FY 2017 AGENCY FINANCIAL REPORT

ABOUT THIS REPORT

Our Agency Financial Report

(AFR) for Fiscal Year (FY) 

2017 presents the 

Department of the Treasury’s 

(Treasury, Department, or 

our) financial information 

relative to our vital mission 

and stewardship of the 

resources entrusted to us. 

The AFR also highlights our priorities, 

accomplishments, and challenges implementing 

programs that promote conditions for sustaining 

economic growth and stability at home and abroad, 

protecting the integrity of our nation’s financial 

system, and effectively managing the United States 

(U.S.) government’s finances and resources. In 

accordance with Office of Management and Budget’s 

(OMB) Circular A-136, Financial Reporting 

Requirements, we produce the following reports: (i) an 

AFR issued on November 15, 2017 and (ii) an Annual 

Performance Report (APR) submitted with Treasury’s 

congressional budget justification, to be issued by 

February 1, 2018. The AFR will be available online at 

http://www.treasury.gov/about/

budget-performance/annual-performance-plan/Pages/

default.aspx. The APR will be available online at 

http://www.treasury.gov/

about/budget-performance/Pages/cj-index.aspx.

HOW THIS REPORT IS ORGANIZED

Our AFR provides financial and performance 

information for the FY beginning October 1, 2016, and 

ending on September 30, 2017, with comparative prior 

year data, where appropriate. The AFR demonstrates 

our commitment to our mission and accountability to 

Congress and the American people. This report 

presents Treasury’s operations, accomplishments and 

challenges. The AFR begins with a message from the 

Secretary of the Treasury, Steven T. Mnuchin. This 

introduction is followed by three main sections.

Part 1: Management’s 

Discussion and Analysis

Provides a high-level overview of 

our organizational structure, 

strategic framework, 

programmatic and financial 

performance, and management 

assurances related to Treasury’s 

internal controls. 

Part 2: Financial Section

Begins with a message from the 

Assistant Secretary for 

Management and Deputy Chief 

Financial Officer, followed by 

the Independent Auditors’ 

Report, audited financial 

statements and notes, and 

supplementary information.

Part 3: Other Information

Contains various information 

including Management and 

Performance Challenges 

identified by the Inspectors 

General and the Secretary’s 

response, along with 

information related to tax gap 

and tax burden, improper 

payments, and other relevant 

information. 
FY 2017 AGENCY FINANCIAL REPORT 

TABLE OF CONTENTS

MESSAGE FROM THE SECRETARY OF THE TREASURY .......................................................................... 4 

PART 1: MANAGEMENT’S DISCUSSION AND ANALYSIS (UNAUDITED) 

TREASURY AT A GLANCE ............................................................................................. 9 

ORGANIZATION ................................................................................................... 11

FY 2017 PROGRESS TOWARD REFORM ............................................................................ 14 

FY 2017 OPERATIONAL PERFORMANCE MEASURES ................................................................ 20

STRATEGIC MANAGEMENT ........................................................................................ 22

ENTERPRISE RISK MANAGEMENT .................................................................................. 23

FINANCIAL HIGHLIGHTS – FINANCIAL OVERVIEW.................................................................... 25

MANAGEMENT ASSURANCES ...................................................................................... 30

SYSTEMS, CONTROLS AND LEGAL COMPLIANCE ..................................................................... 31

PART 2: FINANCIAL SECTION

MESSAGE FROM THE ASSISTANT SECRETARY FOR MANAGEMENT AND DEPUTY CHIEF FINANCIAL OFFICER ............. 39

INSPECTOR GENERAL’S TRANSMITTAL LETTER....................................................................... 41

INDEPENDENT AUDITORS’ REPORT ON THE DEPARTMENT’S FINANCIAL STATEMENTS ................................. 43 

MANAGEMENT’S RESPONSE TO INDEPENDENT AUDITORS’ REPORT .................................................. 49

FINANCIAL STATEMENTS........................................................................................... 50

NOTES TO THE FINANCIAL STATEMENTS ............................................................................ 57

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) .........................................................128

PART 3: OTHER INFORMATION (UNAUDITED) 

SECTION A: TAX GAP AND TAX BURDEN .........................................................................137

SECTION B: REDUCE THE FOOTPRINT ............................................................................145

SECTION C: MANAGEMENT CHALLENGES ........................................................................146

SECTION D: SUMMARY OF FINANCIAL STATEMENT AUDIT AND MANAGEMENT ASSURANCES .......................170 

SECTION E: PAYMENT INTEGRITY ................................................................................17 4 

SECTION F: FRAUD REDUCTION REPORT .........................................................................189

SECTION G: CIVIL MONETARY PENALTIES INFLATION ADJUSTMENT ................................................192 

SECTION H: GRANTS OVERSIGHT AND NEW EFFICIENCY (GONE) ACT REQUIREMENTS .............................199

APPENDIX: GLOSSARY OF ACRONYMS ...........................................................................20 0 
4 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MESSAGE FROM THE SECRETARY OF THE TREASURY

MESSAGE FROM THE SECRETARY OF THE TREASURY

M ISSION S TATEMENT

Maintain a strong economy and create economic and job opportunities by promoting 

conditions that enable economic growth and stability at home and abroad; strengthen 

national security by combating threats and protecting the integrity of the financial system; 

and manage the U.S. government’s finances and resources effectively.

This year’s Agency Financial Report offers an 

opportunity to review the steps that the Department 

has taken in the past year towards fulfilling the 

promise of prosperity and security for the American 

people. The new Administration has set forth a bold 

reform agenda to return this country to higher and 

more sustainable levels of economic growth. Some of 

the most important aspects of this program are being 

carried out at Treasury. 

First and foremost, Treasury has led the push for tax 

reform — a proposal to overhaul and modernize the

tax system to make it work for all Americans. This 

includes lowering business and individual tax rates, 

closing loopholes, and simplifying the tax code. It also 

includes reforming our system of international 

taxation, encouraging companies to bring trillions of 

dollars currently offshore back to America to invest in 

jobs and foster economic growth.

A second key aspect of Treasury’s reform program is 

regulatory relief. President Trump’s Executive Order 

13772 called for a comprehensive review of financial

regulations to ensure they are consistent with 

important core principles. In June, Treasury released 

the first of these reports on the depository system 

and, in October, we released additional reports on 

capital markets and on asset management and 

insurance. These reports recommend legislative and 

regulatory solutions to provide certainty for 

individuals and businesses so that they can spend 

more of their time and money creating opportunities 

for American consumers, workers, and their families. 

