Office of Financial Research 

FY 2014 

President’s Budget 

 
OFR - 2 

Table of Contents

Section 1 – Purpose ....................................................................................................................... 3

1A – Mission Statement .............................................................................................................. 3

1B – Mission Priorities and Context ........................................................................................... 4

Section 2 – Budget Adjustments and Appropriation Language ............................................. 14

2.1 - Budget Adjustments Table .............................................................................................. 14 

2A – Budget Increases and Decreases Description................................................................... 14

2B – Appropriations Language and Explanation of Changes ................................................... 14

2C – Legislative Proposals........................................................................................................ 14 

2.2 - Operating Levels Table .................................................................................................... 15

Section 3 – Budget and Performance Plan ............................................................................... 16

3A – Data Center ...................................................................................................................... 21

3B – Research and Analysis ..................................................................................................... 23

3C – Operations and Support Services ..................................................................................... 25
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Section 1 – Purpose

1A – Mission Statement 

The Dodd-Frank Wall Street Reform and Consumer Protection Act of 2010 (the “Dodd-Frank 

Act”) established the Office of Financial Research (OFR or Office) within the Department of the 

Treasury (Treasury) to serve the Financial Stability Oversight Council (Council), its member

agencies, and the public by improving the quality, transparency, and accessibility of financial 

data and information; conducting and sponsoring research related to financial stability; and 

promoting best practices in risk management.

 

1.1 Appropriations Detail Table

A The OFR was financed through transfers from the Federal Reserve Board through July 20, 2012 and through 

assessments on certain financial institutions thereafter (see Section 3, “Assessments”). Transfers out include a) 

$39.9 million in transfers to FRB for unutilized balances as of July 21, 2012 and b) $6.25 million in resources 

utilized for Council payments of covered FDIC expenses. B Research and Analysis includes only staffing, outside work arrangements and contracting related to annual 

report production. Costs associated with data, information systems, and analytical tools are captured under Data 

Center. 

C Effective January 2013, Operations and Support Services will include two offices formerly located in the Data 

Center. The FTE and estimated budget amounts for FY 2013 and FY 2014 reflect this organizational realignment. 

Dollars in thousands

Office of Financial Research

Budgetary Resources

FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT

New Appropriated Resources:A

Assessments 128,000 36,372 93,595 (34,405) -27%

Transfers In/Out 16,828 0 0 NA NA

 Transfers In From Federal Reserve Board 63,000

 Transfers Out to Federal Reserve Board (39,922)

 Transfer Out To FSOC (FRB Funding) (6,250)

Unobligated Balances from Prior Years 2,000 107,254 65,440 63,440 3172%

Total Revenue/Offsetting Collections $146,828 $143,626 $159,035 29,035 8%

Other Resources:

Data Center 30 19,303 73 41,245 122 47,987 92 28,683 307% 149%

 Direct FTE 24 67 112

 Reimbursable/Detail FTE 6 6 10

Research and AnalysisB 14 3,398 36 8,618 55 12,432 41 9,034 293% 266%

 Direct FTE 11 32 51

 Reimbursable/Detail FTE 3 4 4

Operations and Support ServicesC 21 16,873 58 28,323 73 28,566 52 11,693 248% 69%

 Direct FTE 9 38 52

 Reimbursable/Detail FTE 12 20 21

Total Expenses/Obligations 65 39,574 167 78,186 250 88,985 185 49,411 285% 125%

Direct FTE 44 137 215 

Reimbursable/Detail FTE 21 30 35 

Net Results 65 $107,254 167 $65,440 250 $70,050 185 ($37,204) 284.62% -34.69%

FY 2012 FY 2013 FY 2014 Change % Change

Actual Estimated Estimated FY 2012 to FY 2014 FY 2012 to FY 2014
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1B – Vision, Priorities and Context

Goals and Objectives 

Consistent with the Dodd-Frank Act, the OFR has established five strategic goals to support 

achievement of its mission. 1

 

• Support the Council through the secure provision of high-quality financial data and analysis

needed to monitor threats to financial stability. 

Key objectives underlying this goal include providing research and analytical support to the 

Council on developments in the financial system and potential threats to financial stability;

collecting and securely providing data to the Council and its member agencies where such 

data are essential to monitoring threats to financial stability and are not otherwise available; 

seeking to reduce reporting burdens for financial institutions by coordinating data requests; 

and enhancing the quality and consistency of financial data available to Council member 

agencies through direct data services, including shared procurement, data validation, and data 

management. 

• Develop and promote data-related standards and best practices.

Key objectives underlying this goal include facilitating the establishment of global datarelated standards to improve the quality and scope of data related to financial stability, while 

also reducing the cost of reporting for financial market participants, and assisting Council 

members in defining standards and best practices for data collection and management that 

will increase efficiencies. 

• Establish a center of excellence for research on financial stability and promote best practices 

for financial risk management.

Key objectives underlying this goal include conducting and sponsoring research—including 

collaboration with a network of outside researchers—to identify, monitor, and evaluate

threats to financial stability and to analyze disruptions when and after they occur; evaluating 

and reporting on stress tests or other stability-related evaluations; providing advice on the 

impact of policies related to systemic risk; and promoting best practices in financial risk

management.

 

1 The OFR’s strategic goals support the Treasury strategic goal: Repair and Reform the Financial System and 

Accelerate the Recovery of the Housing Market. See the OFR’s strategic plan for FY 2012-2014 at 

http://www.treasury.gov/initiatives/wsr/ofr/Documents/OFRStrategicFramework.pdf and the Treasury’s strategic 

plan at http://www.treasury.gov/about/budget-performance/strategic-plan/Pages/index.aspx 
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• Provide the public with key data and analysis, while protecting sensitive information.

The key objective underlying this goal is to increase the transparency and distribution of 

research on the financial system by publishing financial analysis, data, and information, 

while safeguarding sensitive information. Key publications will include annual reports of the 

OFR that contain its analysis and information about its activities, working papers that 

highlight OFR research activities, as well as reference databases on financial companies and 

financial institutions. 

