Bureau of the Public Debt

Mission Statement 

To borrow the money needed to operate the federal government, account for the resulting debt 

and provide reimbursable support services to federal agencies. 

Program Summary by Budget Activity 

Dollars in Thousands 

Appropriation FY 2009 FY 2010 FY 2011

Enacted Enacted Request $ Change % Change

 Wholesale Securities Services $23,438 $24,492 $24,234 ($258) (1.1%) 

 Government Agency Investment Services $17,723 $16,264 $16,162 ($102) (0.6%) 

 Retail Securities Services $139,109 $142,645 $136,327 ($6,318) (4.4%) 

 Summary Debt Accounting $7,082 $8,843 $9,262 $419 4.7% 

Total Appropriated Resources $187,352 $192,244 $185,985 ($6,259) (3.3%)

Total FTE 1,042 1,042 1,009 (33) (3.2%)

Note: Total Appropriated Resources include $10,000,000 in projected user fee collections. 

FY 2011 Priorities 

• Continue to protect and strengthen Treasury’s borrowing capabilities. 

• Continue to educate and enhance communication with our significant investors. 

• Position Treasury to eliminate new issues of paper savings bonds to move towards a 

paperless Treasury. 

• Improve the quality and efficiency of service to retail customers. 

• Continually demonstrate accounting excellence by producing daily financial statements and 

receiving unqualified opinions on the annual audits of the Schedules of Federal Debt. 

• Gain efficiencies and strengthen controls by reducing the number of common business 

processes that serve federal investments, special purpose securities and federal borrowings 

from eighteen to six. 

• Continue to adopt technological advances to ensure Public Debt’s various information 

technology systems remain secure. 

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Table of Contents 

Bureau of the Public Debt .......................................................................................................1

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

1A – Description of Bureau Vision and Priorities .................................................................3

1B – Program History and Future Outlook ............................................................................4

Section 2 – Budget Adjustments and Appropriation Language ..........................................7

2.1 – Budget Adjustments Table ............................................................................................7

2A – Budget Increases and Decreases Description ................................................................7

2.2 – Operating Levels Table .................................................................................................9

2.3 – Appropriations Detail Table .......................................................................................10

2B – Appropriations Language and Explanation of Changes ..............................................10

2C – Legislative Proposals ...................................................................................................11

Section 3 – Budget and Performance Plan ..........................................................................12

3.1 – Budget by Strategic Outcome .....................................................................................12

3.2.1 – Wholesale Securities Services Budget and Performance Plan ................................13

3.2.2 – Government Agency Investment Services Budget and Performance Plan ..............15

3.2.3 – Retail Securities Services Budget and Performance Plan ........................................17

3.2.4 – Summary Debt Accounting Budget and Performance Plan .....................................19

Section 4 – Supporting Materials .........................................................................................20

4A – Human Capital Strategy Description ..........................................................................20

4.1 – Summary of IT Resources Table ................................................................................22

4B – Information Technology Strategy ...............................................................................23

4.2 – Program Evaluation ....................................................................................................24

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Section 1 – Purpose

1A – Description of Bureau Vision and Priorities 

The Bureau of the Public Debt’s (Public Debt) vision is to lead the way for responsible, effective 

government through commitment to service, efficient operations, openness to change and 

values-based behavior. In carrying out its mission and vision, Public Debt annually auctions and 

issues approximately $8 trillion in Treasury bills, notes, bonds and Treasury Inflation-Protected 

Securities (TIPS); administers on Treasury's behalf its regulatory responsibilities for the 

government securities market; ensures reliable systems and processes are in place for issuing, 

transferring, paying interest on and redeeming Treasury securities; issues and redeems more than 

70 million paper savings bonds each year; administers in excess of $4 trillion in investments for 

more than 250 federal trust funds; and provides timely and accurate information on the public 

debt. 

In support of Treasury’s strategic outcome of government financing at the lowest possible cost 

over time, Public Debt’s top priority is to guarantee operational readiness to meet the 

government's critical financing needs by ensuring the most efficient systems are in place to 

conduct borrowing operations and deliver securities services to investors. To that end, the 

bureau continues to enhance its auction process. The Treasury Automated Auction Processing 

System (TAAPS) provides simple bid-entry, quick and easy access to data and superior 

reliability and security. 

A major operational initiative for Public Debt is to consolidate all Government Agency 

Investment Services (GAIS) functions into a single integrated control environment by FY 2012. 

This will result in lower operational risks, more timely and accurate data and standardized 

system, business and data elements. To date, the federal investments, federal borrowings and 

Special Purpose Securities functions are operating from the same automated platform. 

Positioning Treasury to eliminate new issues of paper savings bonds is a goal for Public Debt’s 

retail program and part of the overall Paperless Treasury initiative. The strategy to accomplish 

this goal centers on TreasuryDirect and electronic bonds, which are more efficient to issue and 

service over the long term than paper savings bonds. In the next few years, the bureau will 

enhance its system and processes to attract investors to TreasuryDirect as their preferred way to 

buy and hold savings bonds, and gradually phase out the issuance of paper savings bonds in the 

payroll market. 

The retail program places a high priority on improving the quality and efficiency of its customer 

service. A multi-year vision is to create a new service environment known as Treasury Retail 

E-Services (TRES). TRES is an initiative to provide Public Debt and the Treasury Retail 

Securities (TRS) sites at the Minneapolis and Pittsburgh Federal Reserve Banks with a fully 

integrated view of customer interactions that will allow customer service representatives to 

quickly identify customers and evaluate their needs. TRES will include a central point for 

sharing customer information and history, central portals for accessing procedures and 

standardized language for correspondence and generating correspondence and forms. It will also 

provide shared systems and databases, mechanisms to distribute work and route customer 

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contacts, and new features such as e-mail routing, web chat, automated responses and fax 

capabilities. 