In response to Executive Order 13789, Treasury also 

carried out a thorough review of the burdens imposed 

by recent tax regulations. We released 

recommendations on how to ease these burdens.

A central component of Treasury’s mission is using its 

unique financial tools and authorities to target 

national security and foreign policy threats, as well as 

protect the U.S. and international financial system 

from abuse by illicit actors. Treasury’s Office of 
DEPARTMENT OF THE TREASURY 5 

MESSAGE FROM THE SECRETARY OF THE TREASURY | FY 2017 AGENCY FINANCIAL REPORT

Terrorism and Financial Intelligence plays a critical 

role in national security matters by strategically 

applying our policy, intelligence, enforcement, and 

regulatory tools, including financial sanctions. It is 

the strategic use of these tools that allows us to target 

terrorist groups, rogue nations, and weapons of mass 

destruction proliferators, as well as drug kingpins and 

money launderers. This year alone we have taken 

significant actions to: (1) stop the flow of funds to 

North Korea; (2) counter Iran’s malign activities, 

including its continued support for terrorism, human 

rights abuses, and its development of ballistic 

missiles; (3) stem the flow of terrorist financing by 

establishing the Terrorist Financing Targeting Center 

with our international partners; (4) increase 

significant economic pressure on Venezuela’s Maduro 

regime for its assault on democracy; (5) combat the 

flow of drugs and illicit money through expansive 

trafficking networks in Mexico and other South 

American countries; and (6) take actions against 

human rights violators around the globe, among many 

other priorities.

On the international front, Treasury’s Office of 

International Affairs is playing an integral role in 

advancing the President’s vision of international 

policies that improve conditions for American workers 

and companies. Treasury works with other federal 

agencies, foreign governments, and international 

financial institutions to promote economic growth and 

global stability. Treasury also chairs the Committee 

on Foreign Investment in the United States, which 

focuses exclusively on identifying and addressing 

national security concerns in cross-border 

transactions. Treasury participates in multilateral 

development banks and other multilateral forums, 

where we encourage policies to promote global growth, 

sound management of public finances and 

transparency, and sound monetary policy. 

As responsible stewards of the resources of the 

American taxpayers, one of our most important duties 

is to practice fiscal responsibility and transparency. 

To that end, Treasury received an unmodified audit 

opinion on its consolidated financial statements, and 

validated its financial and performance data as 

complete and reliable. Treasury strengthened its 

management controls, made progress towards 

correcting material weaknesses, and made progress 

toward achieving all U.S. financial systems and 

control objectives. We provide this report as a 

comprehensive review of the Department’s important 

work and finances.

These accomplishments, and the results to come, are 

due to the hard work of the dedicated women and men 

of the Department. The intelligence and 

professionalism exhibited here on a daily basis is 

what makes this such an important and effective 

American institution. 

In the months ahead, we will release the 

Department’s Strategic Plan for fiscal years 2018 – 

2022, which will outline how we plan to continue to 

work towards a more secure and prosperous future for 

all Americans. I look forward to our progress.

Steven T. Mnuchin

Secretary of the Treasury

November 15, 2017
[Page intentionally left blank]
 

TREASURY AT A GLANCE .............................. 9 

ORGANIZATION .......................................... 11

FY 2017 PROGRESS TOWARD REFORM ......... 14

FY 2017 OPERATIONAL PERFORMANCE

MEASURES .......................................... 20

STRATEGIC MANAGEMENT ........................... 22

ENTERPRISE RISK MANAGEMENT .................. 23

FINANCIAL HIGHLIGHTS – FINANCIAL

OVERVIEW .......................................... 25

MANAGEMENT ASSURANCES ....................... 30

SYSTEMS, CONTROLS AND LEGAL COMPLIANCE 31

DEPARTMENT OF THE TREASURY 9 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

TREASURY AT A GLANCE

FOUNDATION

After the American Revolution, Congress realized that 

funding a war without proper infrastructure and 

financial discipline presented an enormous challenge 

to our country’s economic stability. Out of the 

necessity to levy and collect taxes and manage the 

U.S. government’s finances, Congress established the 

Department of the Treasury on September 2, 1789. 

President George Washington appointed Alexander 

Hamilton as Treasury’s first Secretary. Since then, 

77 Secretaries have led the Department.

Throughout history, Treasury was the foundation for

other federal agencies. The U.S. Postal Service, U.S. 

Customs Service, Secret Service, Federal Law 

Enforcement Training Center, and U.S. Coast 

Guard—to name a few—were all, at one point, under 

Treasury’s jurisdiction. 







 Treasury building in the late 1800s. The Treasury 

building colonnade from the southeast side shows the 

bustle of pedestrian traffic on 15th Street as they passed 

in front of the Treasury building. 

DEPARTMENT OF THE TREASURY

 U.S. Department of the Treasury building, 

Washington, D.C.(current) 

DEPARTMENT OF THE TREASURY

TODAY’S TREASURY AND HOW WE SERVE THE 

NATION

Treasury remains as one of the premier financial 

institutions, responsible for the nation’s debt management, 

cash production, loans made to other federal agencies, tax 

collection, and economic policy formulation. We are a 

trusted policy advisor to the President, formulating and 

recommending domestic and international financial, 

economic, and tax policy. Our contributions to policy 

development shape America’s economic health and security. 

The Department also performs a critical and far-reaching 

role in enhancing national security and reducing our 

exposure to international terrorism. We do this by 

employing the Department’s national security tools and 

authorities—including sanctions—to identify, disrupt, and 

dismantle priority national security and foreign policy 

threats.
10 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

Additionally, we identify and reduce vulnerabilities in 

the U.S. and international system to prevent abuse by 

illicit actors. We also leverage our relationships with 

our federal partners and the private sector to identify 

cutting-edge technologies to identify, detect, and 

prevent threats to our economic stability before they 

occur. 

In recent years, we worked to increase opportunities 

for small businesses, which are the backbone of our 

economy; helped to create jobs to improve the wellbeing of U.S. citizens; and led the safeguarding and 

growth of our national economy. We have been a 

continuously influential part of the government’s 

service to the American people, growing and 

developing to meet the nation’s needs.

Globally, Treasury represents the U.S. in key 

economic forums and international financial 

institutions, including the Group of Seven (G-7) and 

the Group of Twenty (G-20), which hold annual 

summits with heads of state to discuss global foreign 

policy issues. Treasury plays a vital role in promoting 

stability and growth in the global economy via our 

leadership roles in the International Monetary Fund, 

the World Bank, the regional development banks, and 

other multilateral organizations, like the Financial 

Stability Board and the Financial Action Task Force. 