• Establish the OFR as an efficient organization and world-class workplace. 

Key objectives underlying this goal are to build the workforce of the OFR, manage its

information, and administer its finances to fulfill the OFR’s mission in a cost-effective, 

transparent, and accountable manner, modeling its processes after best practice standards. 

Priorities and Progress

As part of the OFR’s first strategic plan published in March 2012, the OFR established mediumterm priorities for FY 2012-2014, as well as more immediate and specific priorities for FY 

2012.2

 Priorities for FY 2013 reflect the rapid evolution of the organization as it continues to 

mature. The OFR continues to strengthen its operating framework by establishing mechanisms 

to support transparency and accountability; ramping up investment in its core analytic, 

information security, and data management infrastructures; reinforcing protocols for efficient 

and secure collaboration and data-sharing; and deepening and expanding its output related to 

research and data (Table 1.2). 

In FY 2014, this momentum is expected to continue, with the organization projected to move to 

steady-state staffing levels, investments in the OFR’s initial data and analytic infrastructure 

projected to decline as many of the key services move from a “build” mode into a “maintenance 

mode,” and the OFR’s capacity to meet its data and research mandates substantially enhanced. 

Beyond the expansion of core outputs noted for FY 2013, key milestones for FY 2014 will 

include completing its facilities build-out, the publication of data on the reference databases, and 

publication of the OFR’s third Annual Report in early FY 2014. 

 

2 See pages 6-11 of the OFR’s strategic plan. 
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1.2 – OFR Long-term Goals and Objectives and Priorities for FY 2013 

Goals* Objectives* FY 2013 Priorities

Council 

Support

• Provide analytic support

• Serve as Council-wide data utility

o Collect necessary data 

o Promote efficiency and 

security in data acquisition

o Enhance data quality and 

consistency

o Catalog financial entities and 

instruments

• Expand analytic support to the Council and track timeliness and quality of services provided

o Continue support for the designations process and Annual Reports 

o Expand financial stability risk monitoring, including through the Financial Stability Monitor 

(formerly “dashboard”) 

o Provide analysis of the asset management industry 

• Build on the OFR’s secure analytical environment through core investments in long-term IT 

infrastructure and collaboration tools. 

• Strengthen foundations for secure, targeted data acquisition and data sharing through: 

o Completion of foundational metadata inventory program and other efforts to identify gaps and 

overlap in data collection

o Complete development of common approach to data sharing based on information security 

categorization

o Continue elaboration of OFR protocols for data management and security, and data sharing 

o Develop a plan for the identification of additional opportunities to improve efficiencies in data 

collection by Council members 

• Continue support for the Council Data Committee, with working groups on key initiatives.

Promotion of 

Data-Related

Standards

• Facilitate establishment of datarelated standards

• Assist Council in defining 

standards and best practices for 

data collection

• Support key LEI milestones, including:

o Fall 2012 endorsement of the Regulatory Oversight Committee charter 

o December 2012 definition of the Central Operating Unit legal framework 

o January 2013 achievement of membership on the Regulatory Oversight Committee 

o March 2013 launch of LEI operations 

• Publish internal milestones for a broader data standards strategy, to include interagency working groups 

to assist Council member agencies in defining additional information standards. 

*See the OFR’s FY 2012-2014 Strategic Framework for additional detail.
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Goals Objectives FY 2013 Priorities

Center for 

Research

• Conduct and sponsor research on 

financial stability

• Promote best practices in risk 

management

• Facilitate coordination and joint 

research

• Conduct essential research on risks to financial stability and evaluate responses to those risks in 

collaboration with outside researchers, with a particular focus on:

o Evaluating metrics for measuring risks to financial stability

o Evaluating stress tests that can aid in financial stability analysis

o Promoting best practices in financial institution risk management

• Hold FY 2013 conference focusing on key aspects of the OFR’s data and R&A agenda. 

• Continue Research Seminar Series and ad hoc workshops (similar to the August 2012 Stress Testing 

Workshop). 

• Hold inaugural Financial Research Advisory Committee (FRAC) meeting; engage with FRAC 

subcommittees.

• Engage with international regulatory bodies on financial stability research. 

Public 

Information

• Publish analytical reports, data,

and related information, including 

reference databases and 

formats/standards for data 

• Deliver annual testimony

• Expand the OFR Working Paper Series, including by leveraging collaboration with research networks

and exploring other formats for publication. 

• Provide enhanced content on the website that promotes public awareness of the OFR. 

• Complete strategy for populating a financial company reference database (including LEI) and the 

financial instrument reference database. 

Building the 

OFR

• Manage human capital and 

financial capital effectively

• Recruit the first class of fellows under the OFR Fellowship Program to expand the OFR’s expertise on 

financial stability and data management. 

• Continue to refine the OFR’s Workforce Plan and work toward targeted staffing levels by continuing 

efforts to attract and retain highly skilled, experienced staff. 

• Monitor and regularly update comprehensive implementation plan to ensure effective prioritization and 

resource utilization. 

• Establish performance measures and begin quarterly internal strategy reviews. 

• Launch participation in OPM-led Employee Viewpoint Survey.
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The OFR has made significant and accelerating progress toward meeting its implementation

priorities. The following are examples of that progress: 

Council Support 

The OFR is providing data for use by the Council in developing its Annual Report on financial 

stability, as well as data and analysis relating to the designation of nonbank financial companies 

for consolidated supervision by the Federal Reserve Board. The OFR is also continuing to 

enhance its Financial Stability Monitor—a dashboard of metrics and indicators related to 

financial stability—in collaboration with staff from Council member agencies. 

Consistent with its objectives to avoid duplicating existing efforts and to create new efficiencies 

by collaborating with Council member agencies, the OFR is establishing an inventory of data 

held by Council member agencies. The OFR has completed an inventory of purchased-andcollected data and has a final phase under way on derived data. The inventory, which is 

searchable, will help the OFR and Council member agencies identify whether specific data have 

already been collected before seeking data from financial institutions or others. The OFR has 

developed, and is currently piloting, a “collaborative workspace” for agencies to access this 

information, search the catalogue, and avoid unnecessary requests for data. 

