1997 Chief Financial

Officers Report

(Audited)

 

Office of Thrift

Supervision

 
Table of Contents

 Page

• Message from the Director 1

• Profile of the OTS 3

• Thrift Industry Highlights 7

• Management’s Discussion and Analysis

 of OTS’ Financial Performance 12

• Independent Auditor’s Report 17

• Financial Statements 19

• Notes to Financial Statements 22

• Independent Auditor’s Report on

 Internal Control Structure 31

• Independent Auditor’s Report on Compliance

 with Laws and Regulations 33
Message from the Director

Two events occurred in 1997 that mark the start of a new era for the Office of Thrift

Supervision. First, there was newfound interest in the federal thrift charter. With the

elimination of the premium differential between banks and thrifts in late 1996 and the

extension to thrifts of broader consumer and small business lending authority, new

types of companies decided a thrift charter would be a good addition to their business

strategy.

OTS received 51 new applications for thrift charters during 1997, including about a

dozen from major insurance and securities firms. The agency approved 27

applications, including some filed in 1996. The applications of two major insurance

companies were among those approved. While OTS still lost more institutions to

consolidation and charter conversions than we gained, some of those that entered the

industry provide significant new challenges because of the types of activities they plan

to engage in.

For the first time in many years, thrifts made significant acquisitions of commercial

banks and mortgage companies. Combined with internal growth of those already in the

industry, this led to the first year-to-year increase in assets of OTS-regulated thrifts

since FIRREA became law in 1989.

The other event was my appointment as the first permanent Director in five years. My

expectation is that having a Senate-confirmed Director appointed for a full five-year

term will give the agency a sense of stability and a new grasp of mission that it hasn’t

enjoyed since the end of 1992. These two events made 1997 a truly new beginning.

Both the thrift industry and OTS remain in solid financial condition, as this report

shows. Industry earnings and equity ratios set records, and returns on assets reached

levels not seen since the 1960s. Troubled assets fell to 1 percent of assets, and at

year-end there were only 18 troubled thrifts. OTS itself showed a slight operating

surplus – a welcome addition to reserves as we (expend funds to further) enhance our

workforce’s ability to meet the industry’s new challenges.

In pursuing our mission to ensure the safety and soundness of the thrift industry, we

have identified four main challenges. First, we must rekindle the energy and drive of

OTS’s highly competent workforce. Five years of leadership uncertainty, coupled with

concerns about the survival of both the industry and the agency, have taken a toll. But

the new stability on several fronts and the challenges posed by a dynamic industry are

generating the optimism and energy to overcome those uncertainties that remain. We

will build on the efforts already begun to provide OTS staff with the tools and training

they need to do the best job they can. And we will work together on workplace

enhancements to make OTS a place where people are proud to work.





7

THRIFT INDUSTRY HIGHLIGHTS

The thrift industry is not the same industry that existed when FIRREA was enacted in

1989. It is smaller, but much healthier financially, well capitalized, profitable and highly

focused in meeting community lending needs — principally mortgage financing. The

industry’s earnings have been strong since 1992. During 1997 the thrift industry benefited

from two factors:

• a favorable economy, and

• 1997 was the first year since the passage of the Reform, Recovery, and Enforcement

Act (FIRREA) that thrifts did not have to pay high premiums for federal deposit

insurance. 

As a result, the industry set a yearly earnings record posting net income of $6.5 billion. 

Earnings for 1997 exceeded the previous yearly earnings record of $5.4 billion by 20

percent. Annual earnings during the 1992 - 1997 period represent six of the nine most

profitable years in the history of the thrift industry and earnings for the last two years have

been especially strong. 

1990 1991 1992 1993 1994 1995 1996 1997

$(3.8)

$1.2

$5.1 $4.9 $4.3

$5.4 $4.7

$6.5

-$7

-$5

-$3

-$1

$1

$3

$5

$7

$9

Dollars in Billions

1990 1991 1992 1993 1994 1995 1996 1997

Annual Profits and Losses of the OTS-Regulated 

Thrift Industry (1990 - 1997)

The industry’s strong economic performance during 1997 is both fundamentally sound

and broad-based. Current thrift profits reflect improvements in thrift core income, rather

than temporary gains from one-time or transitory transactions. The industry’s aggregate

return on assets (ROA) was 85 basis points during 1997. In addition, equity capital for

the industry increased to a record 8.33 percent in the fourth quarter, breaking the prior

record of 8.18 percent set in the third quarter of 1997. 
8

1990 1991 1992 1993 1994 1995 1996 1997

5.02%

5.94%

6.93%

7.50% 7.48% 8.01% 7.92% 8.33%

0 %

1 %

2 %

3 %

4 %

5 %

6 %

7 %

8 %

9 %

Equity Capital to Total Assets Ratio

1990 1991 1992 1993 1994 1995 1996 1997

Ratio of Equity Capital to Total Assets for the

OTS Regulated Thrift Industry (1990 - 1997)

Under the Prompt Corrective Action provisions of the Federal Deposit Insurance

Corporation Improvement Act of 1991 (FDICIA), there are five categories of depository

institutions based on their capital levels -- well-capitalized, adequately capitalized,

undercapitalized, significantly undercapitalized and critically undercapitalized. As of the

end of 1997, virtually all thrifts (97.4 percent) met or exceeded the well-capitalized

standards. More than 90% of the OTS regulated industry has met or exceeded wellcapitalized standards for the last 18 consecutive quarters. At the end of 1997, only 31

thrifts (2.6 percent of total thrifts) were rated “adequately capitalized,” only one thrift was

rated “undercapitalized” and none of the thrifts were “critically undercapitalized.”