With its resources, Public Debt: 

• Conducts more than 280 marketable securities auctions annually, resulting in the issuance of 

approximately $8 trillion in Treasury bills, notes, bonds and TIPS; 

• Administers 253 funds in excess of $4 trillion in Government Account Series (GAS) 

investments, which amounts to approximately 37 percent of the public debt; 

• Manages some 5,100 active SLGS securities accounts valued at nearly $213 billion; 

• Serves more than 50 million retail customers holding marketable and savings securities, 

including nearly 300,000 investor accounts in the internet-accessed TreasuryDirect system; 

• Accounts for and reports on $845 billion in federal agency borrowings from Treasury in 85 

funds; 

• Accounts for and reports on the balance and composition of more than $12 trillion in public 

debt, the single largest liability on the federal government’s balance sheet, and reconciles 

more than $107 trillion annually in securities transactions reported from numerous systems to 

cash flowing in and out of the federal government each year; and 

• Receives unqualified audit opinions on the Schedules of Federal Debt annually. 

The total resources required to support Public Debt activities in FY 2011 are $208,758,000, 

including $185,985,000 from direct appropriations, of which $10,000,000 are user fees, and 

$22,773,000 are from offsetting collections. 

1B – Program History and Future Outlook 

Public Debt continues to enhance the mechanisms for participation by a wide range of investors 

in its wholesale, government agency investment services and retail programs. 

Over the years, the bureau has dramatically reduced the time required to complete marketable 

securities auctions. Results are consistently released within two minutes, plus or minus 30 

seconds, of the closing of the competitive auction. In addition, non-competitive results are 

released 15 minutes prior to competitive close. By enhancing information availability and 

reducing the time bidders are exposed to the risk of adverse market movements, auction 

participants are likely to bid at more favorable rates and yields to the federal government. 

TAAPS fully automates the announcement, auction and issuance of marketable securities. At the 

same time, TAAPS provides speed and flexibility to Treasury debt managers in bringing new 

types of securities to market and implementing policy changes, such as offering 7-year Treasury 

notes. By eliminating manual processes, the system supports error-free auction results. 

Public Debt continues to upgrade TAAPS to keep pace with changes in technology and security, 

which ensures financing operations are conducted timely and with 100 percent accuracy. 

Public Debt continues its commitment to provide efficient mechanisms for federal investments, 

special purpose securities and federal borrowings. As part of this effort, the number of common 

business processes will be reduced from eighteen to six thus avoiding duplication. Common 

business processes are functions that support the GAIS line of business. They include funds 

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management, investment accounting, standard reporting, customer interface, enhanced reporting 

and account maintenance. Ultimately, with standardized system, business and data elements, the 

bureau can introduce stronger internal controls and reduce operational risks. 

Public Debt will provide its customers with the assistance they need to manage their federal 

investments, special purpose securities and federal borrowings effectively and efficiently as 

possible. One of the ways this will be accomplished is through education, periodic seminars and 

orientation for new customers to ensure they understand and can take full advantage of Public 

Debt’s systems and services. Also, more extensive reporting capabilities will be made available 

to customers, which will better meet their needs. 

When Treasury introduces new instruments or changes existing instruments available for federal 

agency investment, Public Debt will assist its customer agencies in understanding these changes 

and the implications for their investment operations. As new legislation is enacted or business 

processes change, the bureau will support federal agencies’ implementation of these 

modifications. For example, Public Debt will work with its customers to implement Treasury’s 

major initiative to improve and streamline government-wide accounting through the capture of 

all necessary financial information at the first point of reporting. 

When legislation establishing investment authority for a new fund is vague or inconsistent, 

Public Debt experiences significant operational challenges, as do its customers, in trying to 

implement this new authority. Public Debt will support Treasury’s initiative to standardize 

legislation for all new investment funds by actively promoting Treasury’s preferred language to 

drafters of proposed investment legislation. 

Providing quality customer service through efficient and effective business processes remains a 

key goal for the retail program. In FY 2011, the TRES project will allow Public Debt and the 

two TRS sites to share common systems, databases and a multi-channel customer relationship 

desktop tool to manage telephone, e-mail and paper requests and create a fully integrated view of 

customer interactions across the three customer service sites. 

Public Debt continues to work to improve the clarity, usefulness and availability of federal debt 

information. Public Debt produces daily unaudited financial statements. Going forward, the 

bureau will work to modernize its system used for public debt accounting by migrating common 

financial information to a shared service solution, an environment where similar processing 

occurs, rather than developing a proprietary system as was done in the past. Public Debt will 

begin defining requirements to reengineer business processes that best support the needs of the 

Summary Debt Accounting program. This approach will offer many benefits in terms of a faster 

migration and reduced operational risks, while standardizing system, business and data elements. 

Although not supported by appropriated funding, Public Debt’s franchise program represents a 

significant part of the business and staff resources of the organization. As a recognized Shared 

Service Provider (SSP) in several business lines, the Administrative Resource Center (ARC) 

provides financial management, administrative support and information technology services to 

federal agencies, generating revenue to pay all organizational expenses. Because of the quality 

of the services provided, the depth and breadth of services provided to customers has grown. 

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The vision of allowing agencies to focus on mission-related activities, while gaining efficiencies 

and increasing standardization through the use of SSPs is being realized. During FY 2010, ARC 

expects to use 1,003 FTE to service more than 70 customers and generate $172 million in 

revenue. In FY 2011, ARC projects revenue of $179 million. 

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Section 2 – Budget Adjustments and Appropriation Language 

2.1 – Budget Adjustments Table 

Dollars in Thousands 

Bureau of the Public Debt FTE Amount

FY 2010 Enacted 1,042 192,244 

Changes to Base: 

Base Realignment: (21) $0 

FTE Adjustment (21) - 

Maintaining Current Levels (MCLs): - $3,171 

FERS Percentage Change - 188 

Non-Pay Inflation Adjustment - 1,005 

Pay Annualization - 651 

Pay Inflation Adjustment - 1,327 

Efficiencies Savings: (12) ($9,430) 

Revise Issuing Agent Fee Structure - (1,900) 

Reduce Paying Agent Fees - (2,500) 

Consolidate Parkersburg Facilities - (1,800) 

Program Efficiencies (12) (1,000) 

Procurement Savings - (1,630) 

Reduce Travel - (200) 

Non-Salary Program Efficiencies - (400) 

Subtotal FY 2011 Changes to Base (33) ($6,259) 

Total FY 2011 Base 1,009 185,985 

Total FY 2011 Budget Request 1,009 185,985

User Fees - (10,000) 

Total FY 2011 Budget Request (Net) 1,009 175,985

2A – Budget Increases and Decreases Description 

Base Realignment ........................................................................................ +$0 / -21 FTE 

FTE Adjustment +$0 / -21 FTE 

Upon review of its FY 2010 proposed financial plan, BPD identified 21 unfunded base FTE 

which are reflected in this adjustment. 