To support data sharing, the OFR has established successful sharing arrangements with a number 

of Council member agencies and is working to establish new ones. For example, the Office is 

collecting money market fund data from the Securities and Exchange Commission (SEC). The 

OFR organizes and “normalizes” the data of any coding or definitional inconsistencies, and then 

produces analysis based upon these data. The OFR expects to expand its ability to provide such 

data management services and analysis over time. 

The OFR also supports the Council’s Data Committee. The Data Committee promotes 

improvements in data collection and information sharing among Council members, and also 

provides direction to the OFR and requests data from the OFR. For example, the Data 

Committee provided input on the Financial Stability Monitor and the data inventory projects 

noted above. The Data Committee also plays an integral role in mapping the OFR’s security 

classification system to those used by other Council members, as part of the broader effort to 

facilitate the secure sharing of information by the OFR. 

Critical to the OFR’s support for the Council (and for broader stakeholders) is building the 

information technology infrastructure and business systems for: (1) data acquisition, 

management, and dissemination (under strict protocols for security and data sharing); (2) a 

robust research and analytical environment for handling large amounts of data to support 

complex financial models, computations, and analysis; and (3) a secure platform for 

collaboration and communication with Council member agencies and outside researchers, as well 

as for broader communication with the public about OFR activities. 

During FY 2012, the OFR established a secure short-term analytical environment to support the 

near-term needs of researchers and analysts, and undertook planning and design for systems to 

meet longer-term needs. Consistent with the OFR’s commitment to a careful and prudent 
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approach to its expenditures, this planning includes measures to refine and validate estimates for 

costs and timing. Implementation of the longer term environment began in the last quarter of FY 

2012 and is expected to accelerate in FY 2013. Although some uncertainty exists about precise 

timing as the OFR continues to learn from early experiences and to validate its initial 

infrastructure design, the Office expects these foundational infrastructure investments to begin to 

wind down by FY 2014-2015. 

The OFR has also emphasized data security and protection throughout its start-up activities. As 

an office within the Treasury, the OFR inherits the benefits of the Treasury Department’s secure 

information technology infrastructure. The OFR is also adhering to the security policies of the 

Treasury’s Chief Information Officer. The OFR is expanding its security controls as necessary 

for OFR-specific systems and data, as well as for information sharing across Council member 

agencies. In this context, the OFR has established protocols based on classifications of data and 

systems for access control and monitoring. In addition, OFR employees who handle highly 

sensitive, confidential data are required to sign an acknowledgement that they will be subject to a 

one-year post-employment restriction from working for a financial services entity, unless a 

waiver is granted, as detailed in the interim rule published in the Federal Register on September

30, 2011.3

 

Data Standards 

A key early initiative of the OFR is its ongoing work with policymakers, regulators, and the 

private sector to establish a unique, global standard for identifying parties to financial 

transactions. This Legal Entity Identifier (LEI) will allow for better understanding of true 

exposures and counterparty risks across the system—to the benefit of both market participants 

and regulators. According to recent financial industry estimates, adoption and implementation of 

an LEI system would yield hundreds of millions of dollars in cost savings every year for 

financial market participants from efficiencies in aggregating data and reconciling inconsistent 

information from multiple sources. 4

 In June 2012, the G-20 endorsed recommendations from the 

international Financial Stability Board for implementation of an LEI system. That endorsement 

paved the way for LEI implementation, with a planned launch of the global system in March 

2013. To support achievement of this ambitious target, the OFR is serving as the US Vice Chair 

of a 50-member international LEI implementation group and providing senior level expertise to 

that effort. The OFR is also working with Council member agencies on the implementation of 

interim solutions, including the CFTC Interim Compliant Identifier (CICI) and on readiness for 

adoption of the LEI. 

More broadly, the OFR will seek to promote the development and use of information standards 

that enhance the ability to identify and mitigate threats to financial stability. Further, the OFR 

will assist Council member agencies in the development and application of standards and best 

practices to improve the sharing, exchange, use, and quality of their financial data. In its 2012 

Annual Report, the OFR provided an analytic overview of prospects for further progress in 

 

3 See, https://www.federalregister.gov/articles/2012/05/21/2012-12047/assessment-of-fees-on-large-bank-holdingcompanies-and-nonbank-financial-companies-supervised-by-the 4

 See, for example, http://www.sec.gov/comments/s7-34-10/s73410-57.pdf, page 11. 
OFR - 10 

promoting financial data standards that will define its work in this area.5

 The Council-wide data 

security classification initiative noted above is another important part of the OFR’s information 

standards agenda. During FY 2013, the OFR also plans to establish interagency working groups 

focusing on key issues related to data standards (including approaches to mapping the ownership 

and control relationships among financial entities), actively participate in issue-specific working 

groups sponsored by others organizations (such as a Consumer Financial Protection Bureau 

(CFPB)-sponsored effort related to mortgage standards), and produce—in collaboration with 

other Council members—analysis on related topics, such as asset classification or the need for 

additional financial data identifiers. 

The OFR also sponsors, along with the Federal Reserve and the Federal Deposit Insurance 

Corporation (FDIC), an annual regulatory data workshop. In past years the OFR has assisted 

with the planning and coordination phases of this two-day regulators’ workshop and in 2013 will 

expand its role as a lead sponsor of the workshop. In addition, the OFR is actively engaged in 

private sector standard-setting activities in order to maintain a clear understanding of industry 

and investor priorities. For example, the OFR sits on the board as the US member for financial 

services of the International Standards Organization, and is also involved in other industry 

coordination activities such as the Enterprise Data Management Council.

