wpcontent/uploads/2015/09/9.9.15-Frequently-Asked-Questions.pdf) 

In July 2015, OMB published final guidance for reporting and use of information concerning recipient integrity 

and performance for inclusion in the Uniform Guidance (http://www.gpo.gov/fdsys/pkg/FR-2015-07-22/pdf/2015-

17753.pdf). This guidance requires federal awarding agencies to use the Federal Awardee Performance and Integrity 

Information System (FAPIIS) to implement the requirements of Section 872 of the Duncan Hunter National Defense 

Authorization Act as applicable to grants. The requirements are effective for federal assistance awarded on or after 

January 1, 2016. 

Help Agencies Maximize the Impact of their Limited Financial Resources 

FedStat/Benchmarking 

Over the course of this Administration, OMB has used regular data-driven management reviews to advance 

many of its most important shared priorities. Through implementation of the GPRA Modernization Act of 2010 and 

the President’s Management Agenda, these reviews have led to a number of tangible improvements in the 

effectiveness and efficiency of individual agencies and the Government as a whole, and OMB will continue that 

work through ongoing PortfolioStat, Benchmarking, and Strategic Review engagements. 

The federal government’s efforts to improve government efficiency aim to increase the quality and value of 

core administrative operations and enhance productivity to achieve cost savings or cost avoidance. Establishing cost 

and quality benchmarks for these operations have helped to develop tools for the federal government to measure 

performance in key mission-support areas, including human resources, financial management, acquisition, 

information technology, and real property. 

During FY 2015, OMB designed and launched the “FedStat” review to bring these efforts and other emerging 

priorities into focus in a cohesive discussion of opportunities with the CFO Act agencies for improved performance 

and risk mitigation that will more closely align with the Budget process and inform program management and 

administration. OMB met with agencies to discuss data-driven evidence on shared challenges across the 

government, to identify potential areas for agency sub-component improvement, and to explore opportunities to 

pursue cross-agency solutions, including policies, processes, and leading practices of excellence for broader 

application. 

In support of the President’s Management Agenda, agency implementation of these action items will improve 

agency management of mission-support functions and mission delivery, identify potential Budget, legislative, or 

other proposals early to inform the development of the FY 2017 Budget, as appropriate, and inform the FY 2016 

FedStat process with a meaningful data-driven decision making process that supports each agency’s mission.

Improving Effectiveness and Efficiency in Financial Operations and Systems 

The Administration continues to make significant progress in the effort to minimize the costs and risks 

associated with agency financial systems modernization. While in the past the use of shared services was limited to 

smaller agencies, in FY 2015, cabinet-level agencies took steps to realize the benefit of shared service agreements. 

For example, in the Government’s largest shared service arrangement to date, the Department of Housing and Urban 

Development (HUD) successfully transitioned many of its core financial management functions—as well as select 

administrative and human-resource functions— to Treasury, with other cabinet-level agencies expected to follow. 

In February 2015, OMB commissioned a study to identify possibilities to improve the management of mission 

support shared services. The study confirmed that to improve performance and efficiency throughout government, 

reform is required in the way the government delivers and oversees its shared service initiatives. As a result of this 

study, a new cross-governmental Shared Services Governance Board (SSGB), led by OMB, was established to serve 

as the decision-making body for the shared services ecosystem. A Unified Shared Services Management (USSM) 

office was also established within the GSA to serve as an integration body for the ecosystem, working across 

functions, providers and consumers to enable the delivery of high-quality, high-value shared services. Led by the 

SSGB and USSM, stakeholders from across the government will work together to manage and oversee missionsupport shared services with an initial scope of acquisitions, financial management, human resources, travel and 

information technology. 

In addition, OMB published OMB Memorandum M-15-19, Improving Government Efficiency and Saving 

Taxpayer Dollars Through Electronic Invoicing, which directs agencies to transition to electronic invoicing for 

appropriate federal procurements by the end of FY 2018. The Government is the largest single purchaser of goods 

and services in the United States, processing over 19 million invoices each year. Approximately 40 percent of these 

invoices are processed using electronic invoicing with the remaining using a mix of electronic and manual processes 

that provide little visibility to businesses and can result in tax dollars being used for late payment fees rather than to 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 35 

support critical agency missions. The move to electronic invoicing can addresses cash flow issues for businesses, 

particularly small businesses, while also reducing administrative burden and costs to taxpayers. 

Driving Real Property Efficiencies through Better Data and Data Analytics 

The federal domestic building inventory is diverse and contains 300,000 buildings requiring approximately $21 

billion of annual operation and maintenance expenditures, including approximately $6.8 billion of annual lease 

costs. Within the inventory, there are opportunities to realize cost savings by utilizing space more efficiently and 

reducing the portfolio. In 2013, the “Freeze the Footprint” Policy (OMB Management Procedures Memorandum 

2013-02) was issued, requiring agencies to freeze their real property footprint. Agencies reduced their federal 

domestic office and warehouse space by 22 million square feet in FY 2013 and FY 2014. To improve the quality of 

federal real property data in annual PARs or AFRs, agencies were required to validate and report “Freeze the 

Footprint” square footage and associated operations and maintenance costs in their 2014 and 2015 financial 

statements. The final compliance year for the “Freeze the Footprint” policy was FY 2015, and that year’s portfolio 

reduction will be released in April, 2016. 

In FY 2015, the Government issued the National Strategy for the Efficient Use of Real Property (Strategy) and 

implementing policy− the Reduce the Footprint (RTF) policy. The Strategy provides a framework for agencies to 

measure the efficiency of their real property portfolios to identify and prioritize efficiency actions to reduce portfolio 

size. The RTF policy requires agencies to set annual portfolio reduction targets to help implement identified 

efficiency improvements and to implement an office space design standard to ensure office space is designed for 

efficiency. Over time, the Strategy and RTF policy will improve utilization of government-owned buildings to 

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. 

For the first time, the RTF policy requires that agencies reduce the size of the federal real property portfolios to 

improve program efficiency, and agencies have developed and finalized their first ever five year RTF reduction 

Plans to implement the policy. The agencies’ RTF Plans target an aggregate reduction of 60 million square feet (SF) 

over the Plans’ five year (FY 2016 – FY 2020) implementation time period. The magnitude of the targeted 60 

million square feet reduction indicates the Strategy and RTF policy will be effective tools to improve the efficiency 

of the government’s real property portfolio. Agencies will update their RTF Plans and annual reduction targets in 

March of each year with the goal of increasing the magnitude of targeted reductions year-over-year as agencies’ 

ability to fully utilize the policies matures. The agencies’ FY 2017 – FY 2021 RTF Plans are due in March, 2016. 

To support increased reduction targets, the GSA and OMB have developed a new management tool within the 

Federal Real Property Profile (FRPP) database that enables agencies to fully analyze their portfolios. The new 

management tool uses the real property performance metrics developed through the President’s Management 

Agenda to measure the performance of agencies’ portfolios and thereby enable the identification and prioritization 

efficiency opportunities. The management tool, combined with the improved FRPP data quality that will result from 

the implementation of GSA’s forthcoming technical guidance that establishes mandatory FRPP data validation and 

verification requirements, will enhance agencies’ ability to implement data driven decision making to develop 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 our financial managers to move beyond the status quo and to generate a higher return on investment for our 

financial management activities. The steps outlined above leverage the tools and capacities 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 data quality and collaboration as the federal 

government enters a new era of transparency and open government. 
36 MANAGEMENT’S DISCUSSION AND ANALYSIS 

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, and 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. 

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/fsreports/fs_reports_publications.htm; 

http://www.whitehouse.gov/omb/financial/index.html; 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. 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 37 

February 25, 2016 

The President 

The President of the Senate 

The Speaker of the House of Representatives 

The federal government reported a unified budget deficit of approximately $439 billion for fiscal 

year 2015, a decrease of about $45 billion from fiscal year 2014. However, the federal 

government continues to face an unsustainable long-term fiscal path. To operate as effectively 

and efficiently as possible and to make difficult decisions to address the federal government’s 

fiscal challenges, 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 underscores that much work remains to improve federal 

financial management, and these improvements are urgently needed. 

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, 2015, and 2014.2

 About 34 percent of the federal government’s 

reported total assets as of September 30, 2015, and approximately 19 percent of the federal 

government’s reported net cost for fiscal year 2015 relate to three Chief Financial Officers 

(CFO) Act agencies—the Department of Defense (DOD), the Department of Housing and 

Urban Development, and the U.S. Department of Agriculture—that received disclaimers of 

opinion on their fiscal year 2015 financial statements. 

 Significant uncertainties (discussed in Note 23 to the consolidated financial statements), 

primarily related to the achievement of projected reductions in Medicare cost growth, and a 

material weakness in internal control over financial reporting, prevented us from expressing 

 

1

A material weakness is a deficiency, or a 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, 2015, and 

2014, consist of the (1) Statements of Net Cost, (2) Statements of Operations and Changes in Net Position, 

(3) Reconciliations of Net Operating Cost and Unified Budget Deficit, (4) Statements of Changes in Cash Balance 

from Unified 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. 
38 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

an opinion on the sustainability financial statements,3 which consist of the 2015 Statement of 

Long-Term Fiscal Projections (a new comprehensive basic financial statement that provides 

information on the federal government’s long-term financial condition); the 2015, 2014, 

2013, 2012, and 2011 Statements of Social Insurance; and the 2015 and 2014 Statements 

of Changes in Social Insurance Amounts.4

 About $27.9 trillion, or 67.0 percent, of the 

reported total present value of future expenditures in excess of future revenue presented in 

the 2015 Statement of Social Insurance relates to Medicare programs reported in the 

Department of Health and Human Services’ (HHS) 2015 Statement of Social Insurance, 

which received a disclaimer of opinion. 

 Material weaknesses resulted in ineffective internal control over financial reporting for fiscal 

year 2015. 

 Material weaknesses and other scope limitations discussed in our audit report limited our 

tests of compliance with selected provisions of applicable laws, regulations, contracts, and 

grant agreements for fiscal year 2015. 

Overall, significant progress has been made in improving federal financial management since 

the enactment of key federal financial management reforms in the 1990s. Importantly, almost all 

of the 24 CFO Act agencies received unmodified (“clean”) opinions on their respective entities’ 

fiscal year 2015 financial statements, up from 6 CFO Act agencies that received clean audit 

opinions in 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 19 

years ago, three major impediments 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 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. 

DOD has consistently been unable to receive an audit opinion on its financial statements. 

Following years of unsuccessful financial improvement efforts, 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 

 

3

As required by the Statement of Federal Financial Accounting Standards No. 36, “Reporting Comprehensive LongTerm Fiscal Projections for the U.S. Government,” as amended, the federal government presents a new basic 

financial statement, the Statement of Long-Term Fiscal Projections, for fiscal year 2015, along with the related notes, 

as part of the consolidated financial statements. The Statement of Long-Term Fiscal Projections presents 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, and changes in the 

present value of projected receipts and noninterest spending from the prior year. The unaudited Statement of LongTerm Fiscal Projections for the fiscal year ended September 30, 2014, is presented for comparison purposes and 

was not subject to audit. 

4

Statements of Social Insurance are presented for the current year and each of the 4 preceding years in accordance 

with U.S. generally accepted accounting principles. Also, the sustainability financial statements do not interrelate with 

the accrual-based consolidated financial statements. 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 39 

department’s business systems modernization efforts. DOD’s current FIAR strategy and 

methodology focus on two priorities—budgetary information and asset accountability—with an 

overall goal of having its department-wide financial statements audit ready by September 30, 

2017.5

 Because budgetary information is widely and regularly used for management, one of 

DOD’s highest interim priorities is to improve its budgetary information and processes 

underlying its Statement of Budgetary Resources (SBR). 

Based on difficulties encountered in preparing for an audit of the SBR, DOD made a significant 

change to its FIAR Guidance that limited the scope of the first-year SBR audits for all DOD 

components.6

 As outlined in the November 2014 FIAR Plan Status Report and the November 

2013 revised FIAR Guidance, the scope of initial SBR audits beginning in fiscal year 2015 is to 

focus on current-year budget activity, to be reported on a Schedule of Budgetary Activity (SBA).7

This is intended to be an interim step toward achieving the audit of multiple-year budget activity 

required for an audit of the SBR. In making this strategic change, DOD officials concluded—

based on the difficulties encountered in obtaining documentation for prior year transactions on 

the U.S. Marine Corps SBR audit—that the most effective path to an audit of the SBR would be 

to start with reporting and auditing only current-year activity for fiscal year 2015 appropriations 

and expanding subsequent audits to include current-year appropriations and prior 

appropriations going back to fiscal year 2015. Consequently, certain DOD components—

including the Army, Navy, and Air Force—underwent their first SBA audits for fiscal year 2015. 

Independent public accountants (IPA) issued disclaimers of opinion8

 on the Army’s and the Air 

Force’s fiscal year 2015 SBAs and identified material weaknesses in internal control at both 

Army and Air Force. Army and Air Force management have generally concurred with the 

findings in the respective IPA reports and stated that they will develop and execute corrective 

actions to address the IPAs’ recommendations. The Navy’s SBA audit is ongoing and the report 

is expected to be issued February 29, 2016. In its November 2015 FIAR Plan Status Report, 

DOD reported that the Army, Navy, and Air Force will again undergo SBA audits for fiscal year 

2016. In addition, with regard to meeting its goal of having its financial statements audit ready 

department-wide by September 30, 2017, the department has not, among other things, fully 

developed the details of its strategy for consolidating individual component financial statements 

into department-wide financial statements, including eliminating intragovernmental transactions. 

 

 

5

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. More recently, 

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. 6

The FIAR Guidance was first issued by the DOD Comptroller in May 2010 and provides a standardized methodology 

for DOD components to follow for achieving financial management improvements and auditability. The DOD 

Comptroller periodically updates this guidance. 

7

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. 8

The Army’s IPA issued its opinion on January 15, 2016, and the Air Force’s IPA issued its opinion on November 20, 

2015. 
40 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

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 2015, the Department of 

the Treasury (Treasury) continued to actively work with significant federal entities9

 to resolve 

differences in intragovernmental activity and balances between federal entities through its 

quarterly scorecard process.10 This process highlights differences requiring the entities’ 

attention, identifies differences that need to be resolved through a formal dispute resolution 

process,11 and reinforces the entities’ responsibilities to resolve intragovernmental differences. 

Treasury also began developing policies and procedures over accounting for and reporting all 

significant activity and balances of the General Fund of the U.S. Government (General Fund),12

and began reconciling the activity and balances between the General Fund and federal entity 

trading partners. Further, over the past few years, Treasury has implemented new systems to 

collect certain additional data from entities and to compile the consolidated financial statements 

and new or enhanced procedures to address certain internal control deficiencies detailed in our 

previously issued report.13 To help address the magnitude of the issues in these areas, it will be 

important that Treasury continues to improve its systems and continues to ensure that it has 

appropriate personnel. It will also be important that Treasury and the Office of Management and 

Budget (OMB) further enhance their corrective action plans to include certain key elements, 

such as (1) sufficient information on how progress on interim actions would be monitored and 

(2) outcome measures for assessing the effectiveness of the corrective actions. In addition to 

continued leadership by Treasury and OMB, strong and sustained commitment by federal 

entities is critical to fully address these issues. 

The material weaknesses underlying these three major impediments 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. 

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 payments14 occur and reasonably assure that appropriate actions are taken to 

 

9

OMB and Treasury have identified 39 federal entities that are significant to the U.S. government’s fiscal year 2015 

consolidated financial statements, including the 24 CFO Act agencies. See Treasury Financial Manual, vol. I, part 2, 

ch. 4700, for a listing of the 39 entities. 

10For 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. 

11When 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. 

12The 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). 

13GAO, Management Report: Improvements Needed in Controls over the Processes Used to Prepare the U.S. 

Consolidated Financial Statements, GAO-15-630 (Washington, D.C.: July 30, 2015). 14When excluding DOD’s Defense Finance and Accounting Service Commercial Pay program, federal entity-reported 

estimates of improper payments totaled $136.7 billion in fiscal year 2015, an increase from the revised prior year 

estimate of $124.6 billion. This increase was mostly attributable to an increased error rate in HHS’s Medicaid 

program. 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 41 

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. Additional details concerning these material weaknesses and their effect on the 

accrual-based consolidated financial statements and on the management of federal government 

operations are presented in our audit report. 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. 

The federal government reported a net operating cost of about $519.7 billion for fiscal year 2015 

compared to the approximately $791 billion reported for fiscal year 2014. Increases in reported 

taxes and certain other revenues were primarily responsible for the decrease in net operating 

cost. The reported unified budget deficit of approximately $439 billion for fiscal year 2015 was 

down from the approximately $483 billion reported for fiscal year 2014. The federal 

government’s reported assets totaled about $3.2 trillion as of September 30, 2015, which was 

about $165 billion greater than the amount reported as of September 30, 2014. Its reported 

liabilities totaled about $21.5 trillion as of September 30, 2015, which was about $686 billion 

greater than the amount reported as of September 30, 2014. Most of the net increase in the 

federal government‘s reported assets was due to student loans made by the Department of 

Education. The net increase in liabilities was due primarily to a net increase in federal debt held 

by the public and the liability for restoration of federal debt principal and interest to the Federal 

Thrift Savings Plan.15 As of September 30, 2015, federal debt held by the public totaled about 

74 percent of gross domestic product (GDP). Additional details regarding the above-noted 

fluctuations and the federal government’s financial condition can be found in the Management’s 

Discussion and Analysis section of the Fiscal Year 2015 Financial Report of the United States 

Government (2015 Financial Report).

Importantly, there are risks that certain factors could affect the federal government’s financial 

condition in the future, including the following: 

 The Pension Benefit Guaranty Corporation’s (PBGC) financial future is uncertain because of 

long-term challenges related to PBGC’s governance and funding structure. PBGC’s 

liabilities exceeded its assets by over $76 billion as of September 30, 2015—an increase of 

over $14 billion from the end of fiscal year 2014. PBGC reported that it is subject to further 

losses if plan terminations that are considered reasonably possible occur. 

 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, 2015, the federal government continued to report about $106 billion of 

investments in the GSEs, which is net of about $88 billion in valuation losses. Cash 

dividends paid by the GSEs to Treasury under the agreements totaled $20.4 billion and 

 

15Due to delays in raising the debt limit, Treasury deviated from its normal debt management operations and took a 

number of extraordinary actions, consistent with relevant laws and regulations, from March 16, 2015 through 

September 30, 2015, to avoid exceeding the debt limit. Many extraordinary actions taken by Treasury during fiscal 

year 2015 resulted in federal debt securities not being issued to certain federal government accounts. As a result of 

securities not being issued to the Government Securities Investment Fund (G-Fund) of the Thrift Savings Plan, a 

liability was reported that represents uninvested principal and related interest for the G-Fund that would have been 

reported as federal debt held by the public had there not been a delay in raising the debt limit as of September 30, 

2015, and had the securities been issued. 
42 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

$72.5 billion during fiscal years 2015 and 2014, respectively. Although Treasury does not 

believe that any further draws by the GSEs are probable, 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 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 a serious financial crisis as it has 

reached its borrowing limit of $15 billion and finished fiscal year 2015 with a reported net 

loss of $5.1 billion. 

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 11, 2015.16 GAO’s High-Risk Series includes 

most of the above-noted issues, such as DOD financial management, information security, 

USPS’s business model, the PBGC insurance programs, and the financial regulatory system for 

housing finance. Another area included in the High-Risk Series that could affect the federal 

government’s financial condition in the future is the Internal Revenue Service’s (IRS) 

enforcement of tax laws, including reducing the net tax gap—the difference between taxes owed 

and taxes paid—which was last estimated to be $385 billion.17

While the near-term outlook has improved, the comprehensive long-term fiscal projections 

presented in the Statement of Long-Term Fiscal Projections, and related information in Note 24 

and in the unaudited Required Supplementary Information section of the 2015 Financial Report, 

show that absent policy changes, the federal government continues to face an unsustainable 

long-term fiscal path. In the near term, the projections in the 2015 Financial Report show the 

primary deficit continuing to decline from the recent historic highs. However, these projections 

do not reflect legislation enacted subsequent to September 30, 2015, which, in order to achieve 

certain national priorities and goals, causes deficits to increase in the near term.18 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 debt held by the public as a share of GDP. This 

situation—in which debt grows faster than GDP—means that the current federal fiscal path is 

unsustainable. 

Under these projections, spending for the major health and retirement programs will increase in 

coming decades more rapidly than GDP as more members of the baby boom generation 

become eligible for benefits. These projections, with regard to 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 Patient Protection and 

Affordable Care Act, as amended (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 the Medicare Access and CHIP Reauthorization Act of 2015 (MACRA), which, among other 

 

16GAO, High-Risk Series: An Update, GAO-15-290 (Washington, D.C.: Feb. 11, 2015). 17IRS last estimated the gross tax gap of $450 billion in 2012 for tax year 2006. 18The 2015 Statement of Long-Term Fiscal Projections is based on current policy as of September 30, 2015. This is 

prior to the enactment of the Bipartisan Budget Act of 2015 and the Consolidated Appropriations Act, 2016; therefore, 

the projections do not reflect the effects of these two statutes. Management notes that neither statute is expected to 

have a material effect on the long-term fiscal projections in its report. 

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). 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 43 

things, revised the methodology for determining physician payment rates.20 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’ (CMS) Chief Actuary, the Congressional Budget 

Office, and others—spending on federal health care programs will grow more rapidly than 

assumed in the projections. 

GAO also prepares long-term federal fiscal simulations, using different sets of assumptions 

which continue to show debt held by the public rising as a share of GDP.21 Under GAO’s 

Alternative simulation,22 using the CMS Office of the Actuary’s alternative health care cost 

projections, future spending in excess of receipts would be greater and debt held by the public 

as a share of GDP would grow more quickly than the projections in the 2015 Financial Report. 

Under the Alternative simulation, debt held by the public will surpass its historic high (106 

percent in 1946) by 2031. 

Both the projections in the 2015 Financial Report and our long-term simulations follow the 

spending limits enacted in the Balanced Budget and Emergency Deficit Control Act of 1985 

(BBEDCA), as amended.23 Under these limits, discretionary spending will continue to decline as 

a share of the economy and within the next 5 years will be lower as a share of GDP than any 

level seen in the last 50 years. At the same time, the projections in the 2015 Financial Report

show revenues rising in the near term as the economy continues to recover. Our long-term 

simulations show revenues rising in some years and declining in others in the near term. 

Debt held by the public as a share of GDP, however, remains well above the post-war historical 

average of 43 percent since 1946. At the end of fiscal year 2015, debt held by the public 

reached about 74 percent of GDP—the second highest (after fiscal year 2014, when it was 

slightly higher) it has been as a share of GDP since 1950. 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. Further, our past work 

has also identified a variety of fiscal exposures—responsibilities, programs, and activities that 

 

20MACRA, Pub. L. No. 114-10, title I, § 101, 129 Stat. 87, 89 (Apr. 16, 2015), repealed the sustainable growth rate 

(SGR) 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. 21GAO, Fiscal Outlook: Federal Fiscal Outlook (2016) (Washington, D.C.: 2016), accessed February 17, 2016, 

http://www.gao.gov/fiscal_outlook/federal_fiscal_outlook/overview. 

22Our 2016 Alternative simulation, the most recent one available as of the date of our audit report, incorporates the 

CMS Office of the Actuary’s 2015 alternative projections for health care cost growth, which assume certain cost 

controls are not maintained over the long term. Our Alternative simulation also assumes that tax provisions that are 

scheduled to expire, such as the credit for construction of energy-efficient new homes, are extended. In the 

Alternative simulation, discretionary spending follows the caps established in the Balanced Budget and Emergency 

Deficit Control Act of 1985, as amended, but not the lower caps triggered by the automatic enforcement procedures. 23The Budget Control Act of 2011 (BCA) amended BBEDCA, imposing discretionary spending limits for fiscal years 

2012 through 2021 to reduce projected spending by about $1 trillion. Pub. L. No. 112-25, 125 Stat. 240 (Aug. 2, 

2011). BCA also established the Joint Select Committee on Deficit Reduction (Joint Committee), which was tasked 

with proposing legislation to reduce the deficit by at least an additional $1.2 trillion through fiscal year 2021. The Joint 

Committee did not report a proposal, and Congress and the President did not enact legislation. This triggered the 

sequestration process in section 251A of BBEDCA. Section 251A, as amended by the BCA, required (1) a 

sequestration for fiscal year 2013 and (2) annual downward adjustments to discretionary spending limits and 

sequestration of direct spending from fiscal years 2014 through 2021. BBEDCA has been amended several times 

since August 2011, including most recently by the Bipartisan Budget Act (BBA) of 2015, which increased 

discretionary spending limits for fiscal years 2016 and 2017. The BBA of 2015 also extended the sequestration of 

direct spending through fiscal year 2025 and made other changes to direct spending and revenue. Pub. L. No. 114-

74, §§ 101, 102, 129 Stat. 584, 585-87 (Nov. 2, 2015). GAO’s long-term simulations reflect the effects of the BBA of 

2015. 
44 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

explicitly or implicitly expose the federal government to future spending.24 Fiscal exposures vary 

widely as to source, extent of the government’s legal commitment, and magnitude. Over the 

past decade, some fiscal exposures have grown because of events and trends and the 

government’s response to them. Increased attention to these fiscal exposures will be important 

for understanding risks to the federal fiscal outlook and enhancing oversight of federal 

resources. 

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 or otherwise constrain 

fiscal policy; it restricts Treasury’s authority to borrow to finance the decisions already enacted 

by Congress and the President.25 The United States benefits from the confidence investors 

have 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 are also the cheapest and one of the most 

widely used forms of collateral for financial transactions. 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.26 In our July 2015 report on the debt limit, we discussed several potential 

approaches to delegating borrowing authority that would both achieve this link and minimize 

disruptions to the market.27

The Digital Accountability and Transparency Act of 2014 (DATA Act) holds great promise for 

improving the transparency and accountability of federal spending data by providing consistent, 

reliable, and complete data on federal spending and for helping decision-makers in addressing 

the federal government’s fiscal challenges. However, in order to fully and effectively implement 

the DATA Act, the federal government will need to address complex policy and technical issues. 

Central among these are defining and developing common data elements across multiple 

reporting areas and standing up the necessary supporting systems and processes to enable 

reporting of the federal spending data required by the DATA Act. Since the act was signed into 

law in May 2014, OMB and Treasury have made progress using a variety of outreach 

approaches to address questions and obtain feedback from federal and nonfederal 

stakeholders, but as was reported in January 2016, more complete and timely guidance is 

needed to ensure effective implementation.28

_________________________ 

Our audit report on the U.S. government’s consolidated financial statements would not be 

 

24GAO, Fiscal Outlook: Federal Fiscal Outlook (2016), accessed February 17, 2016, 

http://www.gao.gov/fiscal_outlook/federal_fiscal_outlook/overview#t=3, and Fiscal Exposures: Improving Cost 

Recognition in the Federal Budget, GAO-14-28 (Washington, D.C.: Oct. 29, 2013). 25GAO, Debt Limit: Analysis of 2011-2012 Actions Taken and Effect of Delayed Increase on Borrowing Costs, GAO12-701 (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). 26GAO-12-701 and GAO-11-203. 27GAO, Debt Limit: Market Response to Recent Impasses Underscores Need to Consider Alternative Approaches, 

GAO-15-476 (Washington, D.C.: July 9, 2015). 

28GAO, DATA Act: Data Standards Established, but More Complete and Timely Guidance Is Needed to Ensure 

Effective Implementation, GAO-16-261 (Washington, D.C.: Jan. 29, 2016). 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 45 

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 239. Our guide to the Financial Report of the United States 

Government (Financial Report) is intended to help those who seek to obtain a better 

understanding of the Financial Report and is available on GAO’s website at www.gao.gov.

29 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.30

Our audit report was prepared under the direction of Robert F. Dacey, Chief Accountant, and J. 

Lawrence Malenich, 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

 

29GAO, Understanding the Primary Components of the Annual Financial Report of the United States Government, 

GAO-09-946SP (Washington, D.C.: September 2009). 

30See http://www.gao.gov/special.pubs/longterm/deficit/, 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). 
46 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

This page is intentionally blank.
 FINANCIAL STATEMENTS 47 

Financial Statements 

of the United States Government 

for the Years Ended September 30, 2015, 

and 2014 

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 balances 

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 2015 and 2014, including the 

operations related to funds from dedicated collections (funds financed by specifically identified revenues, often supplemented 

by other financing sources, which remain available over time). The Government’s fiscal year begins October 1 and ends 

September 30. 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 by significant entity on an accrual basis, while the budget presents costs and 

revenues by 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. 

These statements 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 allocations 

of Office of Personnel Management (OPM) benefit program costs and intragovernmental eliminations, as adjusted for 

buy/sell cost, buy/sell revenues, and imputed costs. Because of its specific function, most of the costs originally associated 

with OPM have been allocated to their 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. With regard to intragovernmental buy/sell costs and 
48 FINANCIAL STATEMENTS 

related revenues, the amounts recognized by each agency are added to, and subtracted from, respectively, the individual 

agency non-federal net cost amounts. Because of the specific functions of the General Services Administration (GSA), as the 

primary provider of goods and services to federal agencies, once 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 its administrative operating costs. 

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 Statement 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 21—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 associated with funds from dedicated collections 

activities is separately reported and starting in fiscal year 2015, the intragovernmental net cost associated with funds from 

dedicated collections is separately reported. 
 FINANCIAL STATEMENTS 49 

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 21—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 75 percent of 2015 

program costs to both Part B and D. 

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). 

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 18—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 Unified 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 unified 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 unified budget deficit differ. 
50 FINANCIAL STATEMENTS 

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 Unified Budget and 

Other Activities 

The primary purpose of these statements is to report how the annual unified 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 unified budget deficit 

normally would not result in an equivalent change in the Government’s cash and other monetary assets. 

These statements reconcile the unified 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 (expenditures) 

exceeding receipts (revenue) 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 debt 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 debt issued by Treasury and 

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. 

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 

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. 
 FINANCIAL STATEMENTS 51 

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 Statement 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. 

Commitments and contingencies 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 19—Contingencies and 

Note 20—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 21—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 comprise the Statement of Long-Term Fiscal Projections, covering all federal 

government programs, and the Statement 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 horizon. 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 Statement of Social Insurance does 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 Statement of Social Insurance. The Statement of Long-Term Fiscal Projections includes all revenues 

(including general revenues) of the federal government. 
52 FINANCIAL STATEMENTS 

Statements of Long-Term Fiscal Projections 

The new statement of Long-Term Fiscal Projections in 2015 is 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. It is 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). 

Unaudited fiscal year 2014 projections from last year’s Financial Report are included for comparison. 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. Note 24, Long-Term Fiscal 

Projections, further explains the methods used to prepare these projections and provides additional information such as the 

fiscal gap. 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 24, 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 Lung. 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 values1

 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 basis for the projections has changed since 

last year due to the enactment of the Medicare Access and CHIP Reauthorization Act (MACRA) of 2015. This law repealed 

the sustainable growth rate (SGR) formula that set physician fee schedule payments, which were usually modified and 

replaced it with specified payment updates for physicians. In last year’s report, the income, expenditures, and assets for 

Medicare Part B reflected the projected baseline scenario, which assumed an override of the SGR payment provisions and an 

increase in the physician fee schedule equal to the average of the most recent 10 years of SGR overrides (through March 

2015) or 0.6 percent. Since the new legislation has replaced the SGR system with specified payment updates for physicians, 

the projections in this year’s report are based on the continuation of program provisions contained in current law, with one 

exception in regard to payment reductions that would result from the projected depletion of the Social Security and Medicare 

Hospital Insurance (Part A) Trust Funds; under current law, payments would be reduced to levels that could be covered by 

incoming tax and premium revenues when the Social Security and Medicare Hospital Insurance (Part A) Trust Funds are 

depleted. 

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 

 

1

 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 53 

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 23—Social Insurance describes the 

social insurance programs, reports long-range estimates that can be used to assess the financial condition of the programs, 

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.
54 FINANCIAL STATEMENTS 

United States Government 

Statement of Net Cost 

for the Year Ended September 30, 2015 (Gain)/Loss 

 from 

 Gross Earned Changes in Net 

 (In billions of dollars) Cost Revenue Subtotal Assumptions Cost 

 

 Department of Health and Human Services ................ 1,130.9 101.3 1,029.6 (0.1) 1,029.5

 Social Security Administration ..................................... 945.0 0.3 944.7 - 944.7

 Department of Defense ................................................ 646.6 45.5 601.1 (27.5) 573.6

 Interest on Treasury Securities Held by the Public ...... 250.8 - 250.8 - 250.8

 Department of Veterans Affairs .................................... 186.9 4.8 182.1 (13.0) 169.1

 Department of Agriculture ............................................ 147.7 9.1 138.6 - 138.6

 Department of the Treasury ......................................... 146.0 29.3 116.7 - 116.7

 Office of Personnel Management ................................ 104.9 20.3 84.6 17.1 101.7

 Department of Transportation ...................................... 76.1 0.8 75.3 - 75.3

 Department of Energy .................................................. 76.5 4.6 71.9 - 71.9

 Department of Homeland Security ............................... 60.2 12.1 48.1 4.1 52.2

 Department of Labor .................................................... 45.8 - 45.8 - 45.8

 Department of Education ............................................. 71.3 26.6 44.7 - 44.7

 Defense Security Cooperation Agency ........................ 38.8 - 38.8 - 38.8

 Department of Housing and Urban Development ........ 32.7 1.5 31.2 - 31.2

 Department of Justice .................................................. 32.3 1.7 30.6 - 30.6

 Department of State ..................................................... 30.2 4.3 25.9 0.1 26.0

 National Aeronautics and Space Administration.......... 19.8 0.2 19.6 - 19.6

 Department of the Interior ............................................ 19.2 2.7 16.5 - 16.5

 Pension Benefit Guaranty Corporation ........................ 23.7 8.0 15.7 - 15.7

 Railroad Retirement Board .......................................... 16.3 3.4 12.9 - 12.9

 U.S. Agency for International Development ................. 12.7 0.1 12.6 - 12.6

 Federal Communications Commission ........................ 9.6 0.3 9.3 - 9.3

 Department of Commerce............................................ 12.3 3.2 9.1 - 9.1

 Environmental Protection Agency ................................ 9.3 0.7 8.6 - 8.6

 National Science Foundation ....................................... 7.0 - 7.0 - 7.0

 U.S. Postal Service ...................................................... 73.8 67.9 5.9 - 5.9

 Millennium Challenge Corporation ............................... 0.8 - 0.8 - 0.8

 Smithsonian Institution ................................................. 0.8 - 0.8 - 0.8

 U.S. Nuclear Regulatory Commission ......................... 1.0 0.8 0.2 - 0.2

 Farm Credit System Insurance Corporation................. - 0.2 (0.2) - (0.2)

 Overseas Private Investment Corporation ................... (0.1) 0.1 (0.2) - (0.2)

 General Services Administration .................................. 0.3 0.6 (0.3) - (0.3)

 National Credit Union Administration ........................... - 0.3 (0.3) - (0.3)

 Securities and Exchange Commission ........................ 1.5 2.0 (0.5) - (0.5)

 Small Business Administration ..................................... (0.5) 0.4 (0.9) - (0.9)

 Tennessee Valley Authority ......................................... 9.8 10.9 (1.1) - (1.1)

 Export-Import Bank of the United States ..................... (0.6) 1.3 (1.9) - (1.9)

 Federal Deposit Insurance Corporation ....................... (6.5) 8.6 (15.1) - (15.1)

All other entities ........................................................... 20.8 1.7 19.1 - 19.1

 Total ............................................................................. 4,253.7 375.6 3,878.1 (19.3) 3,858.8

 

The accompanying notes are an integral part of these financial statements. 
 FINANCIAL STATEMENTS 55 

United States Government 

Statement of Net Cost 

for the Year Ended September 30, 2014 (Gain)/Loss 

 from 

 Gross Earned Changes in Net 

 (In billions of dollars) Cost Revenue Subtotal Assumptions Cost 

 

 Department of Health and Human Services ................ 1,029.5 78.1 951.4 0.1 951.5

 Social Security Administration ..................................... 906.8 0.4 906.4 - 906.4

 Department of Defense ................................................ 716.9 61.5 655.4 6.9 662.3

 Interest on Treasury Securities Held by the Public ...... 260.0 - 260.0 - 260.0

 Department of Veterans Affairs .................................... 207.4 4.3 203.1 (22.1) 181.0

 Department of Agriculture ............................................ 150.5 9.3 141.2 - 141.2

 Department of the Treasury ......................................... 182.9 79.9 103.0 - 103.0

 Office of Personnel Management ................................ 85.3 19.5 65.8 21.3 87.1

 Department of Transportation ...................................... 77.2 0.9 76.3 - 76.3

 Department of Energy .................................................. 57.0 5.0 52.0 - 52.0

 Department of Homeland Security ............................... 58.1 10.3 47.8 (1.3) 46.5

 Department of Labor .................................................... 53.6 - 53.6 - 53.6

 Department of Education ............................................. 80.9 24.8 56.1 - 56.1

 Defense Security Cooperation Agency ........................ 34.9 - 34.9 - 34.9

 Department of Housing and Urban Development ........ 44.4 1.6 42.8 - 42.8

 Department of Justice .................................................. 33.0 1.7 31.3 - 31.3

 Department of State ..................................................... 30.6 3.8 26.8 (1.4) 25.4

 National Aeronautics and Space Administration.......... 18.4 0.2 18.2 - 18.2

 Department of the Interior ............................................ 18.7 2.4 16.3 - 16.3

 Pension Benefit Guaranty Corporation ........................ 38.5 11.2 27.3 - 27.3

 Railroad Retirement Board .......................................... 13.9 5.6 8.3 - 8.3

 U.S. Agency for International Development ................. 11.7 - 11.7 - 11.7

 Federal Communications Commission ........................ 9.3 0.4 8.9 - 8.9

 Department of Commerce............................................ 12.0 3.2 8.8 - 8.8

 Environmental Protection Agency ................................ 8.9 0.5 8.4 - 8.4

 National Science Foundation ....................................... 7.2 - 7.2 - 7.2

 U.S. Postal Service ...................................................... 73.6 66.9 6.7 - 6.7

 Millennium Challenge Corporation ............................... 1.0 - 1.0 - 1.0

 Smithsonian Institution ................................................. 0.7 - 0.7 - 0.7

 U.S. Nuclear Regulatory Commission ......................... 1.0 0.8 0.2 - 0.2

 Farm Credit System Insurance Corporation................. - 0.2 (0.2) - (0.2)

 Overseas Private Investment Corporation ................... (0.3) 0.1 (0.4) - (0.4)

 General Services Administration .................................. 0.7 0.6 0.1 - 0.1

 National Credit Union Administration ........................... (1.2) 0.1 (1.3) - (1.3)

 Securities and Exchange Commission ........................ 1.4 1.9 (0.5) - (0.5)

 Small Business Administration ..................................... (0.3) 0.4 (0.7) - (0.7)

 Tennessee Valley Authority ......................................... 10.5 11.1 (0.6) - (0.6)

 Export-Import Bank of the United States ..................... 1.1 1.1 - - -

 Federal Deposit Insurance Corporation ....................... (4.4) 8.8 (13.2) - (13.2)

All other entities ........................................................... 20.0 1.3 18.7 - 18.7

 Total ............................................................................. 4,251.4 417.9 3,833.5 3.5 3,837.0

 

The accompanying notes are an integral part of these financial statements. 
56 FINANCIAL STATEMENTS 

United States Government 

Statement of Operations and Changes in Net Position

for the Year Ended September 30, 2015

 

 Funds other than Funds from 

 those from Dedicated 

 Dedicated Collections 

 Collections (Note 21) 

 (Combined) (Combined) Eliminations Consolidated

(In billions of dollars) 2015

 

Revenue (Note 17): 

Individual income tax and tax withholdings ......... 1,521.1 1,024.1 - 2,545.2

Corporation income taxes ................................... 339.8 - - 339.8

Excise taxes ........................................................ 44.2 57.5 - 101.7

Unemployment taxes ........................................... - 49.1 - 49.1

Customs duties ................................................... 33.6 - - 33.6

Estate and gift taxes ............................................ 19.1 - - 19.1

Other taxes and receipts ..................................... 165.6 37.3 - 202.9

Miscellaneous earned revenues .......................... 38.8 3.8 - 42.6

Intragovernmental interest ................................... - 108.4 (108.4) -

Total Revenue ..................................................... 2,162.2 1,280.2 (108.4) 3,334.0

 

Net Cost of Government Operations: 

Net cost ............................................................... 2,300.4 1,558.4 - 3,858.8

Intragovernmental net cost .................................. (7.2) 7.2 - -

Intragovernmental interest ................................... 108.4 - (108.4) -

Total net cost ....................................................... 2,401.6 1,565.6 (108.4) 3,858.8

 

Intragovernmental transfers ................................ (335.2) 335.2 - -

 

Unmatched transactions and balances 

(Note 1.S) ........................................................... 5.1 - - 5.1

 

Net operating (cost)/revenue ............................... (569.5) 49.8 - (519.7)

 

Net position, beginning of period ....................... (20,898.3) 3,197.6 - (17,700.7)

Prior period adjustments–changes in 

 accounting principles (Note 18 and 21) ........... (1.8) 0.3 - (1.5)

Net operating (cost)/revenue ............................... (569.5) 49.8 - (519.7)

Net position, end of period .................................. (21,469.6) 3,247.7 - (18,221.9)

 

The accompanying notes are an integral part of these financial statements. 
 FINANCIAL STATEMENTS 57 

United States Government 

Statement of Operations and Changes in Net Position

for the Year Ended September 30, 2014

 

 Funds other than Funds from 

 those from Dedicated 

 Dedicated Collections 

 Collections (Note 21) 

 (Combined) (Combined) Eliminations Consolidated

(In billions of dollars) 2014

 

Revenue (Note 17): 

Individual income tax and tax withholdings ......... 1,374.0 979.0 - 2,353.0

Corporation income taxes ................................... 317.8 - - 317.8

Excise taxes ........................................................ 38.6 56.3 - 94.9

Unemployment taxes ........................................... - 52.6 - 52.6

Customs duties ................................................... 32.9 - - 32.9

Estate and gift taxes ............................................ 19.3 - - 19.3

Other taxes and receipts ..................................... 125.8 50.8 - 176.6

Miscellaneous earned revenues .......................... 14.0 5.0 - 19.0

Intragovernmental interest ................................... - 113.8 (113.8) -

Total Revenue ..................................................... 1,922.4 1,257.5 (113.8) 3,066.1

 

Net Cost of Government Operations: 

Net cost ............................................................... 2,333.2 1,503.8 - 3,837.0

Intragovernmental interest ................................... 113.8 - (113.8) -

Total net cost ....................................................... 2,447.0 1,503.8 (113.8) 3,837.0

 

Intragovernmental transfers ................................ (299.9) 299.9 - -

 

Unmatched transactions and balances 

(Note 1.S) ........................................................... (20.4) - - (20.4)

 

Net operating (cost)/revenue ............................... (844.9) 53.6 - (791.3)

 

Net position, beginning of period ....................... (20,053.0) 3,143.7 - (16,909.3)

Prior period adjustments–changes in 

 accounting principles (Note 18 and 21) ........... (0.4) 0.3 - (0.1)

Net operating (cost)/revenue ............................... (844.9) 53.6 - (791.3)

Net position, end of period .................................. (20,898.3) 3,197.6 - (17,700.7)

 

The accompanying notes are an integral part of these financial statements. 
58 FINANCIAL STATEMENTS 

United States Government 

Reconciliations of Net Operating Cost and Unified Budget Deficit

for the Year Ended September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Net operating cost ........................................................................................................................ (519.7) (791.3)

Components of net operating cost not part of the budget deficit: 

Increase/(Decrease) in liability for military employee benefits (Note 12): 

 Military pension liabilities .......................................................................................................... (1.9) 40.9

 Military health liabilities ............................................................................................................. (29.3) 12.9

 Other military benefits .............................................................................................................. (1.7) (0.9)

 Liability for military employee benefits ...................................................................................... (32.9) 52.9

Increase/(Decrease) in liability for veteran's compensation (Note 12) .................................... 11.5 32.3

Increase/(Decrease) in liabilities for civilian employee benefits (Note 12): 

 Civilian pension liabilities .......................................................................................................... 39.8 37.3

 Civilian health liabilities ............................................................................................................ 27.2 10.1

 Other civilian benefits ............................................................................................................... 1.1 1.7

 Liabilities for civilian employee benefits .................................................................................... 68.1 49.1

Increase/(Decrease) in environmental and disposal liabilities (Note 13): 

 Energy's environmental and disposal liabilities ........................................................................ 40.0 19.6

All others' environmental and disposal liabilities ....................................................................... 2.5 0.4

 Environmental and disposal liabilities ....................................................................................... 42.5 20.0

Property, plant, and equipment depreciation expense ................................................................... 54.5 67.7

Property, plant, and equipment disposals and revaluations .......................................................... (15.6) 4.8

Increase/(Decrease) in benefits due and payable .......................................................................... 22.3 17.3

Increase/(Decrease) in insurance and guarantee program liabilities .............................................. 9.3 28.3

Increase/(Decrease) in other liabilities ........................................................................................... 38.6 7.3

(Increase)/Decrease in deposit fund balances ............................................................................... (19.1) (0.8)

Increase/(Decrease) in accounts payable ...................................................................................... (0.7) 2.8

(Increase)/Decrease in net accounts and taxes receivable ............................................................ (13.8) (0.8)

Agencies year-end upward/(downward) credit reform subsidy re-estimates .................................. (2.3) 24.5

Unrealized Valuation Loss/(Gain) on investments in Government-Sponsored Enterprises 

(GSEs) ........................................................................................................................................... (10.5) 44.4

 

Components of the budget deficit not part of net operating cost: 

Capitalized property, plant, and equipment: 

Department of Defense ............................................................................................................... (24.9) (27.7)

All other agencies ........................................................................................................................ (29.6) (26.4)

 Total capitalized property, plant, and equipment ...................................................................... (54.5) (54.1)

Effect of prior year agencies (upward)/downward credit reform subsidy re-estimates ................... (24.5) (1.6)

(Increase)/Decrease in inventory ................................................................................................... (2.2) (7.3)

(Increase)/Decrease in debt and equity securities ......................................................................... 11.0 (7.6)

(Increase)/Decrease in other assets .............................................................................................. (2.9) -

Credit reform and other loan activities ............................................................................................ 4.9 13.1

All other reconciling items .............................................................................................................. (2.9) 15.6

Unified budget deficit ................................................................................................................... (438.9) (483.4)

 

The accompanying notes are an integral part of these financial statements. 
 FINANCIAL STATEMENTS 59 

United States Government 

Statements of Changes in Cash Balance from Unified Budget and Other Activities 

for the Years Ended September 30, 2015, and 2014

 

(In billions of dollars) 2015 2014 

Unified budget deficit ......................................................................... (438.9) (483.4)

 

Adjustments for Noncash Outlays Included in the budget: 

Interest accrued by Treasury on debt held by the public ................... 245.4 255.5

Agencies year-end credit reform subsidy re-estimates ....................... 26.8 (22.9)

Subsidy (income) (Note 4) .................................................................. (20.1) (10.3)

Subtotal .............................................................................................. 252.1 222.3

 

Items Affecting the Cash Balance Not Included in the budget: 

Net Transactions from financing activity: 

Borrowings from the public ................................................................ 7,037.5 7,475.8

Repayment of debt held by the public ............................................... (6,700.6) (6,672.0)

Agency securities ............................................................................... 0.1 (1.2)

Deposit fund balances ........................................................................ 20.5 0.3

Effect of Uninvested principal from the Thrift Savings Plan 

(TSP) G Fund on Financing Activity ................................................... 203.2 (119.9)

 Subtotal .............................................................................................. 560.7 683.0

Transactions from monetary and other activity: 

Interest paid by Treasury on debt held by the public ......................... (243.5) (252.9)

Net loan receivable and equity investments activity ........................... (102.2) (104.3)

Holdings of special drawing rights ...................................................... (2.9) (1.8)

Other .................................................................................................. 14.9 (4.3)

Subtotal .............................................................................................. (333.7) (363.3)

 

Cash and other monetary assets: (Note 2) 

Increase in Cash and other monetary assets ..................................... 40.2 58.6

Balance, beginning of period .............................................................. 264.9 206.3

Balance, end of period ....................................................................... 305.1 264.9

 

 

 

For budgetary purposes, the effect of the year-end downward re-estimates (reduction of net outlays) and upward re-estimates 

(increase of net outlays) is not recognized until the subsequent fiscal year. 