Problem thrifts, those with CAMEL ratings of “4” or “5” on their most recent safety and

soundness examination, fell to 18 (or 1.5 percent) of all thrifts from 29 (or 2.2 percent) one

year ago. The aggregate assets of problem thrifts fell to $1.6 billion (or 0.2 percent of

industry assets), from $5.4 billion (or 0.7 percent of industry assets) at the end of 1996. 

Not only are there fewer problem thrifts, but their financial condition is much stronger than

that of problem thrifts in the early 1990s. For example, problem thrifts at the end of 1997

had, as a group, an average equity capital ratio of 7.49 percent. In contrast, problem

thrifts at the end of 1991 had average equity capital of 3.34 percent.

At the end of 1997, troubled assets (non-current loans and repossessed assets) were at

the lowest level since 1990 when this measure of asset quality was first used in the thrift

industry. Troubled assets at the end of 1997 totaled $7.8 billion (1.0%), down from $8.7

billion (or 1.13 percent) at the end of 1996. There were no thrift failures in 1997. The last

year that there were no thrift failures was 1959. In 1996, only one thrift failed.
9

The number of thrift institutions regulated by the OTS continued to decline during 1997

falling to 1,216 at the end of 1997, a decline of 120 institutions since December 1996 and

a decline of 517 institutions (or 29.8 percent) since December 1993. The thrift

consolidation trend has mainly been due to two distinct trends; 1) intra-industry mergers,

primarily mergers among thrifts and 2) inter-industry mergers from bank acquisitions of

thrifts and conversions of OTS-regulated thrifts to banks.

1990 1991 1992 1993 1994 1995 1996 1997

2,359

2,202

1,954

1,733

1,547 1,438

1,336 1,216

0

400

800

1,200

1,600

2,000

2,400

2,800

1990 1991 1992 1993 1994 1995 1996 1997

Year End

Number of OTS Regulated Thrift Institutions 

 (1990 - 1997)

Although the number of thrifts has continued to decline, aggregate OTS-regulated industry

assets have remained fairly stable since 1993, hovering around $770 billion. Aggregate

thrift assets grew by slightly more than one percent during 1997, the first year that

aggregate thrift assets have increased since 1988. The relative stability of the industry’s

assets during the last four years in the face of significant declines in the number of thrift

institutions reflects strong underlying asset growth by the remaining thrifts. New assets

acquired from commercial banks and non-OTS thrifts, and assets of de novo thrifts, have

also augmented aggregate thrift industry assets. 
10

1990 1991 1992 1993 1994 1995 1996 1997

$1,129

$960

$867 $804 $782 $772 $769 $777

$0

$150

$300

$450

$600

$750

$900

$1,050

$1,200

1990 1991 1992 1993 1994 1995 1996 1997

Year End

OTS Regulated Thrift Consolidated Assets 

1990 - 1997 (In Billions)

For the first time in many years, thrifts acquired several commercial banks and mortgage

companies. In addition, during 1997 the OTS observed an increased interest in the

Federal thrift charter; 51 new applications for thrift charters were received and a total of 

27 de novo applications were approved, including about a dozen from major insurance

and securities firms.

Year 2000

The primary responsibility for Year 2000 compliance rests with the regulated institutions,

including those institutions that rely on service providers. The OTS is doing everything

possible to ensure that all OTS regulated thrifts have made the Year 2000 issue a top

priority.

During 1997, OTS examiners conducted off-site supplemental examinations of OTS

regulated thrifts. The examiners obtained and reviewed Year 2000 information supplied

by each thrift and prepared a report of examination for each board of directors. The

examiners also completed an internal assessment which was entered into a national data

base to enable OTS staff to analyze the industry-wide Year 2000 risk profile and track the

industry's progress in preparing for the calendar year rollover.
11

The initial Year 2000 examinations, which focused on the thrift managers' awareness of

Year 2000 issues and the need to plan and prioritize for Year 2000, are now being

followed-up by on-site examinations which focus on actual renovation efforts and on

planning for testing and contingencies. Although some of these examinations were

started as early as November 1997, the OTS examiners will conduct most of these

examinations between February and June 1998. Every OTS-regulated thrift will be

examined for Year 2000 readiness.

OTS Information Systems examiners have included Year 2000 matters in their

examinations since 1995. As we move closer to January 2000, the examination process

has become more formalized and more intense. In addition to examining OTS regulated

thrifts, the OTS examiners are examining entities that provide data services or shared

application software to the thrift industry. When these entities service commercial banks

as well as thrifts, the OTS is cooperating with the other banking agencies in scheduling

and staffing the examinations.
12

Management’s Discussion and Analysis

 of OTS’ Financial Performance

Funding Sources

The OTS receives no appropriated funds from Congress. FIRREA provided the OTS with

the authority to fund its operations through periodic assessments charged to the thrift

industry. Assessments constitute the largest single component of the OTS income. In

1997, assessments constituted 84.9 percent ($128.2 million) of total income ($151.0 million).