Center of Excellence for Research

Establishing strong research networks with outside experts is critical to the effectiveness of the 

OFR in fulfilling its research and analytical mandate. The OFR made substantial initial progress 

in this regard during FY 2012. The OFR launched a Research Seminar Series, inviting 

researchers in academia, government, and the private sector to present findings on a range of 

topics related to the OFR’s mission; in all, the Office hosted 17 widely attended seminars during 

FY 2012. The OFR also launched its Working Paper Series during the year and published two 

papers: A Survey of Systemic Risk Analytics in January 2012, focusing on quantitative tools for 

assessing threats to financial stability, and Forging Best Practices in Risk Management in March

2012, providing a broad assessment of risk management practices and how risk management can 

be improved.6

 This series will continue and expand in FY 2013—and the OFR will continue to 

invite comments from outside researchers on its work. 

In July 2012, the OFR published its inaugural Annual Report to Congress under Section 154(d) 

of the Dodd-Frank Act. As required in the statute, this report included the OFR’s analysis of 

threats to the financial stability of the United States; the status of the efforts of the Office in 

meeting its mission; and key findings from the research and analysis of the financial system by 

the Office. The report also outlined the Office’s agenda to collaborate with Council member 

agencies, outside researchers, and other experts to monitor the financial system and conduct 

research on sources of vulnerability; to identify gaps and other deficiencies in the data needed for 

this research and monitoring; and to promote data standards. The OFR agenda includes further 

 

5 See Chapter 5, “Promoting Data Standards” at http://www.treasury.gov/initiatives/wsr/ofr/Documents/PromotingData-Standards.pdf

6 http://www.treasury.gov/initiatives/wsr/ofr/Pages/ofr-working-papers.aspx
OFR - 11 

research on financial stability measurement, stress testing, and risk management, and new 

research applying network analysis to the study of the financial system. 

In November 2012, the OFR announced the selection of members for its Financial Research 

Advisory Committee, made up of distinguished academics, researchers, industry leaders, 

government officials, and experts in risk management, data, and technology to broaden the 

OFR’s analytical perspective and to provide a critical link to diverse knowledge and experience.7

 

The OFR hosted the inaugural meeting of the Financial Research Advisory Committee on 

December 5, 2012. The committee will provide advice to the OFR, bringing diverse perspectives 

to inform the OFR’s agendas for research and data, and to help OFR fulfill its mission. 

On December 6, 2012, the Office of Financial Research and the Financial Stability Oversight 

Council co-hosted their second annual conference, entitled Assessing Financial Intermediation: 

Measurement and Analysis. The conference brought together thought leaders from the research 

and regulatory communities, public interest groups and the financial services industry to discuss 

challenges to financial stability posed by evolving financial activities. This year’s conference 

examined recent changes in financial institutions, markets, and activities, and explored the future 

implications for financial stability, risk management, and policy. The first Office of Financial 

Research and Financial Stability Oversight Council conference was held in December 2011. The 

title of the conference The Macroprudential Toolkit: Measurement and Analysis was hosted in 

Washington D.C., which focused on issues related to data, technology, and analytical 

approaches for assessing, monitoring, and mitigating threats to financial stability.

In August 2012, the OFR also conducted a workshop on stress tests, one of several research areas 

identified in the OFR’s statute. The workshop brought together participants from academia, the 

regulatory community, and industry to discuss regulatory stress testing, and share practices and 

experiences related to stress testing. The goal of the workshop was to generate a research agenda 

on the subject and point to areas where stress testing could be improved. 

Public Information 

During FY 2012, the OFR began to publish its research, including the Working Paper Series and 

the Annual Report; information on its data-related agenda, including blog posts about progress 

and information on the LEI initiative; and background information on key events, including 

materials associated with OFR conferences and the Financial Research Advisory Committee. 

The Office also published core operational documents, including its Strategic Framework and 

information about its funding through assessments. 

During FY 2013, the OFR is further extending its communications efforts by enhancing its web 

presence,8

 continuing key publications, and expanding its dissemination of information about its 

operations and the work of its core research and data centers. Consistent with its commitment to 

transparency and accountability, the OFR has also put in place a small team to manage public 

 

7 For more information, see the Federal Register at https://www.federalregister.gov/articles/2012/03/22/2012-

6941/financial-research-advisory-committee

8 The OFR website can be found at http://www.treasury.gov/initiatives/wsr/ofr/Pages/default.aspx. 
OFR - 12 

communication, timely Congressional response and outreach, as well as communications with 

other external parties, such as industry and academia. 

Building the OFR

During FY 2012, the OFR continued the rapid build-out of its core operational systems and 

procedures, guided by the need for cost-effective, transparent, and accountable structures that 

reflect best practices. Reflecting these principles and the complex nature of its mission, the OFR 

has recognized the value of balancing speed with prudence—building its core functions through 

an iterative process that provides for ongoing review and improvements, based on lessons from 

early experience and as the organization continues to mature. 

• Strategic and Performance Management: 

In standing up the organization, the OFR is following the principles and practices of the 

Government Performance Results Modernization Act of 2010. The OFR has established, and 

is continuing to enhance, a comprehensive planning system that ties together strategic 

planning, operational planning (budget, performance, and human resources), execution, 

monitoring, and review, including through formal internal reviews of projects, programs, and 

strategies. In addition, the OFR has established a foundational set of performance measures, 

tied to its strategic goals, that will set a baseline for the organization’s continued stand-up; 

these measures are expected to evolve further as the organization matures and gains 

additional experience (see Section 3, below). 

• Financial Management and Operational Controls: 

The OFR’s financial activities are subject to general Treasury financial management controls 

and protocols, and are reviewed as part of the consolidated audit of Departmental Offices 

within the Treasury. The OFR has developed expanded internal policies and procedures to 

support sound and efficient operations, and rigorous internal controls. The Office has also 

established internal protocols to ensure timely responses to Treasury’s Office of the Inspector 

General, the Council of Inspectors General, and the Government Accountability Office in 

their oversight of the OFR’s activities. 