The accompanying notes are an integral part of these financial statements.
60 FINANCIAL STATEMENTS 

United States Government 

Balance Sheets 

as of September 30, 2015, and 2014 

 

(In billions of dollars) 2015 2014

Assets: 

 Cash and other monetary assets (Note 2) ..................................................................... 305.1 264.9

Accounts and taxes receivable, net (Note 3) ................................................................. 117.8 104.0

 Loans receivable, net (Note 4) ...................................................................................... 1,216.0 1,125.7

 Inventories and related property, net (Note 5) ............................................................... 320.6 318.4

 Property, plant and equipment, net (Note 6) ................................................................. 893.9 878.3

 Debt and equity securities (Note 7) ............................................................................... 104.4 115.4

 Investments in government-sponsored enterprises (Note 8)......................................... 106.3 95.8

 Other assets (Note 9) .................................................................................................... 165.7 162.8

 Total assets ................................................................................................................ 3,229.8 3,065.3

 Stewardship land and heritage assets (Note 25) 

Liabilities: 

Accounts payable (Note 10) .......................................................................................... 68.3 69.0

 Federal debt securities held by the public and accrued interest (Note 11).................... 13,172.5 12,833.6

 Federal employee and veteran benefits payable (Note 12)........................................... 6,719.3 6,672.6

 Environmental and disposal liabilities (Note 13)............................................................ 411.6 369.1

 Benefits due and payable (Note 14) .............................................................................. 213.9 191.6

 Insurance and guarantee program liabilities (Note 15)................................................. 177.5 168.2

 Loan guarantee liabilities (Note 4) ................................................................................. 36.3 52.8

 Other liabilities (Note 16) ............................................................................................... 652.3 409.1

 Total liabilities ............................................................................................................. 21,451.7 20,766.0

 Contingencies (Note 19) and Commitments (Note 20) 

Net Position: 

 Funds from Dedicated Collections (Note 21) ................................................................. 3,247.7 3,197.6

 Funds other than those from Dedicated Collections...................................................... (21,469.6) (20,898.3)

 Total net position ........................................................................................................ (18,221.9) (17,700.7)

 Total liabilities and net position .................................................................................. 3,229.8 3,065.3

 

The accompanying notes are an integral part of these financial statements. 
 FINANCIAL STATEMENTS 61 

United States Government 

Statements of Long-Term Fiscal Projections (Note 24) 

Present Value of 75 Year Projections as of September 30, 2015 and 20141

 

2015 2014 Change 2015 2014 Change

(unaudited) (unaudited)

Receipts:

 Social Security Payroll Taxes....................... 52.4 47.9 4.5 4.4 4.3 0.1

 Medicare Payroll Taxes................................ 17.4 16.1 1.3 1.5 1.4 0.0

 Individual Income Taxes............................... 127.8 117.1 10.7 10.7 10.5 0.2

 Other Receipts............................................ 43.5 42.5 1.1 3.6 3.8 (0.2)

Total Receipts................................................. 241.2 223.6 17.6 20.2 20.0 0.1

 Social Security............................................ 70.0 65.5 4.5 5.9 5.9 0.0

 Medicare Part A3

......................................... 24.0 23.0 1.1 2.0 2.1 0.0

 Medicare Parts B & D4................................. 28.7 27.8 0.9 2.4 2.5 (0.1)

 Medicaid..................................................... 27.3 26.0 1.3 2.3 2.3 0.0

 Other Mandatory......................................... 36.8 31.1 5.7 3.1 2.8 0.3

 Defense Discretionary.................................. 28.6 26.9 1.6 2.4 2.4 0.0

 Non-defense Discretionary............................ 30.0 28.1 1.8 2.5 2.5 0.0

 Total Non-interest Spending............................. 245.3 228.4 17.0 20.5 20.4 0.1

Non-interest Spending less Receipts............. 4.1 4.7 (0.6) 0.3 0.4 (0.1)

The accompanying notes are an integral part of these financial statements.

3 Represents portions of Medicare supported by payroll taxes.

4 Represents portions of Medicare supported by general revenues. Consistent w ith the President's Budget, outlays for Parts B & D are presented net 

of premiums. 

Totals may not equal the sum of components due to rounding. 

Dollars in Trillions Percent of GDP2

Non-interest Spending:

1 75-year present value projections for 2015 are as of 9/30/2015 for the period FY 2016-2090; projections for 2014 are as of 9/30/2014 for the period 

FY 2015-2089.

2 The 75-year present value of nominal Gross Domestic Product (GDP), w hich drives the calculations above is $1,196.3 trillion starting in FY 2016, and 

w as $1,117.2 trillion starting in FY 2015.
62 FINANCIAL STATEMENTS 

United States Government 

Statements of Social Insurance (Note 23)

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections 

(In billions of dollars) 2015 2014 2013 2012 2011

 

Federal Old-age, Survivors and Disability Insurance (Social 

Security):14 

Revenue (Contributions and Dedicated Taxes) from: 

 Participants who have attained eligibility age (age 62 and over)......... 1,166 984 908 847 726

 Participants who have not attained eligibility age ................................ 27,791 25,391 24,591 22,703 20,734

 Future participants ............................................................................... 26,580 24,594 23,419 21,649 20,144

 All current and future participants ........................................................ 55,537 50,969 48,918 45,198 41,603

Expenditures for Scheduled Future Benefits for: 

 Participants who have attained eligibility age (age 62 and over)......... (12,833) (11,852) (11,021) (9,834) (8,618)

 Participants who have not attained eligibility age ................................ (45,276) (42,419) (40,591) (37,753) (34,042)

 Future participants ............................................................................... (10,867) (10,028) (9,600) (8,890) (8,100)

 All current and future participants ........................................................ (68,976) (64,299) (61,212) (56,477) (50,760)

Present value of future expenditures in excess of future 

revenue .................................................................................................. (13,440)1 (13,330)2

 (12,294)3 (11,278)4 (9,157)5

Federal Hospital Insurance (Medicare Part A):14 

Revenue (Contributions and Dedicated Taxes) from: 

 Participants who have attained eligibility age (age 65 and over)......... 382 332 301 302 262

 Participants who have not attained eligibility age ................................ 9,134 8,398 8,147 7,929 7,581

 Future participants ............................................................................... 8,386 7,812 7,744 7,367 7,260

All current and future participants ........................................................ 17,902 16,542 16,192 15,598 15,104

Expenditures for Scheduled Future Benefits for: 

 Participants who have attained eligibility age (age 65 and over)......... (3,803) (3,484) (3,422) (3,369) (2,923)

 Participants who have not attained eligibility age ................................ (14,494) (14,117) (14,629) (14,919) (12,887)

 Future participants ............................................................................... (2,792) (2,764) (2,913) (2,891) (2,546)

All current and future participants ........................................................ (21,089) (20,365) (20,964) (21,179) (18,356)

Present value of future expenditures in excess of future 

revenue .................................................................................................. (3,187)1 (3,823)2

 (4,772)3 (5,581)4 (3,252)5

Federal Supplementary Medical Insurance (Medicare Part B):14 

Revenue (Premiums) from: 

 Participants who have attained eligibility age (age 65 and over)......... 898 763 701 635 570

 Participants who have not attained eligibility age ................................ 4,633 4,548 4,073 3,826 3,651

 Future participants ............................................................................... 998 1,145 944 884 865

All current and future participants ........................................................ 6,529 6,456 5,718 5,344 5,086

Expenditures for Scheduled Future Benefits for: 

 Participants who have attained eligibility age (age 65 and over)......... (3,637) (3,171) (2,887) (2,646) (2,343)

 Participants who have not attained eligibility age ................................ (16,818) (17,003) (15,075) (14,303) (13,489)

 Future participants ............................................................................... (3,540) (4,137) (3,415) (3,211) (3,108)

All current and future participants ........................................................ (23,995) (24,311) (21,377) (20,159) (18,940)

Present value of future expenditures in excess of future 

revenue 6 ................................................................................................ (17,466)1 (17,856)2 (15,659)3 (14,815)4 (13,854)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 63 

United States Government 

Statements of Social Insurance (Note 23), continued

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections 

(In billions of dollars) 2015 2014 2013 2012 2011

 

Federal Supplementary Medical Insurance (Medicare Part D):14

Revenue (Premiums and State Transfers) from: 

 Participants who have attained eligibility age (age 65 and over)......... 251 209 184 179 173

 Participants who have not attained eligibility age ................................ 1,814 1,596 1,491 1,510 1,608

 Future participants ............................................................................... 804 703 665 661 703

All current and future participants ........................................................ 2,869 2,508 2,340 2,349 2,484

Expenditures for Scheduled Future Benefits for: 

 Participants who have attained eligibility age (age 65 and over)......... (887) (775) (722) (694) (695)

 Participants who have not attained eligibility age ................................ (6,424) (5,928) (5,871) (5,866) (6,438)

 Future participants ............................................................................... (2,845) (2,609) (2,617) (2,568) (2,817)

All current and future participants ........................................................ (10,156) (9,312) (9,211) (9,128) (9,950)

Present value of future expenditures in excess of future 

revenue 6 ................................................................................................ (7,287)1 (6,804)2 (6,871)3 (6,778)4 (7,466)5

Railroad Retirement: 

Revenue (Contributions and Dedicated Taxes) from: 

 Participants who have attained eligibility ............................................. 8 8 7 7 6

 Participants who have not attained eligibility ....................................... 66 63 60 56 46

 Future participants ............................................................................... 79 78 79 78 65

All current and future participants ........................................................ 153 149 146 141 117

Expenditures for Scheduled Future Benefits for: 

 Participants who have attained eligibility ............................................. (131) (126) (123) (119) (109)

 Participants who have not attained eligibility ....................................... (97) (97) (96) (95) (86)

 Future participants ............................................................................... (35) (34) (34) (34) (28)

All current and future participants ........................................................ (263) (257) (253) (248) (223)

Present value of future expenditures in excess of future 

revenue 7 ................................................................................................ (110)1 (108)2 (107)3 (107)4 (106)5

Black Lung (Part C): 

Present value of future revenue in excess of future 

 expenditures 8 ..................................................................................... 2 9 5 10 5 11 5 12 5 13

Total present value of future expenditures in excess of future 

revenue .................................................................................................. (41,487) (41,916) (39,698) (38,554) (33,830)

Totals may not equal the sum of components due to rounding. 

 

The accompanying notes are an integral part of these financial statements. 
64 FINANCIAL STATEMENTS 

United States Government 

Statements of Social Insurance (Note 23), continued

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections 

(In billions of dollars) 2015 2014 2013 2012 2011

Social Insurance Summary14 

Participants who have attained eligibility age: 

 Revenue (e.g., contributions and dedicated taxes) ........................... 2,705 2,296 2,101 1,970 1,737

 Expenditures for scheduled future benefits ....................................... (21,291) (19,408) (18,175) (16,662) (14,688)

 Present value of future expenditures in excess of 

 future revenue ................................................................................ (18,586) (17,112) (16,074) (14,692) (12,951)

Participants who have not attained eligibility age: 

 Revenue (e.g., contributions and dedicated taxes) ........................... 43,438 39,996 38,362 36,024 33,620

 Expenditures for scheduled future benefits ....................................... (83,109) (79,564) (76,262) (72,936) (66,942)

 Present value of future expenditures in excess of 

 future revenue ................................................................................ (39,671) (39,568) (37,900) (36,912) (33,322)

 Closed-group - Total present value of future expenditures in 

excess of future revenue ................................................................ (58,257) (56,680) (53,974) (51,604) (46,272)

Future participants: 

 Revenue (e.g., contributions and dedicated taxes) ........................... 36,847 34,332 32,851 30,639 29,037

 Expenditures for scheduled future benefits ....................................... (20,077) (19,567) (18,575) (17,589) (16,594)

 Present value of future revenue in excess of future 

 expenditure .................................................................................... 16,770 14,765 14,276 13,050 12,443

Open-group - Total present value of future expenditures in 

excess of future revenue ...................................................................... (41,487) (41,916) (39,698) (38,554) (33,830)

1

 The projection period is 1/1/2015-12/31/2089 and the valuation date is 1/1/2015. 2

 The projection period is 1/1/2014-12/31/2088 and the valuation date is 1/1/2014. 3

 The projection period is 1/1/2013-12/31/2087 and the valuation date is 1/1/2013. 4

 The projection period is 1/1/2012-12/31/2086 and the valuation date is 1/1/2012. 5

 The projection period is 1/1/2011-12/31/2085 and the valuation date is 1/1/2011. 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

 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). 8

 Does not include interest expense accruing on the outstanding debt. 

9

 The projection period is 9/30/2015-9/30/2040 and the valuation date is 9/30/2015. 10 The projection period is 9/30/2014-9/30/2040 and the valuation date is 9/30/2014. 11 The projection period is 9/30/2013-9/30/2040 and the valuation date is 9/30/2013. 12 The projection period is 9/30/2012-9/30/2040 and the valuation date is 9/30/2012. 13 The projection period is 9/30/2011-9/30/2040 and the valuation date is 9/30/2011. 14 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 65 

United States Government 

Statement of Changes in Social Insurance Amounts

for the Year Ended September 30, 2015 (Note 23) 

 

 Social Medicare Medicare 

(In billions 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 ........................................ (13,330) (3,823) (24,660) (103) (41,916)

Reasons for changes in the NPV during the year: 

Changes in valuation period ......................................... (560) (202) (1,094) (2) (1,858)

Changes in demographic data and assumptions ......... (103) (35) (108) (3) (249)

Changes in economic data and assumptions ............... (146) - - - (146)

Changes in law or policy .............................................. 29 201 (253) - (23)

Changes in methodology and programmatic data ........ 671 - - - 671

Changes in economic and other health care 

 assumptions ............................................................. - 755 2,466 - 3,221

Change in projection base ............................................ - (83) (1,104) - (1,187)

 Net change in open group measure ............................. (109) 636 (93) (5) 429

Open group measure, end of year .................................. (13,440) (3,187) (24,753) (108) (41,487)

 

Totals may not equal the sum of components due to rounding. 

 

 

1

 Amounts represent changes between valuation dates 1/1/2014 and 1/1/2015. 

2

 Includes Railroad Retirement changes between valuation dates 1/1/2014 and 1/1/2015 and Black Lung changes between 9/30/2014 and 

9/30/2015. 

The accompanying notes are an integral part of these financial statements. 
66 FINANCIAL STATEMENTS 

United States Government 

Statement of Changes in Social Insurance Amounts 

for the Year Ended September 30, 2014 (Note 23) 

 

 

 Social Medicare Medicare 

(In billions 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 ........................................ (12,294) (4,772) (22,530) (102) (39,698)

Reasons for changes in the NPV during the year: 

 Changes in valuation period ......................................... (540) (239) (988) (2) (1,769)

Changes in demographic data and assumptions ......... 235 (139) (152) 2 (54)

Changes in economic data and assumptions ............... (604) - - (1) (605)

Changes in law or policy .............................................. (37) 108 (42) - 29

Changes in methodology and programmatic data ........ (90) - - - (90)

Changes in economic and other health care 

 assumptions ................................................................ - 772 (1,090) - (318)

 Change in projection base ............................................ - 447 142 - 589

Net change in open group measure ............................. (1,036) 949 (2,130) (1) (2,218)

Open group measure, end of year .................................. (13,330) (3,823) (24,660) (103) (41,916)

 

Totals may not equal the sum of components due to rounding. 

1

 Amounts represent changes between valuation dates 1/1/2013 and 1/1/2014. 

2

 Includes Railroad Retirement changes between valuation dates 1/1/2013 and 1/1/2014 and Black Lung changes between 9/30/2013 and 

9/30/2014. 

The accompanying notes are an integral part of these financial statements. 
 NOTES TO THE FINANCIAL STATEMENTS 67 

United States Government 

Notes to the Financial Statements 

for the Years Ended September 30, 2015, 

and 2014

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 provided cash and a significant amount of accrual basis financial information to include 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) No. 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 the Thrift Savings Fund, or were specifically excluded from the 

consolidated reporting entity in accordance with SFFAC No. 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]. 

Following U.S. Generally Accepted Accounting Principles (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 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 investment in such entities are presented on the balance sheet.

Material intragovernmental transactions are eliminated in consolidation, except as described in the Other Information—

Unmatched Transactions and Balances (see Note 1.S). 
68 NOTES TO THE FINANCIAL STATEMENTS 

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. 

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 (unified 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 Unified 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 period. They include the Statement of 

Long-Term Fiscal Projections, covering all federal government programs, and the Statement 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). These estimates are based on economic as well as demographic assumptions 

presented in Notes 23 and 24. 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 Statement of Social Insurance does 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 Statement of Social Insurance. The Statement of Long-Term Fiscal Projections includes all revenues 

(including general revenues) of the federal government. 

New Standards Issued in Prior Years and Implemented in Current Year 

Beginning in fiscal year 2015, the government implemented the requirements of new standards related to the reporting 

for: Deferred Maintenance and Repairs, Impairment of General Property, Plant, and Equipment Remaining in Use, and the 

presentation of Long-Term Projections as a basic financial statement. The new standards being implemented are: 

 FASAB issued SFFAS No. 42, Deferred Maintenance and Repairs, Amending SFFAS No. 6, 14, 29, and 32. Among 

other things, SFFAS No. 42 replaces the definition, measurement, and reporting requirements for deferred 

maintenance and repairs established in SFFAS No. 6, Accounting for Property, Plant, and Equipment and rescinds 

the current governmentwide disclosures required for deferred maintenance established in SFFAS No. 32, 

Consolidated Financial Report of the United States Government Requirements. SFFAS No. 42 also requires the 

governmentwide financial statements to disclose as RSI a description of what constitutes deferred maintenance and 

repairs (DM&R) and how it was measured; amounts of DM&R for each major category of property, plant, and 

equipment; and a general reference to specific component entity reports for additional information. 

 FASAB issued SFFAS No. 44, Accounting for Impairment of General Property, Plant, and Equipment Remaining in 

Use which provides accounting and reporting requirements for partial impairments of general property, plant, and 
 NOTES TO THE FINANCIAL STATEMENTS 69 

equipment (G-PP&E) remaining in use and construction work-in-process. SFFAS No. 44 requires description of 

what constitutes G-PP&E impairment, disclosure of related losses, and a reference to specific component entity 

reports for additional information. 

 FASAB issued SFFAS No. 46, Deferral of the Transition to Basic Information for Long-Term Projections; 

Amending SFFAS No. 36 and 45. SFFAS No. 46 amends the effective date of the phased implementation first 

established in SFFAS No. 36, Comprehensive Long-Term Projections for the U.S. Government and later amended 

by SFFAS No. 45, Deferral of the Transition to Basic Information for Long-Term Projections. SFFAS No. 46 

requires the presentation of the long-term projections for the government and related disclosures as basic 

information in fiscal year 2015. 

New Standard Issued and Not Yet Implemented 

FASAB issued the following new standard that is applicable to the Financial Report, but is not yet implemented at the 

governmentwide level for fiscal year 2015: 

 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. Generally, 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. 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, such organizations are to be disclosed rather than consolidated at 

the governmentwide level. The standard also requires information to be provided about related party relationships of 

such significance that it would be misleading to exclude information. SFFAS No. 47 is effective for periods 

beginning after September 30, 2017 and early implementation is not permitted. 

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 allowance for uncollectible amounts is based 

on projections of collectibles from a statistical sample of unpaid tax 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 
70 NOTES TO THE FINANCIAL STATEMENTS 

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 latest acquisition cost (LAC). Historical cost methods 

include first-in-first-out, weighted average, and moving average. When LAC methods are used, the inventory is revalued 

periodically and an allowance account should be established for unrealized holding gains and losses. 

The Department of Defense (DOD) values approximately 97 percent of resale inventory using the moving average cost 

method. Additionally, DOD reports the remaining 3 percent of resale inventories at an approximation of historical cost using 

latest acquisition cost adjusted for holding gains and losses to approximate the historical cost of resale inventory items 

remaining in its legacy system. The latest acquisition cost method is used because legacy inventory systems were designed 

for material management rather than accounting. Although these systems provide visibility and accountability over inventory 

items, they do not maintain historical cost data necessary to comply with SFFAS No. 3. DOD is continuing to transition 

inventories currently accounted for under the LAC methods, to be accounted for under the moving average cost methods. 

When using historical cost valuation, estimated repair costs reduce the value of inventory held for repair. Excess, obsolete, 

and unserviceable inventories are valued at estimated net realizable value. When LAC is used to value inventory held for 

sale, it is adjusted for holding gains and losses in order to approximate historical cost. 

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, LAC, and standard price 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. 

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. 

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 
 NOTES TO THE FINANCIAL STATEMENTS 71 

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. 

SFFAS No. 44, Accounting for Impairment of General Property, Plant and Equipment Remaining in Use, requires the 

establishment of accounting and financial reporting standards for impairment of general PP& E remaining in use, except for internal 

use software. General PP&E is considered impaired when there is a significant and permanent decline in the service utility of 

PP& E or expected service utility for construction in progress and management has no reasonable expectation that the lost service 

utility will be replaced or restored. Existing processes and internal controls are expected to reasonably assure identification and 

communication of potential material impairments, such as those related to deferred maintenance and repairs. 

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 25—Stewardship Land and Heritage Assets. 

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. 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. Based on U.S. GAAP, these commitments, predicated on the future occurrence of any 

stockholders’ equity net deficits of the GSEs, at the end of any reporting quarter are potential liabilities of Treasury. 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. 
72 NOTES TO THE FINANCIAL STATEMENTS 

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 and burial benefits, post-retirement 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 

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. 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 Deposit Insurance Fund Program, 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. 
 NOTES TO THE FINANCIAL STATEMENTS 73 

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 19—Contingencies. 

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 20—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 as of the reporting date. No liability is recognized for 

future benefit payments not yet due. For further information, see the unaudited RSI—Social Insurance section, and Note 23—

Social Insurance. 

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; 
74 NOTES TO THE FINANCIAL STATEMENTS 

 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 21—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 payments 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); 

 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 stability 

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 
 NOTES TO THE FINANCIAL STATEMENTS 75 

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 $1,845.3 billion and $1,919.4 billion at September 30, 2015 and 2014, 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 http://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 reservation of an amount necessary to equate surplus with paid-in capital. These 

residual earnings may vary due to, among other things, changes in the SOMA balance levels that may occur in conducting 

monetary policy. In the event of losses, or a substantial increase in capital, a FRB will suspend its payments to the U.S. 

Treasury until such losses or increases in capital are recovered through subsequent earnings. The FRB residual earnings of 

$96.5 billion and $99.2 billion for fiscal years ended September 30, 2015 and 2014, 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 

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, 2015 and 2014, interest receivable on 

FRB’s residual earnings are $0.3 billion and $1.7 billion, respectively (Note 3—Accounts and Taxes Receivables, Net). 

Other Related Parties 

The federal government, through the Federal Housing Finance Agency (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. However, the United 

States Supreme Court has held that, for the purposes of assessing certain constitutional issues, Amtrak is a governmental 

entity. The nine members of Amtrak’s Board of Directors 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 
76 NOTES TO THE FINANCIAL STATEMENTS 

government or any of its officers to set Amtrak policy, determine its budget, and decide operational issues. The Secretary of 

Transportation is statutorily appointed to the nine 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 medium-term and long-term fixed-rate and variable-rate loans to foreign borrowers to purchase 

U.S.-made equipment when such loans are not available from traditional private sector lenders on competitive terms. Ex-Im 

Bank’s credit and guarantee agreement with PEFCO extends through December 31, 2020. Through its contractual 

agreements with PEFCO, Ex-Im Bank exercises a broad measure of supervision over PEFCO’s major financial management 

decisions, including approval of both the terms of individual loan commitments and the terms of PEFCO’s long-term debt 

issues, and is entitled to representation at all meetings of PEFCO’s board of directors, advisory board, and its exporters’ 

council. 

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 $12.6 billion and $10.0 

billion at September 30, 2015, and 2014, respectively, are included within the principal amounts guaranteed by the United 

States. The allowance related to these transactions is included within the guaranteed loan liability. Ex-Im Bank received fees 

for the agreements totaling $0.03 billion and $0.04 billion for fiscal years 2015 and 2014, 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. 

Refer to the Other Information (unaudited) —Unmatched Transactions and Balances for detailed information. 

T. Reclassifications 

The fiscal year 2014 amounts related to the Troubled Asset Relief Program (TARP) direct loans and equity investments 

are no longer presented as a separate line on the Balance Sheet or separate note disclosure. For fiscal year 2015, TARP is 

included in the loans receivable line on the balance sheet and the all other programs line in the Note 4. Loans Receivable and 

Loan Guarantee Liabilities. 

Certain amounts were reclassified in fiscal year 2015 and affect the fiscal year 2014 Statement of Net Cost. For fiscal 

year 2015, as stated in Appendix A of this report, the Foreign Military Financing Program and Foreign Military Sales 

Program were consolidated to create the Defense Security Cooperation Agency (DSCA). These two entities were previously 

identified as additional entities in Appendix A, but as a consolidated entity, DSCA is now being reported as a significant 

entity. As a result, DSCA is now separately identified on the Statement of Net Cost and its consolidated fiscal year 2014 net 

cost amounts were reclassified out of “All other entities.” 

U. Restatements

There were no material restatements to fiscal year 2014 reported amounts. 
 NOTES TO THE FINANCIAL STATEMENTS 77 

V. 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 22—Fiduciary Activities, for further information. 

W. 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 GSE senior preferred stock purchase agreements (SPSPAs) provide that the government will fund the GSEs, if 

needed at the end of any quarter. The FHFA, acting as the conservator, determines whether the liabilities of either GSE, 

individually, exceed its respective assets. 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. A key input into the investment valuation for the senior 

preferred stock is the present value of the projected quarterly dividend payments, and a key input for the warrants is the 

market value of the shares of common stock of the GSEs which are traded on the over-the-counter (OTC) Bulletin Board. 

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. As part of the fiscal year 2015 assessment process, Treasury used 25-year 

financial forecasts prepared through year 2040 and 2039 in assessing if a contingent liability was required as of September 

30, 2015 and 2014, respectively, to determine the implied amount of total liability. 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 

benefits, post-retirement health benefits, life insurance 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. 
78 NOTES TO THE FINANCIAL STATEMENTS 

X. 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. 
 NOTES TO THE FINANCIAL STATEMENTS 79 

Note 2. Cash and Other Monetary Assets 

Cash and Other Monetary Assets as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Unrestricted cash: 

Cash held by Treasury for governmentwide operations ....................................... 193.3 153.2

Other ............................................................................................................................ 6.6 7.2

Restricted ....................................................................................................................... 26.1 21.5

Total cash ................................................................................................................. 226.0 181.9

International monetary assets ..................................................................................... 58.5 66.0

Gold and silver ............................................................................................................... 11.1 11.1

Foreign currency ............................................................................................................ 9.5 5.9

Total cash and other monetary assets ................................................................. 305.1 264.9

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 increased by $40.1 billion (an increase of approximately 26 percent) in fiscal 

year 2015 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 $23.9 billion and 

$20.5 billion as of September 30, 2015, and 2014, respectively. 

International monetary assets include the 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 United States 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 United States 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 United States to the IMF. The balance available under the letter of credit 

totaled $49.6 billion and $47.6 billion as of September 30, 2015, and 2014 respectively. The U.S. reserve position in the IMF 

has a U.S. dollar equivalent of $9.4 billion and $14.7 billion as of September 30, 2015, and 2014, 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 United States was the equivalent of 

$50.3 billion and $53.2 billion as of September 30, 2015, and 2014, 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 
80 NOTES TO THE FINANCIAL STATEMENTS 

determines when Treasury will issue or redeem SDRCs. SDRCs outstanding totaled $5.2 billion as of September 30, 2015, 

and 2014, and are included in Note 16—Other Liabilities. 

As of September 30, 2015, and 2014, other liabilities included $49.6 billion and $52.4 billion of interest-bearing 

liability to the IMF for SDR allocations. The SDR allocation item represents the cumulative total of SDRs distributed by the 

IMF to the United States in allocations. The United States 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, 2015, and 2014. The market value of gold on the London Fixing was $1,114 and $1,217 per 

fine troy ounce as of September 30, 2015, and 2014, 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, 2015, and 2014. 

The market value of silver on the London Fixing was $14.65 and $17.11 per fine troy ounce as of September 30, 2015, and 

2014, respectively. Gold totaling $11.0 billion as of September 30, 2015, and 2014, 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, 2015, and 2014, 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. 
 NOTES TO THE FINANCIAL STATEMENTS 81 

Note 3. Accounts and Taxes Receivable, Net 

Accounts and Taxes Receivable as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Accounts receivable: 

Gross accounts receivable ........................................................................................ 100.9 87.0

Allowance for uncollectible amounts ....................................................................... (27.4) (26.0)

Accounts receivable, net ........................................................................................... 73.5 61.0

Taxes receivable: 

Gross taxes receivable .............................................................................................. 177.4 161.7

Allowance for uncollectible amounts ....................................................................... (133.1) (118.7)

Taxes receivable, net ................................................................................................. 44.3 43.0

Total accounts and taxes receivable, net ............................................................ 117.8 104.0

Gross accounts receivable include related interest receivable of $3.7 billion and $5.0 billion as of September 30, 2015, 

and 2014, respectively. 

Treasury comprises approximately 35.7 percent of the Government’s reported accounts and taxes receivable, net, as of 

September 30, 2015. Refer to the financial statements of the Department of the Treasury, the Department of Health and 

Human Services, the Social Security Administration, the Department of Defense, the Department of Homeland Security, the 

Pension Benefit Guaranty Corporation, the Federal Communications Commission, the Department of Energy, the Federal 

Deposit Insurance Corporation, the Department of Veterans Affairs, and the Department of Labor for details on gross 

accounts and taxes receivable and the related allowance for uncollectible amounts. These agencies comprise 91.0 percent of 

the Government’s accounts and taxes receivable, net, of $117.8 billion as of September 30, 2015. 
82 NOTES TO THE FINANCIAL STATEMENTS 

Note 4. Loans Receivable and Loan Guarantee Liabilities, Net 

Direct Loan and Defaulted Guaranteed Loan Programs as of September 30, 2015, and 2014 

Face Value of 

Loans 

Outstanding 

Long-term Cost 

of (Income from) 

Direct Loans and 

Defaulted 

Guaranteed 

Loans 

Outstanding 

Loans Receivable, 

Net 

Subsidy 

Expense 

(Income) for the 

Fiscal Year 

(In billions of dollars) 2015 2014 2015 2014 2015 2014 2015 2014

 

Federal Direct Student Loans - 

Education ............................................ 845.1 731.2 (35.5) (47.4) 880.6 778.6 (0.9) 8.1

Federal Family Education Loans - 

Education ............................................ 132.2 139.8 (2.5) (3.1) 134.7 142.9 0.4 (2.0)

Electric Loans - USDA ...................... 47.9 51.2 2.0 2.2 45.9 49.0 (0.4) (0.1)

Rural Housing Services - USDA ..... 32.2 31.9 3.5 3.6 28.7 28.3 0.1 0.2

Export-Import Bank Loans ............... 24.1 22.9 2.6 3.4 21.5 19.5 (0.3) (0.5)

Housing and Urban Development 

Loans ................................................... 23.1 18.1 6.9 5.5 16.2 12.6 (3.1) (0.6)

Water and Environmental Loans - 

USDA .................................................. 12.6 12.6 0.2 0.3 12.4 12.3 (0.1) 0.1

International Monetary Fund 

Program - Treasury ........................... 11.7 16.2 1.0 0.7 10.7 15.5 0.3 0.2

All other programs ............................. 81.7 84.7 16.4 17.7 65.3 67.0 1.5 (0.8)

Total direct loans and defaulted 

guaranteed loans ............................ 1,210.6 1,108.6 (5.4) (17.1) 1,216.0 1,125.7 (2.5) 4.6
 NOTES TO THE FINANCIAL STATEMENTS 83 

Loan Guarantees as of September 30, 2015, and 2014 

Principal Amount 

of Loans Under 

Guarantee 

Principal Amount 

Guaranteed by the 

United States 

Loan Guarantee 

Liabilities 

Subsidy 

Expense 

(Income) for the 

Fiscal Year 

(In billions of dollars) 2015 2014 2015 2014 2015 2014 2015 2014

 

Federal Housing Administration 

Loans - HUD .................................... 1,292.1 1,290.6 1,178.1 1,185.7 16.1 33.5 (13.6) (10.5)

Veterans Housing Benefit 

Programs - VA ................................ 453.9 389.3 117.4 101.5 9.9 8.9 0.5 0.4

Rural Housing Services - USDA .. 113.2 102.9 101.9 92.6 4.8 4.5 1.0 0.7

Small Business Loans - SBA ........ 105.7 99.0 88.3 83.5 1.7 2.0 (1.3) (1.3)

Export-Import Bank Guarantees .. 72.2 78.1 72.2 78.1 1.4 1.6 (0.2) (0.3)

Israel Loan Guarantee Program - 

AID .................................................... 10.5 10.5 10.5 10.5 1.0 1.0 - -

Federal Family Education Loans 

- Education ...................................... 219.7 241.6 215.1 236.5 - - (4.3) (4.6)

All other guaranteed loan 

programs .......................................... 45.5 42.8 40.4 38.3 1.4 1.3 0.3 0.7

Total loan guarantees ................. 2,312.8 2,254.8 1,823.9 1,826.7 36.3 52.8 (17.6) (14.9)

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 as of September 30. The amount of the long-term cost of pre1992 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.
84 NOTES TO THE FINANCIAL STATEMENTS 

Loan Programs 

The majority of the loan programs are provided by Education, HUD, USDA, Treasury, Small Business Administration 

(SBA), VA, Export-Import Bank and United States Agency for International Development (USAID). 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 Student Loan Program, (referred to as the Direct Loan Program) that was 

established in fiscal year 1994. The Direct Loan Program offers 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 $142.2 billion in 

Direct Loans to eligible borrowers in fiscal year 2015 and approximately $134.0 billion in fiscal year 2014. 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 offers 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 (Public Law 111-152), 

eliminated the authority to guarantee new FFEL after June 30, 2010. During fiscal year 2015, Education net loans receivable 

increased by $102.0 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. 

In 2009, Congress passed the Supplemental Appropriations Act of 2009 which authorized an increase in the U.S. quota 

in the IMF, as well as an increase in U.S. participation in the New Arrangements to Borrow, one of the IMF’s supplemental 

borrowing arrangements. The legislation applied FCRA to both program increases and, thus, the program increases are 

treated as direct loans to the IMF. 

USDA offers direct and guaranteed loans through credit programs in the Farm and Foreign Agricultural Services 

(FFAS) mission area through the Farm Service Agency (FSA), and the Commodity Credit Corporation (CCC), and in the 

Rural Development (RD) mission area. The FFAS delivers commodity, credit, conservation, disaster, and emergency 

assistance programs that help strengthen and stabilize the agricultural economy. The FSA offers direct and guaranteed 

loans to farmers who are temporarily unable to obtain private, commercial credit. Through this supervised credit offered 

by FSA, the goal is to graduate its borrowers to commercial credit. The CCC offers both credit guarantee and direct credit 

programs for buyers of U.S. exports, suppliers, and sovereign countries in need of food assistance. The RD provides 

affordable housing and essential community facilities to rural communities through its rural housing loan and grant 

programs. The Rural Utilities Program helps to improve the quality of life in rural America 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 loan program usually have repayment terms in excess of seven years. Generally, both the medium-term and 

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 to recover from disasters. 

VA operates the following direct loan and loan guaranty programs: Vocational Rehabilitation and Employment, Home 

Loans, and Insurance. 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 2015, the VA principal amount 

of loans under guarantee increased by $64.6 billion. This increase was primarily due to new loans under guarantee with a 

principal totaling $134.3 billion, partially offset by guaranteed loan terminations with a principal amount of $69.7 billion. 

USAID’s Israel Loan Guarantee Program guarantees the repayment of loans made from commercial sources that cover 

the costs for immigrants resettling to Israel from the former Soviet Union, Ethiopia, and other countries. As of fiscal year 

2015, $6.8 billion in loan guarantees remains outstanding. The program also guarantees the repayment of loans that support 
 NOTES TO THE FINANCIAL STATEMENTS 85 

Israel’s comprehensive economic plan to overcome economic difficulties and create conditions for higher and sustainable 

growth, of which $3.7 billion in loan guarantees remains outstanding as of September 30, 2015. 
86 NOTES TO THE FINANCIAL STATEMENTS 

Note 5. Inventories and Related Property, Net

 

Inventories and Related Property, Net as of September 30, 2015, and 2014 

Defense

 

All 

Others Total Defense 

 

All 

Others Total 

(In billions of dollars) 2015 2014 

Inventory purchased for resale ...................................... 61.3 0.4 61.7 63.2 0.4 63.6

Inventory and operating material and supplies held 

for repair ............................................................................. 79.6 1.5 81.1 60.8 1.4 62.2

Inventory—excess, obsolete, and unserviceable ....... 1.4 - 1.4 0.5 - 0.5

Operating materials and supplies held for use ............ 121.9 3.5 125.4 138.5 3.5 142.0

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 ........................................................... 2.0 - 2.0 2.4 - 2.4

Stockpile materials .......................................................... 0.4 52.8 53.2 0.3 50.8 51.1

Stockpile materials held for sale ................................... - - - 0.2 0.1 0.3

Other related property ..................................................... 1.5 1.1 2.6 1.5 1.1 2.6

Allowance for loss ........................................................... (6.4) (0.6) (7.0) (5.9) (0.6) (6.5)

Total inventories and related property, net ................. 261.7 58.9 320.6 261.5 56.9 318.4

Inventory purchased for resale is the cost or value of tangible personal property purchased by an agency for resale. As 

of September 30, 2015, DOD values approximately 97 percent of its resale inventory using the moving average cost (MAC) 

method. DOD reports the remaining 3 percent of resale inventories at an approximation of historical cost using LAC adjusted 

for holding gains and losses. The LAC method is used because DOD’s legacy inventory systems do not maintain historical 

cost data. DOD improved its capability to distinguish between held for use and held for repair for operating materials and 

supplies which resulted in a major increase for inventory and operating material and supplies held for repair, and a decrease 

for operating materials and supplies held for use for fiscal year 2015. Please refer to the individual financial statements of 

DOD for significant detailed information regarding 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 

LAC, MAC, and Standard Price and expenses a significant amount when purchased instead of when consumed. 