Maintaining Current Levels (MCLs) ........................................... +$3,171,000 / +0 FTE 

FERS Percentage Change +$188,000 / +0 FTE 

Funds are requested for the increase in agency retirement contribution percentages for GS 

employees from 11.2% to 11.5% for FY 2011 as required by OPM. 

Non-Pay Inflation Adjustment +$1,005,000 / +0 FTE 

Funds are requested for non-pay related items such as contracts, travel, supplies, equipment and 

GSA rent. 

Pay Annualization +$651,000 / +0 FTE 

Funds are requested for the FY 2011 cost of the January 2010 pay raise. 

Pay Inflation Adjustment +$1,327,000 / +0 FTE 

Funds are requested for the January 2011 pay raise. 

 

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Efficiencies Savings ........................................................................ -$9,430,000 / -12 FTE 

Revise Issuing Agent Fee Structure -$1,900,000 / +0 FTE 

Savings due to eliminating the differential paid to paper savings bond issuing agents who submit 

customer orders electronically rather than by paper applications. 

Reduce Paying Agent Fees -$2,500,000 / +0 FTE 

Due to an anticipated decrease in the number of savings bonds redeemed, Public Debt is 

reducing its paying agent fees. 

Consolidate Parkersburg Facilities -$1,800,000 / +0 FTE 

Public Debt realizes savings by consolidating its facilities in Parkersburg. 

Program Efficiencies -$1,000,000 / -12 FTE 

Savings realized from the reduction of funded staff, across all BPD programs. 

Procurement Savings -$1,630,000 / +0 FTE 

Cost savings by streamlining Department-wide procurement operations and reducing external 

procurement spending. 

Reduce Travel -$200,000 / +0 FTE 

Public Debt realizes savings from a reduction in travel. 

Non-Salary Program Efficiencies -$400,000 / +0 FTE 

Public Debt realizes savings from non-salary program efficiencies. 

Adjustments to Request User Fee ................................................ -$10,000,000 / +0 FTE 

User Fees -$10,000,000 / +0 FTE 

For $100 account maintenance fees that Public Debt charges to account holders in the Legacy 

Treasury Direct system with an account balance of more than $100,000 in par value. 
2.2 – Operating Levels Table 

Bureau of the Public Debt FY 2009 

Enacted

FY 2010 

President's 

Budget

al Action 

Including 

Rescission

FY 2010 

Enacted 

Level

Proposed 

Reprogram

mings

Proposed 

Operating 

Level

FY 2011 

Requested 

Level

 

FTE 1,042 1,042 0 1,042 0 1,042 1,009

Object Classification: 

11.1 - Full-time permanent 63,850 65,422 0 65,422 6,552 71,974 65,981

11.3 - Other than full-time permanent 515 528 0 528 (3) 525 533

11.5 - Other personnel compensation 2,082 2,133 0 2,133 341 2,474 2,151

11.8 - Special personal services payments 31,891 32,676 0 32,676 (32,676) 0 32,956

12 - Personnel benefits 18,471 19,680 0 19,680 (806) 18,874 19,984

13 - Benefits for former personnel 30 40 0 40 0 40 30

21 - Travel and transportation of persons 1,300 1,338 0 1,338 (60) 1,278 1,017

22 - Transportation of things 81 85 0 85 (6) 79 86

23.1 - Rental payments to GSA 10,078 10,705 0 10,705 (100) 10,605 9,452

23.2 - Rental payments to others 22025 7

23.3 - Comm, utilities, and misc charges 10,537 10,502 0 10,502 (556) 9,946 10,010

24 - Printing and reproduction 1,450 1,573 0 1,573 (65) 1,508 1,859

25.1 - Advisory and assistance services 348 362 0 362 (268) 94 95

25.2 - Other services 26,401 27,490 0 27,490 (12,337) 15,153 15,332

25.3 - Other purchases of goods and 11,384 11,853 0 11,853 44,088 55,941 22,350

services from Govt. accounts 

25.4 - Operation and maintenance of 892 929 0 929 50 979 991

facilities 

25.6 - Medical care 22 23 0 23 (8) 15 15

25.7 - Operation and maintenance of 3,939 4,101 0 4,101 (3,746) 355 360

equip 

26 - Supplies and materials 1,456 1,830 0 1,830 (147) 1,683 1,818

31 - Equipment 2,498 862 0 862 (286) 576 813

32 - Land and structures 123 108 0 108 30 138 148

42 - Insurance claims and indemnities 2 2 0 2(2) 0

Total Budget Authority $187,352 $192,244 $0 $192,244 $0 $192,244 $185,985

 

Budget Activities: 

Wholesale Securities Services 23,438 24,492 0 24,492 0 24,492 24,234

Government Agency Investment Services 17,723 16,264 0 16,264 0 16,264 16,162

Retail Securities Services 139,109 142,645 0 142,645 0 142,645 136,327

Summary Debt Accounting 7,082 8,843 0 8,843 0 8,843 9,262

Total Budget Authority $187,352 $192,244 $0 $192,244 $0 $192,244 $185,985

 

Congression FY 2010 

2

2

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2.3 – Appropriations Detail Table 

Dollars in Thousands 

Note: New Appropriated Resources include $10,000,000 in projected user fee collections. 