Although Treasury has evolved to meet the nation’s 

needs, our core mission has remained the same since 

1789. Today, with approximately 100,000 employees, 

we remain steadfast in our commitment to promote 

conditions that enable economic growth and stability 

at home and abroad, protect the integrity of the 

financial system, and effectively manage the U.S. 

government’s finances and resources. We remain the 

principal steward of the U.S. economy—collecting 

revenue, meeting financial obligations, and, when 

appropriate, borrowing.
DEPARTMENT OF THE TREASURY 11 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT 

ORGANIZATION

Treasury is organized into the Departmental Offices, seven bureaus, and three offices of inspector general. The 

Departmental Offices are primarily responsible for policy formulation, while the bureaus are the operating units of 

the organization.
12 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

DEPARTMENTAL OFFICES

Domestic Finance works to preserve confidence in the 

U.S. Treasury securities market, strengthen financial 

institutions and markets, and promote access to credit, 

in service to long-term economic strength and stability.

Terrorism and Financial Intelligence (TFI) uses 

unique policy, intelligence, enforcement and 

regulatory tools and authorities to disrupt and disable 

terrorists, criminals, and other national security 

threats while also safeguarding the financial system 

against abuse by illicit actors.

International Affairs protects economic prosperity and 

national security by working to foster a most 

favorable external environment for sustained jobs and 

economic growth. 

Tax Policy develops and implements tax policies and 

programs, reviews regulations and rulings to 

administer the Internal Revenue Code, and provides 

revenue estimates for the President’s Budget.

Economic Policy reports on economic developments 

and assists in the determination of appropriate 

economic policies. Reviews and analyzes domestic 

economic issues and financial market developments. 

The Treasurer of the United States serves as a 

principal advisor to the Secretary and leads the Office 

of Consumer Policy, which provides policy leadership, 

research, and analysis in the areas of fostering 

economic growth and financial security for American 

families in a robust consumer marketplace. The 

Treasurer also oversees the U.S. Mint, including

advising the Secretary on coinage matters and liaising 

with the Federal Reserve.

The Office of Management, including the Chief 

Financial Officer, manages the Department’s financial 

resources and oversees Treasury-wide programs, 

including human capital, organizational performance, 

information technology, acquisition, and diversity 

issues and inclusion. 

The Office of Risk Management oversees the 

development and implementation of an integrated 

risk management framework for the Department, 

advising Treasury leaders on managing credit, 

market, liquidity, fraud, operational, and reputational 

risks.

 

Other offices within Departmental Offices include the 

General Counsel, Legislative Affairs, and Public 

Affairs. 
DEPARTMENT OF THE TREASURY 13 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

INSPECTORS GENERAL

 

Three Inspectors General – the Office of Inspector 

General (OIG), the Treasury Inspector General for Tax 

Administration (TIGTA), and the Special Inspector 

General for the Troubled Asset Relief Program 

(SIGTARP) – provide independent audits, 

investigations, and oversight of Treasury and our

programs. 

BUREAUS 

The Alcohol and Tobacco Tax and Trade Bureau 

(TTB) collects federal excise taxes on alcohol, tobacco, 

firearms, and ammunition. Enforces and administers 

laws covering production, use, and distribution of 

alcohol and tobacco products. 

The Bureau of Engraving and Printing (BEP)

develops and produces U.S. currency notes, as well as 

secure documents for government use. 

The Financial Crimes Enforcement Network 

(FinCEN) safeguards the financial system from illicit 

use and combats money laundering. Promotes 

national security through the collection, analysis, and 

dissemination of financial intelligence and strategic 

use of financial authorities. 

The Bureau of the Fiscal Service (Fiscal Service)

provides central payment services to federal agencies, 

operates the U.S. government’s collections and deposit 

systems, and delivers administrative shared services 

to federal agencies. Provides government-wide 

accounting and reporting, and manages the collection 

of delinquent debt. Borrows money needed to operate 

the U.S. government through the sale of marketable, 

savings, and special purpose U.S. Treasury securities. 

Accounts for and services the public debt. 

The Internal Revenue Service (IRS) determines, 

assesses, and collects U.S. tax revenue. Helps 

taxpayers understand their tax responsibilities and 

combats tax-related fraud.

The United States Mint (U.S. Mint) designs, mints, 

and issues U.S. circulating numismatic and bullion 

coins. Strikes Congressional gold medals and other 

medals of national significance. Maintains physical 

custody and protection of most of the nation’s gold and 

all of its silver assets.

The Office of the Comptroller of the Currency (OCC)

ensures that the federal banking system operates

safely and soundly, provides fair access to financial 

services, treats customers fairly, and complies with 

applicable laws and regulations. The OCC charters, 

regulates, and supervises national banks and federal 

savings associations, and licenses and supervises 

federal branches and agencies of foreign banks.
14 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

FY 2017 PROGRESS TOWARD REFORM

Treasury has taken steps in the past year to promote 

the reform agenda of the new Administration, which, 

in part, calls for higher and more sustainable levels of 

economic growth for all Americans. In FY 2017, we 

advanced several key policies in support of this goal in 

the areas of tax reform, national security, and 

regulatory reform. We have begun and will continue 

to study, develop, and implement regulatory reform 

policies under the new Core Principles for Regulating 

the United States Financial System (Executive Order 

13772), issued on February 3, 2017. At the same 

time, we are making full use of existing economic and 

financial instruments, both at the domestic and 

international level, to address national security.

TAX REFORM

We continue to advocate improvements to the U.S. tax 

system by supporting sound tax policies, focusing on 

the President’s priority of reforming the tax code. We 

also continue to work with Congress on fundamental 

tax reform. In September 2017, together with 

Congress, we jointly released a Unified Tax Reform 

Framework to deliver on this priority, which: 

• Lowers taxes for individuals and families;

• Doubles the Standard Deduction and enhances 

the Child Tax Credit;

• Eliminates loopholes for the wealthy;

• Repeals the Estate Tax and Alternative Minimum 

Tax (AMT);

• Creates a new lower tax rate for small businesses;

• Lowers the corporate tax rate to create jobs and 

promote competitiveness;

• Allows “expensing” of capital investments to boost 

the economy;

• Moves to an American model for competitiveness 

by removing incentives to offshore jobs and to 

keeping foreign profits overseas; and

• Brings profits back home by imposing a one-time, 

low tax rate on earnings overseas.