Operating materials and supplies—excess, obsolete, and unserviceable consists of: 
 NOTES TO THE FINANCIAL STATEMENTS 87 

 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. 

 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 individual financial statements 

of DOD for significant detailed information regarding 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 amount reported by DOD is stockpile materials held for sale. The amount reported by others is stockpile 

materials held in reserve, with the majority of it being reported by the Department of Energy (DOE). Please refer to their 

financial statements 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. 
88 NOTES TO THE FINANCIAL STATEMENTS 

Note 6. Property, Plant, and Equipment, Net

Property, Plant, and Equipment as of September 30, 2015 

Accumulated 

Depreciation/ 

Cost Amortization Net 

(In billions of dollars) Defense

All 

Others Defense

All 

Others Defense

All 

Others

Buildings, structures, and facilities ................................ 283.2 268.1 137.0 144.0 146.2 124.1

Furniture, fixtures, and equipment ................................ 1,010.6 169.6 584.0 110.0 426.6 59.6

Construction in progress ................................................ 41.8 43.3 N/A N/A 41.8 43.3

Land .................................................................................. 10.9 12.8 N/A N/A 10.9 12.8

Internal use software ...................................................... 12.0 32.6 8.4 19.5 3.6 13.1

Assets under capital lease ............................................. 0.4 3.4 0.2 1.7 0.2 1.7

Leasehold improvements ............................................... 0.5 9.9 0.2 5.7 0.3 4.2

Other property, plant, and equipment .......................... 0.4 10.3 - 5.2 0.4 5.1

Subtotal .......................................................................... 1,359.8 550.0 729.8 286.1 630.0 263.9

Total property, plant, and equipment, net .............. 1,909.8 1,015.9 893.9

Property, Plant, and Equipment as of September 30, 2014 

Accumulated 

Depreciation/ 

Cost Amortization Net 

(In billions of dollars) Defense

All 

Others Defense

All 

Others Defense

All 

Others

Buildings, structures, and facilities ................................ 271.7 259.2 130.7 137.3 141.0 121.9

Furniture, fixtures, and equipment ................................ 992.0 166.2 571.6 105.4 420.4 60.8

Construction in progress ................................................ 42.1 41.3 N/A N/A 42.1 41.3

Land .................................................................................. 10.8 12.6 N/A N/A 10.8 12.6

Internal use software ...................................................... 11.8 28.5 8.4 16.4 3.4 12.1

Assets under capital lease ............................................. 0.6 3.3 0.5 1.7 0.1 1.6

Leasehold improvements ............................................... 0.5 9.4 0.2 5.0 0.3 4.4

Other property, plant, and equipment .......................... 0.8 9.5 - 4.8 0.8 4.7

Subtotal .......................................................................... 1,330.3 530.0 711.4 270.6 618.9 259.4

Total property, plant, and equipment, net .............. 1,860.3 982.0 878.3
 NOTES TO THE FINANCIAL STATEMENTS 89 

See Note 25—Stewardship Land and Heritage Assets for additional information on multi-use heritage assets. 

DOD comprises approximately 70.6 percent of the Government’s reported property, plant, and equipment, net, as of 

September 30, 2015. Refer to the financial statements of DOD, DOE, the Tennessee Valley Authority (TVA), GSA, VA, the 

Department of the Interior (DOI), DHS, and the Department of State (DOS), for detailed information on the useful lives and 

related capitalization thresholds for property, plant, and equipment. These agencies comprise 90.8 percent of the 

Government’s reported property, plant, and equipment net of $893.9 billion as of September 30, 2015. 
90 NOTES TO THE FINANCIAL STATEMENTS 

Note 7. Debt and Equity Securities 

Debt and Equity Securities as of September 30, 2015 

By Category 

Held-To-Maturity Available-for-Sale Trading Securities 

Unamor- Unreal- Unrealtized Net ized ized

Cost Premium/ Invest- Cost Gain Fair Cost Gain Fair

(In billions of dollars) Basis Discount ment Basis (Loss) Value Basis (Loss) Value Total

 

Debt Securities: 

Non-U.S. Government ............ 0.1 - 0.1 12.4 (0.7) 11.7 10.9 (0.8) 10.1 21.9

Corporate and other bonds .... - - - - - - 11.3 - 11.3 11.3

Mortgage/asset backed .......... 0.2 - 0.2 - - - 3.6 - 3.6 3.8

Commercial .............................. - - - - - - 0.2 - 0.2 0.2

All other debt securities .......... - - - - - - 3.5 - 3.5 3.5

Equity Securities: 

Unit trust ................................... - - - - - - 17.4 3.8 21.2 21.2

Common stocks ....................... - - - - - - 1.3 0.3 1.6 1.6

All other equity securities ....... 0.1 - 0.1 - - - 2.5 (0.4) 2.1 2.2

Other ......................................... 3.7 - 3.7 - - - 11.1 0.4 11.5 15.2

 

Total debt and securities 

categorized as held-tomaturity, available-for-sale or 

trading ....................................... 4.1 - 4.1 12.4 (0.7) 11.7 61.8 3.3 65.1 80.9

 

Total RRB debt and equity 

securities ................................... 23.5

 

Total debt and equity 

securities ................................... 104.4
 NOTES TO THE FINANCIAL STATEMENTS 91 

Debt and Equity Securities as of September 30, 2014 

By Category 

Held-To-Maturity Available-for-Sale Trading Securities 

Unamor- Unreal- Unrealtized Net ized ized

Cost Premium/ Invest- Cost Gain Fair Cost Gain Fair

(In billions of dollars) Basis Discount ment Basis (Loss) Value Basis (Loss) Value Total

 

Debt securities: 

Non-U.S. Government ........... 0.2 - 0.2 19.0 (1.1) 17.9 11.4 (0.1) 11.3 29.4

Corporate and other bonds ... - - - - - - 10.6 0.6 11.2 11.2

Mortgage/asset backed ......... 0.3 - 0.3 - - - 3.0 - 3.0 3.3

All other debt securities ......... - - - - - - 2.6 (0.1) 2.5 2.5

Equity securities: 

Unit trust .................................. - - - - - - 15.3 5.7 21.0 21.0

Common stocks ...................... - - - - - - 2.0 0.6 2.6 2.6

All other equity securities ...... 0.1 - 0.1 - - - 2.3 (0.2) 2.1 2.2

Other ........................................ 3.6 - 3.6 - - - 14.2 0.2 14.4 18.0

 

Total debt and equity 

securities categorized as 

held-to-maturity, availablefor-sale or trading .................... 4.2 - 4.2 19.0 (1.1) 17.9 61.4 6.7 68.1 90.2

 

Total RRB debt and equity 

securities ................................... 25.2

 

Total debt and equity 

securities ................................ 115.4
92 NOTES TO THE FINANCIAL STATEMENTS 

Debt and Equity Securities as of September 30, 2015, and 2014 

By Agency 

(In billions of dollars) 2015 2014

Pension Benefit Guaranty Corporation .............................................. 55.7 58.0

Railroad Retirement Board .................................................................. 23.5 25.2

Department of the Treasury ................................................................. 11.7 17.9

Tennessee Valley Authority ................................................................. 9.2 10.0

All other ................................................................................................... 4.3 4.3

 Total securities and investments ...................................................... 104.4 115.4

These debt and equity securities do not include nonmarketable Treasury securities, which have been eliminated in 

consolidation. Held-to-maturity debt and equity securities are reported at amortized cost, net of unamortized discounts and 

premiums. Available-for-sale debt and equity securities are reported at fair value. Trading debt and equity securities are 

reported at fair value. The Pension Benefit Guaranty Corporation (PBGC) and the TVA invest primarily in fixed maturity and 

equity securities, classified as trading. PBGC reported gains related to trading securities still held as of September 30, 2015

and September 30, 2014 of $3.5 billion and $1.2 billion, respectively. TVA reported losses related to trading securities still 

held as of September 30, 2015 and September 2014 of $0.2 billion and $0.3 billion, respectively. Treasury invests primarily 

in fixed maturity and equity securities, classified as available-for-sale securities. Treasury’s Exchange Stabilization Fund 

invests primarily in foreign fixed maturity debt, with a fair value of $11.7 billion and $17.9 billion as of September 30, 2015, 

and 2014, 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. NRRIT’s total debt and equity securities are presented as a separate line item. 

Please refer to NRRIT’s financial statements for more detailed information concerning this specific investment. The TVA 

balance includes $6.9 billion and $7.6 billion as of September 30, 2015, and 2014, respectively, for the Tennessee Valley 

Authority Retirement System. 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, Treasury, and TVA for more 

detailed information related to debt and equity securities. These agencies comprise 95.9 percent of the total reported debt and

equity securities of $104.4 billion as of September 30, 2015. 
 NOTES TO THE FINANCIAL STATEMENTS 93 

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 and 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. This led Congress to pass the HERA. 

This Act created the 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 entered 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 actions taken by Treasury, as authorized by section 1117 of HERA, thus far are temporary and are intended to 

provide financial stability. The purpose of Treasury’s 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 are designed to enable the GSEs to 

maintain a positive net worth. The SPSPAs were structured to ensure any draws 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 August 2012 amendments to the SPSPAs, the quarterly dividend payment changed from a 10.0 percent 

per annum fixed rate dividend to an amount equivalent to the GSE’s positive net worth above a capital reserve amount. The 

capital reserve amount was initially set at $3.0 billion for calendar year 2013, declined to $2.4 billion on January 1, 2014, and 

$1.8 billion on January 1, 2015, and will continue to decline by $600 million at the beginning of each calendar year until it 

reaches zero by calendar year 2018. The GSEs will not pay a quarterly dividend if their positive net worth is below the 

required capital reserve threshold. 

Cash dividends of $20.4 billion and $72.5 billion were received during fiscal years ended September 30, 2015, and 

2014, respectively. Dividends received in fiscal year 2014 were primarily attributable to a federal income tax benefit that was

recognized in the earnings of one GSE in fiscal year 2014. 

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. The maximum amount available to each 

GSE under this agreement was previously based on a formulaic cap which ended December 31, 2012, at which time, the 

maximum amount became fixed. Draws against the funding commitment of the SPSPAs do not result in the issuance of 

additional shares of senior preferred stock; instead the liquidation preference of the initial 1,000,000 shares is increased by

the amount of the draw. There were no payments to the GSEs for the fiscal years ended September 30, 2015 and 2014. 

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 fair valuations. Because of the nature of the senior preferred stock and warrants,

which are not publicly traded and for which 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 increased at September 30, 2015 when compared to 2014 primarily reflecting higher forecasted 
94 NOTES TO THE FINANCIAL STATEMENTS 

GSE earnings derived from guarantee fees, lower volatility and risk in the mortgage lending industry, and lower forecasted 

mortgage loan losses due to reduced credit risk assumed by the GSEs. 

The fair value of the warrants is impacted by 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 2015 when compared to 2014 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 2040 and 2039 in assessing if a contingent 

liability was required as of September 30, 2015 and 2014, respectively. If future payments under the SPSPAs are deemed to 

be probable within the forecast time 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 assessment, Treasury estimated no probable future funding draws as of September 30, 2015 and 

2014, and thereby accrued no contingent liability. As of September 30, 2015 and 2014, the maximum remaining contractual 

commitment to the GSEs for the remaining life of the SPSPAs was $258.1 billion. Refer to Note 20-Commitments for a full 

description of other commitments and risks. 

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, and 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 (TPTCCA) was funded by an increase of 10-basis points in 

the GSEs’ guarantee fees which began in April 2012, and is effective through October 1, 2021. The increased fees are to be 

remitted to Treasury and not retained by the GSEs. 

Accordingly, the increased fees do not affect the profitability of the GSEs. For fiscal years 2015 and 2014, the GSEs 

remitted to the Treasury the increased fees totaling $2.4 billion and $1.9 billion, respectively.
 NOTES TO THE FINANCIAL STATEMENTS 95 

 As of September 30, 2015, and 2014, GSEs investments consisted of the following: 

 

Investments in GSEs as of September 30, 2015 

Cumulative 

Gross Valuation Fair 

(In billions of dollars) Investments Gain/(Loss) Value 

Fannie Mae senior preferred stock ........................................ 117.0 (61.7) 55.3

Freddie Mac senior preferred stock ....................................... 72.1 (35.5) 36.6

Fannie Mae warrants common stock .................................... 3.1 6.2 9.3

Freddie Mac warrants common stock ................................... 2.3 2.8 5.1

 Total investments in GSEs ................................................. 194.5 (88.2) 106.3

Investments in GSEs as of September 30, 2014 

Cumulative 

Gross Valuation Fair 

(In billions of dollars) Investments Gain/(Loss) Value 

Fannie Mae senior preferred stock ........................................ 117.0 (64.3) 52.7

Freddie Mac senior preferred stock ....................................... 72.1 (40.7) 31.4

Fannie Mae warrants common stock .................................... 3.1 4.6 7.7

Freddie Mac warrants common stock ................................... 2.3 1.7 4.0

 Total investments in GSEs .................................................. 194.5 (98.7) 95.8
96 NOTES TO THE FINANCIAL STATEMENTS 

Note 9. Other Assets

Other Assets as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Advances and prepayments ............................................................................... 108.1 106.6

Regulatory assets ................................................................................................. 22.4 21.1

FDIC receivable from resolution activity ........................................................... 13.9 15.2

Other ...................................................................................................................... 21.3 19.9

 Total other assets .............................................................................................. 165.7 162.8

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. 

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. 

With regard to regulatory assets, the DOE’s Power Marketing Authorities (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).
 NOTES TO THE FINANCIAL STATEMENTS 97 

Note 10. Accounts Payable

Accounts Payable as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Department of Defense ................................................................................................................. 18.9 17.9

Department of Veterans Affairs ................................................................................................... 10.9 11.7

Department of Justice ................................................................................................................... 6.3 5.9

Department of the Treasury ......................................................................................................... 3.9 6.4

Department of Education .............................................................................................................. 3.7 4.0

Department of Energy ................................................................................................................... 3.7 1.5

Department of State ...................................................................................................................... 2.5 2.7

Department of Homeland Security .............................................................................................. 2.1 2.3

General Services Administration ................................................................................................. 2.0 2.1

Department of Agriculture ............................................................................................................. 1.8 2.3

U.S. Postal Service ........................................................................................................................ 1.8 1.9

U.S. Agency for International Development ............................................................................... 1.8 1.7

Tennessee Valley Authority.......................................................................................................... 1.5 1.4

National Aeronautics and Space Administration ....................................................................... 1.4 1.5

Department of the Interior ............................................................................................................. 1.0 0.9

All other ........................................................................................................................................... 5.0 4.8

 Total accounts payable .............................................................................................................. 68.3 69.0

 Accounts payable includes amounts due for goods and property ordered and received, services rendered by

other than federal employees, accounts payable for cancelled appropriations, and non-debt related interest payable.
98 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) 2014 2015 2015 2015 2014 

Treasury securities (public): 

Marketable securities: 

Treasury bills .................................. 1,409.6 (54.4) 1,355.2 0.1% 0.1%

Treasury notes .............................. 8,160.2 205.8 8,366.0 1.8% 1.8%

Treasury bonds ............................. 1,534.1 154.1 1,688.2 4.7% 4.9%

Treasury inflation-protected 

securities (TIPS) ............................ 1,044.7 90.7 1,135.4 0.8% 0.9%

Treasury floating rate notes 

(FRN) ............................................... 123.0 164.1 287.1 0.1% 0.1%

Total marketable Treasury 

securities ........................................... 12,271.6 560.3 12,831.9 

Nonmarketable securities ................ 513.4 (221.4) 292.0 2.5% 2.3%

 

Net unamortized 

premiums/(discounts) .................... (29.4) (2.0) (31.4)

Total Treasury securities, net 

(public) ................................................. 12,755.6 336.9 13,092.5 

Agency securities: 

Tennessee Valley Authority ............ 23.6 0.1 23.7 

All other agencies ............................. 0.2 - 0.2 

Total agency securities, net of 

unamortized premiums and 

discounts ............................................. 23.8 0.1 23.9 

Accrued interest payable ................ 54.2 1.9 56.1 

Total federal debt securities held 

by the public and accrued 

interest ............................................... 12,833.6 338.9 13,172.5 

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 99 

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 (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 debt limit increases. 

During fiscal years 2015 and 2014, Treasury faced multiple 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 measures taken by Treasury have resulted in federal debt securities not being 

issued to certain federal accounts. One such recent period occurred from May 20, 2013 through October 16, 2013. On 

October 17, 2013, the Continuing Appropriations Act, 2014 (Public Law No. 113-46) was enacted which temporarily 

suspended the statutory debt limit through February 7, 2014. On February 8, 2014, the debt limit was raised to $17,211.6 

billion. A second occurred from February 10, 2014, through February 14, 2014. On February 15, 2014 Congress enacted the 

Temporary Debt Limit Extension Act (Public Law No. 113-83) which temporarily suspended the debt limit through March 

15, 2015. On March 16, 2015, in accordance with Public Law No. 113-83, the statutory debt limit was raised to $18,113.0 

billion. A third delay in raising the statutory debt limit occurred from March 16, 2015 through November 1, 2015. On 

November 2, 2015 Congress enacted the Bipartisan Budget Act of 2015 (Public Law No. 114-74) which temporarily 

suspended the debt limit through March 15, 2017. 

As of September 30, 2015, and 2014, debt subject to the statutory debt limit was $18,113.0 billion and $17,781.1 

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). As 

noted above, a delay in raising the statutory debt limit existed as of September 30, 2015. Extraordinary measures taken by 

Treasury during the period of March 16, 2015 through September 30, 2015 resulted in federal debt securities not being issued 

to certain federal government accounts. See Note 16—Other Liabilities, Note 22—Fiduciary Activities and Note 26—

Subsequent Events for additional information. 
100 NOTES TO THE FINANCIAL STATEMENTS 

Intragovernmental Debt Holdings: Federal Debt Securities 

Held as Investments by Government Accounts as of September 30, 2015, and 2014 

Net 

Change 

During 

Balance Fiscal Year Balance 

(In billions of dollars) 2014 2015 2015 

Social Security Administration, Federal Old-Age 

and Survivors Insurance Trust Fund ........................... 2,712.8 53.8 2,766.6

Office of Personnel Management, Civil Service 

Retirement and Disability Fund .................................... 857.2 (125.9) 731.3

Department of Defense, Military Retirement Fund .... 483.1 47.9 531.0

Department of Defense, Medicare-Eligible Retiree 

Health Care Fund ........................................................... 200.4 5.4 205.8

Department of Health and Human Services, 

Federal Hospital Insurance Fund ................................. 202.2 (6.7) 195.5

Department of Health and Human Services, 

Federal Supplementary Medical Insurance Trust 

Fund ................................................................................. 68.4 (2.3) 66.1

Federal Deposit Insurance Corporation, The 

Deposit Insurance Fund ................................................ 48.8 11.3 60.1

Department of Energy, Nuclear Waste Disposal 

Fund ................................................................................. 51.5 0.3 51.8

Office of Personnel Management, Postal Service 

Retiree Health Benefits Fund ....................................... 48.5 (3.3) 45.2

Department of Labor, Unemployment Trust Fund ..... 35.9 8.5 44.4

Office of Personnel Management, Employees Life 

Insurance Fund ............................................................... 43.2 0.8 44.0

Social Security Administration, Federal Disability 

Insurance Trust Fund ..................................................... 70.1 (28.5) 41.6

 Office of Personnel Management, Employees 

Health Benefits Fund ..................................................... 23.6 (0.6) 23.0

 Department of the Treasury, Exchange 

Stabilization Fund ........................................................... 22.6 (1.8) 20.8

Pension Benefit Guaranty Corporation Fund ............. 17.4 1.1 18.5

Department of State, Foreign Service Retirement 

and Disability Fund ......................................................... 17.8 0.3 18.1

Department of Housing and Urban Development, 

FHA, Mutual Mortgage Insurance Capital Reserve 

Account ............................................................................ 6.4 8.3 14.7

Department of Housing and Urban Development, 

Guarantees of Mortgage-Backed Securities Capital 

Reserve Account ............................................................ - 12.8 12.8

Department of Transportation, Airport and Airway 

Trust Fund ....................................................................... 12.8 (0.1) 12.7

 National Credit Union Share Insurance Fund ............ 11.0 0.6 11.6

 All other programs and funds ....................................... 105.4 5.8 111.2

 Subtotal ......................................................................... 5,039.1 (12.3) 5,026.8

Total net unamortized premiums/(discounts) for 

intragovernmental ........................................................... 67.8 7.5 75.3

 Total intragovernmental debt holdings, net .......... 5,106.9 (4.8) 5,102.1
 NOTES TO THE FINANCIAL STATEMENTS 101 

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. As noted above, the delay in raising the debt limit still existed 

as of September 30, 2015. As such, suspension of certain investments of the Civil Service Retirement and Disability Fund 

contributed to the decrease in the intragovernmental debt holdings balance for the fund. 

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 21─Funds from Dedicated Collections. 

These intragovernmental debt holdings are eliminated in the consolidation of these financial statements. 
102 NOTES TO THE FINANCIAL STATEMENTS 

Note 12. Federal Employee and Veteran Benefits Payable

Federal Employee and Veteran Benefits Payable as of September 30, 2015, and 2014 

Civilian Military Total

(In billions of dollars) 2015 2014 2015 2014 2015 2014

Pension and accrued benefits ...................... 1,945.0 1,905.2 1,563.2 1,565.1 3,508.2 3,470.3

Veterans compensation and burial 

benefits ............................................................ N/A N/A 2,018.6 2,007.1 2,018.6 2,007.1

Post-retirement health and accrued 

benefits ........................................................... 364.0 336.8 731.2 760.5 1,095.2 1,097.3

Life insurance and accrued benefits ............ 49.6 48.3 8.4 9.1 58.0 57.4

FECA benefits ................................................. 28.1 28.3 8.3 8.8 36.4 37.1

Liability for other benefits .............................. 0.9 0.9 2.0 2.5 2.9 3.4

 

Total federal employee and veteran 

benefits payable .......................................... 2,387.6 2,319.5 4,331.7 4,353.1 6,719.3 6,672.6

Change in Pension and Accrued Benefits

Civilian Military Total 

(In billions of dollars) 2015 2014 2015 2014 2015 2014

Actuarial accrued pension liability, 

beginning of fiscal year .................................. 1,905.2 1,867.9 1,565.1 1,524.2 3,470.3 3,392.1

Pension expense: 

Normal costs ................................................ 37.9 38.4 31.3 32.6 69.2 71.0

Interest on liability ........................................ 75.9 77.2 66.6 64.9 142.5 142.1

Actuarial (gains)/losses (from 

experience) ................................................... (0.8) (12.9) (33.8) (22.6) (34.6) (35.5)

Actuarial (gains)/losses (from 

assumption changes) .................................. 12.0 17.6 (9.4) 21.6 2.6 39.2

Other ............................................................. 0.3 - - - 0.3 -

 Total pension expense ............................... 125.3 120.3 54.7 96.5 180.0 216.8

Less benefits paid .......................................... (85.5) (83.0) (56.6) (55.6) (142.1) (138.6)

Actuarial accrued pension liability, end of 

fiscal year ........................................................ 1,945.0 1,905.2 1,563.2 1,565.1 3,508.2 3,470.3
 NOTES TO THE FINANCIAL STATEMENTS 103 

Change in Post-Retirement Health and Accrued Benefits

Civilian Military Total 

(In billions of dollars) 2015 2014 2015 2014 2015 2014

Actuarial accrued post-retirement health 

benefits liability, beginning of fiscal year ..... 336.8 326.7 760.5 747.6 1,097.3 1,074.3

Post-Retirement health benefits 

expense: 

Prior (and past) service costs from plan 

amendments or new plans ......................... - - (21.2) - (21.2) -

Normal costs ................................................ 11.5 11.7 19.6 21.8 31.1 33.5

Interest on liability ........................................ 14.3 14.2 33.0 33.3 47.3 47.5

Actuarial (gains)/losses (from 

experience) ................................................... 7.6 (3.1) (22.5) (8.0) (14.9) (11.1)

Actuarial (gains)/losses (from 

assumption changes) .................................. 8.8 1.3 (18.1) (14.7) (9.3) (13.4)

 

Total post-retirement health benefits 

expense ........................................................ 42.2 24.1 (9.2) 32.4 33.0 56.5

Less claims paid ............................................. (15.0) (14.0) (20.1) (19.5) (35.1) (33.5)

Actuarial accrued post-retirement health 

benefits liability, end of fiscal year ............... 364.0 336.8 731.2 760.5 1,095.2 1,097.3

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 administers 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 (Department of State), TVA, 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) 2015 2014

Actuarial accrued life insurance benefits liability, beginning of fiscal year ..... 48.3 47.6

Life insurance benefits expense: 

New entrant expense ........................................................................................... 0.3 0.2

Interest on liability ................................................................................................ 2.0 2.0

Actuarial (gains)/losses (from experience) ....................................................... (0.9) (0.7)

Actuarial (gains)/losses (from assumption changes) ...................................... 0.4 (0.2)

 Total life insurance benefits expense ............................................................. 1.8 1.3

Less costs paid ........................................................................................................ (0.5) (0.6)

Actuarial accrued life insurance benefits liability, end of fiscal year................ 49.6 48.3
104 NOTES TO THE FINANCIAL STATEMENTS 

Significant Long-Term Economic Assumptions Used in Determining Pension 

Liability and the Related Expense 

Civilian Military 

2015 2014 2015 2014

FERS CSRS FERS CSRS

Rate of interest .................................... 4.10% 3.70% 4.30% 3.90% 4.10% 4.30%

Rate of inflation .................................... 2.30% 2.30% 2.50% 2.50% 2.10% 2.40%

Projected salary increases ................. 1.70% 1.70% 1.90% 1.90% 2.30% 2.50%

Cost of living adjustment ................... 1.80% 2.30% 1.90% 2.50% - -

Significant Long-Term Economic Assumptions Used in Determining 

Post-Retirement Health Benefits and the Related Expense 

Civilian Military 

2015 2014 2015 2014

Rate of interest ..................................................... 4.10% 4.30% 4.10% 4.30%

Single equivalent medical trend rate ................. 5.30% 5.30% 4.56% 4.92%

Ultimate medical trend rate ................................. 3.90% 4.20% 4.85% 5.15%

Significant Long-Term Economic Assumptions Used in Determining Life Insurance 

Benefits and the Related Expense 

Civilian 

2015 2014

Rate of interest ..................................................... 4.00% 4.20%

Rate of increase in salary .................................... 1.70% 1.90%

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, ORB, and 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. 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. The SFFAS No. 33 standard for selecting 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. 

In fiscal year 2014, Treasury developed a new model and methodology for developing these rates to provide a 

sustainable, justifiable data resource for the affected agencies. 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 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. 
 NOTES TO THE FINANCIAL STATEMENTS 105 

The new method is based on methodology used to produce the High Quality Market (HQM) Yield Curve pursuant to 

the Pension Protection Act of 2006.1 Generally, for FY 2014, the data from the new yield curve was implemented in full in 

one single year (i.e., replace the historical rate series used under the legacy method with those produced under the new TNC 

method). 

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 Fund. The TSP Fund 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 $0.0 billion and $183.7 billion in nonmarketable Treasury securities as of September 30, 2015, and 2014, 

respectively. The decrease in nonmarketable Treasury securities held in the G Fund relates to the delay in raising the debt 

limit. The Secretary of the Treasury has authority to take extraordinary measures to stay within the statutory debt limit 

imposed by Congress. One such measure involves the suspension of the issuance of securities to the G Fund if the issuance 

cannot be made without causing the debt limit to be exceeded. Please see Note 16 — Other Liabilities for additional 

information. 

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 assumptions to historical cost information to estimate the liability. The Postal Accountability and 

Enhancement Act of 2006 (Postal Act of 2006) (Public Law 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 third Health Benefits Program (HBP) fund, the Postal Service Retiree Health Benefits (PSRHB) Fund. Public Law No. 109-

435 requires the USPS to make scheduled payment contributions to the PSRHB Fund ranging from $5.4 billion to $5.8 billion 

per year from fiscal year 2007 through fiscal year 2016. (The fiscal year 2009 payment was subsequently reduced to $1.4 

billion.) Thereafter, the USPS will make annual payments in the amount of the normal cost payment plus or minus an amount to 

amortize the unfunded liability or surplus. The Postal Service currently owes the PSRHB Fund: $11.1 billion for FY 2012 and 

$5.6 billion that was due for FY 2013. In addition, there was a $5.7 billion payment due for both FY 2014 and for FY 2015. As 

of September 30, 2015, the Postal Service has not indicated its intention regarding payment of the total $28.1 billion due. At this 

time, Congress has not taken further action on these payments due to the PSRHB from USPS. The cost for these annual 

payments, including any defaulted payments, along with all its other benefit program costs, are included in USPS’ net cost in the 

consolidated Statements of Net Cost. 

Life Insurance Benefits 

One of the largest other 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 

 

1

 Treasury’s HQM resource is available at: http://www.treasury.gov/resource-center/economic-policy/corp-bond-yield/Pages/Corp-Yield-Bond-CurvePapers.aspx. 
106 NOTES TO THE FINANCIAL STATEMENTS 

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. 

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 current year constant 

dollars by applying wage inflation factors (cost-of-living adjustments or COLA) and medical inflation factors (consumer 

price index-medical or CPIM) to the calculation of projected benefits. 

In FY 2015, DOL refined the approach for selecting 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. The five-year averaging period used in FY 

2015 reflects average historical rates without giving undue weight to recent past experience. In FY 2014, DOL selected the 

COLA and CPIM factors based on a one-year average. 

The COLAs and CPIMs used in the projections for FY 2015 are listed below in the table. For the COLAs and CPIMs 

used in the projections for FY 2014, refer to the Fiscal Year 2014 Financial Report of the U.S. Government. 

Fiscal Year COLA CPIM 

2016 1.64% 2.94% 

2017 1.47% 2.98% 

2018 1.33% 3.09% 

2019 1.43% 3.39% 

 2020+ 1.65% 3.69% 

DOL selected the interest rate assumptions whereby projected annual payments were discounted to present value based 

on the TNC Yield Curve to reflect the average duration of income payments and medical payments. For FY 2015, based on 

averaging the TNC Yield Curves for the current and prior four years, the average durations and interest rate assumptions 

were 14.9 years and 3.13% for income payments and 9.8 years and 2.50% for medical payments. For FY 2014, based on the 

TNC Yield Curve for one year, the average durations and interest rate assumptions were 15.1 years and 3.46% for income 

payments and 9.9 years and 2.86% for medical payments. 

Military Employees (Including Veterans) 

Pensions 

The DOD Military Retirement Fund was established by Public Law (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. The $1.9 billion decrease in the Military Retirement Pension liability is attributable to experience gains and 

assumption changes that offset the liability growth generated by benefit accruals (normal cost) and interest on the outstanding

liability. Liabilities in the future will depend on expected changes due to interest and benefit accruals, future benefit changes, 

assumption changes, and actuarial experience. 

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 Public Law 108-136; and investment income. 

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 
 NOTES TO THE FINANCIAL STATEMENTS 107 

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 Bipartisan Budget Act of 2013 (Ryan/Murray) with subsequent amendments 

(BBA 2013). 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. For more information on these benefits, see DOD’s website 

http://www.dfas.mil/retiredmilitary/plan/estimate.html.

Post-Retirement Health Benefits 

Military retirees and their dependents are entitled to health care in military medical facilities if a facility can provide the

needed care. The Military Retiree Health Benefits are post-retirement benefits DOD provides to non-Medicare-eligible 

military retirees and other eligible beneficiaries through private sector health care providers and DOD’s medical treatment 

facilities. Prior to becoming Medicare eligible, military retirees and other eligible beneficiaries are entitled to participate in 

TRICARE (now managed by the Defense Health Agency)2

, which reimburses (net of beneficiary copay and deductible 

requirements) for the cost of health care from civilian providers. TRICARE options are available in indemnity, preferred 

provider organization, and health maintenance organization (HMO) designs. 

Since fiscal year 2002, TRICARE, as second payer to Medicare, covers military retirees and other eligible beneficiaries 

after they become Medicare eligible. This TRICARE coverage for Medicare eligible beneficiaries requires that the 

beneficiary enroll in Medicare Part B (unless the beneficiary that is Medicare eligible is the spouse of an Active Duty Service

Member) and is referred to as TRICARE for Life (TFL). Health care under TFL can be obtained from military medical 

facilities on an “as available” basis or from civilian providers. Military retiree health care actuarial liabilities are calculated 

annually using assumptions and actual experience. Trend assumptions include inpatient and outpatient care and prescriptions 

for both direct care and purchased services. Military retiree health care liability figures include costs incurred in military 

medical facilities, as well as claims paid to civilian providers and certain administrative costs. Costs paid to civilian providers 

are net of Medicare’s portion of the cost. 

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 the health benefits of Medicare-eligible military 

retirees, 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 to 

calculate the per capita normal cost rates and the U.S. Treasury contribution, and the Secretary of Defense directs the 

Secretary of Treasury to make the payments. The MERHCF pays costs incurred in military medical facilities as well as 

claims for care provided by civilian providers under TFL administration costs associated with processing the TFL claims and 

capitated payments for coverage provided by U.S. Family Health Plans. The actuaries calculate the actuarial liabilities 

annually using assumptions and actual experience (e.g., mortality and retirement rates, direct care costs, purchased care). 

Military post-retirement health and accrued benefits payable decreased $29.3 billion. The $29.3 billion decrease in 

military post-retirement health and accrued benefits was due primarily to the combined effect of plan changes -- including 

those associated with the 2015 National Defense Authorization Act, lower than expected historical costs, and a reduction in 

future assumed rates of healthcare cost increases. 

In addition to the health care benefits 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 2011 through 2015, the average medical care cost per year 

was $44.0 billion. 

Veterans Compensation and Burial Benefits 

 

2 On October 1, 2013, the Department of Defense established the Defense Health Agency (DHA) to manage the activities of the Military Health System. 

These activities include those previously managed by TRICARE Management Activity (TMA), which was disestablished on the same date. 2013, the 

Department of Defense established the Defense Health Agency (DHA) to manage the activities of the Military Health System. These activities include those 

previously managed by TRICARE Management Activity (TMA), which was disestablished on the same date. 
108 NOTES TO THE FINANCIAL STATEMENTS 

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 

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 $11.5 billion in fiscal year 2015. The $11.5 billion increase in the 

Federal Employee and Veterans Benefits Liabilities is primarily attributable to interest on the outstanding liability, offset by 

benefits paid and the net effect of assumption changes. A smaller change in the estimate of backlogged claims contributed to 

the lower level of actuarial losses in FY 2015, relative to FY 2014. 

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 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, changes in experience, changes in actuarial assumptions, prior service costs, and amounts paid for costs

included in the liability balance.
 NOTES TO THE FINANCIAL STATEMENTS 109 

 Change in Veterans Compensation and Burial Benefits 

Compensation Burial Total 

(In billions of dollars) 2015 2014 2015 2014 2015 2014

Actuarial accrued liability beginning of 

fiscal year ....................................................... 2,002.6 1,970.2 4.5 4.6 2,007.1 1,974.8

Current year expenses: 

 Interest on the liability balance .................. 85.9 82.7 0.2 0.2 86.1 82.9

Prior (and past) service costs from 

program amendments or new programs 

during the period .......................................... - - - - - -

Actuarial (gain)/losses (from experience) 

 ....................................................................... 9.5 36.8 0.1 - 9.6 36.8

Actuarial (gain)/losses (from assumption 

changes) ....................................................... (13.0) (22.0) - (0.1) (13.0) (22.1)

 Total current year expense ..................... 82.4 97.5 0.3 0.1 82.7 97.6

Less benefits paid ......................................... (71.0) (65.1) (0.2) (0.2) (71.2) (65.3)

Actuarial accrued liability, end of fiscal 

year ................................................................ 2,014.0 2,002.6 4.6 4.5 2,018.6 2,007.1

Significant Economic Assumptions Used in Determining Veterans Compensation and 

Burial Benefits as of September 30, 2015, and 2014 

2015 2014

Rate of interest ................................................................................ 4.08% 4.29%

Rate of inflation ................................................................................ 2.44% 2.61%

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. 
110 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, 2015, and 2014 

(In billions of dollars) 2015 2014

Insurance death benefits: 

NSLI .......................................................................................................................... 3.8 4.4

VSLI ........................................................................................................................... 1.3 1.4

S-DVI ......................................................................................................................... 0.6 0.6

Other ......................................................................................................................... 0.5 0.3

Total death benefits ............................................................................................. 6.2 6.7

Death benefit annuities .............................................................................................. 0.1 0.1

Disability income & waiver ........................................................................................ 0.8 0.8

Insurance dividends payable .................................................................................... 1.3 1.4

Unearned premiums .................................................................................................. - 0.1

 Total veterans life insurance liability..................................................................... 8.4 9.1

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. 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. VA has entered into a 

group policy with the Prudential Insurance Company of America to administer these programs. 

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, 2015, and 2014, was $94.1 billion and $102.8 billion, 

respectively. 

 
 NOTES TO THE FINANCIAL STATEMENTS 111 

Note 13. Environmental and Disposal Liabilities 

Environmental and Disposal Liabilities as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Department of Energy: 

Environmental and disposal liabilities ........................................................................... 339.8 299.8

Department of Defense: 

Environmental restoration ............................................................................................... 27.2 27.0

Disposal of weapon systems program .......................................................................... 22.2 21.2

Environmental corrective other ...................................................................................... 6.7 6.2

Base realignment and closure ........................................................................................ 3.9 4.2

Total Department of Defense ......................................................................................... 60.0 58.6

All other agencies ................................................................................................................ 11.8 10.7

 Total environmental and disposal liabilities .................................................................. 411.6 369.1

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 increased by $40 billion, which is 

primarily attributable to an increase of $35 billion in life-cycle adjustments in DOE’s estimated cleanup cost liability across

the Department, with the remaining $5 billion pertaining mainly to inflation. Updates to the environmental liability cost 

estimates due to life-cycle adjustments added numerous years to the life-cycle cleanup schedule. 

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 2090 in fiscal 

year 2015 and through 2089 in fiscal year 2014. While some post-cleanup monitoring and other long-term stewardship 

activities post-2090 are included in the liability, there are others the Department expects to continue beyond 2090 for which 

the costs cannot reasonably be estimated. 
112 NOTES TO THE FINANCIAL STATEMENTS 

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 

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 $0.7 billion for both fiscal years 2015 and 2014. 

Please refer to the financial statements of the DOE for significant detailed information regarding DOE’s environmental 

and disposal liabilities, including cleanup costs. 

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 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 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. The Department 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. The 

unrecognized portion of the cleanup cost associated with general property, plant, and equipment is $3.1 billion for both fiscal

years 2015 and 2014. Not all components of DOD are able to compile the necessary information for this disclosure, thus the 

amount reported may not accurately reflect DOD’s total unrecognized costs associated with general property, plant, and 

equipment. DOD is implementing procedures to address these deficiencies. 

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 the DOD for further detailed information regarding DOD’s environmental and 

disposal liabilities, including cleanup costs. 

In addition, in accordance with Technical Bulletin 2006-1, agencies recorded an environmental and disposal liability for 

asbestos-related cleanup costs totaling $4.3 billion and $3.6 billion as of September 30, 2015, and 2014, respectively. 

 
 NOTES TO THE FINANCIAL STATEMENTS 113 

Note 14. Benefits Due and Payable 

Benefits Due and Payable as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Federal Old-Age and Survivors Insurance ........................................................... 66.1 62.9

Federal Supplementary Medical Insurance (Medicare Parts B and D) ........... 37.9 31.9

Grants to States for Medicaid ................................................................................ 36.8 32.3

Federal Hospital Insurance (Medicare Part A) .................................................... 28.3 25.7

Federal Disability Insurance ................................................................................... 27.1 25.8

Supplemental Security Income .............................................................................. 5.3 5.2

Unemployment Insurance ....................................................................................... 1.1 1.0

All other benefits programs .................................................................................... 11.3 6.8

 Total benefits due and payable ........................................................................... 213.9 191.6

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 and the DOL administers the 

Unemployment Insurance program. For a description of the programs, see Note 23—Social Insurance and the Unaudited 

Required Supplementary Information—Social Insurance section. 
114 NOTES TO THE FINANCIAL STATEMENTS 

Note 15. Insurance and Guarantee Program Liabilities 

Insurance and Guarantee Program Liabilities as of September 30, 2015, and 2014

(In billions of dollars) 2015 2014

Insurance and Guarantee Program Liabilities: 

Pension Benefit Guaranty Corporation - Benefit Pension Plans ...................... 161.1 146.9

Department of Agriculture - Federal Crop Insurance ......................................... 8.3 7.3

Federal Deposit Insurance Corporation Funds ................................................... 7.3 13.2

All other insurance and guarantee programs ...................................................... 0.8 0.8

 Total insurance and guarantee program liabilities ........................................... 177.5 168.2

PBGC insures pension benefits for participants in covered defined benefit pension plans. As a wholly-owned 

corporation of the government, PBGC’s financial activity and balances are included in the consolidated financial statements 

of the government. However, under current law, PBGC’s liabilities may be paid only from PBGC’s assets and not from the 

General Fund or assets of the government in general. As of September 30, 2015, and 2014, PBGC had total liabilities of 

$164.0 billion and $151.6 billion, and its total liabilities exceeded its total assets by $76.3 billion and $61.8 billion, 

respectively. In addition, as discussed in Note 19—Contingencies, PBGC reported reasonably possible contingent losses of 

about $237.7 billion and $184.4 billion as of September 30, 2015, and 2014, respectively. 

As of September 30, 2015, and 2014, $8.3 billion and $7.3 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. 

Of the total FDIC amount as of September 30, 2015, and 2014, $0.5 billion and $1.9 billion, respectively, represents the 

recorded contingent liability and loss provision for institutions insured by the Deposit Insurance Fund that are likely to fail. In 

addition, $6.7 billion and $11.3 billion pertain to liabilities due to resolutions of failed or failing institutions and to pending 

depositor claims as of September 30, 2015, and 2014, respectively. 