The OTS also receives funds from application fees, interest, rents and subleases, exam

fees, and other miscellaneous sources.

1997 Total Revenue = $151.0 million

Application, Exam, 

and Security Filing 

Fees

3.8%

Interest

5.3% Rents and 

Subleases

2.0%

Other

4.0%

Assessments

84.9%
13

Due to the shrinkage of the thrift industry, OTS’ revenue from assessments has declined

substantially. In 1990, assessments totaled $265.8 million; in 1997 this figure had fallen to

$128.2 million, a decrease of 51.8 percent in eight years. The decrease in assessment

revenue has caused a sharp decline in OTS‘ income since 1990, but income has basically

stabilized since 1995.

1990 1991 1992 1993 1994 1995 1996 1997

$332

$228 $207 $184

$166 $156 $151 $151

$0

$50

$100

$150

$200

$250

$300

$350

$400

Dollars in Millions

1990 1991 1992 1993 1994 1995 1996 1997

OTS Revenue (1990 - 1997)

Funding Uses

Total OTS operating expenses increased slightly in 1997 compared with 1996, primarily due

to an increase in: 1) staff benefits and 2) office equipment and software. Even with this

slight increase, however, OTS’ revenues exceeded its expenses by approximately $3.2

million.
14

1990 1991 1992 1993 1994 1995 1996 1997

$267

$230

$209

$192

$177

$147

$133

$148

$0

$50

$100

$150

$200

$250

$300

Dollars in Millions 

1990 1991 1992 1993 1994 1995 1996 1997

OTS Operating Expenses (1990 - 1997)

Due to the shrinkage of the thrift industry, the OTS has trimmed its staff from 3,379 as of

October 1989, to 1,287 as of December 1997, or by 61.9 percent.

1990 1991 1992 1993 1994 1995 1996 1997

2,989

2,659

2,337

1,933

1,703

1,463 1,373

1,287

0

500

1,000

1,500

2,000

2,500

3,000

3,500

1990 1991 1992 1993 1994 1995 1996 1997

Year End

OTS Staff (1990 - 1997)
15

Compliance

The OTS complies with all applicable Generally Accepted Accounting Principles (GAAP),

Federal Financial Accounting Standards and internal control principles. The OTS' financial

transactions are reported on an accrual basis. The Planning, Budget and Finance Division

continually reviews new Statements of Federal Financial Accounting Standards and modifies

accounting policy, procedures, and reporting, as needed.

FMFIA

The Federal Managers’ Financial Integrity Act (FMFIA) mandated the establishment of

agency internal control programs and regular evaluations of management controls and

accounting systems to protect federal programs from fraud, waste and abuse. The OTS

maintains strong internal controls, comprehensive financial management controls, personnel

security controls, computer security, and strong asset accountability programs. The OTS

maintains budgetary integrity through the continual oversight and monitoring of its annual

budget. Generated reports allow the budget staff to regularly analyze the status of all

accounts, review all expenditures, and make recommendations to senior management

regarding potential savings and/or possible overages in the various accounts.

The foundation of the OTS' financial management control program is its annual financial

statement audit. The 1997 audit was conducted by the independent, certified public

accounting firm of Deva & Associates, P.C. The audit was completed in February 1998. For

the eighth consecutive year, the OTS was given an unqualified opinion on its financial

statements.

OTS’ Annual Assurance Statement for the fiscal year ending September 30, 1997, as

required by FMFIA, indicated that OTS’ management control systems are adequate and

ensure that programs achieve their intended results; resources are used consistent with the

OTS mission; programs and resources are protected from waste, fraud, and

mismanagement; laws and regulations are followed; and reliable and timely information is

obtained and used for decision making.

In addition, none of the quality assurance and other reviews, audits, management studies, or

program and annual evaluations conducted during FY 1997 identified any Section 2

(programs and administrative functions) significant or “material” weaknesses, or Section 4

(financial systems) material nonconformances.

Current Status of OTS’ Financial Management Systems

The OTS uses an off-the-shelf accounting system purchased from Computer Data Systems,

Inc., as the key component of its financial management system. The accounting system

operates on a calendar-year basis and integrates the procurement, budget execution,

accounts payable, accounts receivable, general ledger, and financial reporting functions and

is directly interfaced with the payroll/personnel system. Approved budget data are

electronically uploaded to the accounting system at the outset of each budget year. The
16

OTS provides financial cross-servicing to the Federal Maritime Commission, the Federal

Housing Finance Board, and the Office of Financial Institutions Adjudication in the payroll,

personnel, and accounting areas. This cross-servicing structure supports the goal of

reducing duplicative functions within the Federal Government as promoted by the National

Performance Review.

The OTS' financial management systems currently produce accurate, relevant, timely, and

useful information and meet GAO requirements. A review of these systems as part of the

Inspector General’s annual audit requirement has produced an unqualified audit for the past

eight years. The system utilizes an automated Standard General Ledger (SGL) crosswalk

which allows the OTS to meet federal reporting standards while permitting OTS’ internal

management to continue receiving a more detailed breakout of accounting information.