Reducing and alleviating taxpayers’ compliance 

burdens is also a significant aspect of the 

Administration’s reform agenda. We focused this year

on making the tax system simple, fair, efficient, and 

pro-growth. In addition to proposing actions to modify 

or revoke specific regulations identified earlier this 

year, we identified numerous regulations for potential 

revocation to eliminate or reduce burdens imposed on 

taxpayers.

ADOBESTOCK

A Competitive Tax System

The United States now has the highest corporate 

tax rate among the 35 advanced economies in the 

Organisation for Economic Cooperation and 

Development, 15.9 percentage points higher than 

the worldwide average. Tax reform will make the 

U.S. corporate tax rate competitive again.
DEPARTMENT OF THE TREASURY 15

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

NATIONAL SECURITY 

Treasury serves a distinct role in enhancing the 

security of the nation’s financial and economic system. 

The American people depend on our economic and 

financial tools, such as sanctions and authorities 

under the Uniting and Strengthening America by

Providing Appropriate Tools Required to Intercept 

and Obstruct Terrorism Act of 2001 (or USA 

PATRIOT Act). We use these tools to protect the U.S. 

and international financial system from abuse, as well 

as to counter the financial networks that support 

terrorists, organized transnational crime, weapons of 

mass destruction (WMD) proliferators, and other 

threats to international security. In FY 2017, our 

continued focus on countering these illicit actors, 

monitoring of national security impacts of foreign 

business investments, and cybersecurity all played a 

pivotal role in protecting taxpayers. 

National Security Tools and Authorities

Treasury maintains a significant complement of 

targeted national security tools and authorities that 

help further the nation’s security objectives, including 

countering the financial networks that support 

terrorists, organized transnational crime, WMD

proliferators, and other threats to international 

security. The unique tools and authorities we 

maintain to address domestic and international 

threats are established in the Office of Terrorism and 

Financial Intelligence (TFI). 

Critical to our continued safety and financial stability, 

in 2017, TFI continued to deploy an array of targeted 

financial tools to freeze accounts of terrorists and 

proliferators, enforce sanctions on rogue nations, and 

stamp out illicit activities throughout the U.S. and 

international financial systems. 

A key element of TFI’s continued success in 

addressing national security challenges was ensuring 

that the various components—the Financial Crimes 

Enforcement Network (FinCEN), the Office of Foreign 

Assets Control (OFAC), the Office of Intelligence and 

Analysis (OIA), and the Office of Terrorist Financing 

and Financial Crimes (TFFC)—were properly 

integrated, working closely together, and deploying 

the tools and authorities best suited to each challenge. 

TFI has a broad range of powerful tools. By using 

these tools in a complementary and mutually 

reinforcing way, we increased their impact and better 

addressed national security concerns. 

ADOBESTOCK

 

Protecting the U.S. Financial System 

through Cybersecurity

We must store, process, transmit, and share large 

volumes of highly sensitive financial and personal 

information affecting the transaction of trillions 

of dollars. In FY 2017, as a frame of reference, 

Treasury managed $22 trillion in assets. 
16 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

For example, TFI has adopted this integrated 

approach to countering North Korea, one of the

highest priority threats facing the U.S. and its allies 

and partners. 

All components of TFI worked on attacking North 

Korea’s key financial vulnerabilities. Treasury’s OIA

provided expert analysis of North Korea’s financial 

networks, identifying key nodes to target for 

disruptive action.

OFAC tirelessly investigated and targeted individuals 

and entities that support North Korea’s WMD and 

ballistic missile programs. OFAC also undertook 

high-profile enforcement actions to make clear that 

doing prohibited business with North Korea would 

result in heavy penalties.

FinCEN exercised its information gathering and 

analytical tools in novel ways to track the financial 

flows of North Korean entities and front companies, 

and has used Section 311 of the USA PATRIOT Act to 

further restrict North Korea’s access to the U.S. 

financial system. 

TFFC led our international engagement efforts to 

work with partner countries, thereby hardening the 

defenses worldwide and depriving North Korea of 

alternative financial avenues.

Our goal continues to be to strategically and tactically 

cut off North Korea’s revenue sources and safeguard 

the international financial system from North Korea’s 

illicit financial activity.

Our approach to North Korea is just one example of 

this focus on integration. With every national 

security and law enforcement challenge we face, each 

component will be thinking about how it can be 

aggressive in using its authorities in novel, impactful, 

and complementary ways. 

We also focused on better integrating our efforts with 

those of our allies and partners. For example, earlier 

this year, the U.S. and Saudi Arabia announced the 

creation of the Terrorist Financing Targeting Center 

(TFCT), a collaborative approach to addressing the 

evolving threats arising from terrorist financing.

The TFTC is a joint effort by the U.S., Saudi Arabia, 

and others in the Gulf Cooperation Council, and 

represents a new step forward in sharing information 

and coordinating joint disruptive actions against 

terrorism. The creation of the new TFTC focuses our 

efforts on disrupting the financial and support 

networks that enable terrorists. 

Overall, in FY 2017, we worked to curb terrorist 

financing, and implemented sanctions and other 

financial measures to combat the threats our nation 

faces from Iran, North Korea, Syria, Venezuela, and

Russia, among other countries. Our targeted efforts 

continued against Islamic State in Iraq and Syria 

(ISIS) global financial and facilitation networks. We 

also aggressively targeted ISIS, al-Qaida, and 

Hezbollah leadership, financiers, and financial 

structures to disrupt their ability to plan and execute 

terrorist attacks.

Moreover, we produced financial analysis on 

organized crime groups in the U.S. related to narcotics 

and third-party money laundering networks, and 

issued intelligence assessments on the exploitation of 

emerging payment systems. Illustrative of this work, 

in August 2017, collaborating with U.S. and Mexican 

law enforcement actions, the Office of Foreign Assets 

Control identified 22 Mexican nationals and 43 

entities in Mexico as significant foreign narcotics 

traffickers. 
DEPARTMENT OF THE TREASURY 17

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

Foreign Investment in the U.S. 

Treasury plays a key role in protecting U.S. national 

security. We help protect the security of our nation’s 

government, military, businesses, investors, and 

consumers by safeguarding the United States from 

threats posed by foreign investment. 

To that end, the Committee on Foreign Investment in 

the U.S. (CFIUS) is an inter-agency committee

chaired by the Secretary of the Treasury. CFIUS is 

authorized to review business transactions (e.g., 

mergers and acquisitions) that could result in control 

of a U.S. business by a foreign person, called “covered 

transactions.” 