FY 2009 FY 2009 FY 2010 FY 2011 FY 2010

Obligations Enacted Enacted Request to FY 2011

FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT

New Appropriated Resources:

Wholesale Securities Services 134 $23,444 130 $23,438 133 $24,492 131 $24,234 -1.50% -1.05%

Government Agency Investment Services 101 17,702 99 17,723 88 16,264 88 16,162 0.00% -0.63%

Retail Securities Services 731 127,909 774 139,109 773 142,645 740 136,327 -4.27% -4.43%

Summary Debt Accounting 40 7,081 39 7,082 48 8,843 50 9,262 4.17% 4.74%

Subtotal New Appropriated Resources 1,006 $176,136 1,042 $187,352 1,042 $192,244 1,009 $185,985 -3.17% -3.26%

Other Resources:

Offsetting Collections - Reimbursable 21,196 21,196 22,110 22,773 0.00% 3.00%

Available multi-year/no-year funds 2,727 2,972 2,988 2,000

User Fees 7,879

Recoveries 11

Subtotal Other Resources 0 $31,802 0 $24,179 0 $25,098 0 $24,773 0.00% -1.29%

Total Resources Available for Obligation 1,006 $207,938 1,042 $211,531 1,042 $217,342 1,009 $210,758 -3.17% -3.03%

% Change

2B – Appropriations Language and Explanation of Changes 

Appropriations Language Explanation of Changes 

DEPARTMENT OF THE TREASURY 

BUREAU OF THE PUBLIC DEBT 

 Federal Funds 

Administering the Public Debt 

For necessary expenses connected with any public-debt 

issues of the United States, [$192,244,000] $185,985,000, 

of which not to exceed $2,500 shall be available for official 

reception and representation expenses, and of which not to 

exceed $2,000,000 shall remain available until September 

30, [2012]2013, for systems modernization: Provided, That 

the sum appropriated herein from the general fund for fiscal 

year [2010]2011 shall be reduced by not more than 

$10,000,000 as definitive security issue fees and Legacy 

Treasury Direct Investor Account Maintenance fees are 

collected, so as to result in a final fiscal year [2010]2011

appropriation from the general fund estimated at 

[$182,244,000] $175,985,000. In addition, [$90,000] 

$110,000 to be derived from the Oil Spill Liability Trust 

Fund to reimburse the Bureau for administrative and 

personnel expenses for financial management of the Fund, 

as authorized by section 1012 of Public Law 101-380. 

(Consolidated Appropriations Act, 2010.) 

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2B – Permanent, Indefinite Appropriations 

Reimbursements to the Federal Reserve Banks

Public Law 101-509, 104 Stat. 1389, 1394 (1990), established a permanent indefinite 

appropriation to pay such sums as necessary to reimburse the Federal Reserve Banks for acting 

as fiscal agents. A permanent indefinite account was established in FY 1992. Claims for 

reimbursements are closely monitored for compliance with the Instructions for Filing 

Reimbursement Claims for Fiscal Agency Services Provided to the Bureau of the Public Debt 

(current edition). Funding for FY 2011 is estimated at $136,000,000. 

Government Losses in Shipment

Public Law 103-329 established a permanent indefinite appropriation to pay such sums as 

necessary to make payments for the replacement of valuables, or the value thereof, lost, 

destroyed, or damaged in the course of United States government shipments. The Government 

Losses in Shipment Act was approved July 8, 1937, to dispense with the necessity for insurance 

by the government against loss or damage to valuables in shipment and for other purposes. The 

Act was amended in 1943 to cover losses resulting from the redemption of savings bonds (for 

example, stolen bonds which were fraudulently negotiated even though the paying agent 

followed identification guidelines established by the Treasury). All authority of the Treasury 

under the Act has been delegated to the Commissioner of the Bureau of the Public Debt. In 

FY 2011, the funding estimated to support payments for the replacement of valuables is 

$500,000. 

2C – Legislative Proposals 

Public Debt has no legislative proposals for FY 2011. 

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Section 3 – Budget and Performance Plan

This table lists all FY 2011 resources by strategic goal, objective and outcome outlined in the FY 

2007-2012 Treasury Department Strategic Plan. The Treasury Strategic Plan is a corporate level 

plan for the Department that provides a description of what the agency intends to accomplish 

over the next five years. 

For detailed information about the FY 2007-2012 Treasury Strategic Plan, please go to: 

http://www.treas.gov/offices/management/budget/strategic-plan/

3.1 – Budget by Strategic Outcome 

Dollars in Thousands 

Treasury Strategic Outcome FY 2010 

Enacted

FY 2011 

Request Percent Change

 Financial information 9,860 10,396 5.44%

 Government financing 204,494 198,362 -3.00%

Total $214,354 $208,758 -2.61%

3A – Wholesale Securities Services ($24,234,000 from direct appropriations and $2,967,000 

from reimbursable programs): The Wholesale Securities Services program is responsible for the 

announcement, auction, issuance and settlement of marketable Treasury bills, notes, bonds and 

TIPS. It also oversees an infrastructure that provides for the transfer, custody and redemption of 

these securities, which are purchased mostly by large market participants. 

As one of the federal government's Primary Mission Essential Functions, Wholesale Securities 

Services ensures communications, systems, processes and contingency plans provide for 

continuous performance and operability for wholesale auction operations. The program is 

critical to the federal government's ability to finance government operations and programs, 

including the Financial Stability Plan. 

Prior to the global economic recession in late 2008, Public Debt conducted approximately 

220 auctions annually. In FY 2008, the bureau conducted 238 auctions resulting in the issuance 

of $6.7 trillion in securities. During FY 2009, Public Debt conducted over 290 auctions, 

resulting in the issuance of over $8 trillion dollars in marketable securities. 

 

Public Debt began debt issuance for the Supplementary Financing Program, one of the programs 

developed in the midst of the economic disruption, in September 2008. Designed to support 

Federal Reserve initiatives to address liquidity pressures in the financial market, the program 

consists of a series of Treasury bills, in addition to Treasury's borrowing program. 

Another major component of this program is the commercial book entry system, which holds 

approximately $6.2 trillion, or 98 percent, of Treasury marketable securities. Treasury uses this 

system to issue most of its marketable debt, make principal and interest payments and support 

the active secondary market in Treasury securities. It is estimated that about $1.34 trillion per 

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day in Treasury securities are transferred among account holders in the commercial book-entry 

system. 

Public Debt administers Treasury’s regulations that provide investor protection and maintain the 

integrity, liquidity and efficiency in the government securities market under the Government 

Securities Act of 1986, as amended. The bureau also administers and monitors for compliance 

the rules for Treasury’s securities auctions and buybacks, and prescribes provisions for 

Treasury’s Fiscal Service collateral programs, including collateral eligibility and valuation. The 

Fiscal Service collateral programs ensure that government funds on deposit or invested at 

commercial banks are secured. 