Financial reports are provided to senior management on a monthly basis to assist them in

monitoring their program area.

Year 2000 Issues

The OTS is actively addressing the conversion of its internal systems and is well on the way

toward accomplishing Year 2000 goals. In 1996, OTS’ Information Resources Management

division (IRM) completed an assessment of the national application systems and developed

a conversion plan to have all coding efforts completed by the end of 1998. To date,

approximately 89 percent of the computer code modifications have been completed, tested,

and implemented. Another 2 percent of the code revisions are currently underway and

modification to the remaining computer code will begin shortly.

Fifteen national systems were identified as mission critical. All but two of these systems are

now Year 2000 compliant. The remaining two systems, Home Mortgage Disclosure Act

(HMDA) and Interest Rate Risk, are scheduled to be completed by November 1998. In

addition, OTS is working with the electronic filing software vendor to ensure that its product

is Year 2000 compliant for the industry’s 1998 reporting cycles.

Validation testing of converted systems began in September 1997. IRM tested and

converted systems at its disaster recovery site during the annual recovery test. For three

days, the compliant systems operated under dates ranging from December 31, 1999 to

June 1, 2000. This validated the date rollover from December to January and allowed IRM

to test leap year and quarterly processes. The tests were successful and identified only

small correctable problems. Two similar tests have been scheduled and budgeted for June

and October of 1998. During 1998 and 1999, all national systems will be tested under

similar conditions.


UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

STATEMENTS OF FINANCIAL POSITION

(in thousands)

December 31

1997 1996

ASSETS

Federal assets:

Cash and cash equivalents (Note 3) $ 25,756 $ 20,663

Investments held to maturity (Note 4) 99,302 94,380

Accounts receivable 146 336

Interest receivable 492 194

Nonfederal assets:

Accounts receivable 1,200 762

Advances and prepayments 8,671 11,994

Property and equipment, net (Note 5) 38,628 39,448

TOTAL ASSETS $ 174,195 $ 167,777

LIABILITIES AND NET POSITION

Federal liabilities:

Accrued workers’ compensation (Note 6) $ 4,842 $ 4,029

Accrued liabilities (Note 7) 151 922

Nonfederal liabilities:

Accounts payable 621 689

Accrued annual leave 7,805 7,737

Deferred compensation liability 1,345 1,345

Deferred rent credit 2,513 2,676

Postretirement benefit liability (Note 8) 5,947 4,790

Other accrued liabilities (Note 7) 7,920 5,747

Total Liabilities $ 31,144 $ 27,935

Net position:

Assumed capital (Note 2) $ 41,037 $ 41,037

Retained earnings 102,014 98,805

Total Net Position $ 143,051 $ 139,842

TOTAL LIABILITIES AND NET POSITION $ 174,195 $ 167,777

The accompanying notes are an integral part of these financial statements.

19
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

STATEMENTS OF OPERATIONS AND CHANGES IN NET POSITION

Years ended December 31

(in thousands)

1997 1996

REVENUES

Industry assessments $ 128,209 $ 133,019

Examination, application, and security filing fees 5,674 6,446

Interest 8,009 7,120

Rental income (Note 9) 3,093 3,038

Imputed financing - expenses paid by other entities (Note 10) 4,469 0

Other 1,511 1,805

Total Revenues $ 150,965 $ 151,428

EXPENSES

Personnel compensation $ 84,039 $ 84,655

Benefits 27,486 17,084

Rent, communication, and utilities 7,859 8,301

Travel and transportation 10,102 9,368

Services 3,093 2,475

Data processing 3,637 3,275

Building expenditures 4,201 3,805

Office equipment and software 3,960 1,754

Miscellaneous 1,801 1,070

Depreciation 1,578 1,629

Total Operating Expenses $ 147,756 $ 133,416

EXCESS OF REVENUES OVER EXPENSES $ 3,209 $ 18,012

NET POSITION, beginning balance 139,842 121,830

NET POSITION, ending balance $ 143,051 $ 139,842

The accompanying notes are an integral part of these financial statements.

20
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

STATEMENTS OF CASH FLOWS

Years ended December 31

(in thousands)

1997 1996

CASH FLOWS FROM OPERATING ACTIVITIES

Excess of revenues over expenses $ 3,209 $ 18,012

Adjustments to reconcile excess of revenues over expenses to

 net cash provided by operating activities:

Amortization of net bond discount (premium) (405) 765

Depreciation 1,578 1,629

Loss on disposal of equipment 5 9

Changes in assets and liabilities:

Decrease (increase) in accounts receivable (248) 14

Decrease in advances and prepayments 3,025 1,753

Decrease in accounts payable (68) (570)

Increase in other liabilities 3,277 305

Net cash provided by operating activities $ 10,373 $ 21,917

CASH FLOWS FROM INVESTING ACTIVITIES

Purchases of investment securities $ (56,517) $ (115,000)

Maturities of investment securities 52,000 75,000

Purchases of property and equipment (763) (39)

Net cash used in investing activities $ (5,280) $ (40,039)

Net cash provided (used) by operating and investing activities $ 5,093 $ (18,122)

Cash and cash equivalents, beginning of year 20,663 38,785

Cash and cash equivalents, end of year $ 25,756 $ 20,663

The accompanying notes are an integral part of these financial statements.