 
 NOTES TO THE FINANCIAL STATEMENTS 115 

16. Other Liabilities 

Other Liabilities as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Unearned revenue and assets held for others: 

Unearned fees for nuclear waste disposal (DOE) and other unearned 

revenue ....................................................................................................................... 67.2 50.6

Assets held on behalf of others ................................................................................ 99.4 81.9

Subtotal .................................................................................................................... 166.6 132.5

Employee-related liabilities: 

Accrued federal employees' wages and benefits .................................................. 38.1 38.3

Selected DOE contractors' and D.C. employees' pension benefits .................... 50.0 48.6

Subtotal .................................................................................................................... 88.1 86.9

International monetary liabilities and gold certificates: 

Exchange Stabilization Fund .................................................................................... 54.8 57.6

Gold certificates (see Note 2) ................................................................................... 11.0 11.0

Subtotal .................................................................................................................... 65.8 68.6

Subsidies and grants: 

Farm and other subsidies .......................................................................................... 5.5 9.8

Grant payments due to state and local governments and others ....................... 17.8 16.9

Subtotal .................................................................................................................... 23.3 26.7

Miscellaneous liabilities: 

Legal and other contingencies ................................................................................. 47.1 46.1

Non-federal power projects and capital lease liabilities, and disposal 

liabilities ...................................................................................................................... 11.1 13.1

Liability for restoration of federal debt principal and interest .............................. 204.6 -

Other miscellaneous .................................................................................................. 45.7 35.2

Subtotal .................................................................................................................... 308.5 94.4

 Total ........................................................................................................................ 652.3 409.1

 

Other liabilities represent liabilities that are not separately identified on the Balance Sheet and are presented on a 

comparative basis by major category. 
116 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 is about $37.4 billion and $36.0 billion as of 

September 30, 2015, and 2014, respectively. Other unearned revenue includes USPS income for such things as prepaid 

postage, outstanding money orders, and prepaid P.O. Box rentals. Assets held on behalf of others include funds collected in 

advance, and undelivered Defense articles. DSCA holds $78.1 billion and $68.0 billion as of September 30, 2015, and 2014, 

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 $26.3 billion and $23.4 billion as of September 30, 2015 and 2014, respectively. Also, the 

government owed about $8.8 billion and $9.2 billion as of September 30, 2015, and 2014, 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 payments to states account for the majority of the subsidies due, about $4.6 billion 

and $5.0 billion as of September 30, 2015 and 2014, 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, 2015, and 2014, DOT, Education, and 

HHS collectively owed their grantees about $12.6 billion and $12.3 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

19—Contingencies), (2) Bonneville Power Administration liability to pay annual budgets of several power projects for its 

electrical generating capacity, (3) payables due to the purchases of securities, and (4) other liabilities reported by Treasury as 

a result of the occurrence of a delay in raising the statutory debt limit as of September 30, 2015. When delays in raising the

statutory debt limit occur, Treasury often must deviate from its normal debt management operations and take a number of 

extraordinary measures to meet the Government’s obligations as they come due without exceeding the debt limit. Many 

extraordinary measures taken by Treasury during the period of March 16, 2015, through September 30, 2015, resulted in 

federal debt securities not being issued to certain federal government accounts. As a result of Treasury securities not being 

issued to the Government Securities Investment Fund (G Fund) of the Thrift Savings Plan (TSP), Treasury reported 

miscellaneous liabilities, as of September 30, 2015, in the amount of $204.6 billion that represent uninvested principal of and

related interest for the TSP’s G Fund that would have been reported in Note 11 – Federal Debt Securities Held by the Public 
 NOTES TO THE FINANCIAL STATEMENTS 117 

and Accrued Interest had there not been a delay in raising the statutory debt limit as of September 30, 2015, and had the 

securities been issued. For further information related to the impact on TSP, see Note 22 – Fiduciary Activities and Note 26 

– Subsequent Events. 

 In addition, many federal agencies reported relatively small amounts of miscellaneous liabilities that are not otherwise 

classified. 
118 NOTES TO THE FINANCIAL STATEMENTS 

Note 17. Collections and Refunds of Federal Revenue 

Collections of Federal Tax Revenue for the Year Ended September 30, 2015 

Federal Tax Year to Which Collections Relate 

Tax 

 Revenue Prior 

(In billions of dollars) Collections 2015 2014 2013 Years 

Individual income tax and tax 

withholdings ...................................... 2,799.1 1,790.8 954.6 28.3 25.4

Corporation income taxes ................. 389.9 260.2 114.9 3.9 10.9

Excise taxes ........................................ 102.8 79.9 22.8 0.1 -

Unemployment taxes ......................... 49.3 33.4 15.7 - 0.2

Customs duties ................................... 36.4 36.4 - - -

Estate and gift taxes .......................... 20.0 - 6.8 0.6 12.6

Railroad retirement taxes .................. 6.4 5.0 1.4 - -

Fines, penalties, interest, and other 

revenue ................................................ 7.4 7.3 0.1 - -

 Subtotal 3,411.3 2,213.0 1,116.3 32.9 49.1

Less: amounts collected for nonfederal entities .................................... (0.4)

 Total.................................................... 3,410.9

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.
 NOTES TO THE FINANCIAL STATEMENTS 119 

Federal Tax Refunds Disbursed for the Year Ended September 30, 2015 

Tax Year to Which Refunds Relate 

Refunds Prior 

(In billions of dollars) Disbursed 2015 2014 2013 Years 

Individual income tax and tax 

withholdings ................................................. 351.4 30.7 290.0 23.6 7.1

Corporation income taxes ........................... 50.1 6.2 20.8 5.5 17.6

Excise taxes .................................................. 1.1 0.4 0.6 0.1 -

Unemployment taxes ................................... 0.2 - 0.1 - 0.1

Customs duties ............................................. 2.8 1.5 0.8 0.2 0.3

Estate and gift taxes .................................... 0.9 - 0.2 0.3 0.4

Total ............................................................ 406.5 38.8 312.5 29.7 25.5

Reconciliation of Revenue to Tax Collections for the Year

Ended September 30, 2015, and 2014

(In billions of dollars) 2015 2014

Consolidated revenue per the Statement of Operations and Changes in Net 

Position ................................................................................................................................ 3,334.0 3,066.1

Tax refunds .......................................................................................................................... 406.5 375.2

Earned income tax and child tax credit imputed revenue ............................................. (80.7) (81.6)

Other tax credits and accrual adjustments ...................................................................... (36.9) (21.9)

Federal Insurance Contributions Act - Tax ...................................................................... 20.1 19.8

Federal Reserve earnings .................................................................................................. (96.5) (99.2)

Nontax-related fines and penalties reported by agencies ............................................. (93.0) (65.1)

Nontax-related earned revenue ........................................................................................ (42.6) (19.0)

Collections of federal tax revenue .................................................................................... 3,410.9 3,174.3

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.
120 NOTES TO THE FINANCIAL STATEMENTS 

Collections of Federal Revenue for the Year Ended September 30, 2014 

Federal Tax Year to Which Collections Relate 

Tax 

 Revenue Prior 

(In billions of dollars) Collections 2014 2013 2012 Years 

Individual income tax and tax 

withholdings ........................................... 2,605.0 1,691.1 864.3 24.3 25.3

Corporation income taxes ....................... 353.1 252.9 87.9 1.2 11.1

Excise taxes .............................................. 96.7 74.4 22.1 0.1 0.1

Unemployment taxes ............................... 52.7 27.1 15.3 10.2 0.1

Customs duties ......................................... 34.2 34.2 - - -

Estate and gift taxes ................................ 20.2 - 7.0 0.9 12.3

Railroad retirement taxes ........................ 6.0 4.6 1.4 - -

Fines, penalties, interest and other 

revenue ..................................................... 6.7 6.5 0.1 0.1 -

 Subtotal ................................................... 3,174.6 2,090.8 998.1 36.8 48.9

Less: amounts collected for nonfederal entities........................................... (0.3)

 Total......................................................... 3,174.3

Federal Tax Refunds Disbursed for the Year Ended September 30, 2014 

Tax Year to Which Refunds Relate 

Refunds Prior 

(In billions of dollars) Disbursed 2014 2013 2012 Years 

Individual income tax and tax 

withholdings .............................................. 335.8 13.7 290.8 24.0 7.3

Corporation income taxes .......................... 35.3 4.4 10.9 6.7 13.3

Excise taxes ................................................. 1.8 0.5 0.9 0.2 0.2

Unemployment taxes .................................. 0.1 - 0.1 - -

Customs duties ............................................ 1.3 0.7 0.3 0.1 0.2

Estate and gift taxes ................................... 0.9 - 0.2 0.5 0.2

 Total............................................................ 375.2 19.3 303.2 31.5 21.2
 NOTES TO THE FINANCIAL STATEMENTS 121 

Note 18. Prior-Period Adjustments 

Prior-Period Adjustments for the Year Ended September 30, 2015, and 2014 

Changes to Net Position 

(In billions of dollars) 2015 2014

Environmental Protection Agency ............................................................................ (1.3) -

Department of Justice ................................................................................................ (0.1) (0.1)

Other prior-period adjustments.................................................................................. (0.1) -

 Total prior-period adjustments ................................................................................ (1.5) (0.1)

During fiscal year 2015, several entities reported the prior-period adjustments line item. Environmental Protection 

Agency (EPA) changed its accounting treatment to record special accounts funds settlement proceeds as unearned revenue 

after determining that collections previously recorded as past costs were being used for future site cleanup. The effect is a 

$1.3 billion decrease in EPA’s beginning net position. 

For fiscal years 2015 and 2014, Department of Justice (DOJ) applied a change in accounting principle to certain 

components based on the implementation of their Financial Management Policy Memorandum (FMPM) 13-12, 

Capitalization of General Property, Plant, and Equipment and Internal Use Software. The primary impact of the policy 

change was an increase in the thresholds for capitalizing and reporting real property, including leasehold improvements, 

personal property, and internal use software. The change in accounting principle caused a $0.1 billion reduction in the 

overall PP&E balance for both fiscal years 2015 and 2014. 

As discussed in Note 21 – Funds from Dedicated Collections, the Commodity Future Trading Commission erroneously 

did not report as a fund from dedicated collections for fiscal year 2014. This error was corrected in fiscal year 2015 and 

resulted in a prior-period adjustment amount of $0.3 billion. 
122 NOTES TO THE FINANCIAL STATEMENTS 

Note 19. Contingencies 

Financial Treatment of Loss Contingencies 

Loss contingencies that are assessed to be at least reasonably possible are disclosed in this note. Loss contingencies 

involve situations where there is an uncertainty of a possible loss. 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 as remote 

are not reported in the financial statements, nor disclosed in the notes. All other material loss contingencies are disclosed in 

this note. 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 123 

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 $239.1 billion as of September 30, 2015, and $186.4 billion as of 

September 30, 2014. The major programs are identified below: 

 PBGC reported $237.7 billion and $184.4 billion as of September 30, 2015, and 2014, 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 growth in the number of companies meeting the reasonably possible criteria for the single-employer 

program and the decrease in the interest rate used for valuing liabilities. 

 FDIC reported $1.2 billion and $1.7 billion as of September 30, 2015, and 2014, respectively, for identified 

additional risk in the financial services industry that could result in additional loss to the 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 $6,420.0 billion as of September 30, 2015, and $6,131.9 billion as of 

September 30, 2014, for the DIF.

 National Credit Union Administration (NCUA) has estimated insured shares of $939.9 billion as of September 30, 

2015, and $895.7 billion as of September 30, 2014, for the National Credit Union Share Insurance Fund. 
124 NOTES TO THE FINANCIAL STATEMENTS 

Legal Contingencies 

Legal contingencies as of September 30, 2015, and 2014, are summarized in the table below: 

 

2015 2014 

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 .................................. 6.0 6.0 7.4 7.1 7.1 8.5

Reasonably possible .............. - 8.7 13.7 - 9.9 13.5

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 $6.0 billion and $7.1 billion as of September 30, 2015, and 2014, 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 for such claims and actions range from $8.7 billion to $13.7 billion as of September 30, 2015, and from $9.9 

billion to $13.5 billion as of September 30, 2014. 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. The total alleged damages for these cases 

approximate $273 million. 

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 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. 
 NOTES TO THE FINANCIAL STATEMENTS 125 

Both the Plaintiff and the United States have appealed. 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, 2015, and 2014, are summarized in the table below: 

2015 2014 

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 .................................. 25.9 25.9 26.0 23.1 22.9 23.1

Reasonably possible .............. - 0.7 1.0 - 0.7 0.7

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 $25.9 billion 

and $23.1 billion as of September 30, 2015, and 2014, 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 contracts with more than 45 

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 $23.7 billion and $22.6 

billion as of September 30, 2015, and 2014, respectively. 

Other Contingencies 

DOT and HHS 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 $50.4 billion and $46.0 billion to 

the states to establish budgets for its construction projects for fiscal years ending September 30, 2015, and 2014, 

respectively. Congress has not provided appropriations for these projects and no liability is accrued in the DOT 

consolidated 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 $7.5 

billion and $8.4 billion for fiscal years ending September 30, 2015, and 2014, 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 
126 NOTES TO THE FINANCIAL STATEMENTS 

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. 

Treaties 

The U.S. Government is a party to major treaties and other international agreements. These treaties and other 

international agreements address various issues including, but not limited to, trade, commerce, security, and arms that may 

involve financial obligations or give rise to possible exposure to losses. A comprehensive analysis to determine any such 

financial obligations or possible exposure to loss and their related effect on the consolidated financial statements of the U.S. 

Government has not yet been performed. 
 NOTES TO THE FINANCIAL STATEMENTS 127 

Note 20. Commitments 

Long-Term Operating Leases as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

General Services Administration .............................................................................. 23.9 24.4

U.S. Postal Service .................................................................................................... 7.1 6.8

Department of State ................................................................................................... 1.5 1.4

Department of Defense ............................................................................................. 1.1 0.7

Department of Health and Human Services ........................................................... 1.1 0.9

Department of the Treasury ...................................................................................... 0.6 0.6

Department of Transportation .................................................................................. 0.5 0.6

Department of Agriculture ......................................................................................... 0.5 0.8

Other operating leases .............................................................................................. 3.1 2.2

Total long-term operating leases ......................................................................... 39.4 38.4

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 middle-income developing countries. Callable capital in 

the MDBs serve 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 are anticipated.
128 NOTES TO THE FINANCIAL STATEMENTS 

 

Undelivered Orders and Other Commitments as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Undelivered Orders: 

Department of Defense ............................................................................................. 236.2 136.2

Department of the Treasury ...................................................................................... 169.6 164.4

Defense Security Cooperation Agency ................................................................... 136.4 160.9

Department of Education .......................................................................................... 124.9 130.2

Department of Transportation................................................................................... 108.7 107.8

Department of Health and Human Services ........................................................... 98.9 110.6

Department of Agriculture ......................................................................................... 40.3 43.6

Department of Housing and Urban Development ................................................. 38.1 40.7

Department of Homeland Security ........................................................................... 33.2 30.4

Department of Energy................................................................................................ 22.5 25.5

Department of State ................................................................................................... 21.0 19.5

U.S. Agency for International Development ........................................................... 18.2 18.6

Department of Veterans Affairs ................................................................................ 11.9 13.9

Federal Communications Commission ................................................................... 11.9 4.5

National Science Foundation .................................................................................... 11.5 11.1

Department of Labor .................................................................................................. 9.2 9.8

All other agencies ....................................................................................................... 32.3 35.7

Total undelivered orders ......................................................................................... 1,124.8 1,063.4

Other Commitments: 

GSE Senior Preferred Stock Purchase Agreement .............................................. 258.1 258.1

Callable Capital Subscriptions for Multilateral Development Banks ................... 112.3 102.3

Conservation Reserve Program ............................................................................... 12.0 1.7

Agriculture Direct Loans and Guarantees .............................................................. 5.0 5.8

Fuel Purchase Obligations ........................................................................................ 4.9 5.3

Power Purchase Obligations .................................................................................... 4.3 4.5

Other Purchase Obligations ...................................................................................... 2.8 2.8

Long-term Satellite and Systems ............................................................................. 2.3 1.5

All other commitments ............................................................................................... 3.1 3.2

Total other commitments ........................................................................................ 404.8 385.2
 NOTES TO THE FINANCIAL STATEMENTS 129 

Other Commitments and Risks 

Undelivered Orders 

DOD reported undelivered orders of $236.2 billion and $136.2 billion as of September 30, 2015, and 2014, respectively. 

The increase of $100 billion in FY 2015 was primarily caused by increased estimates in non-federal undelivered orders. 

Commitments to GSEs 

At September 30, 2015, 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 GovernmentSponsored Enterprises for a full description of the SPSPA agreements, related commitments, and contingent liability, if any, 

as well as additional information. 

Terrorism Risk Insurance Program 

The Terrorism Risk Insurance Act (TRIA), signed into law in November 2002, was originally enacted 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 (TRIA Program) until December 31, 2020. 

TRIA 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 TRIA Program is activated upon 

the certification of an “act of terrorism” by the Secretary of the Treasury in consultation with the Secretary of the U.S. 

Department of Homeland Security and the U.S. Attorney General. If a certified act of terrorism occurs, insurers may be 

eligible to receive reimbursement from the U.S. government for insured losses in connection with certified acts of terrorism 

resulting in more than $100 million in insured losses once a particular insurer has also satisfied its designated deductible 

amount. Insured losses above this amount will be shared between insurance companies and the U.S. government. TRIA 

includes both mandatory and discretionary authority for the Department of the Treasury to recoup federal payments made 

under the TRIA Program 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 TRIA as of September 

30, 2015 or 2014. 

Conservation Reserve Program 

The Conservation Reserve Program (CRP) was signed into law by Ronald Reagan in 1985. CRP is the largest privatelands conservation program in the United States. The program has improved water quality, reduced soil erosion, and 

increased habitat for endangered and threatened species. Through CRP, eligible participant’s sign 10 to 15 year contracts to 

remove land from production in exchange for an annual rental payment. The participants also receive cost-share assistance 

for establishing conservation practices on the reserve acreage and additional incentive payments for adopting high-priority 

conservation measures. The Commodity Credit Corporation estimates that the maximum amount of future outlays for all 

existing CRP rental contracts over the contract terms, subject to funds availability and contract compliance, is approximately 

$12 billion. 

 
130 NOTES TO THE FINANCIAL STATEMENTS 

Note 21. Funds from Dedicated Collections 

Funds from Dedicated Collections as of September 30, 20151

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 ....... - - - - 59.2 59.2

Fund balance with Treasury ............. (0.1) 1.4 - 43.4 123.6 168.3

Investments in U.S. Treasury 

securities, net of unamortized 

premiums/discounts ......................... 2,766.6 195.5 41.6 66.1 207.0 3,276.8

Other federal assets ........................ 22.3 35.5 0.5 51.8 19.2 129.3

Non-federal assets .......................... 2.3 1.3 4.4 5.9 106.9 120.8

Total assets ................................ 2,791.1 233.7 46.5 167.2 515.9 3,754.4

Liabilities and net position: 

Due and payable to beneficiaries ....... 66.2 28.3 27.5 37.9 6.7 166.6

Other federal liabilities ..................... 4.5 34.3 1.0 52.4 67.6 159.8

Other non-federal liabilities ............... - 0.6 - 0.6 179.1 180.3

Total liabilities .............................. 70.7 63.2 28.5 90.9 253.4 506.7

Total net position ......................... 2,720.4 170.5 18.0 76.3 262.5 3,247.7

Total liabilities and net position ... 2,791.1 233.7 46.5 167.2 515.9 3,754.4

Change in net position: 

Beginning net position ..................... 2,670.6 179.8 47.7 57.2 242.3 3,197.6

Prior-period adjustment ................... - - - - 0.3 0.3

Beginning net position, adjusted .... 2,670.6 179.8 47.7 57.2 242.6 3,197.9

Investment revenue ......................... 92.2 8.4 2.4 2.4 3.0 108.4

Individual income taxes .................... 672.2 237.7 114.2 - - 1,024.1

Unemployment and excise taxes ....... - - - - 106.6 106.6

Other taxes and receipts .................. - 0.6 - 3.0 33.7 37.3

Miscellaneous earned revenue .......... - - - - 3.8 3.8

Other changes in fund balance (e.g., 

appropriations, transfers) ................. 22.7 18.7 (2.0) 286.2 9.6 335.2

Total financing sources .................. 787.1 265.4 114.6 291.6 156.7 1,615.4

Program gross costs and nonprogram expenses ........................... 737.3 278.4 144.3 344.5 198.7 1,703.2

Less: program revenue ..................... - (3.7) - (72.0) (61.9) (137.6)

Net cost ....................................... 737.3 274.7 144.3 272.5 136.8 1,565.6

Ending net position ................... 2,720.4 170.5 18.0 76.3 262.5 3,247.7

 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 131 

Funds from Dedicated Collections as of September 30, 20141

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 ....... - - - - 58.0 58.0

Fund balance with Treasury .............. (0.1) 0.7 (0.2) 18.4 119.5 138.3

Investments in U.S. Treasury 

securities, net of unamortized 

premiums/discounts ........................ 2,712.8 202.2 70.1 68.4 182.4 3,235.9

Other federal assets ......................... 23.3 32.9 0.8 35.6 16.6 109.2

Non-federal assets ........................... 2.2 1.2 4.2 5.4 112.8 125.8

Total assets ................................. 2,738.2 237.0 74.9 127.8 489.3 3,667.2

Liabilities and net position: 

Due and payable to beneficiaries ....... 63.0 25.7 26.0 31.9 2.5 149.1

Other federal liabilities ...................... 4.6 31.0 1.2 36.4 79.8 153.0

Other non-federal liabilities ................ - 0.5 - 2.3 164.7 167.5

Total liabilities .............................. 67.6 57.2 27.2 70.6 247.0 469.6

Total net position .......................... 2,670.6 179.8 47.7 57.2 242.3 3,197.6

Total liabilities and net position .... 2,738.2 237.0 74.9 127.8 489.3 3,667.2

Change in net position: 

Beginning net position ...................... 2,616.3 190.0 79.5 52.7 205.2 3,143.7

Prior period adjustment..................... - - - - 0.3 0.3

Beginning net position, adjusted ..... 2,616.3 190.0 79.5 52.7 205.5 3,144.0

Investment revenue ......................... 95.6 8.8 3.7 2.4 3.3 113.8

Individual income taxes ................... 642.3 227.6 109.1 - - 979.0

Unemployment and excise taxes ....... - - - - 108.9 108.9

Other taxes and receipts ................... - 9.7 0.1 5.5 35.5 50.8

Miscellaneous earned revenue .......... - - - - 5.0 5.0

Other changes in fund balance (e.g., 

appropriations, transfers) .................. 18.0 10.5 (1.9) 247.9 25.4 299.9

Total financing sources .................. 755.9 256.6 111.0 255.8 178.1 1,557.4

Program gross cost and non-program 

expenses ........................................ 701.6 270.4 142.8 320.2 177.9 1,612.9

Less: program revenue .................... - (3.6) - (68.9) (36.6) (109.1)

Net cost ....................................... 701.6 266.8 142.8 251.3 141.3 1,503.8

Ending net position .................... 2,670.6 179.8 47.7 57.2 242.3 3,197.6

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 
132 NOTES TO THE FINANCIAL STATEMENTS 

collections generally include trust funds, public enterprise revolving funds (not including credit reform financing funds), and

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 22—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 133 

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, 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 Prescription Drug, Improvement, and Modernization Act of 2003 (Public 

Law 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. The law creating the Medicare 

prescription drug account within the Federal Supplementary Medical Insurance Trust Fund and authorizing the depositing of 

amounts to the credit of the fund is set forth in 42 U.S.C. § 1395w-116. 

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. For the years ending September 30, 2015, 

and 2014, there were approximately 624 and 641 funds from dedicated collections, respectively. The funds from dedicated 

collections within the “all other” aggregate, along with the agencies that administer them, include the following: 

 Land and Water Conservation Fund, Reclamation Fund, and Water and Related Resources Fund—administered 

by DOI. 
134 NOTES TO THE FINANCIAL STATEMENTS 

 Exchange Stabilization Fund—administered by Treasury. 

 Unemployment Trust Fund (UTF) and Black Lung Disability Trust Fund (BLDTF)—administered by DOL. 

 Railroad Retirement Trust Fund—administered by RRB. 

 National Flood Insurance Program—administered by DHS. 

 Decommissioning and Decontamination Fund—administered by DOE. 

 Government National Mortgage Association—administered by HUD. 

 Highway Trust Fund and Airport and Airway Trust Fund—administered by DOT. 

 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. 

The Commodity Future Trading Commission erroneously did not report as a fund from dedicated collections for fiscal 

year 2014. This error was corrected in fiscal year 2015 and resulted in a prior-period adjustment of $0.3 billion. 

Unemployment and Excise Taxes 

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, 2015, and 2014, UTF unemployment tax revenues were $49.1 billion and $52.6 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 10 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, represent more than 95 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, 2015, and 2014, Highway Trust Fund excise tax revenues were $40.8 billion and $39.0 

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: 

 Taxes received from transportation of persons and property in the air, as well as fuel used in commercial and 

general aviation. 

 International departure taxes. 

 Interest earnings on Treasury securities. 

For the years ending September 30, 2015, and 2014, Airport and Airway Trust Fund excise tax revenues were $14.3 billion 

and $13.5 billion, respectively. 
 NOTES TO THE FINANCIAL STATEMENTS 135 

Miscellaneous Earned Revenues 

Miscellaneous earned revenues due to activity attributable to funds from dedicated collections primarily relate to 

royalties retained by various funds within DOI. 
136 NOTES TO THE FINANCIAL STATEMENTS 

Note 22. 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 (the Plan), 

which is administered by the Federal Retirement Thrift Investment Board, and the Indian Tribal and individual Indian Trust 

Funds, which are administered by the DOI.

Schedule of Fiduciary Net Assets as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

FRTIB-Thrift Savings Plan ........................................................................................ 427.3 416.1

Department of the Interior ......................................................................................... 5.1 5.1

All other ........................................................................................................................ 2.8 5.9

Total fiduciary net assets ....................................................................................... 435.2 427.1

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, 2015, total fiduciary investments in Treasury securities and in non-Treasury securities are $209.5 

billion and $243.1 billion, respectively. As of September 30, 2014, total fiduciary investments in Treasury securities and in 

non-Treasury securities were $187.1 billion and $241.9 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, 2015, and 2014, the total fiduciary fund balance with Treasury is $1.2 billion and $1.0 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, 2015, and 2014, collectively, the fiduciary investments in Treasury securities and fiduciary fund 

balance with Treasury held by all Government entities represent $6.0 billion and $3.4 billion, respectively, of unrestricted 

cash included within cash held by Treasury for Governmentwide Operations shown in Note 2 - Cash and Other Monetary 

Assets. 

Federal Retirement Thrift Investment Board 

(FRTIB)-Thrift Savings Plan 

The TSP is administered by an independent Government agency, the FRTIB, which is charged with operating the TSP 

prudently and solely in the interest of the participants and their beneficiaries. Assets of the TSP are maintained in the Thrift 

Savings Fund. 

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, 2014, and 2013, there were approximately 4.8 million and 4.6 million participants in the TSP, respectively, 
 NOTES TO THE FINANCIAL STATEMENTS 137 

with approximately 2.9 million contributing their own money. For further information about FRTIB and the TSP, please refer 

to the FRTIB website at http://www.frtib.gov. 

As of September 30, 2015, and 2014, the TSP held $427.3 billion and $416.1 billion, respectively, in net assets, which 

included $0.0 billion and $183.7 billion, respectively, of U.S. Government Securities (amounts are unaudited). A delay in 

raising the statutory debt limit existed as of September 30, 2015. When delays in raising the statutory debt limit occur, the 

Department of the Treasury often must deviate from its normal debt management operations and take a number of 

extraordinary measures to meet the government’s obligations as they come due without exceeding the debt limit. 

Extraordinary measures taken by Treasury during the period of March 16, 2015 through September 30, 2015 resulted in 

federal debt securities not being issued to certain federal government accounts. As reported in Note 16, as a result of Treasury 

securities not being issued to the TSP’s G Fund, Treasury reported miscellaneous liabilities in the amount of $204.6 billion 

that represent uninvested principal and related interest for TSP’s G Fund that would have been reported as federal debt 

securities had there not been a delay in raising the statutory debt limit as of September 30, 2015 and had the securities been 

issued. The most recent audited financial statements for the TSP are as of December 31, 2014, and 2013. As of December 31, 

2014, and 2013, the TSP held $428.1 billion and $394.5 billion, respectively, in net assets, which included $191.3 billion and 

$172.7 billion, respectively, of U.S. Government Securities. These unaudited amounts above are included to enhance 

comparability of the TSP net assets with the remainder of the Government’s fiduciary net assets as of September 30, 2015, 

and 2014. 

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 http://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, 2015, and 2014, including FRTIB and DOI, there are a total of 17 and 15 federal 

entities, respectively, with fiduciary activities at a grand total of 65 and 50 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, 2015, “all other” fiduciary net assets were $2.8 billion, compared to $5.9 billion as of

September 30, 2014. 
138 NOTES TO THE FINANCIAL STATEMENTS 

Note 23. Social Insurance 

The Statement of Social Insurance presents 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 

economic as well as 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. The basis for the projections has changed since last year due to the 

enactment of the Medicare Access and Children’s Health Insurance Program (CHIP) Reauthorization Act (MACRA) of 2015. 

This law repealed the sustainable growth rate (SGR) formula that set physician fee schedule payments, and replaced it with 

specified payment updates for physicians. In last year’s report, the income, expenditures, and assets for Medicare Part B 

reflected the projected baseline scenario, which assumed an override of the SGR payment provisions and an increase in the 

physician fee schedule equal to the average of the most recent 10 years of SGR overrides (through March 2015) or 0.6 

percent. Since the new legislation has replaced the SGR system with specified payment updates for physicians, the 

projections in this year’s report are based on the continuation of program provisions contained in current law, with one 

exception in regard to payment reductions that would result from the projected depletion of the Social Security and Medicare 

Hospital Insurance (Part A) Trust Funds; under current law, payments would be reduced to levels that could be covered by 

incoming tax and premium revenues when the Social Security and Medicare Hospital Insurance (Part A) Trust Funds are 

depleted. 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. The Black Lung projection period ends September 30, 2040, because the 

primary purpose of the BLDTF is to compensate the victims of coal mine dust exposures which occurred prior to 1970. By 

the end of fiscal year 2040, not only the disabled miners and their widows in that class, but also virtually all of their eligible 

dependent disabled adult children will be deceased. 

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 scheduled benefit payments and administrative expenses. Scheduled benefits are projected based on the benefit 

formulas under current law, with an exception in regard to payment reductions that would result from the projected depletion 

of the Social Security and Medicare Hospital Insurance (Part A) Trust Funds. Current Social Security and Medicare law also 

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. As mentioned above, this methodology 

has changed since last year when, instead of current law, the Part B projections reflected the projected baseline scenario, 

which assumed an override of the SGR payment provisions used to set physician fee schedule payments. 

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 January 1 of the valuation year.

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. 

 
 NOTES TO THE FINANCIAL STATEMENTS 139 

The trust fund balances as of the valuation date for the respective programs, including interest earned, are shown in the 

table below. 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 U.S. Treasury securities that are 

backed by the full faith and credit of the U.S. Government.

Social Insurance Programs Trust Fund Balances 1

(In billions of dollars) 2015 2014 2013 2012 2011

Social Security .......................................... 2,789 2,764 2,732 2,678 2,609

Medicare: 

HI .......................................................... 197 205 220 244 272

SMI Part B ........................................... 68 74 66 80 71

SMI Part D ........................................... 1 1 1 1 1

Railroad Retirement ................................. 28 28 26 24 26

Black Lung ................................................. (6) (6) (6) (6) (6)

1

 As of the valuation date of the respective programs. 

Social Security 

The Federal Old-Age and Survivors Insurance (OASI) program, created in 1935, and the Federal Disability Insurance 

(DI) program, created in 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, or 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 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, 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. 

 
140 NOTES TO THE FINANCIAL STATEMENTS 

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 for beneficiaries dually eligible for Medicare and Medicaid. 

For those beneficiaries, states must pay a portion of their estimated foregone drug costs into the Part D account (referred to as 

state transfers). 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 2015 and 2014 SOSI, the 

amounts eliminated totaled $24.8 trillion and $24.7 trillion, respectively. Refer to Unaudited Required Supplementary 

Information—Social Insurance section for additional information on Medicare program financing. 

The Medicare Prescription Drug, Improvement, and Modernization Act (MMA), enacted on December 8, 2003, created 

the Part D account in the SMI Trust Fund to account for the prescription drug benefit that began in 2006. The MMA 

established within SMI two Part D accounts related to prescription drug benefits: the Medicare Prescription Drug Account 

and the Transitional Assistance Account. The Medicare Prescription Drug Account was used in conjunction with the broad, 

voluntary prescription drug benefits that commenced in 2006. The Transitional Assistance Account was used to provide 

transitional assistance benefits, beginning in 2004 and extending through 2005, for certain low-income beneficiaries prior to 

the start of the new prescription drug benefit. 

Affordable Care Act (ACA) 

In fiscal year 2010, President Barack Obama signed health insurance reform legislation giving Americans more control 

over their health care. The Patient Protection and Affordable Care Act and the Health Care and Education Reconciliation 

Act collectively referred to as the Affordable Care Act ensures that all Americans have access to quality, affordable health 

care, while helping to reduce health care costs.

The Affordable Care Act contains the most significant changes to health care coverage since the passing of the Social 

Security Act. The Affordable Care Act provided funding for the establishment by 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). The programs under CCIIO include the Marketplace and other 

programs listed below. A brief description of these programs and their impact on the financial statement is presented below. 

Grants have been provided to the states to establish Affordable Insurance Marketplaces. The initial grants were made by 

the 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. All Marketplaces were launched on October 1, 2013. 

To help make health insurance more affordable to consumers, HHS makes advance payments of the premium tax credits 

(APTC) and cost-sharing reductions (CSR) to health insurance issuers on behalf of consumers who are eligible for financial 

assistance. APTC and CSR payments (which are included in the IRS financial statements) are a critical component of the 

Marketplace, and $30.0 billion has been allocated for these payments. In addition to these payments on behalf of consumers, 

HHS collects Marketplace user fees from issuers participating in the Federally-Facilitated Marketplace (FFM). 

The Basic Health Program (BHP) gives states the ability to provide more affordable coverage for low-income residents 

and improve continuity of care for people whose income fluctuates above and below Medicaid and CHIP levels. Through the 

BHP, states can provide coverage to individuals who do not qualify for Medicaid, CHIP, or other minimum essential 

coverage and have income between 133 percent and 200 percent of the federal poverty level (FPL). A state that operates a 

BHP will receive federal funding equal to 95 percent of the amount of the premium tax credits and the cost sharing 

reductions that would have otherwise been provided to (or on behalf of) eligible individuals if these individuals enrolled in 

Qualified Health Plans through the Marketplace. Similar to APTC and CSR payments, BHP payment amounts are included in 

the IRS financial statements. 

The Consumer Operated and Oriented Plan (CO-OP) Program fosters qualified non-profit health insurance issuers 

created to offer qualified health plans to the individual and small group markets. Under this program, HHS provides 

assistance to organizations applying to become qualified non-profit health insurance issuers through loans to assist in meeting

start-up costs and to assist the applicant meet state solvency requirements. In accordance with regulations as well as 

legislative requirements, start-up loans shall be repaid within five years and the solvency loans within 15 years after 

disbursement, considering state reserve requirements and solvency regulations. 

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 some 

self-insured group health plans, must make contributions to support reinsurance payments that cover high-cost individuals in 

non-grandfathered plans in the individual market, inside and outside the Marketplace. The Transitional Reinsurance program 
 NOTES TO THE FINANCIAL STATEMENTS 141 

is a critical element in helping to ensure a stabilized individual market in the first years of the Exchange operation of the 

Marketplace. 

The Risk Adjustment program is a permanent program. It applies to non-grandfathered individual market and small 

group market plans inside and outside the Marketplaces. 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 risk selection and adverse 

selection. States may operate risk adjustment programs and CMS will operate a risk adjustment program for each state that 

does not operate its own. In 2014 and 2015, Massachusetts is the only state that operated its own risk adjustment program.

The temporary Risk Corridors program will operate during the years 2014 through 2016. This program applies to 

qualified health plans in the individual and small group markets, inside and outside the Marketplaces and protects against 

inaccurate rate-setting by sharing risk (gains and losses) on allowable costs between CMS and qualified health plans to help 

ensure stable health insurance premiums. 

The financial projections for the Medicare program reflect substantial, but very uncertain, cost savings deriving from 

provisions of the ACA and the specified physician updates put in place by the MACRA. However, 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 productivity. Under the ACA, the rate of increase of Medicare payment rates is 

equal to the prior law rate of increase (equal to the rate of increase in the prices of inputs used to produce Medicare services) 

less the rate of increase of total economy multifactor productivity. Without fundamental change 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 follow 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 relative 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. The ACA takes 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, improvement in 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 Medicare cost 

growth rates to levels compatible with the lower price updates payable under current law. 

The ability of new delivery and payment methods to significantly lower cost growth rates is uncertain at this time, since 

specific changes have not yet been designed, tested, or evaluated. 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. The 

ability of health care providers to sustain the price reductions for those providers impacted by the productivity adjustments 

and the specified updates to physician payments 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. 

The reduction in provider payment updates, if implemented for all future years as required under current law, could 

have secondary impacts on provider participation, beneficiary access to care; quality of services; and other factors. These 

possible impacts are very speculative and at present there is no consensus among experts as to their potential scope. Further 

research and analysis will help to better inform this issue and may enable the development of specific projections of 

secondary effects under current law in the future. 

The SOSI projections are based on current law, with one exception in regard to payment reductions that would result 

from the projected depletion of the Medicare Hospital Insurance (Part A) Trust Fund; under current law, payments would be 

reduced to levels that could be covered by incoming tax and premium revenues when the Medicare Hospital Insurance (Part 

A) Trust Funds are depleted. 

The extent to which actual future Part A and Part B costs exceed the projected amounts due to changes to the 

productivity adjustments and specified physician updates depends on what specific changes might be legislated and whether 

Congress would pass further provisions to help offset such costs. However, absent an unprecedented change in health care 

delivery systems and payment mechanisms, the prices paid by Medicare for health services will fall increasingly short of the 
142 NOTES TO THE FINANCIAL STATEMENTS 

cost of providing such services. If this issue is not addressed by subsequent legislation, it is likely that access to, and quality 

of, physicians’ services would deteriorate over time for beneficiaries. By the end of the long-range projection period, 

Medicare prices for many services would be less than half of their level without consideration of the productivity price 

reductions and physician payments would be 30 percent lower than they would have been under the SGR. Before such an 

outcome would occur, lawmakers would likely intervene to prevent the withdrawal of providers from the Medicare market 

and the severe problems with beneficiary access to care that would result. Overriding the productivity adjustments and 

specified physician updates, as lawmakers have done repeatedly 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 2024, physician payments transition from a payment update of 0.0 percent to an increase of 2.3 percent. In 

addition, the illustrative alternative also assumes that requirements for the Independent Payment Advisory Board would 

not be implemented.5

 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. 

 

5

 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 SGR was replaced earlier this year. 
 NOTES TO THE FINANCIAL STATEMENTS 143 

Medicare Present Values (in billions) (Unaudited) 

2015 Consolidated Illustrative 

SOSI Alternative 

Current Law Scenario 1, 2

Income: 

 Part A .............................................................. $17,902 $17,929

 Part B 3 ............................................................ $6,529 $8,065

 Part D 4 ............................................................ $2,869 $2,895

 Total income .............................................. $27,300 $28,889

Expenditures: 

 Part A ............................................................. $21,089 $25,824

 Part B ............................................................. $23,995 $29,605

 Part D ............................................................. $10,156 $10,246

 Total expenditures ..................................... $55,240 $65,675

Part A ............................................................... $3,187 $7,895

Part B ................................................................ $17,466 $21,540

Part D ............................................................... $7,287 $7,352

 Excess of expenditures over income $27,940 $36,787

1

These amounts are not presented in the 2015 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 $17,466 billion and $21,540 billion of General Revenue Contributions from the 2015 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 $7,287 billion and $7,352 billion of General Revenue Contributions from the 2015 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: Amounts may not add up due to rounding. 
144 NOTES TO THE FINANCIAL STATEMENTS 

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 and physician updates transitioned to the Medicare Economic 

Index update of 2.3 percent, as illustrated under the alternative scenario, the estimated present value of Part A and Part B 

expenditures would be higher than the current law projections by roughly 22 percent and 23 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 impact is the result of 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 Trustees6 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)7

, 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. 

 

6 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. 

7

In July 2013, the Bureau of Economic Analysis (BEA) revised upward the historical values for GDP beginning with estimates for 1929. 
 NOTES TO THE FINANCIAL STATEMENTS 145 

 

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 

2015 1.91 771.3 1,465,000 76.9 81.5 

2020 2.04 730.1 1,395,000 77.7 82.1 

2030 2.00 667.6 1,190,000 78.9 83.1 

2040 2.00 615.0 1,135,000 80.0 84.0 

2050 2.00 568.9 1,110,000 81.0 84.8 

2060 2.00 528.2 1,095,000 81.9 85.5 

2070 2.00 492.2 1,085,000 82.8 86.2 

2080 2.00 460.1 1,085,000 83.6 86.9 

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 

2015 3.18 3.38 0.20 3.3 1.3 2.2 

2020 1.73 4.43 2.70 2.7 1.0 5.3 

2030 1.23 3.93 2.70 2.1 0.5 5.6 

2040 1.20 3.90 2.70 2.2 0.6 5.6 

2050 1.21 3.91 2.70 2.1 0.5 5.6 

2060 1.16 3.86 2.70 2.0 0.4 5.6 

2070 1.11 3.81 2.70 2.1 0.4 5.6 

2080 1.13 3.83 2.70 2.1 0.4 5.6 

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. 
146 NOTES TO THE FINANCIAL STATEMENTS 

 

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 

2015 1.91 771.3 1,465,000 

2020 2.04 730.1 1,395,000 

2030 2.00 667.6 1,190,000 

2040 2.00 615.0 1,135,000 

2050 2.00 568.9 1,110,000 

2060 2.00 528.2 1,095,000 

2070 2.00 492.2 1,085,000 

2080 2.00 460.1 1,085,000 

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 

2015 3.18 3.38 0.20 3.3 (0.9) 2.2 2.5 2.1 

2020 1.73 4.43 2.70 2.7 4.2 5.9 5.7 2.4 

2030 1.23 3.93 2.70 2.1 4.4 4.9 5.1 2.9 

2040 1.20 3.90 2.70 2.2 4.9 4.1 4.9 2.9 

2050 1.21 3.91 2.70 2.1 3.9 3.7 4.8 2.9 

2060 1.16 3.86 2.70 2.0 3.7 3.7 4.6 2.9 

2070 1.11 3.81 2.70 2.1 3.9 3.7 4.5 2.9 

2080 1.13 3.83 2.70 2.1 3.9 3.7 4.5 2.9 

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. 
 NOTES TO THE FINANCIAL STATEMENTS 147 

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, partitioned surviving 

spouses, partitioned 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 5 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 income 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. 