In FY 2017, CFIUS initiated review of approximately 

230 notices of covered transactions. CFIUS cleared 

those transactions that did not pose any national 

security concerns. CFIUS required the parties to 

adopt mitigation measures in a number of other 

instances in which the transactions posed a national 

security risk. In other instances in which CFIUS 

identified a national security risk, but concluded that 

the risk could not be mitigated, CFIUS informed the 

parties that it was prepared to refer the matter to the 

President for action. Parties generally voluntarily 

abandon transactions in such circumstances.

In the one instance in which the parties did not 

voluntarily abandon their transaction, CFIUS 

recommended that the President prohibit the 

transaction. In that instance, consistent with the 

Administration's commitment to take all actions 

necessary to ensure the protection of U.S. national 

security, the President issued an order prohibiting the 

acquisition of a company called Lattice Semiconductor 

Corporation. The national security risk posed by the 

transaction related primarily to the potential transfer 

of intellectual property to a foreign acquirer and the 

Chinese government's role in supporting this 

transaction.

Cybersecurity 

The cybersecurity threat to our nation’s critical 

infrastructure is growing, and represents one of the 

most significant challenges to our country’s national 

and economic security. Increasing cyber-attacks 

against U.S. financial institutions could lead to a loss 

in confidence in our financial system and present 

significant economic challenges. 

Our mission involves addressing a wide range of 

evolving cybersecurity risks, in collaboration with 

private and other public sector organizations. Our 

risks include: (1) limitations of available 

authentication technologies; (2) reliance on externally 

managed critical infrastructure; (3) continuing 

discovery of new vulnerabilities; (4) inadequate 

information sharing; and (5) a decentralized 

technology landscape. 

The cybersecurity risk facing the Department and, 

more broadly, the U.S. financial services sector, is 

magnified by the continuous evolution in technology, 

as well as the volume, sophistication, and frequency of 

cyber threats directed against both. As the 

presidentially-designated agency for the financial 

services sector, the Department’s Office of Critical 

Infrastructure Protection and Compliance Policy 

(OCIP) has an all-hazards mission to enhance the 

security and resilience of the financial services 

sector’s critical infrastructure. We work 

collaboratively with our public and private sector

partners, as well as international partners, to address 

the hazards that pose an operational risk to the 

financial services sector, including cyber and physical 

events, via naturally-occurring and man-made causes. 
18 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

To mitigate these threats, the Federal Information 

Security Modernization Act of 2014 (FISMA) requires 

that agencies have an annual independent evaluation 

performed of their information security programs and 

practices to determine their effectiveness and to 

report the results to the Office of Management and 

Budget (OMB). In FY 2017, Treasury implemented 

FISMA requirements around policies, procedures, and 

strategy, and will continue to improve safeguards 

around information technology. Additionally, OCIP 

coordinates efforts to reduce risk within the financial 

sector through a focus on: (1) prioritization and 

collaboration; (2) information sharing; (3) baseline 

protections; and (4) response and recovery.

Further improving our cybersecurity posture, in 

FY 2017, we established a Department-wide 

Cybersecurity Enhancement Account to strategically 

focus our cybersecurity efforts and avoid 

fragmentation of information technology management 

across our bureaus. The new account leads to cost 

efficiencies and improves our ability to quickly 

respond in the event of a cyber-attack.

FINANCIAL REGULATORY REFORM

Outside of national security and tax reform, we 

focused on addressing the Administration’s Core 

Principles for reforming the financial regulatory 

system through a series of planned reports. In 

FY 2017, we directed our attention to improving the 

financial regulatory system and economy consistent 

with Executive Order 13772. 

The Core Principles include empowering Americans to 

make independent financial decisions, save for 

retirement and build wealth, and discourages 

taxpayer-funded bailouts. The principles also include 

promoting American competitiveness—both at home 

and abroad—while making regulation efficient, 

effective and appropriately tailored. 

Per the direction of Executive Order 13772, we issued 

the first in a series of reports in June 2017 applying 

these Core Principles to an examination of the U.S. 

financial regulatory system for depository 

institutions. We detailed executive actions and 

recommendations for regulatory reform to provide 

relief to consumers and businesses. 

Given the breadth of the financial system and a 

complex regulatory environment, we divided our

review of the financial system into a series of planned 

reports with the following subject areas: (1) the 

depository system; (2) capital markets; (3) asset 

management and insurance industries, and retail and 

institutional investment; and (4) non-bank financial 

institutions, financial technology, and financial 

innovation. 

ADOBESTOCK

 

Core Principles to Address our Financial 

Regulatory Structure

Treasury’s recommendations seek to improve 

financial regulation and remove duplication and 

overlap. In 2016, the Government Accountability 

Office (GAO) released a report that concluded that 

significant fragmentation, overlap, and duplication 

exists within the regulatory framework.

Specifically, GAO found the existing structure does 

not always ensure efficient and effective oversight, 

consistent financial oversight, and consistent 

consumer protections. 
DEPARTMENT OF THE TREASURY 19

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

The U.S. banking system is the strongest in the world, 

and is critical in supporting the U.S. economy. In our 

first report, we recognize the unique role of the 

depository system, banks, and credit unions. In 

particular, we recommend that capital, liquidity, and 

leverage rules be simplified to increase the flow of

credit so that our banks remain globally competitive, 

among other recommendations.

We released the second and third reports in response 

to Executive Order 13772 in October 2017. These 

reports detail our recommendations of how to 

streamline and reform the U.S. regulatory system 

impacting the capital markets and the asset 

management and insurance industries. Our 

evaluation found that there are significant reforms 

possible to promote growth and a healthy financial 

system, while maintaining strong investor 

protections. 

These reports detail recommendations to streamline 

disclosure requirements to reduce costs incurred by 

companies while providing investors key information 

needed for investment decisions. For example, our 

reports outline that disclosure and other requirements 

can be better tailored for companies going public 

based on their size. We also recommend re-examining 

the 2012 Jumpstart Our Business Startups Act (JOBS 

Act) to identify how its tools can be improved. 

As we continue to evaluate and generate more 

recommendations for the U.S. financial system, we 

will programmatically align our operations, to the 

maximum extent possible, to achieve outcomes within 

our purview around these findings.
20 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

FY 2017 OPERATIONAL PERFORMANCE MEASURES

In FY 2017, we continued to deliver value to our 

customers, the American taxpayer. Our performance 

measures present data on service and operational 

outcomes for our core programs. 