21
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

22

1. REPORTING ENTITY

The Office of Thrift Supervision (OTS) was created when the Financial Institutions Reform, Recovery, and

Enforcement Act of 1989 (FIRREA) abolished the Federal Home Loan Bank Board (FHLBB) and transferred all

examination and supervisory activities to OTS under the Department of the Treasury. OTS’ primary functions are to:

(1) charter federal savings and loan associations; (2) adopt regulations governing the operation of the thrift industry;

(3) conduct examinations of federal and state chartered savings institutions and their holding companies; and (4)

supervise compliance with federal laws and regulations and OTS directives, taking measures needed to enforce such

compliance and rehabilitate troubled institutions.

FIRREA provides that OTS assess the institutions it regulates to recapture operating costs. Assessments are based on

OTS’ budget and are collected from savings and loans semiannually on January 31 and July 31.

2. SIGNIFICANT ACCOUNTING POLICIES

BASIS OF PRESENTATION

OTS is operated substantially as a commercial enterprise and records its calendar year transactions on an accrual basis

in accordance with generally accepted accounting principles (GAAP) and the applicable provisions of Office of

Management and Budget (OMB) Bulletin 94-01, “Form and Content of Agency Financial Statements.” OTS receives

no appropriated funds from the federal government and financial activities are recorded on an agency-wide basis versus

a program or fund basis. OTS classifies its assets and liabilities as federal and nonfederal. Federal assets and liabilities

arise from transactions among OTS and other federal entities. Nonfederal assets and liabilities arise from OTS

transactions with persons and organizations outside of the United States government.

CASH AND CASH EQUIVALENTS

Cash and cash equivalents consist of OTS’ account at Treasury, various imprest funds and other accounts in

Washington and at regional offices, and funds invested overnight by Treasury on OTS’ behalf.

INVESTMENTS HELD TO MATURITY

Effective January 1, 1994, OTS adopted Statement of Financial Accounting Standards No. 115, “Accounting for

Investments in Certain Debt and Equity Securities”. Under the statement, OTS is required to classify investment

securities under three categories: trading, available for sale, and held to maturity. All of OTS’ investments consist of

U.S. Treasury obligations. OTS has the intent and ability to hold these investments to maturity. Therefore, all

investments are classified as held to maturity and are stated at amortized cost. Premiums and discounts are amortized

over the term of the investment using the straight-line method, which approximates the interest method.

POSTRETIREMENT BENEFITS

OTS provides certain health and life benefits for all retired employees that meet eligibility requirements. Effective

January 1, 1993, OTS adopted Financial Accounting Standards Board (FASB) Statement No. 106 to account for its

share of the costs of those benefits. Under this statement, OTS’ share of the estimated costs that will be paid after

retirement is being accrued by charges to expense over the employee’s active service periods to the dates that they are

fully eligible for benefits, except that OTS has elected to amortize the transition amount (unfunded cost at January 1,

1993) over 20 years beginning in 1993 in accordance with the option available in the statement. Prior to 1993, OTS

expensed its share of the costs as claims were incurred by the retirees and as premiums were paid by OTS.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

23

Pursuant to an agreement with the Office of Personnel Management (OPM) in 1994, OTS agreed to pay a one-time fee

to OPM in consideration of OPM assuming the health care portion of the postretirement plan liability.

ANNUAL, SICK, AND OTHER LEAVE

Annual leave is accrued as it is earned, and the accrual is reduced as leave is taken. The balance in the accrued annual

leave account reflects current pay rates. Sick leave and other types of nonvested leave are charged to operating costs as

taken.

PROPERTY AND EQUIPMENT

The land and building owned by FHLBB were transferred to OTS under FIRREA. OTS also assumed all of FHLBB’s

furniture, fixtures, and equipment. These assets were recorded at their existing book values established in FHLBB’s

accounting records. Their value is included on the Statements of Financial Position in net position as assumed capital.

Other fixed assets acquired subsequent to that date were capitalized at cost based on the existing OTS capitalization

policy.

Fixed assets in excess of $50,000 were capitalized in 1997. In 1996 and prior years, fixed assets in excess of $5,000

were capitalized. OTS’ building is being depreciated over 50 years and furniture, fixtures, and equipment are

depreciated over 5 years. Depreciation is computed on a straight-line basis.

INCOME TAXES

As an agency of the U.S. Department of the Treasury, OTS is exempt from all federal and state taxes based on income.

OTS is also exempt from state and local property and real estate taxes.

CLASSIFICATION

Certain 1996 financial statement amounts have been reclassified for comparative purposes.

3. CASH AND CASH EQUIVALENTS

The following table summarizes the balances of cash and cash equivalents (in thousands):

December 31

1997 1996

Cash $ 356 $ 408

Overnight investment with Treasury 25,400 20,255

Total $ 25,756 $ 20,663

Interest earned on overnight investments totaled $1,279,359 and $2,241,067 for 1997 and 1996, respectively.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

24

4. INVESTMENTS HELD TO MATURITY

Investment securities held at December 31, 1997 and 1996 are marketable Treasury securities that have maturities

through April 1999. The amortized cost and market value of these securities are summarized as follows (in

thousands):

December 31

1997 1996

Face value $ 99,517 $ 95,000

Unamortized discount, net of unamortized premium (215) (620)

Book value $ 99,302 $ 94,380

Market value $ 99,085 $ 93,955

Effective interest rates range from 5.125% to 7.0%. Interest earned on these investments totaled $6,729,802 and

$4,879,177 for 1997 and 1996, respectively.