Other sources of program income include: financial transactions with the Social Security and Medicare Trust Funds, 

earnings on investments, federal income taxes on railroad retirement benefits, and appropriations (provided after 1974 as part of 

a phase out of certain vested dual benefits). The financial interchange between RRB’s Social Security Equivalent Benefit 

(SSEB) Account, the Federal Old-Age and Survivors Insurance Trust Fund, the Disability Insurance Trust Fund, and the Federal 

Hospital Insurance Trust Fund is intended to put the latter three trust funds in the same position they would have been had 

railroad employment been covered under the Social Security Act. From a governmentwide perspective, these future financial 

interchanges and transactions are intragovernmental transfers and are eliminated in consolidation. 

Railroad Retirement–Employment, Demographic, and Economic Assumptions 

The most recent set of projections is prepared using employment, demographic, and economic assumptions reflecting 

the Board Members’ reasonable estimate of expected future experience. 

Three employment assumptions were used in preparing the projections and reflect optimistic, moderate, and pessimistic 

future passenger rail as well as freight employment. The average railroad employment is assumed to be 238,000 in 2015 

under the moderate employment assumption. This employment assumption, based on a model developed by the Association 

of American Railroads, assumes that (1) passenger service employment will remain at the level of 46,000 and (2) the 

employment base, excluding passenger service employment, will decline at a constant 2.0 percent annual rate for 25 years, at 

a falling rate over the next 25 years, and remain level thereafter. All the projections are based on an open-group (i.e., future 

entrants) population. 

The moderate (middle) economic assumptions include a long-term cost of living increase of 2.7 percent, an interest rate 

of 7.0 percent, and a wage increase of 3.7 percent. The cost of living assumption reflects the expected level of price inflation. 

The interest (or investment) rate assumption reflects the expected rate of return on NRRIT investments. The wage increase 

reflects the expected increase in railroad employee earnings. 

Sources of the demographic assumptions (including mortality rates and total termination rates, remarriage rates for 

widow(er)s, retirement rates, and withdrawal rates) are listed in Table 2. For further details on the employment, demographic, 

economic and all other assumptions, refer to the 26th Actuarial Valuation of the Assets and Liabilities under the Railroad 

Retirement Acts (Valuation Report) as of December 31, 2013, with Technical Supplement.
148 NOTES TO THE FINANCIAL STATEMENTS 

 Table 2 

 Railroad Retirement Demographic Actuarial Assumptions (Sources) 

Mortality Rates 1

 Mortality after age 2010 Base Year RRB Annuitants Mortality Table with 

2013 RRB Mortality Improvement Scale 

 retirement 

2010 Base Year RRB Disabled Mortality Table for 

 Mortality after disability Annuitants with Disability Freeze with 2013 RRB 

Mortality Improvement Scale 

 retirement 2010 Base Year RRB Disabled Mortality Table for 

Annuitants without Disability Freeze with 2013 RRB 

Mortality Improvement Scale 

 Mortality during active 2009 RRB Active Service Mortality Table service 

 Mortality of widowed 2013 RRB Mortality Table for Widows annuitants 

Total Termination Termination for spouses 2010 Base Year RRB Spouse Total Termination 

Table with 2013 RRB Mortality Improvement Scale 

Rates 2 Termination for disabled 2004 RRB Total Termination Table for 

 children Disabled Children 

Widow(er) 

Remarriage 1997 RRB Remarriage Table 

Rates 3

Retirement Rates 4 Age retirement See the Valuation Report. 

 Disability retirement See the Valuation Report. 

Withdrawal Rates 5 See the Valuation Report. 

1 These mortality tables are used to project the termination of eligible employee benefit payments within the population. 

2 Total termination rates are used to project the termination of dependent benefits to spouses and disabled children. 

3 This rate is used to project the termination of spousal survivor benefits. 

4 The retirement rates are used to determine the expected annuity to be paid based on age and years of service for both age 

and disability retirees. 

5 The withdrawal rates are used to project all withdrawals from the railroad industry and resultant effect on the population and 

accumulated benefits to be paid. 

 
 NOTES TO THE FINANCIAL STATEMENTS 149 

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) attributed to their coal mine employment. The 

same program also provides for survivor benefits for eligible survivors of coal miners who died due to pneumoconiosis. 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 Internal Revenue Service (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. 

Black Lung–Demographic and Economic Assumptions 

The demographic assumptions used for the most recent set of projections are the number of beneficiaries and their life 

expectancy. The beneficiary population data is updated from information supplied by the program. The beneficiary 

population is a nearly closed universe in which attrition by death exceeds new entrants by a ratio of more than ten to one. 

SSA Life Tables are used to project the life expectancies of the beneficiary population. 

The economic assumptions used for the most recent set of projections are coal excise tax revenue estimates, the tax rate 

structure, federal civilian pay raises, medical cost inflation, and the interest rates used to discount future cash flows. 

Treasury’s Office of Tax Analysis provides estimates of future receipts of the black lung excise tax. Its estimates are 

based on projections of future coal production and sale prices prepared by the Energy Information Administration (EIA) of 

DOE. In fiscal year 2015 EIA projections of future coal production and sale prices reflect, among other things, regulation 

pursuant to the Clean Power Plan. Treasury’s Office of Tax Analysis provides the first 10 years of tax receipt estimates. In 

fiscal year 2015, DOL refined the approach for selecting the growth rate for tax receipt estimates for the remaining years to 

enhance consistency of future tax receipts over the projection period. For fiscal year 2015, the growth rate for the remaining

years is based on the average EIA growth rates for future coal production that reflect regulation pursuant to the Clean Power 

Plan. For fiscal years 2011 through 2014, the remaining years of future tax receipts were estimated using a growth rate based 

on both historical tax receipts and Treasury’s estimated tax receipts. The coal excise tax rate structure is $1.10 per ton of 

underground-mined coal and $0.55 per ton of surface-mined coal sold, with a cap of 4.4 percent of sales price until the earlier

of December 31, 2018 (used in all presentations), or the first December 31, in which there exists no (1) balance of repayable 

debt described in section 9501 of the Internal Revenue Code and (2) unpaid interest on the debt. At that time, the tax rates 

revert to $0.50 per ton of underground-mined coal and $0.25 per ton of surface-mined coal sold, and a limit of 2.0 percent of 

sales price. 

OMB supplies assumptions for future monthly benefit rate increases based on increases in the federal pay scale and 

future medical cost inflation based on increases in the CPIM, which are used to calculate future benefit costs. During the 

current projection period, the future benefit rate increases 3.03 percent in 2016, 3.25 percent in 2017, 3.02 percent in 2018, 

and 3.0 percent in each year thereafter, and medical cost increases 3.4 percent in 2016, 3.7 percent in 2017, 3.8 percent in 

2018, and 3.9 percent in each year thereafter. Estimates for administrative costs for the first 10 years of the projection period 

are supplied by DOL’s Budget Office, based on current year enacted amounts, while later years are based on the number of 

projected beneficiaries. 

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 projection period through 

September 30, 2040). 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. The Statement of Changes in Social Insurance 
150 NOTES TO THE FINANCIAL STATEMENTS 

Amounts shows two reconciliations: (1) changing from the period beginning on January 1, 2014, to the period beginning on 

January 1, 2015, and (2) changing from the period beginning on January 1, 2013, to the period beginning on January 1, 2014.

Social Security 

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, 2014, and Ending January 1, 2015 

Present values as of January 1, 2014 are calculated using interest rates from the intermediate assumptions of the 2014 

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, 2015. 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 2014 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 2015 Social Security Trustees Report. 

Period Beginning on January 1, 2013, and Ending January 1, 2014

Present values as of January 1, 2013, are calculated using interest rates from the intermediate assumptions of the 2013 

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, 2014. 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 2013 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 2014 Social Security Trustees Report. 

Change in Valuation Period 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2014-2088) 

to the current valuation period (2015-2089) 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 2014, replaces it 

with a much larger negative net cash flow for 2089, and measures the present values as of January 1, 2015, 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 2014-2088 to 

2015-2089. 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 2014 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, 2013, and Ending January 1, 2014 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2013-2087) 

to the current valuation period (2014-2088) 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 2013, replaces it 

with a much larger negative net cash flow for 2088, and measures the present values as of January 1, 2014, one year later. 

Thus, the present value of estimated future net cash flows (excluding the combined OASI and DI Trust Fund asset reserves at 
 NOTES TO THE FINANCIAL STATEMENTS 151 

the start of the period) decreased (became more negative) when the 75-year valuation period changed from 2013-2087 to 

2014-2088. 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 2013 are realized. The 

change in valuation period increased the level of asset reserves in the combined OASI and DI Trust Funds. 

Changes in Demographic Data, Assumptions, and Methods 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2015), with the exception of 

changes made due to the executive actions on immigration, 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 2012 and preliminary data for 2013 indicated lower birth rates than were expected in the 

prior valuation. In this year’s report the total fertility rate reaches the ultimate in 2027, which is eleven years 

earlier than in last year’s report.

 Incorporating mortality data obtained from Medicare experience at ages 65 and older for 2012 resulted in 

slightly higher death rates for 2012 and a slightly slower rate of decline in mortality over the next 25 years than 

were projected in last year’s report. Incorporating mortality data obtained from the National Centers for Health 

Statistics at ages under 65 for 2011 resulted in slightly lower death rates for 2011 and a slightly faster rate of 

decline in mortality over the next 25 years than were projected in last year’s report.

 Historical legal immigration was revised to include single age data (rather than 5-year age groups); including 

more recent marriage, legal immigration, and other-than-legal immigration data; historical data since 2001 was 

revised to be more consistent with the most recent estimates from the Census Bureau. 

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 remaining data increased the present value of estimated future net cash flows. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2014) 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.

 Preliminary birth rate data for 2012 indicated lower birth rates than were expected in the prior valuation. During 

the period of transition to their ultimate values, the birth rates in the current valuation are generally lower than 

they were in the prior valuation. 

 New detailed historical divorce data along with revisions in the assumed path of the age-sex-adjusted divorce 

rate in the period of transition to the ultimate were used in the current valuation. 

 New historical data since 2001 along with smoothing to the historical distribution of the married population by 

age of husband and wife was used in the current valuation period. 

The effect of including the new birth rate data was a decrease in the present value of estimated future net cash flows, 

while the inclusion of the remaining data increased the present value of estimated future net cash flows. 

There was one change in demographic methodology. 

 The modeling of the other immigrant population was divided into three distinct groups for the current valuation: 

(1) those with temporary legal status; (2) those never authorized to be in the country; and (3) those that had 

temporary legal status previously but are no longer authorized to be in the country. 

The effect of this new valuation methodology 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, 2014, and Ending January 1, 2015 

For the current valuation (beginning on January 1, 2015), there was one change to the ultimate economic assumptions. 

 The ultimate real-wage differential is assumed to be 1.17 percent in the current valuation period, compared to 

1.13 percent in the previous valuation period.
152 NOTES TO THE FINANCIAL STATEMENTS 

The higher real wage differential assumption is more consistent with recent experience and expectations of slower 

growth in employer sponsored group health insurance premiums from the Centers for Medicare and Medicaid Services. 

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. This change to the real-wage 

assumption increased 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 ratio of average taxable earnings to the average wage averages about 0.6 percentage point higher during the 

long-range period, compared to the previous valuation period. 

 The projected suspense file contains fewer wage items, which is consistent with having fewer workers (many of 

whom are undocumented immigrants) with wages on the suspense file and more of these workers with earnings 

in the underground economy, compared to the previous valuation.

The change to the ratio of average taxable earnings to the average wage index increased the present value of estimated 

future net cash flows while the change to the suspense file 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. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

For the current valuation (beginning on January 1, 2014), there was one change to the ultimate economic assumptions. 

 The ultimate annual rate of change in the Consumer Price Index for Urban Wage Earners and Clerical Workers 

(CPI-W) is assumed to be 2.7 percent per year in the current valuation period, compared to 2.8 percent per year 

in the previous valuation period. 

Lowering the ultimate average annual increase in the CPI-W makes it more comparable to recent historical annual 

increases. This change to the CPI-W assumption decreased the present value of estimated future 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 ratio of average taxable earnings to the average wage index is lower by 1.9 percent in 2012 and 1.5 percent 

in 2013, compared to the previous valuation period. 

This change to the ratio of average taxable earnings to the average wage index decreased the present value of estimated 

future cash flows. 

There were two main changes in the economic methodology. 

 Projected labor force participation rates for the older population are slightly lower for the current valuation in 

order to better reflect the difference in participation rates between never-married and married populations and 

the projected improvement in life expectancy. 

 Different earnings levels are assigned to the three distinct groups of the other immigrant population supplied by 

demography. (This change decreased the present value of estimated future net cash flows by about the same 

amount as the related change in the demography methodology increased the present value of estimated future 

net cash flows.) 

The effect of including these changes in methodology decreased the present value of estimated future net cash flows. 

Changes in Law or Policy 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

In the current valuation period (beginning on January 1, 2015), no laws were enacted that are expected to have 

significant effects on the long-range cost of the OASDI program. However, on November 20, 2014, the President announced 

a series of executive actions on immigration, which are expected to have a significant effect on the long-range income and 

cost of the OASDI program. Due to a federal court order, implementation of the actions affecting undocumented children and 

parents is on hold at the time of this report. However, the estimates in this report assume this court order will be temporary 

and that the executive actions will proceed by the end of 2015. 
 NOTES TO THE FINANCIAL STATEMENTS 153 

The effect of including these executive actions was an increase in the present value of estimated future net cash flows. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

In the current valuation period (beginning on January 1, 2014) no laws were enacted that are expected to have 

significant effects on the long-range cost of the OASDI program. However, the Supreme Court’s decision in the United 

States v. Windsor repealed parts of the Defense of Marriage Act, which affects the payment of federal benefits based on 

same-sex marriages. The extent to which OASDI benefits based on marriage will be available to same-sex couples is still not 

completely clear. The agency has issued guidelines, approved by the Department of Justice, for certain benefits for same-sex 

couples who were legally married when the insured accountholder resided in a state or jurisdiction that recognized same-sex 

marriages at the time of application or death. For estimates in this valuation, it is assumed that the agency will expand its 

guidelines to recognize all auxiliary beneficiaries for such marriages and that same-sex marriage will eventually be 

recognized in all states. 

This expected expansion of benefits decreased the present value of estimated future net cash flows. 

Changes in Programmatic Data and Methods 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

Several methodological improvements and updates of program-specific data are included in the current valuation 

(beginning on January 1, 2015). The most significant are identified below. 

 The earnings histories of worker beneficiaries were changed to be more consistent with: (1) the projected 

employment and earnings by single year of age and gender used in estimating payroll tax revenue and (2) the 

projected distribution by single year of age and gender of newly entitled worker beneficiaries for each 

projection year. 

 The projected relative earnings levels for those over age 65 were changed to those age 65 and younger. The 

projected insured rate for some immigrants was lowered. The affected group of immigrants includes those 

working in covered employment with a temporary visa that allows them to work and those working in covered 

employment without current legal work authorization. 

 The ultimate projected ratio of income from taxation of benefits to total benefits was increased for this valuation 

period. There were also updates to programmatic data, changes in projections of beneficiaries and benefit levels 

over the first 10 years of the projection period, other small methodological improvements, and interactions. 

All of these methodological improvements increased the present value of estimated future net cash flows. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

Several methodological improvements and updates of program-specific data are included in the current valuation 

(beginning on January 1, 2014). The most significant are identified below. 

 The ultimate projected ratio of income from taxation of benefits to total benefits was increased for this valuation 

period. 

 There were also updates to programmatic data, method changes for projecting beneficiaries and benefit levels 

over the first 10 years of the projection period, other small methodological improvements, and interactions. 

The change to taxation of benefits increased the present value of estimated future net cash flows, while updates of 

program-specific data decreased the present value of estimated future net cash flows. Taken together, these changes 

decreased the present value of estimated future net cash flows. 

Medicare 

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, the present values shown for demographic assumptions, 

represent the additional effect that these assumptions have, once the effects from the change in the valuation period and 

projection base have been considered. 

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 
154 NOTES TO THE FINANCIAL STATEMENTS 

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, 2014, and Ending January 1, 2015 

Present values as of January 1, 2014 are calculated using interest rates from the intermediate assumptions of the 2014 

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, 2015. Estimates of the present value of changes in social insurance amounts due 

to changing the valuation period, projection base, demographic assumptions, and law are determined using the interest rates 

under the intermediate assumptions of the 2014 Medicare Trustees Report. Since interest rates are economic assumptions, the 

estimates of the present values of changes in economic and health care assumptions are presented using the interest rates 

under the intermediate assumptions of the 2015 Medicare Trustees Report. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

Present values as of January 1, 2013 are calculated using interest rates from the intermediate assumptions of the 2013 

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, 2014. Estimates of the present value of changes in social insurance amounts due 

to changing the valuation period, projection base, demographic assumptions, and law are determined using the interest rates 

under the intermediate assumptions of the 2013 Medicare Trustees Report. Since interest rates are economic assumptions, the 

estimates of the present values of changes in economic and health care assumptions are presented using the interest rates 

under the intermediate assumptions of the 2014 Medicare Trustees Report. 

Change in Valuation Period 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2014-88) to 

the current valuation period (2015-2089) is measured by using the assumptions for the prior valuation period and applying 

them, in the absence of any other changes, to the current valuation period. Changing the valuation period removes a small 

negative net cash flow for 2014 and replaces it with a much larger negative net cash flow for 2089. The present value of 

estimated future net cash flow (including or excluding the combined Medicare Trust Fund assets at the start of the period) 

was therefore decreased (made more negative) when the 75-year valuation period changed from 2014-2088 to 2015-2089. 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 2014 are realized. The change in valuation period 

decreased the level of assets in the combined Medicare Trust Funds. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2013-2087) to 

the current valuation period (2014-2088) is measured by using the assumptions for the prior valuation period and applying 

them, in the absence of any other changes, to the current valuation period. Changing the valuation period removes a small 

negative net cash flow for 2013 and replaces it with a much larger negative net cash flow for 2088. The present value of 

estimated future net cash flow (including or excluding the combined Medicare Trust Fund assets at the start of the period) 

was therefore decreased (made more negative) when the 75-year valuation period changed from 2013-2087 to 2014-2088. 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 2013 are realized. The change in valuation period 

decreased the level of assets in the combined Medicare Trust Funds. 

Changes in Demographic Assumptions 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

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 the SSA. 

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2015) 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 2012 and preliminary data for 2013 indicated lower birth rates than were expected in the 

prior valuation. In this year’s projections the total fertility rate reaches the ultimate in 2027, which is eleven 
 NOTES TO THE FINANCIAL STATEMENTS 155 

years earlier than in last year’s projections. 

 Incorporating mortality data obtained from Medicare experience at ages 65 and older for 2012 resulted in 

slightly higher death rates for 2012 and a slightly slower rate of decline in mortality over the next 25 years than 

were projected last year. Incorporating mortality data obtained from the National Centers for Health Statistics 

at ages under 65 for 2011 resulted in slightly lower death rates for 2011 and a slightly faster rate of decline in 

mortality over the next 25 years than were projected last year. 

 Historical legal immigration was revised to include single age data (rather than 5-year age groups); including 

more recent marriage, legal immigration, and other-than-legal immigration data; historical data since 2001 was 

revised to be more consistent with the most recent estimates from the Census Bureau. 

These changes slightly lowered overall Medicare enrollment for the current valuation period resulting in a decrease in 

the estimated future net cash flow, and had a very minor impact on the present value of estimated income and estimated 

expenditures for Part A, Part B, and Part D. 

Period Beginning on January 1, 2013, and Ending January 1, 2014 

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 the SSA. 

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2014) 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. 

 Preliminary birth rate data for 2012 indicated lower birth rates than were expected in the prior valuation. 

During the period of transition to their ultimate values, the birth rates in the current valuation are generally 

lower than they were in the prior valuation. 

There was one change in demographic methodology: 

 The modeling of the other immigrant population was divided into three distinct groups for the current valuation: 

(1) those with the temporary legal status; (2) those never authorized to be in the country; and (3) those who had 

temporary legal status previously but are no longer authorized to be in the country. 

These changes slightly lowered overall Medicare enrollment for the current valuation period resulting in a decrease in 

the estimated future net cash flow, and had a very minor impact on the present value of estimated income and estimated 

expenditures for Part A, Part B, and Part D. 

A further assumption change was made that resulted in higher Part D enrollment for the current valuation period. The 

participation rate represents the percentage of beneficiaries assumed to enroll in a Part D plan out of all eligible and, in prior 

years, was assumed to stay relatively constant at the same rate as the recent historical period. However, since actual 

participation has consistently been higher than expected, it was decided to increase the participation rate by 1 percent per year 

for the first three years of the projection period before leveling out. This results in an assumed 62.4 percent participation rate, 

prior to adjustments for beneficiaries who have retiree drug subsidy coverage and those who are assumed to drop out because 

they are required to pay an income-related premium, for 2017 and later, which is higher than the 57.2 percent that was 

assumed for all years in the prior valuation period. This assumption change resulted in an increase in the present value of 

estimated future income and estimated future expenditures for Part D, and had no impact on the Part A and Part B present 

values. 

Changes in Economic and Health Care Assumptions

Period Beginning on January 1, 2014, and Ending January 1, 2015 

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 the SSA. 

For the current valuation (beginning on January 1, 2015), there was one change to the ultimate economic assumptions: 

 The ultimate real-wage differential is assumed to be 1.17 percent in the current valuation period, compared to 

1.13 percent in the previous valuation period. 

The higher real wage differential assumption is more consistent with recent experience and expectations of slower 

growth in employer sponsored group health insurance premiums from the Office of the Actuary at the CMS. Because these 

premiums are not subject to the payroll tax, slower growth in these premiums means that a greater share of employee 
156 NOTES TO THE FINANCIAL STATEMENTS 

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. 

 The ratio of average taxable earnings to the average wage averages about 0.6 percentage point higher during 

the long-range period, compared to the previous valuation period. 

 The projected suspense file contains fewer wage items, which is consistent with having fewer workers (many 

of whom are undocumented immigrants) with wages on the suspense file and more of these workers with 

earnings in the underground economy, compared to the previous valuation. 

The health care assumptions are specific to the Medicare projections. The following health care assumptions were 

changed in the current valuation. 

 Lower long-range growth rate assumptions. 

 Utilization rate assumptions for inpatient hospital services were decreased. 

 Lower assumed hospice spending. 

 Higher assumed enrollment in Medicare Advantage plans where benefits are more costly. 

 Introduction of high-cost specialty drugs used to treat hepatitis C. 

The net impact of these changes resulted in an increase 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

increase in the estimated future net cash flow. For Part B and Part D, these changes decreased the present value of estimated 

future expenditures (and also income). 

Period Beginning on January 1, 2013, and Ending January 1, 2014

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 the SSA. 

For the current valuation (beginning on January 1, 2014), there was one change to the ultimate economic assumptions: 

 The ultimate annual rate of change in the Consumer Price Index for Urban Wage Earners and Clerical Workers 

(CPI-W) is assumed to be 2.7 percent per year in the current valuation period, compared to 2.8 percent per year 

in the previous valuation period. Lowering the ultimate average annual increase in the CPI-W makes it more 

comparable to recent historical annual increases. 

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 ratio of average taxable earnings to the average wage index is lower by 1.9 percent in 2012 and 1.5 percent 

in 2013, compared to the previous valuation period. 

There were two main changes in the economic methodology. 

 Projected labor force participation rates for the older population are slightly lower for the current valuation in 

order to better reflect the difference in participation rates between never-married and married populations and 

the projected improvement in life expectancy. 

 Different earnings levels are assigned to the three distinct groups of the other immigrant population supplied by 

demography. (This change decreased the present value of estimated future cash flows by about the same 

amount as the related change in the demography methodology increased the present value of estimated future 

cash flows.) 

The health care assumptions are specific to the Medicare projections. The following health care assumptions were 

changed in the current valuation. 

 The projections emphasized in the 2014 Medicare Trustees Report were changed to reflect the projected 

baseline scenario. This scenario assumes that the physician payment updates required under current-law 

sustainable growth rate formula will be overridden by lawmakers. The use of these projections increases the 

present value of estimated future expenditures, compared to the current law projections, for Part B by roughly 

11 percent, and for total Medicare by about 5 percent. 

 Utilization rate assumptions for inpatient hospital services were decreased. 

 Case mix increase assumptions for skilled nursing facilities and home health agencies were decreased. 

 Market basket differential for skilled nursing facilities was lowered. 
 NOTES TO THE FINANCIAL STATEMENTS 157 

 Higher assumed enrollment in Medicare Advantage plans where benefits are generally more costly. 

 Higher increases in productivity rates, resulting in lower payment updates. 

 The methodology used to transition from the short-range projections to the long-range projections was refined, 

resulting in smaller increases during this transition period. 

 Lower projected prescription drug trend rates. 

 Higher assumed rebates from drug manufacturers. 

The net impact of these changes resulted in an increase in the estimated future net cash flow for total Medicare. For Part 

A, these changes resulted in a decrease to the present value of estimated future expenditures and income, with an overall 

increase in the estimated future net cash flow. For Part B, these changes increased the present value of estimated future 

expenditures (and also income). On the other hand, the abovementioned changes lowered the present value of estimated 

future expenditures (and also income) for Part D. 

Changes in Law 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

Although Medicare legislation was enacted since the prior valuation date, some of the provisions have a negligible 

impact on the present value of the 75-year estimated future income, expenditures, and net cash flow. The Veteran’s Access, 

Choice, and Accountability Act of 2014 established a temporary program that allows eligible veterans to receive hospital care 

and medical services from eligible providers outside of the Department of Veterans Affairs (VA) system, rather than waiting 

for a VA appointment or traveling to a VA facility. The Improving Medicare Post-Acute Care Transformation Act of 2014

standardized the collection of data for post-acute providers and aligned the inflation of the hospice aggregate cap with that of 

hospice reimbursement. The Tax Increase Prevention Act of 2014 accelerated the start date for the payment adjustment of 

misvalued codes under the physician fee schedule from 2017 to 2016, and delayed inclusion of oral-only end-stage renal 

disease (ESRD)-related drugs into the ESRD bundled payment system from 2024 to 2025. MACRA included many 

provisions affecting Medicare spending, including the repeal of the SGR formula for determining payments under the 

physician fee schedule, the continuation of extensions for several provisions from prior legislation, a reduction in payment 

updates for most post-acute providers in 2018, the replacement of a 3.2 percent reduction to inpatient hospitals in 2018 with a

0.5 percent reduction in 2018 through 2023, and a revision to the income thresholds for determining the income-related 

monthly adjustment amounts under Part B and Part D. 

Overall these provisions resulted in an increase in the estimated future net cash flow for total Medicare. For Part A, 

these changes resulted in a 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 increased the present value of estimated future expenditures (and 

also income). For Part D, the above-mentioned changes increased the present value of estimated future expenditures (and also 

income) only very slightly. 

Period Beginning on January 1, 2013, and Ending January 1, 2014

Although Medicare legislation was enacted since the prior valuation date, many of the provisions have a negligible 

impact on the present value of the 75-year estimated future income, expenditures, and net cash flow. The Continuing 

Appropriations Resolution of 2014 included several provisions that had an impact on the Medicare program, including a 0.5 

percent physician payment update for January through March of 2014, extension of the Medicare sequester to fiscal year 

2022 and 2023, and payment reform for long-term care hospitals. Further, sections 1 and 3 of Public Law 113-82 included a 

further extension of the Medicare sequester to fiscal year 2024. Lastly, the Protecting Access to Medicare Act of 2014

extended the 0.5 percent physician update through December 2014, enacted a 0 percent update for January through March of 

2015, improved payment policy for clinical diagnostic lab tests, made revisions to the ESRD prospective payment system and 

physician fee schedule, and realigned the Medicare sequester in fiscal year 2024. Overall these provisions resulted in an 

increase 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, with an overall increase in the estimated future net cash flow. For Part B, 

these changes lowered the present value of estimated future expenditures (and also income) only very slightly. For Part D, 

the above mentioned changes increased the present value of estimated future expenditures (and also income) also very 

slightly. 

 
158 NOTES TO THE FINANCIAL STATEMENTS 

Change in Projection Base 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

Actual income and expenditures in 2014 were different than what was anticipated when the 2014 Trustees Report 

projections were prepared. Part A income was slightly lower and expenditures were slightly higher than anticipated, based on 

actual experience. Part B total income and expenditures were also higher 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, 2014 and January 1, 2015 is incorporated in the current valuation and is slightly more than projected in the prior 

valuation.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

Actual income and expenditures in 2013 were different than what was anticipated when the 2013 Trustees Report 

projections were prepared. Part A income was slightly higher and expenditures were lower than anticipated, based on actual 

experience. Part B total income and expenditures were also lower than estimated based on actual experience. For Part D, 

actual income and expenditures were both slightly higher on an incurred basis 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, 2013 and January 1, 2014 is incorporated in the current valuation and is slightly more than 

projected in the prior valuation. 

Railroad Retirement 

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 employment, demographic, and economic assumptions that reflect the RRB’s reasonable estimate of 

expected future financial and actuarial status of the trust funds. Some economic and demographic assumptions were updated 

in 2015 along with the following other components of changes in the open group measure. 

Change in Valuation Period 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2014-2088) 

to the current valuation period (2015-2089) was a $1.6 billion decrease (became more negative) on the open group measure 

between January 1, 2014, and January 1, 2015.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2013-2087) 

to the current valuation period (2014-2088) was a $1.7 billion decrease (became more negative) on the open group measure 

between January 1, 2013, and January 1, 2014.

 
 NOTES TO THE FINANCIAL STATEMENTS 159 

Changes in Demographic Data, Assumptions, and Methods 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

Some demographic assumptions, such as the Annuitants Mortality Table, the Disabled Mortality Table for Annuitants 

with Disability Freeze, the Disabled Mortality Table for Annuitants without Disability Freeze, the Active Service Mortality 

Table, the Spouse Total Termination Table, the Mortality Improvement Scale, the probability of an employee having an 

eligible spouse, the Mortality Table for Widows, the rates of immediate age retirement, the rates of immediate disability 

retirement, the rates of eligibility for disability freeze, service months, salary scales, and family characteristics, were changed 

between the Statement of Social Insurance as of January 1, 2014, and the Statement of Social Insurance as of January 1, 

2015. Changes in demographic data, assumptions, and methods resulted in a decrease of $3.5 billion in the open group 

measure between January 1, 2014, and January 1, 2015.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

Demographic assumptions were not changed between the Statement of Social Insurance as of January 1, 2013, and the 

Statement of Social Insurance as of January 1, 2014. Changes in demographic data resulted in an increase of $2.3 billion in 

the open group measure between January 1, 2013, and January 1, 2014.

Changes in Economic Data, Assumptions, and Methods 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

Both select and ultimate economic assumptions were changed between the Statement of Social Insurance as of January 

1, 2014, and the Statement of Social Insurance as of January 1, 2015. A COLA of 0.5 percent was used for 2016 in place of 

the 2.2 percent COLA assumed for 2016 in the prior year’s report. A 1.6 percent COLA was assumed for 2017 instead of a 

2.8 percent COLA. An ultimate COLA of 2.7 percent for 2018 and the following years was used in place of the ultimate 

COLA of 2.8 percent used in the prior year’s report. An ultimate wage increase assumption of 3.7 percent was used in place 

of the 3.8 percent wage increase assumption used in the prior year’s report. Also, the actual 2014 investment return of 5.5 

percent was lower than the assumed 7.0 percent investment return used for 2014 in the prior year’s report. Changes in 

economic data, assumptions and methods resulted in a change of about $3.2 billion from January 1, 2014, to January 1, 2015.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

Ultimate economic assumptions were not changed between the Statement of Social Insurance as of January 1, 2013, and 

the Statement of Social Insurance as of January 1, 2014, but select economic assumptions were. The actual COLA of 1.5 

percent was used for 2014 in place of the 1.8 percent COLA assumed for 2014 in the prior year’s report. A 1.7 percent COLA 

was assumed for 2015 instead of a 2.3 percent COLA, and a 2.2 percent COLA was assumed for 2016 instead of a 2.8 

percent COLA. Also, the actual 2013 investment return of 16.0 percent was higher than the assumed 7.0 percent investment 

return used for 2013 in the prior year’s report. Changes in economic data, assumptions, and methods resulted in a change of 

about ($1.2) billion between January 1, 2013, and January 1, 2014.

Changes in Methodology and Programmatic Data 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

There were no changes in methodology and programmatic data.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

There were no changes in methodology and programmatic data. 

Changes in Law or Policy 

Period Beginning on January 1, 2014, and Ending January 1, 2015 

There were no changes in law or policy.

Period Beginning on January 1, 2013, and Ending January 1, 2014 

There were no changes in law or policy. 

 
160 NOTES TO THE FINANCIAL STATEMENTS 

Black Lung 

The significant assumptions used in the projections of the Black Lung social insurance program presented in the 

Statement of Social Insurance are the coal excise tax revenue estimates, the tax rate structure, the number of beneficiaries, 

life expectancy, federal civilian pay raises, medical cost inflation, and the interest rates used to discount future cash flows. 

These assumptions also affect the amounts reported on the Statement of Changes in Social Insurance Amounts. 

During fiscal year 2015, the decrease in the open and closed group measures of ($2,886.1) million was primarily due to 

projected lower coal excise tax revenues and higher administrative costs, offset in part due to lower beneficiary costs and the

change in interest rates used to discount the cash flows from 2.5 percent and 2.63 percent in fiscal year 2014 to 2.25 percent 

for income payments, medical payments, administrative expenses, and coal excise tax collections in fiscal year 2015. In 

fiscal years 2015 and 2014, DOL’s approach for selecting the interest rate assumptions used to discount projected annual 

cash flows enhanced matching between the timing of cash flows and interest rates and increased comparability; the approach 

had been refined in fiscal year 2014. For fiscal year 2015, projected annual cash flows were discounted to present value 

based on Treasury rates that reflect the average duration of cash flows between 10.3 and 11.2 years for income payments, 

medical payments, administrative expenses, and coal excise tax collections. The interest rate used to discount fiscal year 

2015 projections is 2.25 percent for income payments, medical payments, administrative expenses, and coal excise tax 

collections. 

During fiscal year 2014, the decrease in the open and closed group measures of ($137.5) million was primarily due to 

projected lower coal excise tax revenues, offset in part due to lower beneficiary costs, and the change in interest rates used to 

discount the cash flows from between 2.79 and 2.95 percent in fiscal year 2013 to 2.5 percent for income payments, and 2.63 

percent for medical payments, administrative expenses, and coal excise tax collections in fiscal year 2014. For fiscal year 

2014, projected annual cash flows were discounted to present value based on Treasury rates that reflect the average duration 

of cash flows between 10.4 and 12.2 years for income payments, medical payments, administrative expenses, and coal excise 

tax collections. The interest rates used to discount fiscal year 2014 projections were 2.5 percent for income payments, and 

2.63 percent for medical payments, administrative expenses, and coal excise tax collections. 

 
 NOTES TO THE FINANCIAL STATEMENTS 161 

Note 24. Long-Term Fiscal Projections 

The Statement of Long-Term Fiscal Projections is prepared pursuant to SFFAS No. 36, Comprehensive Long-Term 

Projections for the U.S. Government, as amended. The basic financial statement, Note 24, and related unaudited required 

supplementary information (RSI) provide information to aid users 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 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 of course 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.8

 Unaudited fiscal 

year 2014 projections from last year’s Financial Report are included for comparison. The projections for fiscal years 2015 

and 2014 are expressed in present value dollars and as a percentage of the present value of Gross Domestic Product (GDP)9

as of September 30, 2015 and September 30, 2014, respectively. The present value of a future amount, for example $1 billion 

in October 2090, is the amount of money that if invested on September 30, 2015 in an account earning the government 

borrowing rate would have a value of $1 billion in October 2090.10 

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 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 2015 Social Security and Medicare trustees’ reports and the 2015 Statement of 

Social Insurance, while comparative information presented from last year’s report is based on the 2014 Social Security and 

Medicare trustees’ reports and the 2014 Statement of Social Insurance. Projections for the other categories of receipts and 

spending are consistent with the economic and demographic assumptions used from 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. 

 

8

 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. 

9

 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. 10 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.
162 NOTES TO THE FINANCIAL STATEMENTS 

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 2015 and 2014. 

This year’s estimate of the 75-year present value imbalance of non-interest spending over receipts expressed as a share 

of the 75-year present value of GDP is 0.3, compared to 0.4 as was projected in last year’s Financial Report. The above table 

reports the effects of various factors on the updated projections. The largest such factor, increasing the imbalance by 0.6 

percent of GDP ($7.0 trillion), is attributable to actual budget results for fiscal year 2015 and other budget data used in 

formulating the projection. The next largest change in the table – lowering the imbalance by 0.6 percent of GDP ($6.8 

trillion) – is attributable to programmatic assumptions for Social Security, Medicare, and Medicaid that decrease the present 

value of outlays less payroll taxes for those programs. The final substantial change noted in the table – lowering the 

imbalance by 0.1 percent of GDP ($1.4 trillion) – is attributable to changes in economic and demographic assumptions.11 

The last row in the basic financial statement shows that this year’s estimate of the overall 75-year present value net 

excess of non-interest spending over receipts is 0.3 percent of the 75-year present value of GDP ($4.1 trillion, as compared to

GDP of $1,196.3 trillion). This imbalance can be broken down by funding source. There is a surplus of receipts over 

spending of 1.1 percent of GDP ($13.2 trillion) among programs funded by the government’s general revenues, but an 

imbalance of 1.4 percent of GDP ($17.3 trillion12) for the combination of Social Security (OASDI) and Medicare Part A, 

 

 

11 As the 2015 long-term fiscal projections represent current policy without change as of September 30, 2015, the 2015 projections do not include the effects 

of the Bipartisan Budget Act of 2015 (BBA) or the Protecting Americans from Tax Hikes (PATH) Act of 2015, both of which represent changes in policy 

after September 30, 2015. Among the important provisions included in the BBA are: (1) an increase in the statutory limits on discretionary spending in 2016 

and 2017, (2) extension of Joint Committee mandatory sequestration by one year, to 2025, and (3) specific programmatic deficit reduction in Medicare, 

Social Security, the Pension Benefit Guaranty Corporation, and the Strategic Petroleum Reserve, among other programs. The PATH Act extended a large 

number of expiring tax provisions, with the largest effects on sources of revenues that the long-term fiscal projections based on historical averages rather 

than on particular provisions of tax law. Neither of these acts is expected to have a material effect on the projections included in this Financial Report. 12 The 75-year present value imbalance for Social Security and Medicare Part A of $17.3 trillion is comprised of several line items from the long-term fiscal 

projections – Social Security outlays net of Social Security Payroll Taxes ($17.6 trillion) and Medicare Part A outlays net of Medicare Payroll Taxes ($6.6 

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 ($0.6 trillion) and Social Security and Medicare Part A revenue other than 

payroll taxes: taxation of benefits (-$3.5 trillion), Federal employer share (-$1.1 trillion), and other income (-$2.9 trillion). 

Present Value (PV) of 75-Year Projections Trillions of $

Percent of 75-

Year PV of GDP

Non-Interest Spending Less Receipts: as of September 30, 2014 

(unaudited)....................................................................................... 0.4 4.7 

Components of Change:

Change due to Economic and Demographic Assumptions...................... (1.4) (0.1) 

Change due to Program-Specific Actuarial Assumptions ........................ (0.6) (6.8) 

Change due to Enacted Legislation....................................................... - - 

Change due to Updated Budget Data.................................................... 7.0 0.6 

Change in Reporting Period.................................................................. 0.0 0.1 

Change in Model Technical Assumptions.............................................. 0.4 0.0 

Total....................................................................................................... (0.1) (0.6) 

Non-Interest Spending Less Receipts: as of September 30, 2015...... 0.3 4.1 

NOTE: Totals may not equal the sum of components due to rounding.

Changes in Long-Term Fiscal Projections
 NOTES TO THE FINANCIAL STATEMENTS 163 

which under current law are funded with payroll taxes and not in any material respect with general revenues.13, 14 By 

comparison, the fiscal year 2014 projections showed that programs funded by the Government’s general revenues had an 

excess of receipts over spending of 1.2 percent of GDP ($13.5 trillion) while the payroll tax-funded programs had an 

imbalance of spending over receipts of 1.6 percent of GDP ($18.2 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 6 percentage points between 2015 and 2025 

before commencing a steady rise, exceeding its 2015 level (74 percent) by 2031, exceeding 100 percent by 2043, and 

reaching 223 percent in 2090. Moreover, if the trends that underlie the 75-year projections were to continue, the debt-toGDP 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 2016 to 2090, 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 2015. 

The 75-year fiscal gap under current policy is estimated at 1.2 percent of GDP, which is 6.1 percent of the 75-year 

present value of projected receipts and 6.0 percent of the 75-year present value of non-interest spending. This estimate of the

fiscal gap is 0.9 percentage point smaller than was estimated in 2014 (2.1 percent of GDP). 

The projections show that projected primary deficits average 0.3 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 0.9 percent of GDP, 1.2 percentage points higher than the projected present value net excess of non-interest 

spending over receipts shown in the basic financial statement. Closing the fiscal gap requires that primary surpluses be 

substantially positive because the projections assume that interest rates will exceed the growth rate of GDP, so merely 

achieving primary balance 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. If policy changes are enacted, perhaps in response to projections like 

those presented here, then actual fiscal outcomes will of course be different than those projected. 

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 in these 

projections. To help illustrate this uncertainty, projections that assume higher and lower interest rate scenarios are presented 

in the “Alternative Scenarios” discussion in the RSI section of this Financial Report. 

As is true for prior fiscal year projections, the assumptions for GDP, interest rates, and other economic factors 

underlying this year’s projections are the same assumptions that underlie the most recent Social Security and Medicare 

trustees’ report projections. The use of discount factors consistent with the Social Security trustees’ rate allows for consistent 

 

13 As an example of General Fund transfers to these programs, the OASDI trust fund received General Fund transfers, primarily in 2011 and 2012, to account 

for lost payroll taxes resulting from enactment of the temporary 2 percent reduction of the employee payroll taxes. 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 General Fund’s loan 

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 projections here 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. 

14 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 $13.1 trillion in 2015 and $12.8 trillion in 2014, 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 2015 by $3.0 

trillion (the trust fund balances at that time); the contribution of other programs to Federal debt at the end of 2015 was therefore $16.1 trillion. Because the 

$17.3 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 $3.0 trillion. The $3.0 trillion combined Social Security and Medicare Part A trust fund balance represents a claim on future general 

revenues. 
164 NOTES TO THE FINANCIAL STATEMENTS 

present value calculations over 75 years between the Statements of Long-Term Fiscal Projections and the Statements of 

Social Insurance. Present value calculations under higher and lower interest rate scenarios are presented in the “Alternative 

Scenarios” section in RSI. 