Table 1 contains trend information for key measures 

used to assess our performance in core services and 

operations—programs that are critical to the proper 

functioning of the U.S. government. 

For each measure, we provide definitional information 

and briefly explain the trend in performance over the 

past four years. A full discussion of performance 

trends for all of our programs is included in the APR.

 

TABLE 1: SELECT PERFORMANCE MEASURES

Bureau Measure FY 14 FY 15 FY 16 FY 17 FY 17 

Target 

FY 17

Result vs Target

BEP 

Manufacturing costs for currency – dollar costs 

per thousand notes produced $42.0 $42.4 $44.3 $43.6 $50.0 Exceeded

This measure calculates the actual manufacturing cost for currency notes, which include direct labor costs, the cost of raw materials used, and 

related manufacturing overhead charges. The FY 2017 cost was lower than anticipated due to savings resulting from decreased spoilage, as well as 

the recovery of Series 2009 $100 notes through the Single Note Inspection process.

U.S. MINT

Seigniorage per dollar issued $0.37 $0.49 $0.52 $0.45 $0.48 Unmet

This measure calculates the difference between the face value and the cost of minting and issuing circulating coins. “Seigniorage per dollar issued” is 

the seigniorage generated from each dollar of circulating coinage shipped to Federal Reserve Banks. FY 2017 results fell below the target and prior 

year performance as a result of a 14 percent decrease in circulating shipment volumes combined with a four percent increase in the cost of metal.

TTB

Percent of permit applications processed 

within service standards 58% 47% 32% 48% 85% Unmet

This measure indicates how often TTB processes permit applications within the established customer service standard for new businesses seeking to 

engage in alcohol or tobacco manufacturing or distribution to ensure timely market entry for qualified individuals. TTB maintained its 75-day service 

standard for permit applications in FY 2017. TTB continues to face challenges in timely service due to resource constraints combined with a high 

volume of applications. 

Percent of label and formula applications 

processed within service standards 67% 75% 75% 62% 85% Unmet

This measure indicates how often TTB processes alcohol beverage label and formula applications within the established customer service standards 

to improve consistency and reliability for the business community served. TTB established new service standards of 10 days for both labels and 

formulas in FY 2017. This marked a significant departure from the 30-day standard for labels and 45-day standard for formulas in place in FYs 2014 - 

2016. Through the effective deployment of additional staffing resources, as well as the elimination of formula filing requirements, TTB made 

significant progress toward achieving the new 10-day standard for 85 percent of label and formula applications. 

 

 
DEPARTMENT OF THE TREASURY 21

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

TABLE 1: SELECT PERFORMANCE MEASURES (CONTINUED)

Bureau Measure FY 14 FY 15 FY 16 FY 17 FY 17 

Target

FY17

Result vs Target

Fiscal Service

Percentage of Treasury payments and 

associated information made electronically 94.4% 94.8% 94.9% 95.1% 95.2% Unmet

Percentage of total dollar amount of U.S. 

government receipts settled electronically 98.0% 98.0% 98.2% 98.3% 98.0% Exceeded

Fiscal Service has been promoting the Paperless Treasury initiative for several years in an effort to disburse payments, as well as receive and settle 

collections, through electronic means. Fiscal Service added a third Digital Wallet provider (Amazon Pay) and expanded agency adoption of Digital 

Wallet collections by adding 22 agencies in FY 2017. In FY 2017, Fiscal Service increased adoption of public-facing mobile apps by six agencies, and 

increased adoption of agency-facing mobile apps by eight agencies.

IRS

Percentage of individual returns processed 

electronically 84.1% 85.3% 86.4% 86.9% 87.0% Unmet

This measure reflects the number of electronically filed individual tax returns divided by the total individual returns filed. The IRS exceeded actual prior 

year performance but fell slightly short of the annual target for individual returns processed electronically. The IRS will continue to process individual 

returns as efficiently as possible to meet the FY 2018 plan. 

Taxpayer Self-Assistance Rate 84.7% 88.7% 89.0% 79.0% N/A N/A

This measure identifies the percentage of taxpayer assistance requests resolved using self-assisted automated services. Starting in FY 2017, the IRS 

modified the Taxpayer Self-Assistance Rate measures to include additional self-assistance applications, including Get Transcript and payment 

applications, such as Direct Pay and Online Payment Agreements. Any new self-assistance applications provided to the public will be added to the 

methodology. 

Full-year Customer Service Representative 

Level of Service 64.4% 38.1% 53.4% 77.1% 64.0% Exceeded

This measure indicates the number of toll free callers that either speak to a Customer Service Representative or receive information messages divided 

by the total number of attempted calls during the full fiscal year. Level of Service was better than planned due to the demand being lower than 

expected. Through extensive communication, the IRS encouraged taxpayers to use the Web or automated tools and alternate channels to get their 

concerns resolved quickly and efficiently. In addition, FY 2018 volumes of demand and successful automation/web activities will also be monitored and 

reported out on a recurring basis. 

FinCEN

Percentage of users finding that financial 

intelligence collected by FinCEN pursuant to its 

regulations provides valuable information 

81% 83% 84% 86% 85% Exceeded

This measure reflects the value of FinCEN’s BSA data to law enforcement and evaluates whether the data provided unknown investigative information,

supplemented or expanded known investigative information, verified information, or helped identify new leads. In FY 2017, 86 percent of users found 

the intelligence valuable, thereby surpassing the FY 2017 target of 85 percent. FinCEN will continue to emphasize improvements in data quality and 

filing information, as well as continued training efforts to improve understanding and utilizing the FinCEN Query tool for the bureau’s unique cases and 

situations. 

Management

Federal Employee Viewpoint Survey (FEVS) 

Engagement Index – 1 to 100 66% 66% 67% 68% 67% Exceeded

The FEVS Engagement Index is comprised of three Office of Personnel Management (OPM) calculated indices — Leaders Lead, Supervisors, and Intrinsic 

Work Experiences. The Engagement Index denotes the extent to which employees are engaged in their work and motivated by their organization’s 

leadership. Treasury’s Engagement Index showed a one percent increase from 67 percent to 68 percent between 2016 and 2017. Nine out of eleven 

Treasury components continued to show increases in their Engagement Index by one to six points from 2016 to 2017. The increase in Treasury’s 

Engagement Index can be attributed to gains in all three OPM indices. 