• Advisory Committee: 

As noted above, the OFR during FY 2012 established an advisory committee under Federal 

Advisory Committee Act (FACA) procedures and plans to initiate formal meetings under 

FACA procedures in FY 2013. This committee will provide the OFR with insights and 

expertise, will support transparency and accountability in Office operations, and will offer an 

effective forum for input and dialogue among a broad-range of OFR stakeholders. 
OFR - 13 

30

120

212

282

13 65

167

250

0

50

100

150

200

250

300

FY 2011 FY 2012 (P) FY 2013 (P) FY 2014 (P)

1.B.1 Projected Staff Levels

End of Period Staff Count FTE

28%

24% 21%

27%

Data Center - Business

Data Center - Infrastructure

Research and Analysis

Operations and Support

Services

Full Time Equivalents (FTE) are calculated as total hours worked over the 

full year divided by the standard measure of total annual hours . FTE staff 

includes direct staff, reimbursable, Treasury staff, and external details

Includes reimbursable support. Research Staffing to be leveraged 

through networks with outside researchers

1.B.2 Workforce Plan Steady State

• Human Resources: 

As detailed in the OFR’s FY

2012 Human Capital Report to 

Congress, the Office has made 

substantial progress in building 

its core staff and establishing the 

frameworks and processes 

required for effective and 

efficient human resource 

management. During FY 2013, 

the OFR will initiate formal 

participation in the OPM Federal 

Employee Viewpoint Survey for 

additional input about its progress 

on its human capital plans. 

A critical priority for the OFR 

stand-up is the recruitment of the 

specialized and highly trained 

staff necessary to fulfill its 

mission. By the end of FY 2012, 

the Office made significant 

progress: five of eight senior 

leadership positions and 11 of 17 

broader management positions 

filled, and a staff of 120, 

including 22 employees through 

reimbursable arrangements with 

Treasury and another eight 

through detail arrangements from 

outside organizations. 

The OFR plans to build to steady state staffing levels of 275 to 300 FTEs by FY 2015. More 

than 50 percent of these employees will be in the Data Center. The Research and Analysis 

Center will constitute about 20 percent of the OFR’s staff and will leverage a broader 

network of resources through work arrangements with outside researchers and collaboration 

with Council member agencies. The Office of the Director, Counsel, and Operations will 

make up the remaining staff.
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Section 2 – Budget Adjustments and Appropriation Language

2.1 – Budget Adjustments Table

Dollars in Thousands

Office of Financial Research FTE Amount

FY 2012 Actual 65 $39,574 

FY 2013 Estimated Budget 167 $78,186 

Total FY 2014 Base 167 $78,186 

Program Changes: 

Program Adjustment* 83 $10,799 

Personnel Steady State 83 $12,531 

Non-Personnel Steady State ($1,732)

Total FY 2014 Estimated Budget 250 $88,985 

*Total FTE includes Reimbursable/Detail staff

*The adjustment includes the impacts of inflation and the proposed one percent pay increase

2A – Budget Increases and Decreases Description

Program Adjustments .................... +$10,800,000/+83 FTE (Direct and Reimbursable/Detail)

Personnel Steady State 83 FTE (Direct and Reimbursable/Detail) +$12,532,000

OFR will continue its growth toward full staffing with steady-state staffing levels expected by 

FY 2014-2015. 

Non-Personnel Steady State -$1,731,000 

Although substantial uncertainty remains—particularly regarding medium-term IT needs to 

support secure delivery of the OFR’s data-related and analytical mandate—the need for funding 

for initial investments in IT infrastructure are expected to wind down beginning in FY 2014-

2015. However, regular maintenance costs and periodic one-time costs for IT and systems are 

expected to continue over time (for example, to meet data storage growth needs as more data 

sources are identified). 

2B – Appropriations Language and Explanation of Changes

The OFR receives no appropriations from Congress. 

2C – Legislative Proposals

The OFR has no legislative proposals. 

 
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2.2 – Operating Levels Table

Dollars in Thousands

Office of Financial Research FY 2012 FY 2013 FY 2014

Object ClassificationA Actual Estimated Estimated

11.1 Full-time permanent 6,251 18,253 27,893

12.0 Personnel benefits 1,643 5,476 8,368

Total Personnel and Benefits Compensation 7,893 23,729 36,261

21.0 Travel and transportation of persons 365 600 700

23.1 Rental payments to GSA 2,392 4,382 4,380

23.3 Communication, utilities, and misc charges 317 4,424 1,733

24.0 Printing and reproduction 6 118 223

25.0 Contractual Services 21,324 24,117 21,246

26.0 Supplies and materials 2,674 5,052 8,072

31.0 Equipment 4,603 15,762 16,370

Total Non-Personnel 31,681 54,455 52,724

Total Budgetary Resources $39,574 $78,186 $88,985 

 

Budget Activities

FY 2012 FY 2013 FY 2014

FTE Actual Estimated Estimated

Budget Activities: 

Data Center 30 19,303 41,245 47,987

 Direct FTE 24

 Reimbursable/Detail FTE 6

Research Center 14 3,398 8,618 12,432

 Direct FTE 11

 Reimbursable/Detail FTE 3

Operations and Support ServicesB 21 16,873 28,323 28,566

 Direct FTE 9

 Reimbursable/Detail FTE 12 

Total Budgetary Resources 65 $39,574 $78,186 $88,985

FTE - Direct and Reimbursable/Detail 65 167 250 

A Salary and benefits include direct OFR staff only. 25.0 Contractual Services and expenditures of “Operations and 

Support Services” include substantial reimbursable support received from Treasury’s Departmental Offices; 

personnel benefits services through the Office of the Comptroller of the Currency; and services from the Bureau of 

Public Debt Administrative Resource Center including Human Resource services, procurement services, and 

financial management services. B Effective January 2013, Operations and Support Services will include two offices formerly located in the Data 

Center. The FTE and estimated budget amounts for FY 2013 and FY 2014 reflect this organizational realignment.
OFR - 16 

Section 3 – Budget and Performance Plan

($88,985,000 from assessments): 

As noted in Section 1, the complex, highly specialized mission of the OFR and the scope of the task 

to establish the Office from the ground up both dictate that the OFR take a careful, prudent approach 

to its budget and funding. To stand up the OFR effectively, the Office is tightly linking its 

expenditures to its mission, ensuring that it is a good steward of the funds entrusted to the Office.