5. PROPERTY AND EQUIPMENT (in thousands)

The following table summarizes the fixed asset balances on the Statements of Financial Position:

December 31

1997 1996

Land $ 7,101 $ 7,101

Building 48,361 47,802

Furniture, fixtures, and equipment 5,651 5,752

 Total cost $ 61,113 $ 60,655

Accumulated depreciation, building $ (17,350) $ (16,343)

Accumulated depreciation, furniture, fixtures, and equipment (5,135) (4,864)

 Total accumulated depreciation $ (22,485) $ (21,207)

Property and equipment, net $ 38,628 $ 39,448

6. ACCRUED WORKERS’ COMPENSATION

The Federal Employees’ Compensation Act (FECA) provides income and medical cost protection to covered Federal

civilian employees injured on the job, employees who have incurred a work-related occupational disease, and

beneficiaries of employees whose death is attributable to a job-related injury or occupational disease. Claims incurred

for benefits for OTS’ employees under FECA are administered by the U.S. Department of Labor (DOL) and are

ultimately paid by OTS. These future workers’ compensation estimates were generated by DOL from an application of
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

25

actuarial procedures developed to estimate the liability for FECA benefits. This DOL estimated actuarial liability for

FECA benefits includes the expected liability for death, disability, medical, and miscellaneous costs for approved

compensation cases. The liability was determined using the paid losses extrapolation method calculated over the next

37-year period. This method utilizes historical benefit payment patterns related to a specific incurred period to predict

the ultimate payments related to that period. These annual benefit payments have been discounted to present value

using OMB’s June 10, 1997 economic assumptions for 10-year Treasury notes and bonds. Based on information

provided by the DOL, the U.S. Department of the Treasury determined that the estimated liability of OTS as of

December 31, 1997 and 1996, was $4,842,142 and $4,028,737, respectively. Changes in the actuarial liability related

to FECA are reflected as reductions or increases in benefits expense in the appropriate year.

7. ACCRUED LIABILITIES (in thousands)

December 31

1997 1996

Federal accrued liabilities:

 Payroll taxes $ 109 $ 866

 Other 42 56

$ 151 $ 922

Nonfederal other accrued liabilities 

 Payroll and withholding $ 2,828 $ 3,017

 Relocations 119 99

 Goods and services 4,002 2,539

 Other 208 92

$ 7,157 $ 5,747

8. POSTRETIREMENT BENEFIT PLAN

OTS sponsors a life insurance plan (the Plan) for all employees that meet eligibility requirements. OTS funds benefit

costs principally on a pay-as-you-go basis, with retiree contributions that are adjusted annually based on factors, some

of which are discretionary. The Plan is unfunded, with Plan participants paying a portion of the costs. As stated in the

Summary of Significant Accounting Policies, OTS changed its accounting policy with respect to the Plan as of January

1, 1993. OTS elected to defer recognition of the Plan’s transition obligation, and amortize such obligation over twenty

years on a straight-line basis.

A Memorandum of Understanding (MOU) was signed in December 1994, between OPM and OTS. The purpose of the

MOU was to implement legislation permitting annuitants who retired from OTS prior to January 1995, and who were

enrolled in the OTS health plan, to enroll in the Federal Employees Health Benefits Program (FEHB) for coverage

effective on or after January 8, 1995. OTS agreed to pay a one-time fee to OPM of approximately $10,993,000 in

consideration of OPM assuming the health portion of the postretirement plan liability. In accordance with FASB 106,

the agreement with OPM constitutes a settlement and, accordingly, OTS recognized a gain on the settlement of

approximately $16,694,000 in 1994. Such gain includes the health portion of the transition obligation that OTS elected
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

26

to initially recognize over 20 years in 1993. The postretirement liability of approximately $5,947,000 in the Statements

of Financial Position at December 31, 1997, and approximately $4,790,000 at December 31, 1996, represent OTS’

recognized portion of the remaining liability for participants’ future life benefits.

Net periodic postretirement benefit cost for life insurance provisions under the Plan included the following components

in 1997 and 1996 (in thousands):

For the Years Ended

December 31

1997 1996

Service cost - current year $ 392 $ 457

Interest on accumulated postretirement benefit obligation 718 685

Amortization of transition obligation 298 298

Amortization of loss 0 23

Net postretirement benefit expense $ 1,408 $ 1,463

The following table sets forth the Plan’s funded status reconciled with the liability recognized in the

Statements of Financial Position.

December 31

1997 1996

Accumulated postretirement benefit obligation:

Retirees $ 3,397 $ 3,404

Other fully eligible participants 5,179 4,275

Other active participants 3,209 2,703

Accumulated postretirement benefit obligation 11,785 10,382

Unrecognized transition obligation (4,472) (4,771)

Unrecognized net gain (1,366) (821)

Total postretirement benefit liability $ 5,947 $ 4,790

The weighted average discount rate used in estimating the accumulated postretirement benefit obligation at December

31, 1997 and 1996 was 7%.