Public Debt continually evaluates its business processes for ways to enhance reporting 

capabilities, strengthen system security and contingency plans and mitigate risk, while 

guaranteeing operational readiness in order to meet its primary objective of borrowing at the 

lowest cost over time. Treasury will continue to seek opportunities in U.S. and global markets, 

to better serve holders of its securities and share information to enhance the understanding of the 

Treasury auction process, debt financing policies and securities. 

Other Resources: 

Reimbursements totaling $2,967,000 are allocated to this program for providing administrative 

support to Public Debt’s franchise operation. 

3.2.1 – Wholesale Securities Services Budget and Performance Plan 

Wholesale Securities Services Budget Activity

Resource Level

FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Obligated Obligated Obligated Enacted Request

 Appropriated Resources $19,475 $21,350 $23,444 $24,492 $24,234 

 Reimbursable Resources $1,301 $1,494 $2,821 $2,817 $2,967 

Total Resources $20,776 $22,844 $26,265 $27,309 $27,201

Budget Activity Total $20,776 $22,844 $26,265 $27,309 $27,201

Wholesale Securities Services Budget Activity

Measure FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Actual Actual Target Actual Target Target

Cost per debt financing operation ($) (E) 235,172 220,732 256,336 170,214 193,962 228,709 

Percent of Primary Dealers that submit live bids N/A N/A N/A N/A 50 (B) 70 

from their disaster recovery site on two separate 

auction dates. (%) (Ot) 

Percent of auction results released in 2 minutes +/- 99.1 100 95 100 95 100 

30 seconds (%) (Oe) 

Percent of primary dealers that are able to N/A N/A 10 (B) 78 DISC DISC 

participate in a live auction from their disaster 

recovery site (%) (Ot) 

Key: Oe - Outcome Measure, E - Efficiency Measure, Ot - Output/Workload Measure, DISC – discontinued, and Bbaseline 

Description of Performance: The cost per debt financing operation is estimated at $193,962 in 

FY 2010 and $228,709 in FY 2011. Increases in the cost per debt financing operation for 

FY 2010 and FY 2011 are primarily due to moderate decreases in volume projections and 

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upgrades to the TAAPS system. Volumes fluctuate with Treasury's need for financing and 

market conditions. The upgrades to TAAPS are planned to keep pace with changes in 

technology that will ensure financing operations are conducted timely and with 100 percent 

accuracy. 

Public Debt continues to achieve its efficiency target of releasing auction results within two 

minutes, plus or minus 30 seconds, 95 percent of the time. 

Public Debt has implemented a strategic plan with primary dealers for contingency auction 

processing. The plan outlines various operational tests and events that strengthen overall 

readiness to deal with contingencies and ensure the continuity of the auction process. In 

FY 2009, the bureau exceeded its target of 10 percent of all primary dealers participating in a 

live auction from their disaster recovery sites. To further improve performance, Public Debt has 

developed a new long-term goal to ensure that 90 percent of primary dealers submit bids from 

their disaster recovery site on two separate auction dates in FY 2012. Public Debt is on target to 

achieve its intermediate milestone of 50 percent participation in FY 2010. 

 

3B – Government Agency Investment Services ($16,162,000 from direct appropriations and 

$1,979,000 from reimbursable programs): The Government Agency Investment Services 

(GAIS) program includes the offering of specialized investments for government entities at the 

federal, state and local levels, as well as borrowings by federal agencies. This program consists 

of three distinct components: Federal Investments, Special Purpose Securities and Federal 

Borrowings. 

The Federal Investments component includes issuing, servicing and redeeming Government 

Account Series (GAS) securities for federal agencies that have specific statutory authority to 

invest. Federal agencies hold 253 trust and investment funds that total more than $4 trillion in 

investments, which is over one third of the total public debt outstanding. These special, 

nonmarketable Treasury securities include such items as the 18 trust funds in which the Secretary 

of the Treasury, designated by statute, is the managing trustee. Some of the more recognizable 

federal trust funds are the four Social Security and Medicare Funds, as well as the 

Unemployment and Highway Trust Funds. 

The Special Purpose Securities component includes issuing, servicing and redeeming a variety of 

special purpose securities including Treasury's State and Local Government Series (SLGS) 

securities, which offer a flexible investment alternative for state and local governments to 

refinance their outstanding, tax-exempt debt. At nearly $213 billion, the SLGS program is 

critical for the more than 5,100 state and local government entities that use these securities to 

help comply with provisions of the Internal Revenue Code. 

The Federal Borrowings component accounts for and reports on the principal borrowings from 

and repayments to Treasury for 85 funds managed by other federal agencies, as well as the 

related interest due to Treasury. These agencies are statutorily authorized to borrow from 

Treasury to make loans for a broad range of purposes, such as education, housing, farming and 

small business support. The funds hold about $845 billion in loans and loan guarantees. 

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Public Debt's services in the GAIS program directly help customers produce timely and accurate 

financial information that contributes to the reliability and usefulness of the government-wide 

financial statements. Instant access to account information has significantly simplified 

reconciliation and audit confirmation efforts across the country and assisted SLGS purchasers in 

complying with Internal Revenue Service requirements related to the issuance of tax-exempt 

securities. 

Other Resources: 

Reimbursements totaling $1,979,000 are allocated to this program for providing administrative 

support to Public Debt’s franchise operation. 