FY 2012 Expenditures 

Given these considerations, OFR expenditures in FY 2012 were considerably less than the 

amount estimated in the FY 2013 President’s Budget. The expenditures were concentrated on 

staffing and infrastructure development. As noted in Section 1, OFR staffing grew substantially, 

from 25 employees at the end of FY 2011 to 120 by the end of FY 2012. Although substantial, 

the growth of the OFR workforce was less than projected in the FY 2013 President’s Budget, 

reflecting additional time for staff planning, slower than projected recruitment of prospective 

employees with the requisite skills to meet OFR requirements, and related lags to ensure 

appropriate sequencing in hiring of OFR management and broader staff positions. 

Specific FY 2012 expenditures by budget activity include: 

• Data Center expenditures were below original projections, due to savings from review and 

validation of needs over the course of FY 2012, as well as deferrals of expenditures to FY 

2013 and FY 2014 to allow additional time for planning and validation. Specific 

expenditures focused on: (1) establishing a secure, short-term infrastructure for IT and 

business systems to support the OFR’s initial data and analytical functions, (2) launching the 

OFR’s intranet and collaboration platform, which also supports the secure sharing of 

information with the Council and its member agencies, (3) developing a design and support 

strategy for the OFR’s long-term IT infrastructure, including those related to information 

security programs (with related implementation expenditures expected to ramp up in FY 

2013), (4) making payments to the Treasury OCIO for commodity IT services provided to all 

users within Treasury Departmental offices (5) building out of the OFR’s project 

management systems, (6) defining the OFR’s data management model, and (7) conducting 

initial data acquisitions and creating an inventory of Council information. 

• With the costs associated with infrastructure, analytical tools and data for research covered 

under the Data Center, Research and Analysis costs include salaries and benefits as well as

work arrangements with outside researchers. FY 2012 expenditures also included costs 

associated with publishing the OFR’s Annual Report. 

• Operations and Support Services costs were below projections in the FY 2013 President’s 

Budget due to savings across the full range of operational activities. These activities include

(1) administrative support services, travel, supply, and equipment costs, and (2) costs for the 

rent and renovation of long-term permanent office space in Washington, D.C. The relatively 

high cost of contracts (Table 2.2, Object Classification 25.0) reflects the OFR’s business 
OFR - 17 

model to leverage existing administrative resources in Treasury and other agencies. 

Specifically, administrative support services include expenses related to reimbursable support 

from Treasury’s Departmental Offices; personnel benefits services through the Office of the 

Comptroller of the Currency; and services from the Bureau of Public Debt Administrative 

Resource Center including human resource services, procurement services, and financial 

management services. 

FY 2013 and 2014 Expenditures 

The OFR will continue its prudent approach to expenditures as it grows in FY 2013 and FY

2014, with these expenditures closely tied to the goals and implementation priorities outlined in 

Section 1. The primary source of expenditure growth in FY 2013 and FY 2014 will be salary 

and benefits as the size of the OFR workforce grows. The OFR has lowered its estimate for the 

pace of staff growth, reflecting the experience in FY 2012. The Office now projects its staff to 

expand from 120 at the end of FY 2012 to about 212 by the end of FY 2013 (including 

reimbursable support and external detailees). The OFR anticipates reaching steady-state staffing 

levels of 275-300 by the end of FY 2015. 

• Data Center: The work in FY 2012 to refine and validate needs substantially reduced the 

estimated costs for FY 2013 Data Center spending versus the projections in the FY 2013 

President’s Budget. Additional hardware, software, and analytic tools for the secure buildout of the OFR’s initial IT and business system infrastructure (including network upgrades) 

will ramp up substantially in FY 2013 and FY 2014, before beginning to decline thereafter, 

with an increased focus on maintenance. Expenses for data subscriptions are expected to rise 

steadily over this period as the OFR staff grows and as the OFR’s data and analytical 

capacity continues to expand.

14

40

78

89

0

20

40

60

80

100

FY 2011

(actual)

FY 2012

(actual)

FY2013

(plan)

FY2014

(plan)

Millions

OFR Total Expenditures/Obligations 

(FY 2011 - FY 2014) 
OFR - 18 

• Research and Analysis: Work arrangements with outside academics to support ad hoc and 

on-going research projects are expected to increase modestly in FY 2014. Costs associated 

with the OFR’s Annual Report, such as data validation and publishing support, are projected 

to decline, as staff levels grow. 

• Operations and Support Services: The OFR will continue to utilize existing Treasury 

infrastructure to minimize administrative costs. During FY 2013 and FY 2014, the OFR will 

undertake the build-out of a small satellite office in New York City to support interaction 

with New York-based market participants, researchers, regulators, and data providers. 

Assessments9

Pursuant to the Dodd-Frank Act, the Board of Governors of the Federal Reserve (Federal 

Reserve Board) provided funding to support the OFR for two years through the Financial 

Research Fund (FRF). The Act directed the Department of the Treasury to establish by 

regulation (with the approval of the Council) a schedule to collect assessments from bank 

holding companies and certain nonbank financial companies to cover the expenses of the OFR 

and the Council, plus certain expenses for implementing the orderly liquidation activities of the 

Federal Deposit Insurance Corporation (FDIC), beginning two years after the passage of the Act. 

On May 21, 2012, Treasury, with the approval of the Council, issued a final rule for collecting 

assessments from bank holding companies with total consolidated assets of $50 billion or greater 

and an internal final rule for collecting assessments from nonbank financial companies 

supervised by the Federal Reserve Board. The initial assessment occurred on July 20, 2012, was 

based on a fee rate of 0.0007659412 percent (or about $7,700 per $1 billion of assets for the 

assessed companies). For the initial assessment, the OFR was funded at a level of $128 million, 

or the sum of: 

• Budgeted capital expenses of $43 million for the first seven months of FY 2013 (October 1, 

2012, to April 30, 2013); 10

• Budgeted operating expenses of $29 million for the first six months of FY 2013 (October 1, 

2012, to March 31, 2013); and 

• The OFR’s budgeted expenses of $56 million for the remainder of FY 2012 (July 21 to 

September 30, 2012), as calculated in June 2012, including obligations incurred prior to July 

20, but not yet expensed or accrued. 