Treasury-wide Footprint in Thousands of Sq. Ft. 36,418 35,439 34,894 TBD 34,310 TBD

This measures the total square footage occupied by Treasury’s owned and leased buildings. The Department’s real property footprint was reduced by 

an estimated 1.5 percent (approximately 500,000 square feet) during FY 2016. The reduction was achieved through better use of existing office space, 

consolidations and co-locations, increased use of telework, and the implementation of new space design standards. The Department projects that the

footprint will be reduced by another 500,000 square feet in FY 2017. The final FY 2017 footprint data is expected to be available in late December 

2017.
22 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

STRATEGIC MANAGEMENT

FRAMEWORK

The Government Performance and Results Act

(GPRA) and the GPRA Modernization Act of 2010

require agencies to identify goals, report progress 

against targets, and conduct data-driven reviews. 

These practices serve two key purposes for 

stakeholders within and outside of the organization — 

to assess the organization’s health and impact, and to 

enhance effective decision-making and strategy, 

including resource allocation. In this spirit, we 

developed a strategic framework using best-in-class 

organizational performance practices to ultimately 

help achieve our strategic goals and objectives. 

ORGANIZATIONAL PERFORMANCE REVIEW 

CYCLE

Our organizational performance reviews provide a 

regular forum for open dialogue and coordination 

between departmental, bureau, and policy office 

leadership. We bring together different perspectives 

to set and align priorities, identify and solve 

problems, review agency performance, and drive 

results. The cycle integrates statutory requirements 

to conduct quarterly performance reviews of agency 

goals and a Strategic Objective Annual Review 

(SOAR), which analyzes cross-cutting performance 

and identifies a set of strategic objectives as priority 

focus areas.

At certain points throughout the fiscal year, we set 

annual priorities, evaluate progress, problem-solve 

around risks and challenges, and assess funding 

options in the context of performance outcomes. 

Treasury’s process and framework for managing to 

our strategic objectives and performance outcomes is 

described in Table 2 below. 

FY 2018 OUTLOOK

Our FY 2018 – 2022 Strategic Plan will be published 

in February 2018. In this plan, we will describe the 

long-term goals and objectives we aim to achieve 

during this Administration, building from the 

progress made and challenges identified in FY 2017. 

Our FY 2017 SOAR outlined several focus areas that 

will shape the development of our future priorities: (1) 

pursuing tax reform and improving the execution of 

the tax code; (2) increasing the efficiency and 

transparency of federal financial management; and (3) 

supporting effective data-driven decision-making.

Looking ahead, we will shape our strategic goals 

around five key priority areas: (1) boosting U.S. 

economic growth; (2) promoting financial stability; (3) 

enhancing national security; (4) transforming federal 

financial stewardship; and (5) achieving operational 

excellence within our department.
DEPARTMENT OF THE TREASURY 23

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

TABLE 2: STRATEGIC FRAMEWORK Sessions

Fall 

(October – November)

Winter 

(February - March)

Spring

(April – May)

Summer 

(June – July)

Focus

Organizational Performance SOAR Organizational Performance Budget

Chair

Assistant Secretary for 

Management/Performance 

Improvement Officer 

(ASM/PIO)

ASM/PIO and Deputy PIO ASM/PIO ASM/PIO

Goals/Outcomes 

• Review prior year’s 

performance at the 

bureau/office level

• Set priorities for year 

ahead

• Recognize successes

• Evaluate cross-agency 

progress toward strategic

objectives

• Identify strategic shifts/ 

validate Treasury priorities

• Outline potential topics for 

annual review with OMB

• Assess progress on priorities

• Identify necessary 

adjustments/near-term 

improvements

• Surface problems or 

assistance needed

• Recognize successes

• Connect priorities to 

future funding

• Explore performance 

impacts

• Strengthen information 

technology 

acquisition 

budgeting 

accountability

ENTERPRISE RISK MANAGEMENT

FRAMEWORK

In July 2016, OMB released an updated Circular No. 

A-123, Management’s Responsibility for Enterprise 

Risk Management and Internal Control to ensure 

federal managers are effectively managing risks to 

achieve strategic objectives. Management, together 

with the Chief Risk Officer (CRO), is responsible for 

establishing a governance structure to effectively 

implement a robust process of risk management and 

internal control. Successful implementation requires 

us to establish and foster an open, transparent culture 

that encourages people to communicate information 

about potential risks and other concerns with their 

superiors. 

To this end, the CRO chairs regular Risk 

Management Committee meetings which bring 

together leaders from across Departmental Offices. 

The Office of Risk Management (ORM) has also 

established an Enterprise Risk Management (ERM) 

Council, chaired by the CRO, which brings together 

risk managers from each of our bureaus on a regular 

basis. In FY 2017, ORM worked with offices and 

bureaus across Treasury to develop a risk profile, 

which will be updated annually. 
24 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

Beyond its work at Treasury, ORM led an effort to 

author a playbook to assist federal agencies in their 

implementation of an ERM governance structure in 

accordance with the OMB Circular’s guidelines. This 

playbook was published in July 2016. After the 

release of the playbook, ORM worked to establish an 

ERM Point of Contact Working Group. This 

government-wide working group, comprised of 

representatives from federal agencies and their key 

components, meets on a regular basis to discuss 

common risks and various methods of implementing 

the guidelines of the Circular.

ENTERPRISE RISKS AND CHALLENGES

Through the FY 2017 the SOAR and enterprise risk 

management process, we identified the following 

cross-cutting risks and challenges that will be 

reflected in Treasury’s FY 2018 – 2022 strategic goals 

and objectives. 

Human Capital –Workforce Planning/Recruitment: 

Issues within the human capital lifecycle (e.g., 

recruitment, development, and retention), coupled 

with the lengthy security clearance process, routinely 

present challenges for achieving the organization’s 

mission. Additionally, expanding the use of workforce 

planning and metrics to proactively forecast and meet 

workforce needs proves challenging, particularly in 

the enforcement, analytics, and regulatory fields.

Program Oversight and Alignment to Mission: We 

identified a need to better understand and meet 

customer expectations, and to better measure the 

impact of our programs across a range of mission 

areas.

Cybersecurity: Continued growth of increasingly 

sophisticated threats requires constant vigilance 

(enabled by state-of-the-art monitoring, 

implementation of cyber hygiene, and an insider 

threat program) and retention and recruitment of top 

talent (enabled by the use of strategic workforce 

planning) to ensure proper baseline protections.