3.2.2 – Government Agency Investment Services Budget and Performance Plan 

Government Agency Investment Services Budget Activity

Resource Level

FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Obligated Obligated Obligated Enacted Request

 Appropriated Resources $13,903 $15,445 $17,702 $16,264 $16,162 

 Reimbursable Resources $3,170 $4,279 $2,130 $1,871 $1,979 

Total Resources $17,073 $19,724 $19,832 $18,135 $18,141

Budget Activity Total $17,073 $19,724 $19,832 $18,135 $18,141

Government Agency Investment Services Budget Activity

Measure FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Actual Actual Target Actual Target Target

Cost per federal funds investment transaction ($) 68.53 64.98 69.11 41.71 45.70 44.92 

(E) 

Number of Government Agency Investment 3 2 0 0 5 0 

Services control processes consolidated (Oe) 

Percent of overall customer satisfaction with N/A N/A N/A N/A B TBD 

Government Agency Investment Services (%) (Oe) 

Key: Oe - Outcome Measure, E - Efficiency Measure, Ot - Output/Workload Measure, DISC – discontinued, and B 

- baseline 

Description of Performance: Public Debt established a long-term goal to reduce the number of 

systems used to support GAIS. This will streamline the diversity of technology involved in 

supporting this business line and will allow the bureau to consolidate and standardize the internal 

controls over processes common to all GAIS programs. The control environment originally 

consisted of 18 processes in 2006 that will be transformed into six standardized processes by 

FY 2012. Consolidating the systems that house GAIS data into a single, integrated control 

environment will provide one location for all investment activities, which will reduce operational 

risks, while standardizing system, business and data elements. In FY 2009, system development 

continued, but the number of processes remained at 13. In FY 2010, five common processes will 

be consolidated leaving eight processes at the end of the fiscal year. FY 2011 will be a year of 

assessment, and the number of processes will remain the same. 

The cost per federal funds investment transaction is projected to be $45.70 for FY 2010 and 

$44.92 for FY 2011. The projected cost per federal funds investment transaction is increasing 

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for FY 2010 due to an increase in support charges and projected constant transaction volumes. 

The FY 2011 target reflects constant transaction volumes and a reduction in overall general 

expenditures. 

Public Debt established a goal to provide high quality customer satisfaction for GAIS. 

Beginning in FY 2010, the bureau will conduct customer satisfaction surveys that focus on 

program and system satisfaction. This GAIS measurement supports an objective to provide 

quality customer service, transaction processing, and accurate and timely payments to investors. 

3C – Retail Securities Services ($136,327,000 from direct appropriations, including 

$10,000,000 from user fee collections, and $16,693,000 from reimbursable programs): 

Public Debt’s Retail Securities program serves more than 50 million retail customers who have 

invested in marketable and savings securities directly with Treasury. Investors may hold these 

securities in book-entry or paper form. 

The retail program is positioning Treasury to eliminate new issues of paper savings bonds. 

While there has been no date set for withdrawing paper bonds from sale, the bureau will continue 

to encourage investors to move to TreasuryDirect as their preferred way of buying and holding 

savings bonds. Efforts to transition customers will be educational, such as financial literacy 

programs that target customers not yet accustomed to conducting financial transactions online. 

In FY 2011, the retail program will continue focusing on improving the quality and efficiency of 

customer service by formulating and providing recommendations to support skill-based routing, 

web chat and the use of images in the Treasury Retail E-Services environment. By supporting its 

full range of products in an integrated system and optimizing communication, Public Debt will 

be able to respond to Retail securities customers more quickly and thoroughly. 

Other Resources: 

Offsetting collections totaling $10,000,000 are collected for Legacy Treasury Direct Investor 

Account maintenance fees. In addition, $16,693,000 in reimbursements are allocated to this 

program for providing administrative support to Public Debt’s franchise operation. 

 

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3.2.3 – Retail Securities Services Budget and Performance Plan 

Retail Securities Services Budget Activity

Resource Level

FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Obligated Obligated Obligated Enacted Request

 Appropriated Resources $133,425 $127,079 $127,909 $142,645 $136,327 

 Reimbursable Resources $9,047 $9,006 $15,393 $16,405 $16,693 

Total Resources $142,472 $136,085 $143,302 $159,050 $153,020

Budget Activity Total $142,472 $136,085 $143,302 $159,050 $153,020

Retail Securities Services Budget Activity

Measure FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Actual Actual Target Actual Target Target

Cost per TreasuryDirect assisted transaction ($) (E) 6.65 8.19 9.34 8.72 8.57 8.41 

Cost per TreasuryDirect online transaction ($) (E) 3.24 4.34 4.34 5.21 5.69 5.20 

Percentage of Retail Customer Service N/A N/A N/A 86 (B) 86 87 

Transactions Completed within 5 Business Days 

(%) (Ot) 

Percentage of retail customer service transactions 99.43 99.86 90 99.83 DISC DISC 

completed within 11 business days (%) (Ot) 

Key: Oe - Outcome Measure, E - Efficiency Measure, Ot - Output/Workload Measure, DISC – discontinued, and B 

- baseline 

Description of Performance: The cost per TreasuryDirect assisted transaction is projected at 

$8.57 in FY 2010 and $8.41 in FY 2011, primarily as a result of an increase in projected 

volumes. While workload should increase slightly, it is sensitive to changes in market rates. 

When market rates are low, TreasuryDirect accounts are not likely to grow at the pace seen in 

prior years. 

Although TreasuryDirect promotes self-sufficiency, there are times when assistance from a 

customer service representative is necessary. Representatives handle phone and email inquiries, 

offline authentication forms processing, conversions, changes in bank information and 

transactions requiring legal evidence. Providing adequate assistance to TreasuryDirect 

customers and meeting customer expectations is critical to fulfilling Public Debt's goal of 

positioning Treasury to eliminate new issues of paper savings bonds. 

In Public Debt’s internet-accessed system, investors set up accounts, purchase electronic 

securities and manage their holdings. Since investors have this self-service capability, the 

bureau tracks the cost of online transactions, including establishing accounts, purchasing and 

redeeming securities and changing account information online. The cost per TreasuryDirect 

online transaction is projected at $5.69 in FY 2010, but is expected to drop to $5.20 in FY 2011, 

because of a reduction in overall general expenditures. Volumes are projected to remain steady 

or increase slightly, while costs to operate TreasuryDirect are projected to increase in FY 2010 

due to higher support costs and to refinements in cost allocations. 