Following the initial assessment, the fee rate for each period will be set based on projected total 

resources required to replenish the FRF to a level equivalent to the sum of: 

• The next six months of budgeted operating expenses of the OFR and the Council; 

• The next 12 months of budgeted capital expenses of the OFR and the Council, because of the 

variability in the timing of such expenses; and 

• The amount necessary to reimburse the FDIC for certain implementation expenses. 

 

9 See http://www.treasury.gov/initiatives/wsr/ofr/Pages/tap.aspx for further information. 

10 Collection based on 12 months of budgeted capital expenses will begin with the second assessment.
OFR - 19 

As such, any resources remaining in the FRF at the end of one assessment period (carryover) 

reduce the amount needed to be collected to replenish the FRF to this level in the next period. 

Due to lower-than-projected FY 2012 expenditures resulting in an available positive balance and 

revised projected spending under the FY 2013 and FY 2014 budget, Treasury will not need to 

replenish resources in the FRF until September 2013. As such, no assessment will be made on 

March 15, 2013. 

Performance Measurement

To further reinforce transparency and accountability in its operations, the OFR has developed 

foundational performance measures tied to the strategic goals highlighted in Section 1 and will 

begin collecting data for these measures in FY 2013. These measures will establish a foundation 

for the organization’s continued stand-up, with evolution in these measures expected as the 

organization continues to mature and gain experience. Similarly, as data is collected, that 

information will better inform the target-setting process in FY 2014 and beyond. 

The sections that follow discuss each of these foundational measures, organized by lead budget 

activity (Data Center; Research and Analysis Center; and Operations and Support Services) and 

by goal. This presentation recognizes the responsibilities of the Data Center and the Research 

and Analysis Center defined in the Dodd-Frank Act. Of course, the effectiveness of the 

organization depends on close collaboration and coordination among all units in achieving each 

of these measures and in particular strong integration between the OFR’s data and research 

functions. Given this close integration of activities, several core outputs—and the related 

performance measures—cut across the budget activities of the Data Center and Research and 

Analysis Center. In these cases, a “lead” budget activity has been identified to simplify the 

presentation. At the same time, several measures relate to OFR-wide performance; these 

measures have been assigned to the Operations and Support Services budget activity. 
OFR - 20 

Table 3.1 OFR Foundational Performance Measures

Goal Performance Measures Budget Activity*

Council Support • Percent of responses to Council data and 

research requests that meet delivery targets 

• Percent of project milestones met for 

establishment of an interagency data inventory 

program 

• Data Center

• Data Center

Data Standards • Percent of milestones met in information

standards strategy 

• Data Center

Center of Excellence

for Research 

• Number of R&A products published 

• Number of R&A products coauthored or pursued 

in collaboration with outside researchers, 

government agencies, or others 

• Research & Analysis

• Research & Analysis 

Public Information • Percent increase in the number of OFR web page 

visitors 

• Operations and Support Services

Building the OFR • Percent of OFR implementation priorities 

completed 

• Cost of the OFR relative to total assessed assets, 

per $billion assessed 

• Total staff hired compared to targets

• Operations and Support Services

• Operations and Support Services 

• Operations and Support Services

*As noted, a lead budget activity has been assigned for measures that cut across multiple business units. 
OFR - 21 

3A – Data Center 

($47,987,000 from assessments): 

The Dodd-Frank Act provided that the Data Center, on behalf of the Council, collect, validate, 

and maintain all data necessary to carry out the duties of the Office. As part of this mandate, the 

Data Center provides data services to federal financial regulators to increase efficiency in data 

acquisition and management, to promote the reduction of redundant reporting requirements 

across the regulatory system (including through more effective data sharing arrangements), and 

to ensure the security of sensitive data. In addition, the promotion of standards for financial data 

will provide benefits to regulators and financial market participants by making data aggregation 

easier, improving analysis, and reducing costs associated with data collection. To support 

transparency in its operations and better public understanding of risks to financial stability, the 

Data Center also publishes data and data-related information, as well as information on its 

activities.

3.1.1 – Data Center Budget and Performance Report and Plan 

Dollars in thousands

Data Center

Resource Level FY 

2010

FY 

2011

FY 

2012 FY 2013 FY 2014

Actual Actual Actual Estimated Estimated

Expenses/Obligations $5,260 $19,303 $41,245 $47,987 

Budget Activity Total $0 $5,260 $19,303 $41,245 $47,987 

Measure FY 

2010

FY 

2011

FY 

2012 FY 2013 FY 2014

 Actual Actual Actual Target Target

Percent of responses to Council data and 

research requests that meet delivery targets 80% 85% 

Percent of project milestones met for 

establishment of an interagency data 

inventory program 85% N/A

Percent of milestones met in information 

standards strategy 80% 80%

Key: N/A - Not in Effect; DISC - Discontinued; B - Baseline

3A.1 Support for the Council 

The OFR has established two performance measures linked to achieving its goal to support the 

Council through the secure provision of high-quality financial data and analysis needed to 

monitor threats to financial stability: 

• Percent of responses to Council data and research requests that meet delivery targets

provides an indicator of the OFR’s effectiveness, in terms of timeliness in fulfilling this core 

aspect of its mission to support the Council. A clear focus on the efficiency and quality of its 
OFR - 22 

operations is particularly important in the early stages of establishing the OFR’s delivery of 

data services. In fulfilling this measure, the Data Center will work in collaboration with the 

Research and Analysis Center, which has primary responsibility for delivering analytical 

outputs. 