9. RENTAL INCOME

OTS leases a portion of its building space to retailers under noncancellable operating leases expiring at various dates

through 2009. Certain of these leases provide renewal options. The leases provide for annual base rent, some of which

are subject to contingency rents for increased building costs, annual increases based upon changes in the Consumer

Price Index or a percentage of sales in excess of a specified amount. Other leases provide for fixed future increases in

rents over the term of the lease. OTS also subleases some of its existing unused leased facilities under similar terms.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

27

The future minimum rentals to be received under both types of noncancellable operating lease arrangements are as

follows (in thousands):

Years ending

December 31 Leases Subleases Total

1998 $ 2,182 $ 482 $ 2,664

1999 556 528 1,084

2000 574 549 1,123

2001 538 538 1,076

2002 329 538 867

Thereafter 2,078 1,337 3,415

$ 6,257 $ 3,972 $ 10,229

10. IMPUTED FINANCING - EXPENSES PAID BY OTHER ENTITIES

In 1997 OTS adopted Statement of Federal Financial Accounting Standards No. 5 (SFFAS No. 5), “Accounting for

Liabilities of the Federal Government.” SFFAS No. 5 requires, among other things, current recognition by federal

employers of estimated future expenses related to the postretirement costs of pension and health benefits provided to

employees under federal programs. The employer portion of postretirement pension and health benefits is paid by the

Office of Personnel Management. The value of these future payments are included on the Statements of Operations and

Changes in Net Position as imputed financing - expenses paid by other entities. The corresponding expenses are

included in benefits.

In 1997, OTS recognized approximately $1,270,000 of pension expense and $3,199,000 of health benefits under

SFFAS No. 5.

11. RETIREMENT PLANS

OTS employees participate in three retirement systems which are classified as multi-employer plans. Two are

administered by OPM. For funding purposes, these two plans function as defined contribution plans; however, the

retirement benefits accrue in a manner consistent with a defined benefit plan. The third is a private defined benefit

plan administered by the Financial Institutions Retirement Fund (FIRF).

The Civil Service Retirement System (CSRS) is currently two-tiered. For employees hired prior to January 1, 1984,

OTS withholds approximately 7 percent of their regular earnings. This contribution is then matched by OTS and the

sum is transferred to the Civil Service Retirement Fund, from which this employee group will receive retirement

benefits.

For employees with more than five years of service (not necessarily continuous), hired on or after January 1, 1984, OTS

withholds, in addition to Social Security withholding, 0.8 percent of their regular earnings, but matches such

withholdings with a 7 percent contribution. At the point such earnings exceed the FICA maximum wages ($65,400 for

1997), employees covered under this tier of CSRS are required to have 7 percent of their earnings withheld while the

agency expense remains at a 7 percent contribution. This second employee group will receive retirement benefits from

the CSRS along with the Social Security System, to which they concurrently contribute.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

28

Beginning in January 1987, all employees hired since January 1, 1984, either as new employees or as having less than

5 years of accumulated service (with a break in service over one year) are included in the new Federal Employee

Retirement System (FERS). For such employees, OTS withholds 0.8 percent of their regular earnings and matches

those withholdings with an 11.4 percent contribution. This group of employees will receive benefits from the FERS as

well as the Social Security System to which they concurrently contribute.

Pursuant to FIRREA, the Office of Regulatory Activities and the twelve examination districts became part of OTS. As

a result, OTS assumed the costs of their retirement system, which is part of FIRF. Under this private retirement

system, OTS contributes a percentage of total FIRF salary. This percentage varies from year to year. Employees do

not contribute to FIRF but do contribute to the Social Security System. Changes in percentages are based on the

number of active FIRF OTS employees, the number of people that have retired, the benefits paid out, and adjustments

to the actuarial gain or loss.

Although OTS funds either all (FIRF) or a portion (CSRS and FERS) of pension benefits under any of the above

retirement systems relating to its employees and makes the necessary payroll withholdings, OTS does not account for

the assets of either retirement plan nor does it have actuarial data with respect to accumulated plan benefits or the

unfunded pension liability relative to its employees. These amounts are reported by the Office of Personnel

Management for both government retirement systems and are not allocated to the individual agencies.

In years prior to 1997, OTS was not required to fund the FIRF plan due to changes in retirement plan provisions of the

Internal Revenue Code and cumulative net actuarial experience gains. OTS established a prepaid asset representing the

Future Employer Contribution Offset, and adjusted its balance and the corresponding expense annually according to

actuarial valuation reports prepared by the Plan Administrator. In 1997, OTS elected to eliminate this prepaid asset by

amortizing the remaining balance over three years. This change was due to the FIRF plan’s status as a multiemployer

plan and as such, the inherent uncertainty of the OTS’ portion of the Future Employer Contribution Offset. The

prepaid balances included in the Statements of Financial Position were approximately $6,657,000 in 1997 and

$10,053,000 in 1996.