The TreasuryDirect application achieved full functionality with the implementation of entity 

accounts in FY 2009. In an ongoing effort to introduce additional cost savings initiatives, some 

of the original functionality is being upgraded to better align Public Debt to achieve some of its 

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long range goals, such as improving system usability, streamlining online processing and 

encouraging more customers to convert their securities from our legacy systems. As a result, 

some design and development costs are shifting from assisted to online activities as more online 

features are made available to customers. In addition, in FY 2009 the Federal Reserve took on 

the task of regression testing, causing costs to increase slightly. Without the requested funding, 

Public Debt would not be able to support TreasuryDirect, the center of its strategy to offer retail 

securities to the public as efficiently as possible. 

The percent of retail customer service transactions completed within five business days includes 

the timeliness of processing retail customer service transactions, including answering phone and 

email inquiries, processing payments or changes to payment instructions and handling 

TreasuryDirect assisted transactions. A baseline for this measure was established in FY 2009. 

3D – Summary Debt Accounting ($9,262,000 from direct appropriations and $1,134,000 from 

reimbursable programs): The Summary Debt Accounting program is key to meeting 

Public Debt's responsibility to annually account for more than $12 trillion of public debt and 

nearly $400 billion in related interest expense incurred to finance the operations of the federal 

government. This program provides the overarching control structure for dozens of subordinate 

securities systems and reconciles more than $107 trillion annually of securities transactions and 

related cash flows handled by these subsystems. These cash flows represent funds received from 

the sale of securities and funds disbursed as interest and principal payments. 

The program produces daily reports on the balances and composition of the public debt, the 

Monthly Statement of the Public Debt, and the annual, audited Schedules of Federal Debt, which 

reports on the single largest liability in the annual Financial Report of the United States 

Government. For each year an audit has been conducted, Public Debt has received an 

unqualified opinion on the Schedules of Federal Debt. 

The Public Debt Accounting and Reporting System accounts for the public debt of the United 

States. The investment is nearing the end of its useful life, so rather than develop a proprietary 

system, the bureau will seek a shared-service solution to meet its accounting responsibilities for 

the Summary Debt Accounting program. This approach offers many benefits including a faster 

migration and reduced operational risks. 

 

Before seeking a desired technology solution however, Public Debt will engage in a thorough 

reengineering of the business processes to best support the future needs of Summary Debt 

Accounting. This effort will redefine many reporting requirements, responsibilities and 

informational needs, produce more consistent processes across the board, drive improvements in 

the subsidiary reporting systems and ultimately create greater efficiency within the debt 

accounting programs at the summary and subsidiary levels. 

Other Resources: 

Reimbursements totaling $1,134,000 are allocated to this program for providing administrative 

support to Public Debt’s franchise operation. 

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3.2.4 – Summary Debt Accounting Budget and Performance Plan 

Summary Debt Accounting Budget Activity

Resource Level

FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Obligated Obligated Obligated Enacted Request

 Appropriated Resources $6,769 $6,793 $7,081 $8,843 $9,262 

 Reimbursable Resources $452 $475 $852 $1,017 $1,134 

Total Resources $7,221 $7,268 $7,933 $9,860 $10,396

Budget Activity Total $7,221 $7,268 $7,933 $9,860 $10,396

Summary Debt Accounting Budget Activity

Measure FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Actual Actual Target Actual Target Target

Cost per summary debt accounting transaction ($) (E 9.29 9.11 10.01 8.66 11.81 11.55

Percent of Summary Debt Accounting business N/A N/A N/A N/A 6 (B) 6

processes restructured or eliminated. (%) (Oe) 

Key: Oe - Outcome Measure, E - Efficiency Measure, Ot - Output/Workload Measure, DISC – discontinued, and B 

- baseline 

Description of Performance: Public Debt tracks the cost per transaction of performing summary 

debt accounting, which includes reporting all financial activity related to the public debt of the 

United States. Issues, redemptions and interest payments on the public debt must be accounted 

for to calculate the amount of debt outstanding and interest paid. The bureau projects the cost 

per summary debt accounting transaction to be $11.81 in FY 2010 and $11.55 in FY 2011. The 

projected cost per summary debt accounting transaction is increasing because of statutory 

requirements beginning in FY 2010 to reimburse GAO for the Schedules of the Federal Debt

audit, as well as an increase in support charges. However, costs are expected to drop slightly in 

FY 2011 because of an overall reduction in general expenditures. Transaction volumes are 

projected to remain constant for FY 2010 and FY 2011. 

Public Debt established the long term goal to migrate Summary Debt Accounting to a shared 

service solution by FY 2013. The measurement of this goal is the percent of Summary Debt 

Accounting business processes restructured or eliminated. In FY 2010, the bureau will 

restructure or eliminate six percent of the business processes that support Summary Debt 

Accounting and will restructure or eliminate an additional six percent in FY 2011. 

 

For detailed information about each performance measure, including definition, verification and 

validation, please go to: http://treas.gov/offices/management/budget/

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Section 4 – Supporting Materials 

4A – Human Capital Strategy Description 

The key to achieving Public Debt’s mission is the strategic management of human capital. 

Employees are its greatest asset and investment in the workforce is critical. Public Debt is 

known as a values-based organization where candidates want to work and employees want to 

stay. According to the report, Best Places to Work in the Federal Government 2009, the bureau 

ranked in the top two percent of federal agency subcomponents. This ranking is based on results 

from the Office of Personnel Management's 2008 Federal Human Capital Survey. Public Debt's 

status as an employer of choice is enhanced by its efforts to improve employee health and 

well-being by providing access to fitness centers, health units offering a variety of health 

screenings and free flu shots, and a cafeteria offering healthy meal and snack options. 

Not content to rest on it accomplishments, Public Debt develops and adopts action plans to 

address issues identified in the Federal Human Capital Survey. The current action plan for 

FY 2010 calls for enhancing the existing Telework Program, improving the performance culture, 

and continuing to improve communications. 

A crucial part of workforce planning and deployment is the statistical analysis of the workforce. 

By 2012, 22 percent of the bureau’s permanent employees will be eligible for retirement. A 

closer analysis of this data reveals that 50 percent of Senior Executive Service (SES) level 

employees will be eligible to retire. 