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 2015 Social Security trustees’ 

report for benefits and for the Railroad Retirement interchange. The projections of Social Security payroll taxes and 

future Social Security spending begin with actual receipts and expenditures for FY 2015, and assume the same 

growth rates for future spending and for payroll taxes as are projected in the 2015 Social Security trustees’ report. 

More information about the assumptions for Social Security cost growth can be found in Note 23 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 2015 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.15 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 start with actual FY 2015 

Medicare spending and assume spending growth accords with the growth rates projected in the Medicare trustees’ 

report. Medicare Part A payroll taxes are projected similarly. More information about the assumptions for Medicare 

cost growth can be found in Note 23 and the Required Supplementary Information for Social Insurance. As 

discussed in Note 23, there is uncertainty about whether the reductions in health care cost growth projected in the 

Medicare trustees’ report will be fully achieved. Note 23 illustrates this uncertainty by considering Medicare cost 

growth assumptions under varying policy assumptions. 

 Medicaid: The Medicaid spending projections start with the projections from the 2014 Actuarial Report on the 

Financial Outlook for Medicaid prepared by the Office of the Actuary, Centers for Medicare & Medicaid Services 

(CMS)16. These projections are based on recent trends in Medicaid spending, the demographic, economic, and 

health cost growth assumptions in the 2014 Medicare Trustees’ Report, and projections of the effect of the 

Affordable Care Act (ACA) on Medicaid enrollment. The projections, which end in 2023, are adjusted to accord 

with the actual Medicaid expenditures in fiscal year 2015. After 2023, the projections assume no further expansion 

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 2014, the average 

annual growth rate of outlays per beneficiary for Medicaid and Medicare were within 0.4 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 the future extent of the ACA Medicaid expansion. 

 Other Mandatory Spending: Other mandatory spending, which includes means-tested entitlements other than 

Medicaid, Federal employee retirement, and veterans disability benefits, 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 throughout the projection period. With 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 2016, implying that such spending will 

remain constant as a percentage of GDP17; and (b) Projected spending for insurance exchange subsidies starting in 

2016 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 2024 for the fiscal 

year 2015 projections), and with growth in per enrollee health care costs as projected for the Medicare program after 

 

15 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 $10.8 trillion, or 0.9 percent of GDP. 16 Christopher J. Truffer, Christian J. Wolfe, and Kathryn E. Rennie, 2014 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 2014. 17 This assumed growth rate for other mandatory programs exceeds the growth rate in the most recent OMB and CBO 10-year budget baselines.
 NOTES TO THE FINANCIAL STATEMENTS 165 

that period. Exchange subsidy spending is ultimately constrained as a percentage of GDP in accordance with the 

failsafe provision in the ACA holding this spending to 0.504 percent of GDP. 

 Defense and Non-defense Discretionary Spending: Through 2021, discretionary spending other than for Overseas 

Contingency Operations (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 4.8 percent of GDP. The BCA is projected to reduce the present value of spending by $0.5 trillion through 

2021, and by an additional $3.9 trillion between 2022 and 2090 because of the lower base spending in 2021. 

Projected OCO spending steadily declines and is fully phased out after 2025, and amounts to $0.2 trillion in present 

value. 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): It is assumed that individual income taxes will equal the 

same share of wages and salaries as in the Administration’s latest Budget current law baseline projection. That 

baseline accords with current policy as defined above, and incorporates the effects of the economic recovery and 

bracket creep. After reaching about 22 percent of wages and salaries in 2023, individual income taxes increase 

gradually to 29 percent of wages and salaries in 2090 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 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 2015 Social Security 

trustees’ report.18 The average interest rate over the projection period is 5.4 percent. These rates are also used to 

convert future cash flows to present values as of the start of fiscal year 2016. 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 several refinements from those used to produce the fiscal year 2014 projections. 

First, insurance exchange subsidies are projected based on assumed growth in enrollment and health care cost growth starting 

with the first projection year, rather than using external projections for the first 10-year period, and explicitly account for the 

ACA’s failsafe provision. Second, the magnitude of the effect of other means of financing on changes in debt is based on 

assumptions about the eventual level of financial assets implied by other means financing, rather than simply based on the 

most recent actual level for other means of financing. Third, BCA enforcement through 2024 is now adjusted to account for 

the fact that Medicare enforcement through 2024 is included in the Medicare actuarial projections and does not need to be 

accounted for separately. 

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 and receipts imply violation of 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, (4) many mandatory programs with expiration 

dates prior to the end of the 75-year projection period are assumed to be reauthorized, and (5) mandatory sequestration is 

assumed to continue throughout the projection period, notwithstanding its statutory expiration in 2025. 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.19

 

 

18 As indicated in the more detailed discussion of Social Insurance in Note 23 to the financial statements. 19 In the 2014 projections, Medicare physician payments were assumed to increase throughout the projected period, rather than being reduced sharply in 

April 2015 as scheduled under current law at that time. However, a permanent reform to Medicare physician payments has been enacted, so there is no 

departure from current law in this area in the 2015 projections. 
166 NOTES TO THE FINANCIAL STATEMENTS 

Note 25. 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, 

DOE, HHS, 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 (http://loc.gov), the Smithsonian Institution (http://si.edu), and the Architect of the

Capitol (http://aoc.gov) for additional information on multi-use heritage assets, agency stewardship policies, and physical 

units by major categories. 
 NOTES TO THE FINANCIAL STATEMENTS 167 

Note 26. Subsequent Events 

Statutory Debt Limit 

On November 2, 2015 Congress enacted the Bipartisan Budget Act of 2015 (P.L. 114-74) which temporarily 

suspended the debt limit through March 15, 2017. This was following a delay in raising the statutory debt limit from March 

16, 2015 to November 1, 2015. During the delay period, Treasury deviated from its normal debt management operations and 

took extraordinary measures to meet the government’s obligations as they came due without exceeding the debt limit. As a 

result of Treasury securities not being issued to the Government Securities Investment Fund (G-Fund) of the Thrift Savings 

Plan, Treasury reported in Note 16— Other Liabilities miscellaneous liabilities in the amount of $204.6 billion, representing 

uninvested principal of and related interest for the G-fund that would have been reported in Note 11— Federal Debt 

Securities Held by the Public and Accrued Interest had there not been a delay in raising the statutory debt limit as of 

September 30, 2015, and had the securities been issued Also as a result of Treasury securities not being issued, uninvested 

principal and related interest of $146.1 billion was not included in intragovernmental debt holding balances for the Civil 

Service Retirement and Disability Fund and the Postal Service Retiree Health Benefits Fund as of September 30, 2015. As 

required by the relevant statutes, the Department of the Treasury restored these funds with the accumulated principal balance 

of Treasury debt securities that bears such interest rates and maturity dates necessary to replicate the investments the funds 

would have held had the delay not occurred (the uninvested principal). Also as required by the relevant statutes, Treasury 

paid these funds the related lost interest (foregone interest) on the uninvested principal. See Note 11– Federal Debt Securities 

Held by the Public and Accrued Interest and Note 16 – Other Liabilities for further information on the Statutory Debt Limit. 
168 NOTES TO THE FINANCIAL STATEMENTS 

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 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 169 

United States Government 

Required Supplementary Information 

(Unaudited) For the Years Ended 

September 30, 2015, and 2014 

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 sustainable. If current policy is left 

unchanged, the projections show the debt-to-GDP ratio will fall about 6 percentage points between 2015 and 2025 before 

commencing a steady rise, exceeding its 2015 level (74 percent) by 2031, exceeding 100 percent by 2043, and reaching 223 

percent in 2090. 

These conclusions are rooted in the projected trends in receipts, spending, and surpluses/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. For 

comparison, under the 2014 projections, the debt-to-GDP ratio fell about 4 percentage points between 2014 and 2024 before 

commencing a steady rise, exceeding the 2014 level (74 percent) by 2028, exceeding 100 percent by 2039, and reaching 321 

percent in 2089. 
170 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Current Policy Projections for Primary Deficits

A key determinant of growth in the debt-to-GDP ratio and hence fiscal sustainability is the primary deficit-to-GDP 

ratio. 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 grew rapidly in 

2009 due to the financial crisis and the recession and the policies pursued to combat both. The ratio remained high from 2010 

to 2012 despite shrinking in each successive year, and fell significantly in 2013 and 2014. The primary deficit is projected to

shrink 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 economy continues to recover. Starting in 2019, receipts are projected to exceed non-interest spending, and this

primary surplus is projected to peak at 0.5 percent of GDP in 2024. After 2025, however, increased spending for Social 

Security and health programs due to the continued retirement of the baby boom generation is expected to cause the primary 

surplus to steadily deteriorate and become a primary deficit in 2028 that reaches 1.0 percent of GDP in 2038. The primary 

deficit gradually decreases beyond that point as the aging of the population continues at a slower pace, and becomes a 

primary surplus in 2085 that reaches 0.1 percent of GDP in 2090. 

The receipt share of GDP fell substantially in 2009 and 2010 and remained low in 2011 and 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 rose to 18.1 percent in 2015, 

exceeding its 30-year average of 17.2 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 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 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 shortly before 2030, and to then rise gradually to 20.9 percent of GDP by 2040 and 21.4 percent of GDP by 

2090. The reductions in the non-interest spending share of GDP over the next few years are mostly due to the expected 

reductions in spending for overseas contingency operations (OCO), caps on discretionary spending and the automatic 

spending cuts mandated by the BCA, and 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 is 

projected to increase the Social Security, Medicare, and Medicaid spending shares of GDP by about 1.1 percentage points, 

1.6 percentage points, and 0.4 percentage points, respectively. After 2040, the Social Security spending share of GDP 

gradually declines, returns to 2040 levels in 2060 and then increases slightly, 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. 

The Patient Protection and Affordable Care Act, as amended by the Health Care and Education Reconciliation Act of 

2010 (ACA) significantly affects projected spending for both Medicare and Medicaid. That legislation expands health 

insurance coverage, including Medicaid, includes many measures designed to reduce health care cost growth, and 

significantly reduces Medicare payment rates. On net, the ACA is projected to substantially reduce the annual increases in 

Medicare payment rates over the next 75 years. The Medicare spending projections in the long-term fiscal projections are 

based on the projections in the 2015 Medicare trustees’ report, and those projections show a substantial slowdown in 

Medicare cost growth. The projections assume that Medicaid enrollment increases and that Medicaid cost per beneficiary 

grows at the same reduced rate as Medicare cost growth per beneficiary. As discussed in Note 23 to the U.S. Government’s 

Financial Statements, these projections are subject to much uncertainty about the ultimate effects of the ACA’s provisions to 

reduce health care cost growth. Even if those provisions work as intended and as assumed in this projection, Chart 1 shows 

that there is still a long-term gap between projected receipts and projected total non-interest spending. 

Current Policy Projections for Debt and Interest Payments 

The primary deficit projections in Chart 1, along with projections for interest rates and GDP, determine the projections 

for the debt-to-GDP ratio that are shown in Chart 2 (right axis). That ratio was 74 percent at the end of fiscal year 2015, and

under current policy is projected to be 67 percent in 2025, 106 percent in 2045, and 223 percent in 2090. The continuous rise 

of the debt-to-GDP ratio after 2025 indicates that current policy is unsustainable. 

The change in debt held by the public from one year to the next is approximately equal to the unified budget deficit, the 

difference between total spending and total receipts.1

 Total spending is non-interest spending plus interest spending. Chart 2 

(left axis) shows that the rapid rise in total spending and the unified deficit is almost entirely due to projected interest 

 

1

 The change in debt each year is also affected by certain transactions not included in the unified 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. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 171 

payments on the debt. As a percent of GDP, interest spending was 1.2 percent in 2015, and under current policy is projected 

to reach 4.4 percent in 2035 and 12.0 percent in 2090. 

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 2088, the last year of the projection period in the FY 2013 report. This ratio is 

projected to reach 217 percent in the fiscal year 2015 projections, which compares with 315 percent projected in the fiscal 

year 2014 projections and 277 percent projected in the fiscal year 2013 projections.2

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 2090 equal to the 2015 ratio (74 

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 74 percent of GDP in 

2090. 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 in much of the projection period. Table 1 

shows primary surplus changes necessary to make the debt-to-GDP ratio in 2090 equal to its level in 2015 under each of the 

three policies. If reform begins in 2016, then it is sufficient to raise the primary surplus share of GDP by 1.2 percentage 

points in every year between 2016 and 2090 in order for the debt-to-GDP ratio in 2090 to equal its level in 2015 (74 percent). 

This policy raises the average 2016-2090 primary surplus-to-GDP ratio from -0.3 percent to +0.9 percent. 

 

2

 For further information on changes from the 2013 projections, see the Required Supplementary Information in the 2014 Financial Report. 
172 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

In contrast to a reform that begins immediately, if reform begins in 2026 or 2036, then the primary surpluses must be 

raised by 1.5 percent and 1.9 percent of GDP, respectively, in order for the debt-to-GDP ratio in 2090 to equal 74 percent. 

The difference between the primary surplus increase necessary if reform begins in 2026 and 2036 (1.5 and 1.9 percent of 

GDP, respectively) and the increase necessary if reform begins in 2016 (1.2 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 2015 and the year reform is initiated, in comparison to the scenario in which reform begins immediately. 

These projections likely understate the cost of lengthy policy delays because they assume interest rates will not rise as 

the debt-to-GDP ratio grows. Under the current projections, the debt-to-GDP ratio is stable through 2030 and then grows 

rapidly. If a higher debt-to-GDP ratio causes the interest rate on government borrowing to rise, thus making it more costly for

the government to service its debt and simultaneously slowing private investment, then the primary surplus required to return 

the debt-to-GDP ratio to its 2015 level would also increase. This dynamic may accelerate with higher ratios of debt to GDP, 

potentially resulting in there being no feasible level of taxes and spending that would reduce the debt-to-GDP ratio to its 2015 

level. The potential impact on the projections of interest rates rising as the debt-to-GDP ratio rises is explored in the 

“Alternative Scenarios” section. 

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 projected growth of health care costs. 

Enactment of the ACA in 2010 reduced the projected long-run growth rates of health care costs, but these growth rates are 

still highly uncertain. 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.3

 As indicated earlier, if reform is initiated in 2016, eliminating the fiscal gap requires that 

the 2016-2090 primary surplus increase by an average of 1.2 percent of GDP in the base case. However, that figure increases 

to 4.0 percent of GDP if per capita health cost growth is assumed to be 1 percentage point higher, and 8.5 percent of GDP if 

per capita 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 2016 to 2026 requires that 2026-2090 primary surpluses be higher by 

an average of 0.3 percent of GDP in the base case, 0.8 percent of GDP if per capita health cost growth is 1 percentage point 

 

3

 The base case health cost growth rates are derived from the projections in the 2015 Medicare trustees’ report. These projections are summarized and 

discussed in Note 23 (see Table 1B in particular) and the “Medicare Projections” section of the RSI for the SOSI. 

Required Change in Average Primary Surplus

Reform in 2016 (No Delay) ................. 1.2 percent of GDP between 2016 and 2090

Reform in 2026 (Ten-Year Delay) ........ 1.5 percent of GDP between 2026 and 2090

Reform in 2036 (Twenty-Year Delay) ... 1.9 percent of GDP between 2036 and 2090

Table 1

Costs of Delaying Fiscal Reform

Timing of Reforms

Note: Reforms taking place in 2015, 2025, and 2035 from the 2014 Financial Report were 2.1, 2.5, 

and 3.1 percent of GDP, respectively.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 173 

higher, and 1.7 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, including through effective implementation of the ACA. 

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 2016, eliminating the fiscal gap requires that the 2016-2090 primary surplus 

increase by an average of 1.2 percent of GDP in the base case, 1.5 percent of GDP if the interest rate is 0.5 percentage point 

higher in every year, and 0.9 percent of GDP if the interest rate is 0.5 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 2016 

to 2026 requires that 2026-2090 primary surpluses be higher by an average of 0.3 percent of GDP in the base case, 0.4 

percent of GDP if the interest rate is 0.5 percentage point higher in every year, and 0.2 percent of GDP if the interest rate is 

0.5 percentage point lower in every year. 

2016 2026 2036

Base Case................................................................ 1.2 1.5 1.9

1% pt. higher per person health cost growth................. 4.0 4.8 6.1

2% pt. higher per person health cost growth................. 8.5 10.2 12.8

2026 2036

Base Case................................................................ 0.3 0.6

1% pt. higher per person health cost growth................. 0.8 2.1

2% pt. higher per person health cost growth................. 1.7 4.4

NOTE: Increments may not equal the subtracted difference of the components due to rounding.

Table 2

Impact of Alternative Health Cost Scenarios on Cost of Delaying Fiscal Reform

Scenario

Primary Surplus Increase (% of GDP) 

Starting in:

Change in Primary Surplus Increase if 

Reform is Delayed From 2016 to:
174 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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 after 2021, discretionary spending keeps pace with the economy and grows with 

GDP. 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 still larger 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 in 2022 to levels consistent with the path established prior to the sequestration 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, the fiscal gap decreases significantly if discretionary spending grows with inflation and population, from 1.2 

percent of GDP to -0.3 percent of GDP. Conversely, if discretionary spending rises to the levels prior to Joint Committee 

sequestration in 2022 and then grows with GDP, the fiscal gap increases from 1.2 percent of GDP to 1.6 percent of GDP. The 

cost of delaying reform is greater when discretionary spending levels are higher. Initiating reforms in 2026 requires that the 

primary surplus increase by an average of 0.3 percent of GDP per year in the base case, and also increase by 0.3 percent of 

GDP if discretionary levels return to pre-Joint Committee sequestration levels. If delayed until 2036, the primary surplus 

must increase by an average of 0.6 percent of GDP in the base case, and increase by 0.8 percent of GDP at pre-sequestration 

levels. 

2016 2026 2036

Base Case: Average of 5.4 percent over 75 years............ 1.2 1.5 1.9

0.5 percent higher interest rate in each year................... 1.5 1.9 2.5

0.5 percent lower interest rate in each year.................... 0.9 1.1 1.4

2026 2036

Base Case: Average of 5.4 percent over 75 years............ 0.3 0.6

0.5 percent higher interest rate in each year................... 0.4 0.9

0.5 percent lower interest rate in each year.................... 0.2 0.4

NOTE: Increments may not equal the subtracted difference of the components due to rounding.

Table 3

Impact of Alternative Interest Rate Scenarios on Cost of Delaying Fiscal Reform

Scenario

Primary Surplus Increase (% of GDP) 

Starting in:

Change in Primary Surplus Increase if 

Reform is Delayed From 2016 to:
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 175 

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 

2016, eliminating the fiscal gap requires that the 2016-2090 primary surplus increase by an average of 1.2 percent of GDP in 

the base case, only 0.2 percent of GDP if receipt growth is higher, but 2.3 percent of GDP if receipt growth is lower. The cost

of delaying reform is also affected if receipt growth assumptions change, much as was the case in the previous alternative 

scenarios. 

2016 2026 2036

Base Case: Discretionary spending growth with GDP after 2021............................ 1.2 1.5 1.9

Growth with inflation and population after 2021...................................................... (0.3) (0.3) (0.4)

Reversion in 2022 to pre-Joint Committee sequester levels and growth with GDP..... 1.6 1.9 2.4

2026 2036

Base Case: Discretionary spending growth with GDP after 2021............................ 0.3 0.6

Growth with inflation and population after 2021...................................................... (0.1) (0.1)

Reversion in 2022 to pre-Joint Committee sequester levels and growth with GDP..... 0.3 0.8

NOTE: Increments may not equal the subtracted difference of the components due to rounding.

Table 4

Impact of Alternative Discretionary Spending Growth Scenarios on Cost of Delaying Fiscal Reform

Scenario

Primary Surplus Increase (% of GDP) 

Starting in:

Change in Primary Surplus Increase if 

Reform is Delayed From 2016 to:
176 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Fiscal Projections in Context

In this report, a sustainable 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, including: financing public goods, such as 

infrastructure and government services; a strong and growing economy; and managing the national debt so that it is not a 

burden to 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 alter that trajectory, note that 

national debt may play roles in both facilitating and hindering a healthy economy. For example, Government deficit spending 

may support demand and allow economies to emerge from recessions more quickly. Debt may also be a cost-effective means 

of financing capital investment, promoting economic growth, which may in turn make debt levels more manageable in the 

future. However, economic theory also suggests that high levels of national debt may contribute to higher interest rates, 

leading to lower investment and a smaller capital stock which the economy can use to grow. Unfortunately, it is unclear what 

debt 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. 

Whether the actual experience of countries supports a relationship between national debt and economic growth remains 

an open research question. It is not possible to perform randomized experiments on economies, and historical experience, 

while valuable, is filled with confounding events and circumstances. 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 continue 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; low growth may contribute to high debt. 

Nevertheless, to put the current and projected debt-to-GDP ratios in context, it is instructive to examine the experiences 

of other countries as well as that of the United States. 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 24 select countries, the debt-toGDP ratio in 2013 ranged from 7 percent of GDP to 174 percent of GDP.4

 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

 

4

 Government Finance Statistics Yearbook, Main Aggregates and Balances, available at http://data.imf.org. Data is for D1 debt liabilities for the central 

government, excluding social security funds. 

2016 2026 2036

Base Case: Individual income tax bracket creep of 0.1% of wages and salaries per year.... 1.2 1.5 1.9

0.2% of wages and salaries per year after 2025.............................................................. 0.2 0.2 0.3

0.0% of wages and salaries per year after 2025 (no bracket creep)................................... 2.3 2.7 3.5

2026 2036

Base Case: Individual income tax bracket creep of 0.1% of wages and salaries per year.... 0.3 0.6

0.2% of wages and salaries per year after 2025.............................................................. 0.0 0.1

0.0% of wages and salaries per year after 2025 (no bracket creep)................................... 0.5 1.2

NOTE: Increments may not equal the subtracted difference of the components due to rounding.

Table 5

Impact of Alternative Revenue Growth Scenarios on Cost of Delaying Fiscal Reform

Scenario

Primary Surplus Increase (% of GDP) 

Starting in:

Change in Primary Surplus Increase if 

Reform is Delayed From 2016 to:
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 177 

similar debt statistic for the United States as 82 percent of GDP.5 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 3 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 2045. 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. 

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 United States took a potentially significant step towards fiscal sustainability in 2010 by reforming its system of 

health insurance through enactment of the ACA. The legislated changes for Medicare, Medicaid, and other health coverage 

hold the prospect of lowering the long-term growth trend for health care costs and significantly reducing the long-term fiscal 

gap. Furthermore, enactment of the BCA in August 2011 placed limits on future discretionary spending, while enactment of 

ATRA in January 2013 increased receipts under current policy. But even with these laws, the projections in this Financial 

 

5

 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. 
178 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Report indicate that if policy remains unchanged the debt-to-GDP ratio will continually increase over the next 75 years and 

beyond, which implies current policies are not sustainable and must ultimately change. Subject to the important caveat that 

policy changes are not so abrupt that they slow continued economic growth, the sooner policies are put in place to avert these 

trends, the smaller are the receipt increases and/or spending decreases necessary to return the Nation to a sustainable fiscal 

path, and the lower the burden of the national debt will be to future generations. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 179 

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 OASI Trust Fund was established on January 1, 1940, as a separate account in the Treasury. The DI Trust Fund, 

another separate account in the Treasury, was established on August 1, 1956. OASI 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 2014, OASDI benefits were paid to approximately 59 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. Since 1990, with the exception of calendar years 2011 

and 2012, employers and employees have each paid 6.2 percent of taxable earnings and the self-employed paid 12.4 percent 

of taxable earnings. In 2011 and 2012, payroll tax rates paid by employees and the self-employed were each reduced by 2 

percentage points and the General Fund reimbursed the OASDI Trust Fund for the resulting reduction in payroll tax 

revenues. 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 ($118,500 in 2015), 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 D6 accounts). HI pays for inpatient acute hospital services 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 

 

6 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 in the case of Medicare Part B, approximately 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. 
180 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

related interest have no effect on the consolidated statement of governmentwide finances. 

For SMI, direct transfers from the General Fund financed 75 percent of 2015 program costs for both Parts B and D. 

Premiums paid by beneficiaries and, for Part D state transfers, generally financed the remainder of 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 23—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 unified 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. Together, they now account for more than a third of all federal spending and the percentage is projected to 

rise dramatically for the reasons discussed below. 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.7

 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. 

 

7 The federal unified 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
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 181 

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 

General Fund and are drawn down for any Government program for which Congress has approved spending.8

 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 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 

2015. 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 ($264.8 billion) 

and interest credits ($107.1 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 

 

8 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.
182 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

payroll taxes, benefit taxes, and premiums. For HI, the difference between total expenditures made to the public ($278.7 

billion) and revenues ($262.7 billion) was $16.0 billion in 2015, 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 (premiums) were relatively small, 

representing about 25 percent of total expenditures made to the public in 2015. The difference ($267.9 billion) resulted in a 

net draw on the overall budget balance in that year. For OASDI, the difference between total expenditures made to the public 

($887.7 billion) and revenues from the public ($817.1 billion) was $70.6 billion in 2015, 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 $40.1 billion in fiscal year 2015. 

The trust fund perspective is captured in the bottom section of each of the three trust fund columns. For HI, total 

expenditures exceeded total revenues by $6.4 billion in 2015, as shown at the bottom of the first column. This cash deficit 

was made up by calling in past loans made to the General Fund (i.e., by redeeming trust fund assets). For SMI, total 

expenditures exceeded total revenues by $1.9 billion. The total revenue for SMI is $357.5 billion ($91.5 + $266.0), which 

includes $266.0 billion transferred from other Government accounts (General Fund). Transfers to the SMI Program from 

other Government accounts (the General Fund), amounting to about 73.3 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 

$913.4 billion ($817.1 + $96.3) exceeded total expenditures of $887.7 billion by $25.7 billion. Total revenues for OASDI 

included $96.3 billion in transfers from the General Fund, made up of interest credits of $96.0 billion and transfers of $0.3 

billion called for by Public Laws 111-147, 111-312, 112-78, and 112-96 to make up for the reduction in payroll tax revenues 

attributable to the temporary payroll tax rate reductions. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 183 

Table 1 

Revenues and Expenditures for Medicare and Social Security Trust Funds and the Total 

Federal Budget for the Fiscal Year ended September 30, 2015 

Trust Funds 

(In billions of dollars) HI SMI OASDI Total All Other Total1

Payroll taxes and other public 

revenues: 

Payroll and benefit taxes ......................... 257.9 - 817.1 1,075.0 - 1,075.0

Premiums .................................................. 4.8 79.7 - 84.5 - 84.5

Other taxes and fees ............................... - 11.8 - 11.8 2,077.4 2,089.2

Total ........................................................... 262.7 91.5 817.1 1,171.3 2,077.4 3,248.7

 Total expenditures to the public2 ......... 278.7 359.4 887.7 1,525.8 2,161.8 3,687.6

Net results for budget perspective3 ..... (16.0) (267.9) (70.6) (354.5) (84.4) (438.9)

Revenues from other Government 

accounts: 

Transfers ................................................... 1.0 263.5 0.3 264.8 (264.8)

Interest credits .......................................... 8.6 2.5 96.0 107.1 (107.1)

 Total .......................................................... 9.6 266.0 96.3 371.9 (371.9)

Net results for trust fund 

perspective3 ................................................ (6.4) (1.9) 25.7 17.4 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 $438.9 was the total 

federal deficit in fiscal year 2015. 

2 The OASDI figure includes $4.7 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: Amounts may not add due to rounding. 

 "N/A" indicates not applicable. 

Cash Flow Projections 

Background 

Economic and Demographic Assumptions. The Boards of Trustees9 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 23—Social Insurance. 

 

 

9

 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. 
184 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Beneficiary-to-Worker 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. Chart 1 shows that the number of 

OASDI beneficiaries per 100 covered workers is projected to grow rapidly from 36 in 2015 to 47 in 2035 as the baby boom 

generation enters their retirement years and receives benefits. After 2035 the baby boom’s influence will have dissipated, and 

it is projected that the beneficiary-worker ratio will continue to rise but at a slower pace due to increasing longevity, reaching 

51 beneficiaries per 100 workers by 2090. (In rough terms, the beneficiary-to-worker ratio at any point in time reflects the 

birth rates experienced by the generations who are retired; the birth rates of the baby boom generations’ parents were much 

higher than those of the baby boomer generations and the generations to follow them.) A similar demographic pattern 

confronts the Medicare Program. 

Chart 1—OASDI Beneficiaries per 100 Covered Workers 

1970-2089 

 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 185 

Social Security Projections 

Income and Expenditures. Chart 2 shows historical values and actuarial estimates of combined OASDI annual 

noninterest income and expenditures for 1970-2089. 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 

1970-2089 

(In billions of dollars) 

Social Security’s surplus of noninterest income over expenditures was positive every year between 1984 and 2009, 

became negative in 2010, and is projected to grow ever more negative over the next 75 years. This pattern reflects the aging 

of the population documented in Chart 1, as well as growth of the economy and growth in the price level. As described 

above, surpluses that occurred prior to 2010 were “loaned” to the General Fund and accumulated, with interest, increasing 

reserve spending authority for the trust fund. The reserve spending authority represents an obligation for the General Fund. 
186 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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. Dividing 

noninterest income and expenditures by taxable payroll serves to isolate the effect of demographics on Social Security 

finances, and usefully gauges Social Security’s financial imbalances against the size of the Social Security tax base. The time

path of the cost rate in Chart 3 closely parallels that of the beneficiary-to-worker ratio in Chart 1. Social Security began using 

interest credits to meet full benefit obligations in 2010, and is projected to begin drawing down trust fund asset reserves 

starting in 2020 and to deplete those reserves in 2034. After trust fund asset reserves are depleted, noninterest income will 

continue to flow into the fund and will be sufficient to finance 79 percent of scheduled benefits in 2034 and 73 percent of 

scheduled benefits in 2089. 

Chart 3—OASDI Income (Excluding Interest) and Expenditures 

as a Percent of Taxable Payroll 

1970-2089 

 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 187 

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. 

The gap between expenditures and income generally widens with expenditures generally growing as a share of GDP and 

income declining slightly relative to GDP. The cost of the program (based on current law) rises rapidly to 5.9 percent of GDP 

in 2030, hits a peak of 6.0 percent of GDP in 2037, declines to 5.9 percent by 2050, and generally increases to 6.2 percent of 

GDP by 2089. The rapid increase from 2016 to 2030 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 2089, 

expenditures are projected to exceed income by 1.60 percent of GDP. 

Chart 4—OASDI Income (Excluding Interest) and Expenditures 

as a Percent of GDP 

1970-2089 

 
188 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Sensitivity Analysis. Actual future income from OASDI payroll taxes and other sources and actual future expenditures 

for scheduled benefits and administrative expenses will depend upon a large number of factors: the size and composition of 

the population that is receiving benefits, the level of monthly benefit amounts, the size and characteristics of the work force

covered under OASDI, and the level of workers’ earnings. These factors will depend, in turn, upon future marriage and 

divorce rates, birth rates, death rates, migration rates, labor force participation and unemployment rates, disability incidence 

and termination rates, retirement age patterns, productivity gains, wage increases, cost-of-living increases, and many other 

economic as well as demographic factors. 

This section presents estimates that illustrate the sensitivity of long-range expenditures and income for the OASDI 

Program to changes in selected individual assumptions. In this analysis, the intermediate assumption is used as the reference 

point, and one assumption at a time is varied. 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. 

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, the intermediate assumption for the annual rate of reduction in age-sex-adjusted death rates is 0.78 

percent. For the low-cost alternative, a slower reduction rate (0.41 percent) is assumed as it means that beneficiaries die at a 

younger age relative to the intermediate assumption, resulting in lower expenditures. Under the low-cost assumption, the 

shortfall drops from $13,440 billion to $11,467 billion, a 15 percent smaller shortfall. The high-cost death rate assumption 

(1.18 percent) results in an increase in the shortfall, from $13,440 billion to $15,511 billion, a 15 percent increase in the 

shortfall. Clearly, alternative death rate assumptions have a substantial impact on estimated future cash flows in the OASDI 

Program. 

A higher fertility rate means more workers relative to beneficiaries over the projection period, thereby lowering the 

shortfall relative to the intermediate assumption. An increase in the rate from 2.0 to 2.2 percent results in a 9 percent smaller 

shortfall (i.e., expenditures less income), from $13,440 billion to $12,234 billion. 

Higher real wage growth results in faster income growth relative to expenditure growth. Table 2 shows that a real wage 

differential that is 0.63 percentage points greater than the intermediate assumption of 1.17 causes the shortfall to drop from 

$13,440 billion to $10,457 billion, a 22 percent decline. Decreasing the real wage differential by 0.62 percentage points 

results in a 15 percent increase in the shortfall from $13,440 billion to $15,419 billion. 

The CPI change assumption operates in a somewhat counterintuitive manner, as seen in Table 2. A higher rate of 

change results in a lower shortfall. This arises as a consequence of holding the real wage assumption constant while varying 

the CPI so that wages (the income base) are affected sooner than benefits. If the rate is assumed to be 3.4 percent rather than

2.7 percent, the shortfall decreases about 4 percent, from $13,440 billion to $12,930 billion. 

The effect of net immigration is similar to fertility in that, over the 75-year projection period, higher immigration results in 

proportionately more workers (taxpayers) than beneficiaries. The low-cost assumption for net immigration results in a 4 percent

drop in the shortfall, from $13,440 billion to $12,839 billion, relative to the intermediate case; and the high-cost assumption

results in a 5 percent higher shortfall. 

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. The 

shortfall is 15 percent lower, decreasing from $13,440 billion to $11,460 billion, when the real interest rate is 3.4 percent 

rather than 2.9 percent. The shortfall is 18 percent higher, increasing to $15,921 billion, when the real interest rate is 2.4 

percent rather than 2.9 percent.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 189 

Table 2 

Present Values of Estimated OASDI Expenditures in Excess of Income 

Under Various Assumptions, 2015-2089 

(Dollar values in billions; values of assumptions shown in parentheses) 

Financing 

Assumption Low Intermediate High 

Average annual reduction in death rates ........................................... 11,467 13,440 15,511 

(0.41) (0.78) (1.18) 

Total fertility rate .................................................................................... 12,234 13,440 14,514 

(2.2) (2.0) (1.8) 

Real wage differential ........................................................................... 10,457 13,440 15,419 

(1.80) (1.17) (0.55) 

CPI change ............................................................................................. 12,930 13,440 13,948 

(3.4) (2.7) (2.0) 

Net immigration...................................................................................... 12,839 13,440 14,082 

(1,465,000)1 (1,155,000)1 (850,000)1

Real interest rate ................................................................................... 11,460 13,440 15,921 

(3.4) (2.9) (2.4) 

1 Amounts represent the average annual net immigration over the 75-year projection period. 

Source: 2015 OASDI Trustees Report and SSA. 

Medicare Projections 

Medicare Legislation. The Affordable Care Act as amended by the Health Care and Education Reconciliation Act of 

2010 (the “Affordable Care Act” or ACA) significantly improves projected Medicare finances. The most important cost 

saving provision in the ACA is a revision in payment rate updates for Parts A and B services other than for physicians’ 

services. Relative to payment rates made under prior law that were generally based on the rate at which prices for inputs used 

to provide Medicare services increase, the ACA reduces those payment rate updates by the rate at which productive 

efficiency in the overall economy increases, which is projected to average 1.1 percent per year over the long range. The ACA 

also achieves substantial cost savings by benchmarking payment rates for private health plans providing Parts A and B 

services (Part C or Medicare Advantage) to more closely match per beneficiary costs. Partly offsetting these changes was an 

increase in prescription drug coverage. In addition, the ACA increases Part A revenues by: (a) taxing high-cost employerprovided health care plans and thereby giving employers incentives to increase the share of compensation paid as taxable 

earnings, and (b) imposing a new 0.9 percent surtax on earnings in excess of $200,000 (individual tax return filers) or 

$250,000 (joint tax return filers) starting in 2013. 

The ACA substantially reduces the Medicare cost projections. Growth in Medicare cost per beneficiary in excess of 

growth in per capita GDP is referred to as “excess cost growth.” In the 2009 Financial Report, the last report released prior to 

the passage of the ACA, excess cost growth was assumed to average one percentage point over the last 50 years of the 75-

year projection period—that is, Medicare expenditures per beneficiary were assumed to grow, on average, about one 

percentage point faster than per capita GDP over the long range. That assumption for excess cost growth in Medicare was 
190 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

optimistic in the sense that it is smaller than in recent history; excess cost growth averaged 1.2 percentage points between 

1990 and 2013.10 In this year’s Financial Report, as in the 2013 and 2014 reports, long-term excess cost growth is essentially 

zero. As a result, the long term projected Medicare spending share of GDP in this Financial Report is driven primarily by the 

same demographic trends that drive the OASDI spending share of GDP. 

The 2015 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. In view of these issues with provider payment rates, actual future 

costs for Medicare could exceed those shown by the current-law projections that underlie both the Trustees’ Report and this 

Financial Report. 

Changes in Projection Methods. For 2015 the basis for the projections has changed since last year due to the enactment 

of the Medicare Access and CHIP Reauthorization Act (MACRA) of 2015. This law repealed the sustainable growth rate 

SGR formula that set physician fee schedule payments, which were usually modified. In the 2014 report, the income, 

expenditures, and assets for Part B reflected the projected baseline scenario, which assumed an override of the SGR payment 

provisions and an increase in the physician fee schedule equal to the average of the most recent 10 years of SGR overrides 

(through March 2015), or 0.6 percent. Since the new legislation has replaced the SGR system with specified payment updates 

for physicians, 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. 

 

10 Congressional Budget Office, the Long-Term Budget Outlook, June 2015. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 191 

Total Medicare. Chart 5 shows expenditures and current-law noninterest revenue sources for HI and SMI combined as a 

percentage of GDP. The total expenditure line shows Medicare costs rising to 6.02 percent of GDP by 2089. Revenues from 

taxes and premiums (including state transfers under Part D) are expected to increase from 1.98 percent of GDP in 2015 to 

3.01 percent of GDP in 2089. Payroll tax income increases gradually as a percent of GDP because the new tax on earnings in 

excess of $250,000 for joint tax return filers and $200,000 for individual tax return filers applies to an increasing share of 

earnings because the $250,000 and $200,000 thresholds are not indexed for price changes. Premiums combined for Parts B 

and D of SMI are approximately fixed as a share of Parts B and D costs, so they also increase as a percent of GDP. General 

revenue contributions for SMI, as determined by current law, are projected to rise as a percent of GDP from 1.54 percent to 

2.76 percent over the same period. Thus, revenues from taxes and premiums (including state transfers) will fall as a share of 

total noninterest Medicare income (from 56 percent in 2015 to 52 percent in 2089) while general revenues will rise (from 44 

percent to 48 percent). The gap between total noninterest Medicare income (including general revenue contributions) and 

expenditures is expected to increase steadily beginning in about 2022, reaching roughly 0.25 percent of GDP by 2089. 

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

as a Percent of GDP 

1970-2089 

 
192 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Medicare, Part A (Hospital Insurance)─ Income and Expenditures. Chart 6 shows historical and actuarial estimates of 

HI annual income (excluding interest) and expenditures for 1970-2089 in nominal dollars. The estimates are for the opengroup population. 

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

1970-2089 

(In billions of dollars) 

 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 193 

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 chart shows that beginning in 2022, 

the expenditure rate exceeds the income rate, and cash deficits continue thereafter. The cost rate declined from 2012 through 

2014 and is projected to continue to decline through 2018, largely due to expenditure growth that was constrained in part by 

the sequester and low payment updates, as well as a rebound of taxable payroll growth from recession levels. Subsequent to 

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 1.0 percent per year through 2024 and 1.1 percent per year thereafter. Trust fund interest earnings and assets provide

enough resources to pay full benefit payments until 2030 with general revenues used to finance interest and loan repayments 

to make up the difference between cash income and expenditures during that period. Pressures on the federal budget will thus 

emerge well before 2030. Present tax rates would be sufficient to pay 86 percent of scheduled benefits after trust fund 

exhaustion in 2030 and 84 percent of scheduled benefits in 2089. 

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

as a Percent of Taxable Payroll 

1970-2089

 
194 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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. 

Medicare Part A’s expenditures as a percentage of GDP are expected to increase steadily until about 2045, and then remain 

fairly level throughout the rest of the 75-year period, as the accumulated effects of the price update reductions are realized.

The gap between expenditure and income shares of GDP widens to 0.45 percent in 2042, remains fairly stable through 2047, 

and then commences a slight decline, reaching 0.35 percent of GDP in 2089. 

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

as a Percent of GDP 

1970-2089 

 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 195 

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. The gap between premiums, drug fees, and state transfer revenues plus program expenditures, a gap that will need to 

be filled with transfers from general revenues, grows throughout the projection period. 

Chart 9—Medicare Part B and Part D Premium and State 

Transfer Income and Expenditures 

1970-2089 

(In billions of dollars) 

 
196 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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. SMI 

expenditures as a share of GDP are expected to grow rapidly from 2.04 percent in 2015 to 2.65 percent in 2024, and then 

grow more slowly reaching 3.80 percent in 2089. The relatively high growth during the period 2015-2024 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 2025-2039 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 ultimate growth rate assumptions. As a share of GDP, premium and state transfer 

income grows from about 0.52 percent in 2015 to 1.05 percent of GDP in 2089. The portion of SMI expenditures financed by 

General Fund transfers to SMI is projected to be about 72 percent throughout the projections period. 

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

Income and Expenditures as a Percent of GDP 

1970-2089 

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 one assumption at a time is varied. 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). 

Table 3 shows the effects of changing various assumptions on the present value of estimated HI expenditures in excess 

of income (the shortfall of income relative to expenditures in present value terms). The assumptions are shown in 

parentheses. Clearly, net HI expenditures are extremely sensitive to alternative assumptions about the growth in health care 

cost. For the low-cost alternative, the slower growth in health costs causes the shortfall to drop from $3,187 billion to a 

surplus of $2,743 billion, a 186 percent change. The high-cost assumption results in more than tripling of the shortfall, from 

$3,187 billion to $12,594 billion. 

The low and high real wage growth rate scenarios result in about a -58 and +37 percent, respectively, change in the 

shortfall relative to the intermediate case. Wages are a key cost factor in the provision of health care. Higher wages also result 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 197 

in greater payroll tax income. CPI inflation, fertility, and net immigration changes have very little effect on net HI 

expenditures. (When CPI inflation is varied, the real interest rate is held constant, which implies that the nominal interest 

changes one for one with the assumed rate of CPI inflation.) Higher immigration decreases the net shortfall modestly as the 

75-year projection period captures a higher share of additional immigrants’ tax payments than it does of their benefits. 

Table 3 also shows that the present value of net HI expenditures is 15 percent lower if the real interest rate is 3.4 percent 

rather than 2.9 percent and 18 percent higher if the real interest rate is 2.4 percent rather than 2.9 percent. 