• Percent of project milestones met for establishment of an interagency data inventory 

program measures the degree to which the OFR is meeting a second key early priority—the 

data inventory project—based on the targeted finalization of the third and final phase of the 

initial inventory in FY 2013 and initiation of efforts to utilize this information and regularize 

updates. 

3A.2 Data Standards 

The OFR has established one performance measure linked to achieving its goal to develop and 

promote data-related standards and best practices: 

• Percent of milestones met in information standards strategy is an indicator of progress (1) in 

support of the final launch of the LEI (through the Fall 2012 endorsement of the Regulatory 

Oversight Committee charter, the December 2012 creation of the legal framework for the 

Central Operating Unit, and the March 2013 launch of the global system) and (2) in support 

of the OFR’s broader agenda to promote data standards. 
OFR - 23 

3B – Research and Analysis

($12,432,000 from assessments): 

The Dodd-Frank Act provided that the Research and Analysis Center, on behalf of the Council, 

develop and maintain independent analytical capabilities and computing resources: 

• To develop and maintain metrics and reporting systems for risks to the financial stability of 

the United States;

• To monitor, investigate, and report on changes in system-wide risk levels and patterns to the 

Council and to Congress; 

• To conduct, coordinate, and sponsor research to support and improve regulation of financial 

entities and markets; 

• To evaluate and report on stress tests or other stability-related evaluations of financial entities 

overseen by Council member agencies; 

• To maintain the expertise necessary to support specific requests for advice and assistance 

from financial regulators; 

• To investigate disruptions and failures in the financial markets, report findings, and make 

recommendations to the Council based on those findings; 

• To conduct studies and provide advice on the impact of policies related to systemic risk; and, 

• To promote best practices for financial risk management. 

To support effective achievement of these objectives, the OFR is also establishing forums and 

networks to bring together experts from within and outside the regulatory system. In addition, 

the OFR is publishing key results of its analysis to support transparency in its operations and 

promote public understanding of threats to financial stability. 

3.1.2 – Research and Analysis Budget and Performance Report and Plan 

Dollars in thousands

Research and Analysis

Resource Level FY 2010 FY 2011 FY 2012 FY 2013 FY 2014

Actual Actual Actual Estimated Estimated

Expenses/ObligationsA $1,069 $3,398 $8,618 $12,432 

Budget Activity Total $0 $1,069 $3,398 $8,618 $12,432 

Measure FY 2010 FY 2011 FY 2012 FY 2013 FY 2014

Actual Actual Actual Target Target

Number of R&A products published 8 15 

Number of R&A products co-authored 

or pursued in collaboration with outside 

researchers, government agencies, or 

others 5 10 

Key: N/A - Not in Effect; DISC - Discontinued; B - Baseline

AResearch and Analysis includes only staffing, outside work arrangements and contracting related to annual 

report production. Costs associated with data, information systems, and analytical tools are captured under Data 

Center. 
OFR - 24 

3B.1 Center of Excellence for Research

The OFR has established two performance measures linked to achievement of its goal to 

establish a Center of Excellence for Research on financial stability and promote best practices for 

financial risk management: 

• Number of R&A products published provides a straightforward indicator of OFR research 

output, providing a baseline to measure growth following launch of its working paper series 

in FY 2012. 

• Number of R&A products coauthored or pursued in collaboration with outside researchers, 

government agencies, or others. This measure provides an indication of the degree to which 

the OFR is working to ensure its analysis is informed by outside perspectives—a critical 

objective as the OFR works to build a culture that supports the open exchange of views and 

cutting-edge research. 
OFR - 25 

3C – Operations and Support Services

($28,566,000 from assessments): 

These activities cover all operational, legal, and administrative functions that support the 

effective, transparent, and well-monitored delivery of the OFR’s core outputs related to data, 

research, and analysis. This includes support provided through reimbursable arrangements with 

other activities in Treasury Departmental Offices, as well as outside service providers. 

3.1.3 – Operations and Support Services Budget and Performance Report and Plan

Dollars in thousands

Operations and Front OfficeA

Resource Level FY 2010 FY 2011 FY 2012 FY 2013 FY 2014

Actual Actual Actual Estimated Estimated

Expenses/Obligations $4,700 $16,873 $28,323 $28,566

Budget Activity Total $0 $4,700 $16,873 $28,323 $28,566 

 

Measure FY 2010 FY 2011 FY 2012 FY 2013 FY 2014

 Actual Actual Actual Target Target

Percent increase in the number of OFR 

web page visitors 25% 15%

Percent of OFR implementation 

priorities completed 94% 94%

Cost of the OFR relative to total 

assessed assets, per $billion assessed $7,700 

$7,700 

(to be 

based on a 

4-year 

rolling 

average)

Total staff hired compared to targets 85% 95%

Key: N/A - Not in Effect; DISC - Discontinued; B - Baseline

A Effective January 2013, Operations and Support Services will include two offices formerly located in the Data 

Center. The FTE and estimated budget amounts for FY 2013 and FY 2014 reflect this organizational realignment. 

3C.1 Public Information 

The OFR has established two performance measures linked to achievement of its goal to provide 

the public with key data and analysis, while protecting sensitive information: 

• Percent increase in the number of OFR web page visitors provides an indicator of progress in 

increasing awareness of the OFR and its work, recognizing that it is difficult to estimate this 

measure given the rapid pace of change for this new organization. 

3C.2 Building the OFR
OFR - 26 

The OFR has established three performance measures linked to achieving its goal to establish the 

OFR as an efficient organization and world-class workplace: 

• Percent of OFR implementation priorities completed provides an indicator of OFR’s progress 

in implementing its priorities based on the goals and objectives set out in its strategic plan. 

As such, it provides an important broad-based measure of accountability. 

• Cost of the OFR relative to total assessed assets, per $billion assessed is an indicator of the 

cost efficiency of the organization. Over time, the OFR will move to a four-year moving 

average to smooth out short-term fluctuations and highlight longer-term trends or cycles. 

• Total staff hired compared to targets provides an important check on how effectively the 

OFR is advancing toward steady-state staffing levels—a key objective during the OFR’s 

stand-up.