Workforce recruitment and retention decisions are based on mission needs to offset the effect of 

retirements. Public Debt has developed a comprehensive recruitment program to attract 

candidates with the necessary competencies to minimize skill gaps. In addition, Public Debt 

relies on a full range of staffing and compensation authorities and flexibilities to recruit and 

retain high quality candidates. Extended efforts to target recruitment, streamline the hiring 

process, and shorten the hiring timeframes will ensure the bureau continues to successfully fill 

vacancies with well qualified employees. 

Another vital element of Public Debt's human capital strategy is training. Annual training and 

development for employees addresses new skill requirements and manages the loss of 

institutional knowledge through retirements and internal movements. In addition, management 

development and supervisory excellence training programs have been developed and rotational 

assignments are encouraged for sharing and transferring institutional knowledge. 

 

Succession planning is another important part of the human capital strategy. Because of the 

significant number of potential retirements within the SES, Public Debt implemented a Senior 

Executive Service Candidate Development Program in FY 2008. This program, scheduled for 

completion in 2010, will enable Public Debt to meet succession planning goals by establishing a 

pool of qualified candidates to quickly fill SES vacancies. 

Public Debt continues to move forward on improving links between employee performance 

expectations and mission accomplishment. Performance plans are aligned with organizational 

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goals and mission. Links are clearly identified between the strategic plan and the performance 

plans. 
4.1 – Summary of IT Resources Table 

Dollars in Thousands 

Information Technology Investments 1/ FY 2008 FY 2009 % Change FY 2010 

from FY08 to President's % Change from 

Major IT Investments / Funding Source Budget Activity Enacted Enacted FY09 Budget FY09 to FY10 

Government 

Government Agency Investment Services Agency System (GAISS) Investment 

Services $4,511 $5,493 21.8% $3,759 -31.6% 

Public Debt Accounting and Reporting Summary Debt System (PARS) Accounting $1,971 $2,030 3.0% $2,091 3.0% 

Retail Securities SaBRe Services $4,640 $4,795 3.3% $4,957 3.4% Wholesale Treasury Automated Auction Processing Securities System (TAAPS) Services $29,521 $31,725 7.5% $34,664 9.3% 

Subtotal: TAAPS Appropriated Funding $11,281 $11,562 2.5% $12,252 6.0% 

 Subtotal: TAAPS Permanent & Indefinite $18,240 $20,163 10.5% $22,412 11.2% 

Retail Securities TreasuryDirect Services $7,640 $5,679 -25.7% $5,887 3.7% 

 Subtotal: TreasuryDirect Appropriated $5,389 $5,679 5.4% $5,887 3.7%  Subtotal: TreasuryDirect Permanent & Indefinite $2,251 $0 -100.0% $0 N/A Subtotal, Major IT Investments $48,283 $49,722 3.0% $51,358 3.3% Non-Major IT Investments $9,793 $10,008 2.2% $10,104 1.0% Infrastructure Investments 2/ $15,895 $16,621 4.6% $17,226 3.6% Enterprise Architecture $342 $352 2.9% $361 2.6% Total IT Investments $74,313 $76,703 3.2% $79,049 3.1% 

1/Oracle e-Business Suites is self-funded.2/ Includes Enterprise Identity and Accesss Management.

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4B – Information Technology Strategy 

In order to ensure the success of Public Debt's mission at the lowest cost to the taxpayer, the 

bureau has implemented and currently operates secure, efficient IT systems that safely process a 

wide range of corporate and customer transactions. The bureau’s IT Strategic Roadmap for 

years 2008 – 2012 calls for a culture of continuous improvement through the adoption of best 

practices, improved quality of information supporting IT investments and improved effectiveness 

of project execution. 

Adoption of Best Practices

Public Debt uses the Information Technology Infrastructure Library, a collection of IT best 

practices for managing and improving operations, optimizing the capacity of the infrastructure, 

and increasing the effectiveness in IT service delivery. The bureau plans to further optimize IT 

infrastructure by expanding the use of server virtualization, exploring the expanded use of virtual 

storage and backup technologies and evaluating desktop virtualization. 

In addition, Public Debt will invest in environmentally-friendly electronic products when eligible 

options exist, ensure electronic equipment is used for an average life span of four years or 

greater, and recycle non-reusable electronic equipment. 

Public Debt provides effective enterprise solutions to protect systems and data against fraud, 

identity theft and other cyber-crimes. Areas of focus include desktop security, mobile data 

devices, data encryption, identification and authentication controls, enhancements to its Trusted 

Internet Connection infrastructure, secure system configurations, compliance audit capabilities, 

Security Operations Center capabilities and continuity of operations. The bureau’s IT system 

portfolio is comprised of certified and accredited applications ensuring secure exchange of 

information between the federal government and the public. 

Quality Information Supporting IT Investments

Public Debt’s Capital Planning and Investment Control program is a disciplined, integrated 

process that addresses system prioritization of new and existing IT investments, risk 

management, long-range planning, business objectives, alternative analysis and governance. The 

bureau’s quarterly enterprise architecture reviews ensure alignment of its IT investments to the 

strategic enterprise direction of Treasury and identify potential duplication of systems. Tracking 

and reporting the progress of each investment and the performance measures achieved each 

quarter ensures the IT system portfolio is well managed, cost effective and supports Treasury's 

strategic goal of Effectively Managed U.S. Government Finances. 

Effective Project Execution

Through a disciplined and consistent approach to project management, IT investments are 

closely monitored for cost, schedule and performance to ensure expected results and benefits are 

achieved. For example, a corrective action plan is implemented for any project exceeding a 

tolerance of 10 percent for cost, schedule or performance estimates. Through Public Debt’s 

focused oversight of its system portfolio, the government’s critical financing needs are met while 

maintaining the integrity of primary and secondary markets for Treasury securities. 

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4.2 – Program Evaluation 

Program Name: Administering the Public Debt 

Assessment and Improvement Actions 

• By 2012, 90 percent of Primary Dealers will submit live bids from their disaster recovery 

sites on two separate auction dates. 

• Consolidate Government Agency Investment Services into a single, integrated control 

environment by FY 2012. 

• Migrate Summary Debt Accounting to a shared service solution by FY 2013. 

• By FY 2014, significantly improve the number of retail customer service transactions 

completed within five business days. 

• Receive a high quality customer satisfaction rating for Government Agency Investment 

Services.