In addition to the retirement plans described above, OTS employees have the option of participating in one of two

retirement savings programs. Employees covered under CSRS or FERS may participate in the OPM-sponsored Thrift

Savings Plan (TSP), a plan with characteristics similar to a private-sector 401(k) plan. CSRS participants may

contribute up to five percent of their earnings to TSP on a pretax basis. FERS participants may contribute up to ten

percent of their earnings to TSP on a pretax basis. OTS makes contributions to TSP on the behalf of FERS participants

as follows: OTS contributes to an employee’s TSP account an amount equal to one percent of the employee’s earnings

whether or not the employee contributes. OTS also matches 100 percent of the first three percent of earnings that an

employee contributes, and 50 percent of the next two percent that an employee contributes.

Employees covered under FIRF may participate in the Financial Institutions Thrift Plan (FITP), a 401(k) plan.

Participants may contribute up to 15 percent of their earnings to FITP on a pretax basis. OTS matches 100 percent of

the first five percent that an employee contributes.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

29

The retirement expenses for all OTS plans, included in benefits expense on the accompanying Statements of Operations

and Changes in Net Position, were as follows (in thousands):

For the Years Ended

December 31

1997 1996

CSRS $ 2,535 $ 1,057

FERS 1,578 1,601

FIRF 3,396 (2,029)

TSP 687 683

FITP 2,586 2,667

$ 10,782 $ 3,979

12. DEFERRED COMPENSATION

As part of FIRREA, OTS assumed the Deferred Compensation Plans of the employees working for the Federal Home

Loan Banks of Dallas and San Francisco. These plans allowed employees to defer a portion of their income and

provided for employer matching contributions. OTS froze these plans and discontinued any deferrals or employer

matches to these plans effective January 1, 1991. Benefits under the assumed plans were intended to be provided by

cash value of life insurance policies issued by Mutual Benefit Life which went into rehabilitation on July 16, 1991.

Under the rehabilitation plan, withdrawal of cash value prior to December 31, 1999 is restricted and subject to

substantial withdrawal penalties. Current plan withdrawals have been funded by OTS. The cash value of those

policies, included in advances and prepayments in the accompanying Statements of Financial Position, were

$1,725,000 in 1997 and 1996.

13. LEASE COMMITMENTS

OTS conducts most of its regional operations in leased facilities under noncancellable operating leases expiring at

various dates through 2005. Many of the leases contain a provision to renew at the end of the initial term for an

additional one to ten years. The rental payments are based on a minimum rental plus a proportional share of building

operating expenses and taxes.

Some of the operating leases provide for rental escalations or stated annual rental increases in the amount of base rent

over the lives of the leases. The accompanying Statements of Operations and Changes in Net Position reflect rent

expense on a straight-line basis over the lives of the leases.
UNITED STATES DEPARTMENT OF THE TREASURY

OFFICE OF THRIFT SUPERVISION

NOTES TO FINANCIAL STATEMENTS

30

The minimum rental commitments under noncancellable operating leases are as follows (in thousands):

Years ending

December 31

1998 $ 4,856

1999 4,622

2000 4,493

2001 2,452

2002 2,249

Thereafter 5,393

$ 24,065

Rent expense under noncancellable operating leases totaled $5,376,677 and $5,584,588 in 1997 and 1996, respectively.

14. COMMITMENTS AND CONTINGENCIES

On March 16, 1998, a federal appellate court upheld a judgment entered against OTS in February 1997 in the amount

of $723,533, plus post-judgment interest, in a case involving a former OTS employee’s claim of wrongful termination.

Although OTS plans to seek rehearing of the appellate court’s decision, OTS has recognized an expense and

established a liability in the amount of $762,510.

OTS is defending several other cases that could subject OTS to expenditure of funds. OTS believes it has substantial

legal and factual defenses to the claims asserted. For most of these cases, OTS believes it is more likely than not that

OTS will prevail, but for some of the cases OTS is unable to estimate the likelihood of success, or the potential loss to

the agency should OTS’ defense be unsuccessful.

In addition, there are approximately 125 legal actions pending against the United States in the U.S. Court of Federal

Claims in connection with the elimination of the capital treatment of supervisory goodwill of certain thrift institutions.

These cases arise from the enactment of the Financial Institutions Reform, Recovery, and Enforcement Act of 1989.

The U.S. Department of Justice is defending these cases on behalf of the United States.

The U.S. Court of Federal Claims has not yet imposed any damage awards against the United States in any of the 125

supervisory goodwill cases. The Justice Department has advised that, although the amounts claimed are not stated with

precision, they are estimated to total approximately $20 billion to $30 billion. However, while it is likely that the

United States will have to pay some amount of damages on the claims, the ultimate costs cannot be reasonably

estimated at this time.

With regard to the supervisory goodwill cases, it has not yet been determined which Federal entity (or entities) is the

“appropriate Federal entity” to recognize any liability, nor has it been determined whether the Judgment Fund or some

other fund would be the ultimate source for payment of any damage awards against the United States. In any event,

under federal law, any monetary judgment rendered against the United States in any of the supervisory goodwill cases

must be satisfied from appropriated funds. OTS would not be required to expend its own funds, which are nonappropriated, to pay such a judgment. For that reason, and because the amount of damages that may ultimately result

in these cases cannot be reasonably estimated at this time, OTS has made no loss accrual for these cases.