Table 3 

Present Values of Estimated Medicare Part A Expenditures in Excess of Income 

Under Various Assumptions, 2015-2089 

(Dollar values in billions; values of assumptions shown in parentheses) 

Financing Shortfall Range 

Assumption Low Intermediate High 

Average annual growth in health costs ............................................ (2,743) 3,187 12,594 

(3.0) (4.0) (5.0) 

Total fertility rate .................................................................................. 2,793 3,187 3,547 

(2.2) (2.0) (1.8) 

Real wage differential ......................................................................... 1,326 3,187 4,365 

(1.8) (1.2) (0.6) 

CPI change ........................................................................................... 2,386 3,187 4,221 

(3.4) (2.7) (2.0) 

Net immigration ................................................................................... 2,981 3,187 3,455 

(1,465,000)4 (1,155,000)4 (850,000)4

Real interest rate ................................................................................. 2,704 3,187 3,774 

(3.4) (2.9) (2.4) 

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. 
198 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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 $17,466 billion to $12,792 billion and in Part D from $7,287 

billion to $5,190 billion, about a 27 percent and 29 percent difference for Part B and Part D, respectively. The high-cost 

assumption increases governmentwide resources needed to $24,693 billion for Part B and to $10,600 billion for Part D, about 

a 41 percent and a 45 percent difference for Part B and Part D, respectively.

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, 2015-2089 

(In billions of dollars) 

Governmentwide Resources Needed 

Low Intermediate High 

Medicare Program (3.3) (4.3) (5.3) 

Part B ............................................................................................................ 12,792 17,466 24,693 

Part D ............................................................................................................ 5,190 7,287 10,600 

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 2015 Medicare Trustees Report, the HI Trust Fund is projected to remain solvent until 2030 and, 

according to the 2015 Social Security Trustees Report, the OASI and DI Trust Funds are projected to have asset reserves 

until 2035 and the fourth quarter of 2016, respectively. The impending depletion of the DI Trust Fund was temporarily 

circumvented, however, by the passing of the Bipartisan Budget Act of 2015 by Congress and the President, which 

reallocated a portion of the payroll tax rate from the OASI Trust Fund to the DI Trust Fund. This reallocation is expected to 

ensure full payment of disability benefits into 2022. 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 unified 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. 

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 $3,187 billion in present value terms which is the additional amount needed in order to pay scheduled 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 199 

benefits over the next 75 years.11 From the trust fund perspective, the amount needed is $2,990 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 $24,753 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 

accounts to meet program costs.12 For OASDI, projected revenues from the public fall short of total expenditures by $13,440 

billion in present value dollars, and, from the trust fund perspective, by $10,651 billion. 

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 $41,379 billion. From the trust fund perspective, which counts the trust funds ($3,055 billion in present value)

and the general revenue transfers to the SMI Program ($24,753 billion in present value) as dedicated funding sources, 

additional resources needed to fund the programs are $13,571 billion in present value.

Table 5 

Present Values of Costs Less Revenues of 75-Year Open Group Obligations 

HI, SMI, and OASDI 

(In billions of dollars, as of January 1, 2015) 

SMI 

HI Part B Part D OASDI Total 

Revenues from the public: 

Taxes ................................................................................. 17,902 - - 55,537 73,439

Premiums, State transfers .............................................. - 6,529 2,869 - 9,398

Total ................................................................................... 17,902 6,529 2,869 55,537 82,837

Total costs to the public ................................................... 21,089 23,995 10,156 68,976 124,216

Net results - budget perspective* ................................... 3,187 17,466 7,287 13,440 41,379

Revenues from other Government accounts .............. - 17,466 7,287 - 24,753

Trust fund balances as of 1/1/2015 ............................... 197 68 1 2,789 3,055

Net results - trust fund perspective* .............................. 2,990 (68) (1) 10,651 13,571

*Net results are computed as costs less revenues and trust fund balances. Negative values are indicative of surpluses. 

Note: Details may not add to totals due to rounding. 

Source: 2015 OASDI and Medicare Trustees' Report 

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 $13.4 trillion in present value will be needed above 

currently scheduled taxes to pay for scheduled benefits ($10.7 trillion from the trust fund perspective). Yet, a 75-year 

projection can be a misleading indicator of all future financial flows. For example, when calculating unfunded obligations, a 

75-year horizon includes revenue from some future workers but only a fraction of their future benefits. In order to provide a 

more complete estimate of the long-run unfunded obligations of the programs, estimates can be extended to the infinite 

horizon. 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. 

 

11 Interest income is not a factor in this table as dollar amounts are in present value terms. 12 The SMI Trust Fund has $69 billion of existing assets. 
200 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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 $72.0 trillion in present value terms. This need can be satisfied only through increased borrowing, higher taxes, reduced 

program spending, or some combination. 

The second line shows the value of the trust fund at the beginning of 2015. 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 $25.7 trillion is needed to sustain the OASDI program into the infinite future, while an 

additional $0.01 trillion is needed to sustain the HI program. 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 2030. 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 ($28.2 

trillion and $14.9 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 2089, 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 

(In trillions of dollars as of January 1, 2015) 

SMI 

 HI Part B Part D OASDI Total 

Present value of future costs less future 

taxes, premiums, and state transfers for 

current participants ............................................... 8.8 14.8 5.2 29.5 58.3

Less current trust fund balance .......................... 0.2 0.1 - 2.8 3.1

Equals net obligations for past and current 

participants ............................................................ 8.6 14.7 5.2 26.7 55.2

Plus net obligations for future participants ........ (8.5) 13.5 9.7 (1.0) 13.7

Equals net obligations through the infinite 

future for all participants ...................................... 0.1 28.2 14.9 25.7 68.9

Present values of future costs less the 

present values of future income over the 

infinite horizon ....................................................... 0.3 28.3 14.9 28.5 72.0

Details may not add to totals due to rounding. 

Source: 2015 OASDI and Medicare Trustees' Reports. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 201 

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 program separate from the Social Security Program. 

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. 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. Tier II taxes finance railroad retirement 

benefit payments that are higher than Social Security levels. 

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 

(provided after 1974 as part of a phase out of certain vested dual benefits). See Note 23—Social Insurance, for additional 

information on railroad retirement program financing. 

Amounts in the Railroad Retirement Account and the SSEB Account that are not needed to pay current benefits and 

administrative expenses may be transferred to the NRRIT or used to offset transfers from the NRRIT to the Railroad 

Retirement Account. The NRRIT’s sole purpose is to manage and invest railroad retirement assets. NRRIT’s Board of 

Trustees is empowered to invest trust assets in nongovernmental assets, such as equities and debt, as well as in Government 

securities. 

Since its inception, NRRIT has received $21.3 billion from RRB (including $19.2 billion in fiscal year 2003, 

pursuant to RRSIA) and returned $17.8 billion. During fiscal year 2015, the NRRIT made net transfers of $1.2 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, 2015, and 2014, of non-federal securities and investments of the NRRIT are disclosed in Note 7—Debt and 

Equity Securities. 

Cash Flow Projections 

Economic and Demographic Assumptions. The economic and demographic assumptions used for the most recent set of 

projections are shown in the “Railroad Retirement” section of Note 23—Social Insurance.

Income and Expenditures. Chart 11 shows, in dollars, estimated railroad retirement income (excluding interest and 

financial interchange income) and expenditures for the period 2015-2089 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 are projected to 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. 
202 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Chart 11—Estimated Railroad Retirement Income 

(Excluding Interest and Financial Interchange Income) and Expenditures 

2015-2089 

(In billions of dollars) 

As Chart 11 shows, expenditures are expected to exceed tax income for the entire projection period. The imbalance 

generally grows at a moderate amount until about 2082 when it begins to grow a little more rapidly.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 203 

Income and Expenditures as a Percent of Taxable Payroll. Chart 12 shows estimated expenditures and income as a 

percent of Tier II taxable payroll. Expenditures as a percentage of payroll range between 67% and 71% until 2058, after 

which the percentage decreases from one year to the next. This is largely due to the anticipated decline in the number of 

annuitants per full-time employee. 

Chart 12—Estimated Railroad Retirement Income 

(Excluding Interest and Financial Interchange Income) and Expenditures 

as a Percent of Tier II Taxable Payroll 

2015-2089 

 
204 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Sensitivity Analysis. Actual future income from railroad payroll taxes and other sources and actual future expenditures 

for scheduled benefits and administrative expenses will depend upon a large number of factors as mentioned above. Two 

crucial assumptions are employment growth and the interest rate. The interest rate assumption reflects the expected rate of 

return on NRRIT investments. Table 7 shows the sensitivity of the shortfall in the Railroad Retirement Program to variations 

in these two assumptions. The low-cost employment scenario has a 7.0 percent smaller shortfall of income to expenditures, 

and the high-cost scenario has a 6.9 percent higher shortfall. A higher discount rate reduces future values relative to a lower

rate. As seen in the table, the shortfall is 27.8 percent lower if the interest rate is 10.0 percent rather than 7.0 percent and 71.5 

percent higher when the interest rate is 4.0 percent rather than 7.0 percent. 

Table 7 

Present Values of Railroad Retirement Expenditures in Excess of Income 

Under Various Employment and Interest Rate Assumptions, 2015-2089 

(Dollar values in billions; values of assumptions shown in parentheses) 

Assumption Low Middle High 

Employment1 ................................................................... 102.1 109.8 117.4 

 (-0.5%) (-2.0%) (-3.5%) 

 

Interest rate ...................................................................... 79.3 109.8 188.3 

(10.0%) (7.0%) (4.0%) 

1 The low and middle employment scenarios have passenger service employment remaining at 46,000 workers per year and the remaining 

employment base declining at 0.5 percent and 2.0 percent, respectively, for 25 years, at a reducing rate over the next 25 years, and 

remaining level thereafter. The high-cost scenario has passenger service employment declining by 500 workers per year until a level of 

35,000 is reached with the remaining employment base declining by 3.5 percent per year for 25 years, at a reducing rate over the next 25 

years, and remaining level thereafter. 

Source: Railroad Retirement Board 

Sustainability of Railroad Retirement 

Table 8 shows the magnitudes of the primary expenditures and sources of financing for the Railroad Retirement 

Program computed on an open-group basis for the next 75 years and expressed in present values as of January 1, 2015. The 

data are consistent with the Statements of Social Insurance. 

From a governmentwide perspective, revenues are expected to fall short of expenditures by approximately $109.8 

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 and the financial interchange and transfers are included, the combined balance of the 

NRRIT, the Railroad Retirement Account, and the SSEB Account show a slight surplus.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 205 

Table 8 

Present Values of 75-Year Projections of Revenues and Expenditures for the 

Railroad Retirement Program1,2

(In billions of present-value dollars as of January 1, 2015) 

Estimated future income (excluding interest) received from or on behalf of: 3

Current participants who have attained retirement age .................................................................. 8.0

Current participants not yet having attained retirement age........................................................... 66.4

Those expected to become participants ........................................................................................... 78.5

All participants ...................................................................................................................................... 152.9

Estimated future expenditures: 4

Current participants who have attained retirement age ................................................................... 130.6

Current participants not yet having attained retirement age .......................................................... 97.2

Those expected to become participants ........................................................................................... 34.9

All participants ...................................................................................................................................... 262.7

Net obligations from budget perspective (expenditures less income).............................................. 109.8

Railroad retirement program assets (mostly investments stated at market) 5 ............................. 27.6

Financial interchange from Social Security Trust ............................................................................ 83.7

Net obligations from trust fund perspective ......................................................................................... (1.5)

1 Represents combined values for the Railroad Retirement Account, SSEB Account, and NRRIT, based on middle 

employment assumption. 

2

The data used reflect the provisions of RRSIA of 2001. 

3 Future income (excluding interest) includes Tier I taxes, Tier II taxes, and income taxes on benefits. 

4 Future expenditures include benefits and administrative expenditures. 

5 The value of the fund reflects the 7.0 percent interest rate assumption. The RRB uses the relatively high rate due 

to investments in private securities. 

Note: Detail may not add to totals due to rounding. Employee and beneficiary status are determined as of 1/1/2014, 

whereas present values are as of 1/1/2015. 

Source: Railroad Retirement Board 

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 to eligible survivors of coal miners who died due to 

pneumoconiosis. DOL operates the Black Lung Disability Benefit Program. The beneficiary population is a nearly closed 

universe in which attrition by death exceeds new entrants by a ratio of more than ten to one. 

Excise taxes on coal mine operators, based on the domestic sale of coal, are the primary source of financing black lung 

disability payments and related administrative costs. The Black Lung Benefits Revenue Act provided for repayable advances 

to the BLDTF from the General Fund, in the event that BLDTF resources were not adequate to meet program obligations. 
206 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Prior to legislation enacted in 2008 that allowed for the restructuring of BLDTF debt, the trust fund had accumulated large 

liabilities from significant and growing shortfalls of excise taxes relative to benefit payments and interest expenses. 

The Energy Improvement and Extension Act of 2008 (Public Law 110-343), enacted on October 3, 2008, contained 

several provisions that significantly improved the BLDTF’s financial position, including: 

 Continuation of a previously-enacted increase in coal excise tax rates for an additional 5 years, through 

December 2018; 

 Provision for the restructuring of BLDTF debt by refinancing the outstanding repayable advances with proceeds 

from issuing new debt instruments with lower interest rates; and 

 Establishment of a one-time appropriation that significantly reduced the outstanding debt of the BLDTF. 

This Act also allowed that any debt issued by the BLDTF subsequent to the refinancing 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. 

On September 30, 2015, total liabilities of the BLDTF exceeded assets by $5.6 billion. Prior to the enactment of Public 

Law 110-343, this shortfall was funded by repayable advances to the BLDTF, which were repayable with interest. Pursuant 

to Public Law 110-343, these repayable advances were restructured as zero coupon bonds and any future shortfall is financed 

with one-year borrowing from Treasury. 

From the budget or consolidated financial perspective, Chart 13 shows projected black lung expenditures (excluding 

interest) and excise tax collections for the period 2016-2040 in constant dollars. The significant assumptions used in the most

recent set of projections, in constant dollars, are coal excise tax revenue estimates, the tax rate structure, the number of 

beneficiaries, life expectancy, federal civilian pay raises, medical cost inflation, the interest rate on new debt issued by the 

BLDTF, and the CPI-U for goods and services. The projected excise tax collections reflect, among other things, regulation 

pursuant to the Clean Power Plan. The projected decrease in cash inflows in the year 2019 and thereafter is the result of a 

scheduled reduction in the tax rate on the sale of coal. This rate reduction is projected to result in a 39.6 percent decrease in 

the amount of excise taxes collected between the years 2018 and 2019. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 207 

Chart 13—Estimated Black Lung Disability Trust Fund Income and Expenditures (Excluding Interest) 

In Constant (or Inflation-Adjusted) Dollars 

2016-2040 

(In millions of dollars) 

 
208 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Table 9 

Present Values of 25-Year Projections of Expenditures and Revenues 

for the Black Lung Disability Trust Fund 

(in billions of present value dollars as of September 30, 2015) 

Projected future expenditures ................................................................................................................ 3.1

Projected future tax income .................................................................................................................... 4.7

Net obligations from budget perspective (expenditures less income) ............................................. (1.6)

Accumulated balance due General Fund ............................................................................................ 5.6

Net obligations from trust fund perspective ......................................................................................... 4.0

Note: Detail may not add to totals due to rounding. 

Source: Department of Labor 

Table 9 shows present values of 25-year projections of expenditures and revenues for the Black Lung Disability Trust 

Fund computed as of September 30, 2015. Cash flows were discounted using a rate of 2.25 percent. From a governmentwide 

(budget) perspective, the present value of expenditures is expected to be less than the present value of income by $1.6 billion

(a surplus). From a trust fund perspective, a large balance ($5.6 billion) is owed to the General Fund. From that perspective, 

when that accumulated balance is combined with the cash flow surplus, the program has a shortfall of $4.0 billion in present 

value dollars. 

Unemployment Insurance 

The Unemployment Insurance Program was created in 1935 to provide temporary partial wage replacement to workers 

who lost their jobs. The program is administered through a unique system of federal and state partnerships established in 

federal law but administered through conforming state laws by state agencies. The program includes the 50 states and Puerto 

Rico, U.S. Virgin Islands, and the District of Columbia. DOL interprets and enforces federal law requirements and provides 

broad policy guidance and program direction, while program details such as benefit eligibility, duration, and amount of 

benefits are established through individual state unemployment insurance statutes and administered through state 

unemployment insurance agencies. 

The program is financed through the collection of federal and state unemployment taxes that are credited to the UTF 

and reported as federal tax revenue. The fund was established to account for the receipt, investment, and disbursement of 

unemployment taxes. Federal unemployment taxes are used to pay for federal and state administration of the Unemployment 

Insurance Program, veterans’ employment services, state employment services, and the federal share of extended 

unemployment insurance benefits. Federal unemployment taxes also are used to maintain a loan account within the UTF, 

from which insolvent state accounts may borrow funds to pay unemployment insurance benefits. 

Chart 14 shows the projected cash contributions and expenditures over the next 10 years under expected economic 

conditions (described below) in constant dollars. The significant assumptions used in the projections 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 Consumer 

Price Index for goods and services. These projections, excluding interest earnings, indicate a positive net cash flow in fiscal

year 2016 through fiscal year 2025. 

The Federal/State Extended Unemployment Compensation Act of 1970 provides for the extension of the duration of 

unemployment insurance benefits during periods of high unemployment to individuals who have exhausted their regular 

unemployment benefits. When the insured unemployment level within a state, or in some cases total unemployment, reaches 

certain specified levels, the state must extend benefit duration by 50 percent, up to a combined maximum of 39 weeks; 

certain states voluntarily extended the benefit duration up to a combined maximum of 46 weeks. These extended benefits are 

financed one-half by state unemployment taxes and one-half by federal unemployment taxes. However, the American 

Recovery and Reinvestment Act of 2009 (ARRA) began temporary 100 percent federal funding of extended benefits. 

Subsequent legislation, most recently P.L. 112-240, the American Taxpayer Relief Act of 2012, authorized continuing 100 

percent federal funding of extended unemployment benefits to December 31, 2013. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 209 

During prolonged periods of high unemployment, Congress may authorize the payment of emergency unemployment 

benefits to supplement extended Unemployment Insurance (UI) benefit payments. Emergency benefits began in July 2008, 

authorized under the Supplemental Appropriations Act, 2008. This emergency program was temporarily extended and 

additionally funded by the ARRA of 2009 and has been subsequently modified several times, most recently by P.L. 112-240, 

the American Taxpayer Relief Act of 2012, which extended the emergency unemployment insurance program to January 1, 

2014. The DOL’s appropriations decreased $12.5 billion, or 21.1 percent, in fiscal year 2015 primarily due to decreases in 

transfers to the UTF for Emergency Unemployment Compensation due to decrease in benefit costs. DOL’s borrowing 

authority also decreased $2.7 billion, or 100 percent. A $15.5 billion dollar decrease in benefit outlays from the prior year 

also resulted in part due to the discontinuance of the federally funded Emergency Unemployment Compensation program, as 

well as a decline in the number of new claims, and the absence of states meeting the trigger thresholds required to pay 

extended benefits.

Chart 14—Estimated Unemployment Trust Fund Cash Flow 

Using Expected Economic Conditions 

In Constant (or Inflation-Adjusted) Dollars 

2016-2025 

(In billions of dollars) 

Table 10 shows 10-year projections of revenues and expenditures for the Unemployment Insurance Program in constant 

dollars. Three sets of numbers are presented in order to show the effects of varying economic conditions as reflected in 

different assumptions about the unemployment rate. For expected economic conditions, the estimates are based on an 

unemployment rate of 4.95 percent during fiscal year 2016, and remaining between 4.6 percent and 4.9 percent thereafter. 

Under Sensitivity Analysis I which utilizes a higher unemployment rate of 6.3 percent beginning in fiscal year 2016, net cash 

inflows are negative in fiscal years 2017 and 2018, but become positive in fiscal year 2019, and continue to be positive 

through 2025. Under Sensitivity Analysis II, which utilizes a higher unemployment rate of 6.36 percent in fiscal year 2016, 

net cash inflows including interest earnings and expenses, are projected in fiscal year 2016, but outflows exceed inflows in 

fiscal years 2017, 2018, and 2019 by $17.7 billion, $26.5 billion, and $8.4 billion, respectively. Net cash inflows are 

reestablished in fiscal year 2020 and peak in fiscal year 2025 with a drop in the unemployment rate to 7.32 percent in fiscal 

year 2020 and then steadily downward for fiscal years 2021 through 2025. 

Each analysis uses an open group that includes current and future participants of the Unemployment Insurance Program. 

Table 10 shows the impact on the UTF projections of varying projected unemployment rates. For example, in Sensitivity 

Analysis II, while tax income is projected to increase as higher layoffs result in higher employer taxes, benefit outlays 
210 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

increase even more. From the Governmentwide (budget) perspective, under expected conditions, future cash income exceeds 

future expenditures by $89.7 billion. From the same perspective, under Sensitivity Analysis II, future cash income exceeds 

future expenditures by $2.5 billion. From a trust fund perspective, which takes into account the $31.2 billion trust fund 

balance, the program has a surplus of $73.6 billion under the economic conditions for Sensitivity Analysis I. 

Table 10 

10-Year Projections of Expenditures and Revenues for 

Unemployment Insurance in Constant (or Inflation-Adjusted) Dollars 

Under Three Alternative Analyses for Economic Conditions 

(in billions as of September 30, 2015) 

Economic Conditions 

Sensitivity Sensitivity

Expected Analysis I Analysis II

Projected future expenditures .......................................................... 368.9 499.3 608.0

Projected future cash income ........................................................... 458.5 541.7 610.5

Net obligations from budget perspective (expenditures less 

income) ................................................................................................ (89.7) (42.4) (2.5)

Trust fund assets ................................................................................ 31.2 31.2 31.2

Net obligations from trust fund perspective 1 ................................. (120.9) (73.6) (33.7)

1

Net obligations from the trust fund perspective equals net obligations from the budget 

perspective minus trust fund assets. The negative values in this line are indicative of surpluses. 

Note: Data may not add to totals due to rounding. 

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 a state is minimally solvent. States below this level are vulnerable to exhausting their funds in a recession. States

exhausting their reserve balance borrow funds from the Federal Unemployment Account (FUA) to make benefit payments. 

During fiscal year 2009, the balances in the FUA were depleted; the FUA borrowed from the General Fund and continued to 

do so through fiscal year 2015, although in fiscal year 2015 the FUA repaid all its outstanding borrowings. 

Chart 15 presents the state by state results of this analysis as of September 30, 2015. As the chart illustrates, 32 state 

funds plus the fund of the Virgin Islands were below the minimal solvency ratio of 1.0 at September 30, 2015. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 211 

Chart 15—Unemployment Trust Fund Solvency as of September 30, 2015 

 
212 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 for FY 2015 reporting 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. The single estimate is presented instead of reporting condition information and low-high 

deferred maintenance and repairs estimates. The significant change in the total amount of deferred maintenance and repairs 

from FY 2014 is mainly due to the increase in deferred maintenance and repairs at the Department of Defense. DOD’s 

deferred maintenance and repairs increased by more than $24.6 billion, since FY 2014. This is largely attributable to DOD’s 

ongoing efforts to validate existence and completeness and improve validation of assets, and ensure consistency in 

accounting and reporting maintenance costs across the Military Services and other Defense organizations. 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 FY 2015 deferred maintenance and 

repairs. 

Deferred Maintenance and Repairs (Single Estimate) as of September 30, 2015 

(In billions of dollars) 2015 

Asset category: 

General property, plant, and equipment ........................................................................................................ 167.5

Heritage assets .................................................................................................................................................. 15.6

Stewardship land ............................................................................................................................................... 0.4

 Total deferred maintenance and repairs ..................................................................................................... 183.5

The following table for FY 2014 reporting of deferred maintenance and repairs represents the range of estimates for FY 

2014. These amounts were all measured using the condition assessment survey method. The standards for acceptable 

operating condition, the changes in these standards, and changes in asset condition varied widely between federal entities. 

Some deferred maintenance and repairs were deemed critical. In FY 2014 such amounts and conditions were defined by 

the individual agencies with responsibility for the safekeeping of the assets. The critical maintenance amount was not 

included in the low or high estimates amounts and was reported separately. Low and high estimates were based on materiality 

of the estimated cost of returning the asset to the acceptable condition versus the total value of the corresponding asset. 

Single figure cost estimates were not prepared for FY 2014. Therefore, the information is not available to compare directly to 

amounts reported for FY 2015. Please refer to the individual financial statements of DOI, DOD, USDA, DOE, HHS, NASA, 

and VA for detailed significant information on FY 2014 deferred maintenance and repairs. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 213 

Deferred Maintenance and Repairs as of September 30, 2014 

Cost Range 

Low High Critical 

Estimate Estimate Maintenance

(In billions of dollars) 2014 2014 2014 

Asset category: 

Buildings, structures, and facilities .............................................................. 27.4 31.2 103.7

Furniture, fixtures, and equipment .............................................................. 0.2 0.2 1.8

Other general property, plant, and equipment .......................................... 7.7 7.7 0.9

Heritage assets .............................................................................................. 6.2 8.6 5.0

Total deferred maintenance and repairs ................................................. 41.5 47.7 111.4

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 

$2.1 billion and $3.1 billion for fiscal years 2015 and 2014, respectively. For those under appeal, the estimated payout is $2.7 

billion and $4.7 billion for fiscal years 2015 and 2014, 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, 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. 

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 $82.1 billion and $88.8 billion for fiscal years 2015 

and 2014, 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 $138.0 billion for both fiscal years 2015 and 2014. 
214 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Risk Assumed 

Risk assumed information is important for all federal insurance and guarantee programs (i.e., USDA-Federal Crop 

Insurance Corporation programs, DHS-National Flood Insurance Program, NCUA-Credit Unions), except social insurance, 

life insurance, and loan guarantee programs. Risk assumed is generally measured by the present value of unpaid losses net of 

associated premiums, based on the risk inherent in the insurance or guarantee coverage in force. In addition to the liability for 

unpaid insurance claims included in Note 15─Insurance and Guarantee Program Liabilities, for events that have already 

occurred, the Government also is required to report as supplementary information risk assumed amounts and the periodic 

changes in those amounts. 

The assessments of losses using the risk assumed are made by actuarial or financial methods that include information 

and assumptions applicable to the economic, legal, and policy environment in force at the time the assessments are made. 

Management has estimated the loss amounts based on the risk assumed as well as the periodic changes. 

 Please refer to the individual financial statements of the USDA, DHS, and NCUA for further detailed information, 

including information as to the indicators of the range of uncertainty around expected estimates and the indicators of the 

sensitivity of the estimates to changes in major assumptions. The table does not include all federal insurance and guarantee 

programs.

Risk Assumed Information as of September 30, 2015, and 2014 

(In billions of dollars) 2015 2014

Present value of unpaid losses, net of associated premiums: 

Department of Agriculture - Federal Crop Insurance Corporation 

programs ....................................................................................................... 7.6 7.6

Department of Homeland Security - National Flood Insurance 

program......................................................................................................... - 0.4

National Credit Union Administration - Credit Unions ............................ 0.2 0.2

 Total ............................................................................................................ 7.8 8.2

Period changes in risk assumed amounts: 

Department of Agriculture .......................................................................... - 2.7

Department of Homeland Security............................................................ (0.4) (0.2)

 Total ............................................................................................................ (0.4) 2.5
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 215 

Federal Oil and Gas Resources 

DOI plays an integral part in the implementation of the President’s Blueprint for a Clean and Secure Energy Future, 

designed to build a safe, secure energy future by using cleaner, alternative fuels to power our homes and economy, producing 

more oil and gas domestically, and improving energy efficiency. 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, 2015, and 2014 

(In billions of dollars) Offshore Onshore Total 

2015 2014 2015 2014 2015 2014

Oil and lease condensate...................... 31.6 39.6 14.8 15.5 46.4 55.1

Natural gas, wet after lease 

separation ................................................ 2.8 4.5 14.1 19.2 16.9 23.7

Total ...................................................... 34.4 44.1 28.9 34.7 63.3 78.8

The above table presents the estimated present value of future federal royalty receipts on estimated proved reserves13 as 

of September 30, 2015 and 2014. 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 directly 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 2013, 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.

 

13 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 

(http://www.eia.gov/naturalgas/data.cfm). 
216 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

 Estimated Federal Oil and Gas Petroleum Royalties (Proved Reserves) 

 As of September 30, 2015, and 2014 

Average Purchase Average Royalty 

Quantity (in millions) Price ($) Rate (%) 

 Petroleum Category 2015 2014 2015 2014 2015 2014 

Oil and lease condensate (Bbl): 

 Offshore .................................................. 4,623.6 4,917.4 56.45 99.17 13.42 13.60 

 Onshore .................................................. 2,377.1 2,147.1 49.95 90.03 12.26 12.15 

Total ...................................................... 7,000.7 7,064.5

 

 

Natural gas, wet after lease 

separation (Mcf): 

 Offshore .................................................. 6,858.8 8,587.3 3.25 4.93 12.84 13.52 

 Onshore .................................................. 46,310.8 48,098.6 3.14 4.80 10.11 10.63 

Total ...................................................... 53,169.6 56,685.9

 

 

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 2015 and 2014.14 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. 

 

14 Gulf of Mexico proved reserves are royalty bearing volumes. In the Gulf of Mexico, an additional 879.0 million Bbl for fiscal year 2015 and 564.1 

million Bbl for fiscal year 2014 of proved oil reserves, and 1,097.0 million Mcf for fiscal year 2015 and 728.0 million Mcf for fiscal year 2014 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 $6.5 billion for fiscal year 2015 and $5.3 billion for 

fiscal year 2014. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 217 

Federal Natural Resources Other than Oil and Gas 

Federal Natural Resources Other than Oil and Gas as of September 30, 2015, and 2014 

(in billions of dollars) 

Natural Resource Category 2015 2014

Coal royalties ........................................................................................................... 10.5 12.0

Total........................................................................................................................ 10.5 12.0

 DOI plays an integral part in the implementation of the President’s Blueprint for a Clean and Secure Energy Future

which is designed to build a safe, secure energy future by using cleaner, alternative fuels to power our homes and economy, 

producing more oil and gas domestically and improving energy efficiency. DOI is responsible for managing the Nation’s coal 

resources and revenues on federal lands. 

 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, 2015 and 2014. 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. 
218 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

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 OTHER INFORMATION (UNAUDITED) 219 

United States Government 

Other Information (Unaudited) for the 

Years Ended September 30, 2015, and 2014 

Unexpended Balances of Budget Authority 

The President’s budget and the federal budget process largely use a distinct administrative process of accounting, 

through which federal agencies control, monitor, and report on the status of funds at their disposal. Government agencies can 

be granted authority to enter into obligations that result in immediate or future outlays by law; this authority is known as 

budget authority. Unexpended balances of budget authority consist of the unobligated and obligated, but unliquidated 

balances. 

Unobligated balances, including amounts for trust funds, are the cumulative amount of budgeted balances that are not 

contractually committed or bound legally by the government and that remain available for obligation. At the end of each 

fiscal year, unobligated balances that are still available for new obligations are carried forward to the start of the next fiscal 

year. Unobligated balances that are expiring (i.e., are not available for new obligation) are canceled and not carried forward 

to the start of the next fiscal year. The total unobligated balances as of September 30, 2015, and 2014, are $896.0 billion and

$871.6 billion, respectively. 

Obligated balances refer to the balances where there have been legally binding action but for which payment has not yet 

been made; however, payment will be required in the future. By law, obligated balances are either no-year, or available to 

pay unpaid expenses (normally for five expired years, after which the obligated balances are canceled). In no-year accounts, 

the unobligated balance is carried forward until specifically rescinded by law, or the head of the agency concerned determines 

that the purposes for which it was provided have been accomplished and disbursements have not been made against the 

appropriation for two consecutive years. Therefore, the obligated balances that are still available are carried forward to the 

start of the next fiscal year. The total obligated balances as of September 30, 2015, and 2014, are $1,413.5 billion and 

$1,399.5 billion, respectively. 

The President’s Fiscal Year 2017 Budget (issued on February 9, 2016) is located at www.whitehouse.gov/omb and 

includes the actual unexpended balances of budget authority for fiscal year 2015 in the supplemental materials section under 

“Balances of Budget Authority.” 

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.
220 OTHER INFORMATION (UNAUDITED) 

Individual Income Tax Liability for Tax Year 2013 

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 ....................... 37,255 76,709 2,093 2,059 56 2.7%

$15,000 under $30,000 ........ 30,556 671,851 18,614 21,988 609 2.8%

$30,000 under $50,000 ........ 25,753 1,008,621 55,379 39,165 2,150 5.5%

$50,000 under $100,000 ...... 31,803 2,272,956 198,233 71,470 6,233 8.7%

$100,000 under $200,000 .... 16,426 2,209,424 278,504 134,508 16,955 12.6%

$200,000 under $500,000 .... 4,488 1,277,489 250,646 284,645 55,848 19.6%

$500,000 or more .................. 1,070 1,576,579 431,571 1,473,438 403,337 27.4%

 Total .................................... 147,351 9,093,629 1,235,040

Corporation Income Tax Liability for Tax Year 2012 

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 ....................................... 16,712 4,788 28.7%

$1 under $500 ................................... 7,196 1,433 19.9%

$500 under $1,000 ........................... 3,521 785 22.3%

$1,000 under $5,000 ........................ 11,870 3,433 28.9%

$5,000 under $10,000 ..................... 7,557 2,438 32.3%

$10,000 under $25,000 ................... 12,705 4,107 32.3%

$25,000 under $50,000 ................... 11,352 3,690 32.5%

$50,000 under $100,000 ................. 14,208 4,595 32.3%

$100,000 under $250,000 ............... 25,864 8,190 31.7%

$250,000 under $500,000 ............... 29,767 9,297 31.2%

$500,000 under $2,500,000 ............ 122,526 36,757 30.0%

$2,500,000 or more .......................... 886,522 188,341 21.2%

 Total .............................................. 1,149,800 267,854
 OTHER INFORMATION (UNAUDITED) 221 

Tax Gap 

The tax gap is the difference between what taxpayers should pay and what they actually pay on time. The tax gap, about 

$450.0 billion based on updated fiscal year 2006 estimates, represents the amount of noncompliance with the tax laws. 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 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 noncompliance). 

 
222 OTHER INFORMATION (UNAUDITED) 

Unmatched Transactions and Balances 

Fiscal Year Fiscal Year 

(in millions of dollars) 2015 2014 

Change in intragovernmental unmatched balances: 

Debt/investment ................................................................................. (32.0) 25.2

Interest payable/receivable .............................................................. 1.8 0.7

Accounts payable/receivable capital transfers** ........................... 2.8 4,812.0

Loans payable/receivable................................................................. (1.6) (8.7)

Benefit program contributions payable/receivable........................ 33.7 106.3

Accounts payable/receivable ........................................................ 314.4 (318.6)

Advances from/to others & deferred credits/prepayments .......... (295.6) 209.4

Transfers payable/receivable ........................................................... 24.0 10.2

Other assets/liabilities** .................................................................... (4,360.1) 2,405.6

Fund balance with Treasury ............................................................. (11,961.6) (5,980.5)

Asset for custodial and non-entity asset/liability** ........................ (12,065.1) 279.0

(28,339.3) 1,540.6

 

Unmatched intragovernmental transactions: 

Federal securities interest revenue/expense-investment 

exchange ............................................................................................ 4.0 73.5

Borrowings interest revenue/expense-exchange ......................... (36.4) (31.4)

Borrowings gains/losses ................................................................... 903.7 583.0

Nonexpenditure transfers-in/out ...................................................... (99.8) (1,473.1)

Expenditure transfers-in/out ............................................................. 643.2 (131.4)

Nonexpenditure transfers-in/out capital transfers** ...................... 5.9 292.8

Transfers-in/out without reimbursement......................................... 157.0 127.2

Imputed financing source/cost ......................................................... (55.7) (18.7)

Benefit program revenue/cost ......................................................... (938.6) (1,277.7)

Nonreciprocating** ............................................................................ 58,767.6 737,548.5

Appropriations used* ......................................................................... (28,928.3) -

Appropriations received/warrants issued ....................................... 5,835.6 55,219.0

Appropriations of unavailable special or trust fund receipts 

transferred out/in ................................................................................ (0.2) 0.9

Custodial and non-entity collections transferred out/in ................ (2,886.5) (7,431.5)

Other taxes and receipts/trust fund warrants ................................ (2,984.6) (19,053.9)

Accrual amounts collected/transferred in** .................................... (6,382.3) 126.5

Other**................................................................................................. (772.5) (748,682.6)

23,232.1 18,817.3

Unmatched transactions and balances, net ..................................... (5,107.2) 20,357.9

( ) Parentheses indicate a decrease to Net Position. 

 * The fiscal year 2014 amount for appropriations used is included under "Appropriations received/warrants issued." 

** The fiscal year 2014 amounts were previously reported under "Other General Fund transactions." 
 OTHER INFORMATION (UNAUDITED) 223 

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. Prior to fiscal year 2015, unmatched 

transactions and balances related to the General Fund were reported in a separate section of the table. In fiscal year 2015, the 

presentation of the “Unmatched Transactions and Balances” table was modified to reflect two sections instead of three, 

incorporating the General Fund with the other intragovernmental activity and balances. 

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 reconciled. 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 reconcile intragovernmental transactions. The federal 

community considers the identification and accurate reporting of intragovernmental activity a priority. 
224 OTHER INFORMATION (UNAUDITED) 

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 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 225 

United States Government 

Required Supplementary Stewardship 

Information (Unaudited) for the Years 

Ended September 30, 2015, and 2014 

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, 2011, through 2015 

Fiscal Fiscal Fiscal Fiscal Fiscal 

Year Year Year Year Year 

(In billions of dollars) 2015 2014 2013 2012 2011 

Investments in non-federal physical property .. 64.8 65.6 66.1 68.1 69.9

Investments in human capital ............................. 97.8 108.5 58.7 87.1 91.9

Research and development: 

Investments in basic research ......................... 29.4 34.0 35.2 34.2 35.7

Investments in applied research ..................... 28.8 28.1 28.0 29.1 28.8

Investments in development ............................ 63.3 61.8 64.1 67.0 71.7

Total investments ........................................... 284.1 298.0 252.1 285.5 298.0
226 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, EPA, and HUD had $55.2 billion (85 percent), $3.7 billion (6 

percent), and $3.5 billion (5 percent), respectively, of the total non-federal physical property investments in fiscal year 2015 

as shown in the table. Within DOT, the Federal Highway Administration invested $40.8 billion during fiscal year 2015, 

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 $71.8 billion (73 percent), $14.0 billion (14 percent), and $6.2 billion (6 percent), 

respectively, of the total human capital investments in fiscal year 2015 as shown in the table. In comparison over the past five 

years, Education had an increase in human capital investments in fiscal year 2014 primarily due to the acquisition of the 

Health Education Assistance Loan Program (HEAL). Prior to that, Education had a decrease in human capital investments in 

fiscal years 2011 through 2013 due to a decrease in net cost for Perkins loans, grant programs, and other programs, including 

the American Recovery and Reinvestment Act of 2009 and education jobs fund; while VA increased in fiscal years 2011 

through 2014 due to implementation of the Post 9/11 GI Bill. 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 need-based 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 $17.1 billion (58 percent) and $11.8 billion (41 percent), of the 

total basic and applied research investments, respectively, in fiscal year 2015 as shown in the table. 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 
 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 227 

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 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 $53.3 billion (84 percent) and $6.2 billion (10 percent), 

respectively, of total development investments in fiscal year 2015, as shown in the table. 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. 

 
228 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 

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 APPENDIX A 229 

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) No. 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 154 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 

 
230 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.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.gov 

One Hundred Fifteen Additional Entities/Funds 

Abraham Lincoln Bicentennial Commission* 

Administrative Conference of the United States 

Congressional-Executive Commission on the People’s 

 Republic of China 

Advisory Council on Historic Preservation Consumer Product Safety Commission 

African Development Foundation Corporation for National and Community Service 

American Battle Monuments Commission 

Appalachian Regional Commission 

Council of the Inspector General on Integrity and 

 Efficiency 

Architect of the Capitol Court of Appeals for Veterans Claims 

Architectural and Transportation Barriers Compliance Court Services and Offender Supervision Agency for DC 

 Board DC Courts 

Armed Forces Retirement Home 

Barry Goldwater Scholarship and Excellence in 

DC Courts–Defender Services 

Defense Nuclear Facilities Safety Board 

 Education Foundation 

Broadcasting Board of Governors 

Delta Regional Authority 

Denali Commission 

Bureau of Consumer Financial Protection Dwight D. Eisenhower Memorial Commission 

Central Intelligence Agency Election Assistance Commission 

Chemical Safety Hazard Investigation Board Environmental Dispute Resolution Fund 

Christopher Columbus Fellowship Foundation 

Commission for the Preservation of America’s 

Equal Employment Opportunity Commission 

Executive Office of the President 

 Heritage Abroad 

Commission of Fine Arts 

Commission of Civil Rights 

Farm Credit Administration 

Federal Election Commission 

Federal Financial Institutions Examination Council 

Commission on International Religious Freedom 

Commission on Security and Cooperation in Europe 

 Appraisal Subcommittee 

Federal Housing Finance Agency

Commission to Eliminate Child Abuse and Neglect 

 Fatalities 

Federal Labor Relations Authority 

Federal Maritime Commission 

Committee for Purchase from People Who Are Blind 

 or Severely Disabled 

Commodity Futures Trading Commission 

Federal Mediation and Conciliation Service 

Federal Mine Safety and Health Review Commission 

Federal Retirement Thrift Investment Board 

Congressional Budget Office Federal Trade Commission 
 APPENDIX A 231 

Financial Crisis Inquiry Commission* 

Government Accountability Office 

Government Printing Office 

Gulf Coast Ecosystem Restoration Council 

Harry S. Truman Scholarship Trust Fund 

Indian Law and Order Commission 

Institute of Museum and Library Services 

Intelligence Community Management Account 

Interagency Council on the Homeless 

Inter-American Foundation 

International Trade Commission 

James Madison Memorial Fellowship Foundation 

Japan-United States Friendship Commission 

John C. Stennis Center 

John F. Kennedy Center for the Performing Arts 

Library of Congress 

Marine Mammal Commission 

Medicaid and Children’s Health Insurance Program 

 Payment and Access Commission 

Medicare Payment Advisory Commission 

Merit Systems Protection Board 

Military Compensation and Retirement Modernization 

 Commission 

Morris K. Udall Scholarship Foundation 

National Archives and Records Administration 

National Capital Planning Commission 

National Council on Disability 

National Endowment for the Arts 

National Endowment for the Humanities 

National Gallery of Art 

National Labor Relations Board 

National Mediation Board 

National Railroad Passenger Corporation, Office of the 

 Inspector General 

National Railroad Retirement Investment Trust 

National Transportation Safety Board 

Neighborhood Reinvestment Corporation 

Northern Border Regional Commission 

Nuclear Waste Technical Review Board 

Occupational Safety and Health Review Commission 

Office of Compliance 

Office of Government Ethics 

Office of Navajo and Hopi Indian Relocation 

Office of Nuclear Waste Negotiator* 

Office of Special Counsel 

Office of the Federal Coordination for Alaska Natural 

 Gas Transportation Projects 

Open World Leadership Center 

Patient Centered Outcomes Research Trust Fund 

Peace Corps 

Presidio Trust 

Privacy and Civil Liberties Oversight Board 

Public Defender Service 

Recovery Act Accountability and Transparency Board 

Ronald Reagan Centennial Commission* 

Selective Service System 

Senate Preservation Fund 

St. Lawrence Seaway Development Corporation 

State Justice Institute 

U.S. Capitol Police 

U.S. Capitol Preservation Commission 

U.S. China Security Review Commission 

U.S. Holocaust Memorial Museum 

U.S. Institute of Peace 

U.S. Tax Court 

U.S. Trade and Development Agency 

Vietnam Education Foundation 

Woodrow Wilson International Center for Scholars 

WWI Centennial Commission 

 

*These entities are no longer active and have either returned all remaining fund balances to Treasury during fiscal year 2015 

or have remaining fund balances pending final return to Treasury as of September 30, 2015. 

**Foreign Military Financing Program and Foreign Military Sales Program were consolidated to create Defense Security 

Cooperation Agency. 

 
232 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 Printing Office, and Library of Congress) and are included in the 154 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 and the U.S. House of Representatives which are 

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 No. 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 

Thrift Savings Plan

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 233 

Appendix B: Acronyms 

This appendix lists the acronyms used in the Financial Statements and Notes to the Financial Statements section of this 

Financial Report. 

ACA Affordable Care Act 

ACH Automated Clearinghouse 

AFR Agency Financial Reports 

AIG American International Group, Inc. 

AMT Alternative Minimum Tax 

ARRA American Recovery and Reinvestment Act of 2009 

ASC Accounting Standards Codification 

ATDA Accountability of Tax Dollars Act of 2002 

ATRA American Taxpayer Relief Act of 2012 

BBEDCA Balanced Budget and Emergency Deficit Control Act 

Bbl Barrel 

BCA Budget Control Act 

BLDTF Black Lung Disability Trust Fund 

BLM Bureau of Land Management 

Board Federal Reserve Board of Governors 

CCC Commodity Credit Corporation 

CDCI Community Development Capital Initiative 

CDFI Community Development Financial Institutions 

CERCLA Comprehensive Environmental Response, Compensation, and Liability Act 

CFO Chief Financial Officers 

CFO Act Chief Financial Officers Act of 1990 

CFPB Bureau of Consumer Financial Protection 

CMS Centers for Medicare and Medicaid Services 

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 Deferred Action for Childhood Arrivals 

DFAS Defense Finance and Accounting Service 

DHS Department of Homeland Security 

DI Disability Insurance 

DIF Deposit Insurance Fund 

DIP Debtor in Possession 
234 APPENDIX B 

DOC Department of Commerce 

DOD Department of Defense 

DOE Department of Energy 

DOI Department of the Interior 

DOJ Department of Justice 

DOL Department of Labor 

DOT Department of Transportation 

DM&R Deferred Maintenance and Repairs 

Education Department of Education 

EESA Emergency Economic Stabilization Act of 2008 

EPA Environmental Protection Agency 

EOP Executive Office of the President 

ESF Exchange Stabilization Fund 

FAA Federal Aviation Administration 

Fannie Mae Federal National Mortgage Association 

FASAB Federal Accounting Standards Advisory Board 

FASB Financial Accounting Standards Board 

FCC Federal Communications Commission 

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 

FERSA Federal Employees’ Retirement System Act of 1986 

FFAS Farm and Foreign Agricultural Services 

FFEL Federal Family Education Loan 

FFMIA Federal Financial Management Improvement Act of 1996 

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 Federal Open Market Committee 

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 

FSA Farm Service Agency 
 APPENDIX B 235 

FUA Federal Unemployment Account 

FUTA Federal Unemployment Tax Act 

GAAP U.S. Generally Accepted Accounting Principles 

GAO U.S. Government Accountability Office 

GDP Gross Domestic Product 

General Fund General Fund of the U.S. Government 

Ginnie Mae Government National Mortgage Association 

GM General Motors 

GMRA Government Management Reform Act of 1994 

G-PP&E General Property, Plant, and Equipment 

GSA General Services Administration 

GSE Government-Sponsored Enterprises 

HBP Health Benefits Program 

HEA Higher Education Act of 1965 

HERA Housing and Economic Recovery Act of 2008 

HFA Housing Financing Agencies 

HHS Department of Health and Human Services 

HI Hospital Insurance 

HMO Health Maintenance Organization 

HUD Department of Housing and Urban Development 

IPERIA Improper Payments Elimination and Recovery Improvement Act of 2012 

IPIA Improper Payments Information Act of 2002 

IRS Internal Revenue Service 

LAC Latest Acquisition Cost 

LOC Library of Congress 

LPR Legal Permanent Resident 

MAC Moving Average Cost 

MBS Mortgage-Backed Securities 

MCC Millennium Challenge Corporation 

Mcf The volume of 1,000 cubic feet of natural gas 

MDBs Multilateral Development Banks 

MERHCF Medicare Eligible Retiree Health Care Fund 

MMA Medicare Prescription Drug, Improvement, and Modernization Act 

MRF Military Retirement Fund 

NAB New Arrangement to Borrow 

NASA National Aeronautics and Space Administration 

NCUA National Credit Union Administration 

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 
236 APPENDIX B 

NTIA National Telecommunications and Information Administration 

NYSE New York Stock Exchange 

OASDI Old-Age, Survivors, and Disability Insurance 

OASI Old-Age and Survivors Insurance 

OCO Overseas Contingency Operations 

OECD Organization for Economic Co-operation and Development 

OFS Office of Financial Stability 

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 Performance and Accountability Reports 

PBGC Pension Benefit Guaranty Corporation 

PCF Periodic Commitment Fee 

PEFCO Private Export Funding Corporation 

PMAs Power Marketing Authorities 

PP&E Property, Plant, and Equipment 

PPACA Patient Protection and Affordable Care Act 

PPIF Public Private Investment Funds 

PPIP Public Private Investment Program 

PPO Preferred Provider Organization 

PSRHB Postal Service Retiree Health Benefits 

QFI Qualified Financial Institution 

R&D Research and Development 

RCRA Resource Conservation and Recovery Act 

RD Rural Development 

REDUX Military Retirement Reform Act of 1986 

RRB Railroad Retirement Board 

RRSIA Railroad Retirement and Survivors Improvement Act 

RSI Required Supplementary Information 

RSSI Required Supplementary Stewardship Information 

SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users 

SBA Small Business Administration 

SCSIA Statement of Changes in Social Insurance Amounts 

SDRs Special Drawing Rights 

SDRCs SDR Certificates 

SEC Securities and Exchange Commission 

SECA Self-Employment Contributions Act 

SFFAC Statement of Federal Financial Accounting Concept 

SFFAS Statement of Federal Financial Accounting Standards 
 APPENDIX B 237 

SFP Supplementary Financing Program 

SGR Sustainable Growth Rate 

SI Smithsonian Institution 

SLMA Student Loan Marketing Association 

SMI Supplementary Medical Insurance 

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 

TARP Troubled Asset Relief Program 

TFL TRICARE for Life 

TIP Targeted Investment Program 

TIPS Treasury Inflation-Protected Securities 

TPTCCA Temporary Payroll Tax Cut Continuation Act of 2011 

Treasury Department of the Treasury 

TRIA Terrorism Risk Insurance Act 

TSP Thrift Savings Plan 

TVA Tennessee Valley Authority 

TVARS Tennessee Valley Authority Retirement System 

U.S.C. United States Code 

USAID U.S. Agency for International Development 

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 

VRI Veterans Reopened Insurance 

VSLI Veterans Special Life Insurance 

 
238 APPENDIX B 

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 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 239 

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, 2015, and 2014, 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, 2015, and 2014.2

 Significant uncertainties (discussed in Note 23 to the consolidated financial statements), 

primarily related to the achievement of projected reductions in Medicare cost growth, and a 

material weakness in internal control over financial reporting, prevented us from expressing 

an opinion on the sustainability financial statements,3

 which consist of the 2015 Statement of 

Long-Term Fiscal Projections; the 2015, 2014, 2013, 2012, and 2011 Statements of Social 

Insurance; and the 2015 and 2014 Statements of Changes in Social Insurance Amounts.4

 

 

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, 2015, and 

2014, consist of the (1) Statements of Net Cost, (2) Statements of Operations and Changes in Net Position, 

(3) Reconciliations of Net Operating Cost and Unified Budget Deficit, (4) Statements of Changes in Cash Balance 

from Unified 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 2014. 3

As required by the Statement of Federal Financial Accounting Standards (SFFAS) No. 36, “Reporting 

Comprehensive Long-Term Fiscal Projections for the U.S. Government,” as amended, the federal government 

presents a new basic financial statement, the Statement of Long-Term Fiscal Projections, for fiscal year 2015, along 

with the related notes, as part of the consolidated financial statements. The Statement of Long-Term Fiscal 

Projections presents, 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 unaudited statement of long-term fiscal projections for the year ended September 30, 2014, is 

presented for comparison purposes and was not subject to audit. 

4

Statements of Social Insurance are presented for the current year and each of the 4 preceding years in accordance 

with U.S. generally accepted accounting principles. Also, the sustainability financial statements do not interrelate with 

the accrual-based consolidated financial statements. In addition, the valuation date is January 1 for all social 

insurance programs except the Black Lung program, which has a valuation date of September 30. The valuation date 

for the Statement of Long-Term Fiscal Projections is September 30, 2015. 
240 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

 Material weaknesses resulted in ineffective internal control over financial reporting for fiscal 

year 2015. 

 Material weaknesses and other scope limitations discussed in this audit report limited our 

tests of compliance with selected provisions of applicable laws, regulations, contracts, and 

grant agreements for fiscal year 2015. 

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),5

 required supplementary stewardship information (RSSI),6 and other 

information7

 included with the consolidated financial statements in the Fiscal Year 2015 

Financial Report of the United States Government (2015 Financial Report), and (c) information 

on Chief Financial Officers (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.8

 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, 2015, and 2014, and the sustainability financial statements, 

consisting of the 2015 Statement of Long-Term Fiscal Projections; the 2015, 2014, 2013, 2012, 

and 2011 Statements of Social Insurance; the 2015 and 2014 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. 

 

5

RSI consists of Management’s Discussion and Analysis and information in the Required Supplementary Information 

section of the Fiscal Year 2015 Financial Report of the United States Government. 6

RSSI consists of information on stewardship investments in the Required Supplementary Stewardship Information 

section of the Fiscal Year 2015 Financial Report of the United States Government. 7

Other information consists of information in the Fiscal Year 2015 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. 

8

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 have elected to include certain financial information on the legislative and judicial branches in the consolidated 

financial statements as well. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 241 

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 the RSI and RSSI in accordance with U.S. generally accepted accounting 

principles; and (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. 

This includes 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, 2015, and 2014, 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. As 

a result of these limitations, readers are cautioned that amounts reported in the accrualbased 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 accrualbased consolidated financial statements. The underlying material weaknesses in internal 

control, which have existed for years, contributed to our disclaimer of opinion on the accrualbased consolidated financial statements. Specifically, these weaknesses concerned the 

federal government’s inability to 

 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; 
242 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

 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 Unified Budget Deficit and (2) Statements of Changes in Cash Balance from Unified 

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 could affect the accrual-based consolidated financial 

statements that were not identified. 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 23 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 Unified Budget Deficit and the Statements of 

Changes in Cash Balance from Unified 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 2015 Statement of Long-Term Fiscal 

Projections. As a result of these significant uncertainties and material weakness, readers are 

cautioned that amounts reported in the 2015 Statement of Long-Term Fiscal Projections; the 

2015, 2014, 2013, 2012, and 2011 Statements of Social Insurance; the 2015 and 2014 

Statements of Changes in Social Insurance Amounts; and the related notes to such financial 

statements may not fairly present, in all material respects, the sustainability information for 

those years in accordance with U.S. generally accepted accounting principles. 

For 2015, these significant uncertainties primarily relate to the following. 

 Medicare projections in the 2015 Statement of Long-Term Fiscal Projections and the 

2015 Statement of Social Insurance were based on benefit formulas under current law 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 243 

and included a significant reduction in Medicare payment rates for productivity 

improvements relating to most categories of Medicare providers,9

 based on full 

implementation of the provisions of the Patient Protection and Affordable Care Act, as 

amended (ACA),10 and physician payment updates specified by the Medicare Access 

and CHIP Reauthorization Act of 2015 (MACRA).11

 Management has noted that actual future costs for Medicare are likely to exceed those 

shown by the current law projections presented in the 2015 Statement of Social 

Insurance due, for example, to the likelihood of modifications to the scheduled 

reductions in Medicare payment rates 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 rates for productivity adjustments and to 

specified physician payment updates depends on both the specific changes that might 

be legislated and whether such 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 rates. 

 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 23, exceeds the $27.9 

trillion estimate in the 2015 Statement of Social Insurance by $8.9 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 2015 Statement of Long-Term Fiscal Projections. 

The 2014, 2013, 2012, and 2011 Statements of Social Insurance were affected by significant 

uncertainties, primarily related to the achievement of projected reductions in Medicare payment 

rates for productivity improvements. The 2013, 2012, and 2011 Statements of Social Insurance 

were also affected by uncertainties related to projected reductions in Medicare payment rates 

for physician services. Specifically, the Medicare projections in the 2013, 2012, and 2011 

Statements 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, 2012, and 2011 Statements 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 (SGR) override that occurred over the 10-year 

 

9

These categories 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. 10ACA, 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 ACA 

include any amendments made by the Health Care and Education Reconciliation Act of 2010. 

11MACRA, 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 (SGR) 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. 
244 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

period ending on March 31, 2015. For 2014, 2013, 2012, and 2011, management noted that 

actual future costs for Medicare were likely to exceed those shown by the current-law 

projections presented in the 2014, 2013, 2012, and 2011 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.12 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 2015 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 23 and 24 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.13 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. The sustainability financial statements are not forecasts or 

predictions. 

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, 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 2015 

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 2030, respectively, at which time they would be unable to pay the full amount of 

scheduled future benefits.14 For Social Security, future revenues were projected to be sufficient 

to pay 79 percent of scheduled benefits in 2034, the year of projected trust funds (combined) 

 

12The excess cost growth rate is the increase in health care spending per person relative to the growth of gross 

domestic product per person after removing the effects of demographic changes on health care spending. 

13The projection period used for the Social Security, Medicare, and Railroad Retirement social insurance programs is 

75 years. For the Black Lung program, the projections are through September 30, 2040. 14The 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 2022, respectively. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 245 

exhaustion, and decreasing to 73 percent of scheduled benefits in 2089. For Medicare Hospital 

Insurance (Part A), future revenues were projected to be sufficient to pay 86 percent of 

scheduled benefits in 2030, the year of projected trust fund exhaustion, and then decreasing to 

84 percent of scheduled benefits in 2089.

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 2015 and 2014, 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 2015 and 2014 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, 2015, and 2014. 

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 Statement of Long-Term Fiscal Projections for 2015; 

the Statements of Social Insurance for 2015, 2014, 2013, 2012, and 2011; and the Statements 

of Changes in Social Insurance Amounts for 2015 and 2014. Accordingly, we do not express an 

opinion on these sustainability financial statements. The 2014 Statement of Long-Term Fiscal 

Projections was not subject to audit. 

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 

2015 Financial Report into context. However, our disclaimers of opinion noted above are not 

modified with respect to these matters. 
246 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

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 ensure their financial stability. The 

agreements with the GSEs could affect the federal government’s financial position. As of 

September 30, 2015, the federal government continued to report about $106 billion of 

investments in the GSEs, which is net of about $88 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, 2015, 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.15

Long-Term Fiscal Challenges 

While the near-term outlook has improved, the comprehensive long-term fiscal projections 

presented in the Statement of Long-Term Fiscal Projections, and related information in Note 24 

and in the unaudited Required Supplementary Information section of the 2015 Financial Report

show that absent policy changes, the federal government continues to face an unsustainable 

long-term fiscal path. In the near term, the projections in the 2015 Financial Report show the 

primary deficit continuing to decline from the recent historic highs. However, these projections 

do not reflect recent legislation enacted subsequent to September 30, 2015, which, in order to 

achieve certain national priorities and goals, causes deficits to increase in the near term.16 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 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. 

Under these projections, spending for the major health and retirement programs will increase in 

coming decades more rapidly than GDP as more members of the baby boom generation 

become eligible for benefits. These projections, with regard to Social Security and Medicare, are 

based on the same assumptions underlying the information presented in the Statement of 

 

15For 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 Appendix A of the 2015 Financial Report. 16The 2015 Statement of Long-Term Fiscal Projections is based on current policy as of September 30, 2015. This is 

prior to the enactment of the Bipartisan Budget Act of 2015 and the Consolidated Appropriations Act, 2016; therefore, 

the projections do not reflect the effects of these two statutes. Management notes that neither statute is expected to 

have a material effect on the long-term fiscal projections in its report.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 247 

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.17

They also reflect the effects of the MACRA, which, among other things, revised the 

methodology for determining physician payment rates.18 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’ (CMS) Chief Actuary, the Congressional Budget Office, and 

others—spending on federal health care programs will grow more rapidly than assumed in the 

projections. 

GAO also prepares long-term federal fiscal simulations, using different sets of assumptions, 

which continue to show debt held by the public rising as a share of GDP.19 Under GAO’s 

Alternative simulation,20 using the CMS Office of the Actuary’s alternative health care cost 

projections, future spending in excess of receipts would be greater and debt held by the public 

as a share of GDP would grow more quickly than the projections in the 2015 Financial Report. 

Under the Alternative simulation, debt held by the public as a share of GDP will surpass its 

historical high (106 percent in 1946) by 2031. 

Both the projections in the 2015 Financial Report and our long-term simulations follow the 

spending limits enacted in the Balanced Budget and Emergency Deficit Control Act of 1985 

(BBEDCA), as amended.21 Under these limits, discretionary spending will continue to decline as 

a share of the economy and within the next 5 years will be lower as a share of GDP than any 

level seen in the last 50 years. At the same time, the projections in the 2015 Financial Report

show revenues rising in the near term as the economy continues to recover. Our long-term 

simulations show revenues rising in some years and declining in others in the near term. 

Debt held by the public as a share of GDP, however, remains well above the post-war historical 

average of 43 percent since 1946. At the end of fiscal year 2015, debt held by the public 

reached about 74 percent of GDP—the second highest (after fiscal year 2014, when it was 

 

17ACA, 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). 18MACRA, Pub. L. No. 114-10, title I, § 101, 129 Stat. 87, 89 (Apr. 16, 2015), repealed the sustainable growth rate 

(SGR) 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. 19GAO, Fiscal Outlook: Federal Fiscal Outlook (2016) (Washington, D.C.: 2016), accessed February 17, 2016, 

http://www.gao.gov/fiscal_outlook/federal_fiscal_outlook/overview. 

20Our 2016 Alternative simulation, the most recent one available as of the date of our audit report, incorporates the 

CMS Office of the Actuary’s 2015 alternative projections for health care cost growth, which assume certain cost 

controls are not maintained over the long term. Our Alternative simulation also assumes that tax provisions that are 

scheduled to expire, such as the credit for construction of energy-efficient new homes, are extended. In the 

Alternative simulation, discretionary spending follows the caps established in the Balanced Budget and Emergency 

Deficit Control Act of 1985, as amended, but not the lower caps triggered by the automatic enforcement procedures. 21The Budget Control Act of 2011 (BCA) amended BBEDCA, imposing discretionary spending limits for fiscal years 

2012 through 2021 to reduce projected spending by about $1 trillion. Pub. L. No. 112-25, 125 Stat. 240 (Aug. 2, 

2011). The BCA also established the Joint Select Committee on Deficit Reduction (Joint Committee), which was 

tasked with proposing legislation to reduce the deficit by at least an additional $1.2 trillion through fiscal year 2021. 

The Joint Committee did not report a proposal, and Congress and the President did not enact legislation. This 

triggered the sequestration process in section 251A of BBEDCA. Section 251A, as amended by BCA, required (1) a 

sequestration for fiscal year 2013 and (2) annual downward adjustments to discretionary spending limits and 

sequestration of direct spending from fiscal years 2014 through 2021. BBEDCA has been amended several times 

since August 2011, most recently by the Bipartisan Budget Act (BBA) of 2015, which increased discretionary 

spending limits for fiscal years 2016 and 2017. The BBA of 2015 also extended the sequestration of direct spending 

through fiscal year 2025 and made other changes to direct spending and revenue. Pub. L. No. 114-74, §§ 101, 102, 

129 Stat. 584, 585-87 (Nov. 2, 2015). GAO’s long-term simulations reflect the effects of the BBA of 2015. 
248 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

slightly higher) it has been as a share of GDP since 1950. 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. Further, our past work 

has also identified a variety of fiscal exposures—responsibilities, programs, and activities that 

explicitly or implicitly expose the federal government to future spending.22 Fiscal exposures vary 

widely as to source, extent of the government’s legal commitment, and magnitude. Over the 

past decade, some fiscal exposures have grown because of events and trends and the 

government’s response to them. Increased attention to these fiscal exposures will be important 

for understanding risks to the federal fiscal outlook and enhancing 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 2015 Financial Report

to supplement the financial statements. Although 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 2015 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 2015 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 

 

22GAO, Fiscal Outlook: Federal Fiscal Outlook (2016), accessed February 17, 2016, 

http://www.gao.gov/fiscal_outlook/federal_fiscal_outlook/overview#t=3, and Fiscal Exposures: Improving Cost 

Recognition in the Federal Budget, GAO-14-28 (Washington, D.C.: Oct. 29, 2013). 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 249 

branch agencies and Congress.23 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. 

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 years 2015 and 2014, auditors at 12 and 11 of the 24 CFO Act agencies, respectively, 

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 both fiscal years 2015 and 2014, agency 

management at 10 of the CFO Act agencies reported that their agencies’ financial management 

systems were not in substantial compliance with one or more of the three FFMIA requirements. 

Based on agency financial reports, the differences in the assessments of substantial compliance 

between the auditors and agency management reflected differences in management’s and 

auditors’ views of the impact that reported deficiencies had 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

 

23The 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. 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.
250 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 2015 that come to our attention as a result of our 

audit. 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.25 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 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 251 

 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 a significant deficiency in the federal government’s internal control related to 

implementing effective internal controls over management of federal grants at certain federal 

entities. This significant deficiency is 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 in 

considering internal control. 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 

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. 
252 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

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, which have been 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 17, 2016 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 253 

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, 

2015, and 2014, and (2) sustainability financial statements, which consist of the 2015 Statement 

of Long-Term Fiscal Projections; the 2015, 2014, 2013, 2012, and 2011 Statements of Social 

Insurance; and the 2015 and 2014 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 (CFO) Act of 1990, 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 (OMB) and the Department of the Treasury 

(Treasury) have identified 39 federal entities that are significant to the U.S. government’s fiscal 

year 2015 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.30 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 had reported in our report on the consolidated financial statements for fiscal year 

2014.31 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, 2015, and 2014.32 In 

fiscal years 2015 and 2014, IRS collected about $3.3 trillion and $3.1 trillion, respectively, in 

tax payments and paid about $403 billion and $374 billion, respectively, in refunds to 

taxpayers. For fiscal year 2015, we continued to report a material weakness in internal 

control over unpaid tax 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 

 

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, part 2, ch. 4700, for a listing of the 39 entities. 30For fiscal year 2015, the Defense Security Cooperation Agency and the General Fund of the U.S. Government were 

not audited. 

31GAO, Financial Audit: U.S. Government’s Fiscal Years 2014 and 2013 Consolidated Financial Statements, GAO15-341R (Washington, D.C.: Feb. 26, 2015). 

32GAO, Financial Audit: IRS’s Fiscal Years 2015 and 2014 Financial Statements, GAO-16-146 (Washington, D.C.: 

Nov. 12, 2015).
254 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

noncompliance for fiscal year 2015 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, 2015, and 2014.33 For these 2 fiscal years, the schedules reported 

(1) approximately $13.1 trillion (2015) and $12.8 trillion (2014) of federal debt held by the 

public;34 (2) about $5.0 trillion (2015) and $5.0 trillion (2014) of intragovernmental debt 

holdings;35 and (3) about $251 billion (2015) and $260 billion (2014) of interest on federal 

debt held by the public. We also reported that Fiscal Service maintained, in all material 

respects, effective internal control over financial reporting relevant to the Schedule of 

Federal Debt as of September 30, 2015. In addition, we reported that we found no 

reportable noncompliance for fiscal year 2015 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, 2015, and 2014.36 We also reported that SEC 

maintained, in all material respects, effective internal control over financial reporting for both 

the entity as a whole and the IPF as of September 30, 2015. In addition, we reported that we 

found no reportable noncompliance for either SEC or IPF for fiscal year 2015 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, 2015, and 

2014.37 We also reported that FHFA maintained, in all material respects, effective internal 

control over financial reporting as of September 30, 2015. In addition, we reported that we 

found no reportable noncompliance for fiscal year 2015 with provisions of applicable laws, 

regulations, contracts, and grant agreements we tested. 

 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, 2015, and 2014.38 We also reported that OFS maintained, in all 

material respects, effective internal control over financial reporting for TARP as of 

September 30, 2015. In addition, we reported that we found no reportable noncompliance 

for fiscal year 2015 with provisions of applicable laws, regulations, contracts, and grant 

agreements we tested. 

 

33GAO, Financial Audit: Bureau of the Fiscal Service’s Fiscal Years 2015 and 2014 Schedules of Federal Debt, GAO16-160 (Washington, D.C.: Nov. 13, 2015). 

34Debt 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. 

35Intragovernmental debt holdings represent federal debt owed by Treasury to federal government accounts, primarily 

federal trust funds, such as Social Security and Medicare. 

36GAO, Financial Audit: Securities and Exchange Commission’s Fiscal Years 2015 and 2014 Financial Statements, 

GAO-16-145R (Washington, D.C.: Nov. 16, 2015). 

37GAO, Financial Audit: Federal Housing Finance Agency’s Fiscal Years 2015 and 2014 Financial Statements, GAO16-95R (Washington, D.C.: Nov. 16, 2015). 

38GAO, Financial Audit: Office of Financial Stability (Troubled Asset Relief Program) Fiscal Years 2015 and 2014 

Financial Statements, GAO-16-147R (Washington, D.C.: Nov. 10, 2015). 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 255 

 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, 

2015, and 2014.39 We also reported that although certain internal controls could be 

improved, CFPB maintained, in all material respects, effective internal control over financial 

reporting as of September 30, 2015. In addition, we reported that we found no reportable 

noncompliance for fiscal year 2015 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 

2015 and 2014 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 2015 regarding its noncompliant financial management systems and lack 

of reasonable assurance that internal controls over financial reporting were effective. In addition, 

in the DOD Inspector General’s fiscal year 2015 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 2015 Statement 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 

Amounts,40 we considered the entity’s 2015, 2014, 2013, 2012, and 2011 Statements of Social 

Insurance and the 2015 and 2014 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. 

 

 

39GAO, Financial Audit: Bureau of Consumer Financial Protection’s Fiscal Years 2015 and 2014 Financial 

Statements, GAO-16-96R (Washington, D.C.: Nov. 16, 2015). 40These entities are SSA, HHS, the Railroad Retirement Board, and the Department of Labor. 
256 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

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. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 257 

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.41 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 also 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 

commitments and contingencies are incomplete or incorrect, reliable information is not available 

 

41The 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 2015 Statement of Long-Term Fiscal Projections. 
258 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

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 2015 and 

2014, 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 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. 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 entities to resolve 

intragovernmental differences through its quarterly scorecard process.42 This process highlights 

differences requiring the entities’ attention, identifies differences that need to be resolved 

 

42For 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 259 

through a formal dispute resolution process,43 and reinforces the entities’ responsibilities to 

resolve intragovernmental differences. Treasury also implemented the Governmentwide 

Treasury Account Symbol Adjusted Trial Balance System in fiscal year 2014, which among 

other things, provided more complete financial data from entities that are intended to improve 

the analysis of intragovernmental differences. In the third quarter of fiscal year 2015, Treasury 

began implementing a new initiative to identify and monitor systemic root causes of 

intragovernmental differences. 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, the 

auditor for DOD reported that DOD, which contributes significantly to the unreconciled amounts, 

could not accurately identify most of its intragovernmental transactions by customer and was 

unable to reconcile most intragovernmental transactions with trading partners, which resulted in 

adjustments that cannot be fully supported. 

Further, a significant portion of intragovernmental differences are related to unreconciled 

transactions between the General Fund of the U.S. Government (General Fund)44 and federal 

entity trading partners related to appropriations and other intragovernmental transactions, which 

amount to hundreds of billions of dollars. In fiscal year 2015, Treasury continued to make 

significant improvements to the processes used to identify and reconcile General Fund 

differences. For example, Treasury established more specific guidance regarding General 

Fund-related activity and balances and issued this guidance for federal entities to follow in 

reporting their financial data. Treasury also began developing policies and procedures over 

accounting for and reporting all significant General Fund activity and balances, and began 

reconciling the activity and balances between the General Fund and federal entity trading 

partners. In addition, Treasury implemented certain reconciliations for subcategories relevant to 

the General Fund, such as debt financing activities. However, the ability to effectively reconcile 

General Fund transactions will be hampered until General Fund-related activity and balances 

are properly accounted for, reported, and audited. 

As a result of the above-noted circumstances, the federal government’s ability to determine the 

impact of these 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 to collect certain additional data from entities and to 

compile the consolidated financial statements, and new or enhanced procedures to address 

 

43When 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. 

44The 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). 
260 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

certain internal control deficiencies detailed in our previously issued report.45 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 2015 audit, we found the following. 

 For fiscal year 2015, auditors reported internal control deficiencies at several entities 

regarding entities’ financial reporting processes that could affect information in those 

entities’ closing packages.46 Further, Treasury had to record significant adjustments to 

correct errors found in federal entities’ audited closing package information. These errors 

primarily related to intragovernmental activity and balances and totaled tens of billions of 

dollars. 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.47

 Treasury is unable to properly balance the accrual-based consolidated financial statements. 

To make the fiscal years 2015 and 2014 consolidated financial statements balance, 

Treasury recorded a net decrease of $5.1 billion and a net increase of $20.4 billion, 

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 $1.9 billion and $1.7 billion of unmatched transactions in the 

Statement of Net Cost for fiscal years 2015 and 2014, respectively. The material weakness 

in the federal government’s ability to account for and reconcile intragovernmental activity 

and balances, discussed above, significantly contributes to the unmatched transactions and 

balances and consequently impairs Treasury’s ability to fully eliminate such 

intragovernmental activity and balances. 

 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 is required by U.S. GAAP in the consolidated financial 

statements, 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 

 

45Most of the issues we identified in fiscal year 2015 existed in fiscal year 2014, and many have existed for a number 

of years. Most recently, in July 2015, 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-15-630 (Washington, D.C.: July 30, 

2015). 

46The closing package methodology links federal entities’ audited consolidated department-level financial statements 

to certain of the U.S. government’s consolidated financial statements. 47There are 39 significant component entities, including the General Fund; however, the General Fund did not submit 

a closing package in fiscal year 2015. 

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 261 

complete and reliable information required to be reported in the consolidated financial 

statements. 

 The consolidated financial statements include financial information for the executive, 

legislative, and judicial branches, to the extent that federal entities within those branches 

have provided Treasury such information. However, while progress was made over the past 

few years, undetermined amounts of assets, liabilities, costs, and revenues are not included, 

and the federal government did not provide evidence that the excluded financial information 

was immaterial. 

 In fiscal year 2015, 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 enhanced its process for involving key federal 

entity personnel in the preparation of the consolidated financial statements. However, other 

internal control deficiencies existed in the processes used to prepare the consolidated 

financial statements, such as inadequate processes for monitoring and assessing internal 

controls over the preparation of the consolidated financial statements. As a result, we 

identified errors, such as unclear or incomplete disclosures, in draft consolidated financial 

statements that were subsequently corrected. 

 In fiscal year 2015, Treasury and OMB made significant progress with respect to their 

corrective action plans by developing a remediation plan that focuses on corrective actions 

to be taken over the next 3 years to address the material weaknesses in internal control. 

Although improvements have been noted, the plans continued to lack certain key elements 

recommended in the CFO Council’s Implementation Guide for OMB Circular A-123, 

Management’s Responsibilities for Internal Control—Appendix A, Internal Control over 

Financial Reporting, such as (1) sufficient information on how progress on interim actions 

would be monitored and (2) outcome measures for assessing the effectiveness of the 

corrective actions. Without such elements, Treasury’s and OMB’s efforts to address internal 

control deficiencies involving the processes used to prepare the consolidated financial 

statements will be hampered. 

 In fiscal year 2015, Treasury continued to improve its systems and processes for preparing 

the consolidated financial statements. For example, Treasury continued to enhance the 

automated tool used in the compilation process. However, challenges remain regarding 

systems and processes for certain central accounting functions related to accurately 

reporting, as well as obtaining audit assurance over, General Fund transactions and 

components of the budget deficit. It is important that Treasury (1) continues to improve its 

systems and continues to ensure it has a sufficient number of personnel with appropriate 

skills in order to implement the corrective action plans and (2) remain 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. 

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 entities’ financial statements, properly balanced, and in accordance 

with U.S. GAAP will be impaired. Resolving these internal control deficiencies remains a difficult 

challenge and will require a strong and sustained commitment from Treasury and OMB as they 

continue to execute and implement corrective actions.
262 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Reconciliations of Budget Deficit to Net Operating Cost and Changes in Cash Balance 

Over the past 2 years, Treasury has improved its process for preparing the (1) Reconciliations 

of Net Operating Cost and Unified Budget Deficit and (2) Statements of Changes in Cash 

Balance from Unified Budget and Other Activities (Reconciliation Statements). For example, 

during fiscal year 2015, Treasury began an initiative to ensure the consistency of reconciling 

items reported on the Reconciliation Statements to 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, including 

the cash activity processed through the central accounting function. 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. 

The Reconciliation Statements report unified budget deficits for fiscal years 2015 and 2014 of 

about $439 billion and $483 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. With respect to the 

reported budget deficit, Treasury and OMB continue to lack an effective process for reasonably 

assuring the consistency of (1) information 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 certain 

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. 

In fiscal year 2015, 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 

unified budget deficit reported in the accrual-based consolidated financial statements. Treasury 

also reports the unified budget deficit in its Combined Statement of Receipts, Outlays, and 

Balances,

50 and in other federal government publications. 

 

49The budget deficit, receipts, and outlays amounts are reported in Treasury's Monthly Treasury Statement and the 

President’s Budget. 

50Treasury’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 official 

publication of receipts and outlays of the federal government based on entity reporting. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 263 

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.51 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),52 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 risksusceptible, (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. 

The Office of Management and Budget (OMB) reported that the government-wide improper 

payment error rate increased to 4.4 percent of program outlays for programs and activities 

reporting estimates in fiscal year 2015 from 4.0 percent in fiscal year 2014 when including the 

Department of Defense’s (DOD) Defense Finance and Accounting Service (DFAS) Commercial 

Pay program.53 When excluding the DFAS Commercial Pay program, the reported governmentwide error rate was 4.8 percent of program outlays in fiscal year 2015 compared to 4.5 percent 

in fiscal year 2014. In May 2013, we reported on major deficiencies in DOD’s process for 

estimating fiscal year 2012 improper payments in the DFAS Commercial Pay program, including 

deficiencies in identifying a complete and accurate population of payments.54 The foundation of 

reliable statistical sampling estimates is a complete, accurate, and valid population from which 

to sample. Because of DOD’s lack of an auditable Statement of Budgetary Resources, the DOD 

Office of Inspector General reported in DOD’s fiscal year 2015 agency financial report that the 

agency was unable to reconcile outlays and ensure that all required payments subject to 

improper payment estimation requirements were captured for review. Therefore, DOD’s fiscal 

 

51Under 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 instructs agencies to 

report as improper payments any payments for which insufficient or no documentation was found. 52IPIA, 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. 

53Reported error rates reflect the estimated improper payments as a percentage of total program outlays. 54GAO, DOD Financial Management: Significant Improvements Needed in Efforts to Address Improper Payment 

Requirements, GAO-13-227 (Washington, D.C.: May 13, 2013). 
264 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

year 2015 improper payment estimates, including its estimate for the DFAS Commercial Pay 

program, may not be reliable. 

Without the DFAS Commercial Pay program, federal entity improper payment estimates totaled 

$136.7 billion in fiscal year 2015, a significant increase from the revised prior year estimate of 

$124.6 billion.55 The increase in estimated improper payments was mostly attributable to an 

increased error rate in the Department of Health and Human Services’ (HHS) Medicaid 

program. It is important to note that pursuant to OMB implementing guidance, reported improper 

payment estimates include overpayments, underpayments, and payments for which adequate 

documentation was not found, and may also include amounts of payments for years prior to the 

current fiscal year. 

While the specific programs included in the government-wide improper payment estimate may 

change from year to year, a net of four fewer programs were included when compared to fiscal 

year 2014. In addition, three federal entities did not report fiscal year 2015 estimated improper 

payment amounts for five risk-susceptible programs, including HHS’s Temporary Assistance for 

Needy Families.56 Further, various inspectors general reported deficiencies related to 

compliance with the criteria listed in IPERA for fiscal year 2014 at their respective federal 

entities,57 including risk-susceptible programs that did not report improper payment estimates, 

estimation methodologies that may not produce reliable estimates, and risk assessments that 

may not accurately assess the risk of improper payment. 

For fiscal year 2015, federal entities reported improper payment error rates that exceeded 10 

percent for nine risk-susceptible programs, accounting for more than 50 percent of the 

government-wide improper payment estimate.58 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 

 

55In their fiscal year 2015 performance and accountability reports (PAR) and agency financial reports (AFR), seven 

federal entities updated their fiscal year 2014 improper payment estimates to reflect changes since issuance of their 

fiscal year 2014 PARs and AFRs. These updates decreased the government-wide improper payment estimate for 

fiscal year 2014 from $124.7 billion to $124.6 billion. 

56The remaining four programs were the Corporation for National and Community Services’ Foster Grandparents, 

Retired and Senior Volunteer, and Senior Companion programs and the General Services Administration’s Hurricane 

Sandy Disaster Relief Fund. 

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 required by OMB 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 inspectors general reports on compliance 

with the criteria listed in IPERA were issued in 2015 for fiscal year 2014. Pursuant to the OMB implementing 

guidance in M-15-02, Appendix C to Circular No. A-123, Requirements for Effective Estimation and Remediation of 

Improper Payments (Oct. 20, 2014), each entity inspector general must complete its review of entity compliance 

under IPERA within 180 days of publication of the PAR or AFR. Therefore, inspector general reports on fiscal year 

2015 compliance with the criteria listed in IPERA are generally expected to be issued by May 2016. 

58The nine programs that reported improper payment estimates that exceeded 10 percent in fiscal year 2015 were 

(1) the Department of Veterans Affairs’ (VA) VA Community Care, (2) VA’s Purchased Long Term Services and 

Supports, (3) the Department of the Treasury's Earned Income Tax Credit, (4) the Department of Agriculture's 

(USDA) School Breakfast, (5) USDA's Farm Security and Rural Investment, (6) USDA's National School Lunch, 

(7) the Small Business Administration’s Disbursement for Goods and Services, (8) HHS's Medicare Fee-for-Service, 

and (9) the Department of Labor's Unemployment Insurance programs. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 265 

improper payment rate of 10 percent or greater for any risk-susceptible 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 2015 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 year 2016 and fiscal year 2017 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 within federal 

spending. Among other things, IPERIA enacted into law elements of the President’s “Do Not 

Pay” initiative by requiring entities to review prepayment and pre-award 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. 

Information Security 

GAO has reported information security as a high-risk area across government since February 

1997. During our fiscal year 2015 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. 

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 taken actions toward 

improving information security. For example, Congress passed and the President signed the 
266 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Federal Information Security Modernization Act of 2014,59 and the Federal Chief Information 

Officer launched a 30-day Cybersecurity Sprint intended to improve the protection of federal 

information and systems.60 At the end of the Cybersecurity Sprint, according to OMB, federal 

agencies increased their use of strong authentication from 42 percent to 72 percent.61 Further, 

the administration has issued a cybersecurity strategy and implementation plan for federal 

civilian agencies to guide efforts to improve the security over their information and systems. It 

also plans to continue to oversee agency security efforts by monitoring the implementation of 

cybersecurity capabilities, such as strong authentication, continuous monitoring, anti-phishing 

and malware defense, and developing or monitoring performance-based metrics to measure 

their success. However, until entities identify and resolve information security control 

deficiencies and 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 2015, a material weakness continued to affect the federal government's ability 

to effectively manage its tax collection activities. Due to financial system limitations, as well as 

errors in taxpayers’ accounts, the federal government’s records did not always reflect the 

correct amount of taxes owed by the public to the federal government. Such errors may cause 

undue burden and frustration to taxpayers who either have already paid taxes owed or who owe 

significantly lower amounts. 

Collectively, these deficiencies indicate that internal controls were not effective in (1) ensuring 

that reported amounts of taxes receivable and other tax 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.

 

59The Federal Information Security Management Act of 2002 was enacted as Title III of the E-Government Act of 

2002, Pub. L. No. 107-347, 116 Stat. 2899, 2946 (Dec. 17, 2002). The Federal Information Security Modernization 

Act of 2014, which largely superseded the 2002 act, was enacted as Pub. L. No. 113-283, 128 Stat. 3073 (Dec. 18, 

2014), and amended chapter 35 of Title 44, U.S. Code. 60In June 2015, the Federal Chief Information Officer launched the 30-day Cybersecurity Sprint, during which 

agencies were to take immediate actions to combat cyber threats within 30 days. Actions included patching critical 

vulnerabilities, tightening policies and practices for privileged users, and accelerating the implementation of 

multifactor or strong authentication. 61Authentication is the process a computer system uses to establish the validity of a user’s claimed identity by 

requesting some kind of information, such as a password, that is known only by the user. Strong authentication 

involves the use of multiple factors to authenticate a user. These factors include something you know (password or 

personal identification number), something you have (smartcard or personal identity verification card), or something 

you are (biometric). 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 267 

Appendix IV 

Significant Deficiency 

In addition to the material weaknesses discussed in appendixes II and III, we found a significant 

deficiency in the federal government’s internal control related to implementing effective internal 

controls over management of federal grants at certain federal entities, as described below. 

Federal Grants Management 

In fiscal year 2015, several federal entities’ auditors continued to identify internal control 

deficiencies related to grants management. Reported deficiencies primarily related to monitoring 

of grant activities and accounting for formula grants.62 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. 

 

62Formula 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.