Aging Infrastructure: We must address risks

associated with outdated information technology 

infrastructure, facilities, and equipment to safeguard 

employees and systems.
DEPARTMENT OF THE TREASURY 25

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

FINANCIAL HIGHLIGHTS – FINANCIAL OVERVIEW

The financial highlights below are an analysis of the 

information included in our consolidated financial 

statements that appear within Part 2, “Financial Section” 

of this report. Our principal financial statements have 

been prepared to report Treasury’s financial position and 

results of operations, pursuant to the requirements of 31 

USC 3515(b). These consolidated financial statements 

have been prepared from our books and records in 

accordance with Generally Accepted Accounting 

Principles (GAAP) for federal entities and the formats 

prescribed by OMB. The consolidated financial 

statements are in addition to the financial reports used to 

monitor and control budgetary resources, which are 

prepared from the same books and records. The financial 

statements are for a component of the U.S. government, a 

sovereign entity.

The chart below presents changes in key financial 

statement line items as of and for the fiscal year ended 

September 30, 2017, compared to September 30, 2016. 

Summary Financial Information ($ in billions) 

2017 2016 $ Change % Change

Total Assets $ 22,686.2 $ 22,170.9 $ 515.3 2.3%

Total Liabilities $ 22,188.8 $ 21,667.0 $ 521.8 2.4%

Total Net Position $ 497.4 $ 503.9 $ (6.5) (1.3)%

Total Net Cost of Treasury Operations $ 20.1 $ 17.7 $ 2.4 13.6%

Net Federal Debt Interest Costs $ 413.3 $ 385.7 $ 27.6 7.2%

GSEs Non-Entity Revenue, Net $ (9.4) $ (13.8) $ (4.4) (31.9)%

Total Net Cost of Treasury Operations and Non-Entity Costs $ 438.6 $ 403.6 $ 35.0 8.7%

Total Budgetary Resources $ 818.5 $ 797.3 $ 21.2 2.7%

Agency Outlays, Net $ 420.5 $ 400.3 $ 20.2 5.0%

Net Revenue Received (Custodial) $ 3,087.3 $ 3,048.7 $ 38.6 1.3%

Financial Overview. Our financial performance as of and 

for the fiscal year ended September 30, 2017, reflects 

several major trends. Most significantly, the outstanding 

federal debt, including interest, rose by $674.5 billion to 

$20.3 trillion to finance the U.S. government’s operations. 

Additionally, our “Total Net Cost of Treasury Operations 

and Non-Entity Costs” for FY 2017 increased by $35.0

billion, primarily stemming from non-entity activity, 

including $27.6 billion of higher net federal debt interest 

costs and $4.4 billion of lower revenue from our 

investments in two Government Sponsored Enterprises 

(GSEs) — Fannie Mae and Freddie Mac — pursuant to 

our Senior Preferred Stock Purchase Agreements, as 

amended (refer to the GSEs Non-Entity Revenue, Net 

discussion below). 
26 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

Figure 1: Total Assets, Total Liabilities, and Net Position (in billions) 

Total Assets of $22.7 trillion at September 30, 2017

consist of a receivable due from the General Fund of the 

U.S. Government (General Fund) of $20.4 trillion, intragovernmental loans and interest receivable of $1.5

trillion, and fund balance and various other assets 

totaling $856.8 billion (Figure 2). 

Figure 2: FY 2017 Total Assets (Composition)

The $515.3 billion (or 2.3 percent) increase in total assets 

at the end of FY 2017 over the prior year is primarily due 

to a $674.6 billion increase in the “Due From the General 

Fund ” account. Of this increase, $674.5 billion 

corresponds to an increase in federal debt and related 

interest payable. The “Due From the General Fund ” 

asset account, represents future funds required from the 

General Fund to pay borrowings from the public and 

other federal agencies. 

Intra-governmental loans and interest receivable 

represent loans issued primarily by the Fiscal Service to 

other federal agencies for their own use or for the 

agencies to loan to private sector borrowers whose loans 

are guaranteed by the federal agencies. This receivable 

grew by $55.0 billion (or 3.9 percent) to $1.5 trillion at the 

end of FY 2017 due to increased borrowings by various 

federal agencies — such as the Departments of Education, 

Homeland Security, and Transportation — to fund their 

existing programs. 

Among other things, other assets include operating cash 

balances (held on behalf of the U.S. government), foreign 

currency investments and Special Drawing Rights, as well 

as investments in, and credit program receivables due 

from, certain financial institutions for which we provide 

financial assistance in an effort to stabilize financial 

markets. Other assets decreased by $214.3 billion, 

largely reflecting a decrease in the U.S. government’s 

operating cash balances, offset by an increase in 

borrowings from the public. Operating cash balances held 

in depository institutions and Federal Reserve Bank 

accounts decreased primarily due to adjustments in 

borrowing in FY 2017 driven by the delay in raising the 

statutory debt limit. 
DEPARTMENT OF THE TREASURY 27

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

Total Liabilities of $22.2 trillion at September 30, 2017

principally consist of the federal debt held by the public, 

including interest, of $14.7 trillion (Figure 3), which was

mainly issued as Treasury Notes and Bills. Liabilities 

also include intra-governmental liabilities totaling $7.4

trillion (of which $5.6 trillion represents principal and 

interest on federal debt in the form of Treasury securities 

held by federal agencies), and various other liabilities 

totaling $83.3 billion. The $521.8 billion (or 2.4 percent) 

increase in total liabilities over the prior year is 

Figure 3: FY 2017 Total Liabilities (Composition)

attributable to a $674.5 billion increase in federal debt, 

including interest, held by the public and federal agencies 

that was needed to finance the U.S. government’s budget 

deficits. 

The increase in federal debt, including interest, held by 

the public and federal agencies was offset by a $151.6

billion decrease in the “Due to the General Fund” account, 

which corresponds primarily to decreases in the U.S. 

government’s operating cash balances, as discussed above. 

Through the Fiscal Service, we account for and report on 

the principal borrowings from and repayments to the 

General Fund, as well as the related interest due to the 

General Fund. 

Total Net Position of $497.4 billion at September 30, 2017

represents the combined total of our cumulative results of 

operations and unexpended appropriations at the end of 

the fiscal year. The $6.5 billion (1.3 percent) decrease in 

the net position at the end of FY 2017 was principally 

attributable to normal business operations. 

Figure 4: Net Cost of Treasury Operations and Non-Entity Costs (in billions)

Total Net Cost of Treasury Operations and Non-Entity 

Costs, is presented on our Consolidated Statements of Net 

Cost (Figure 4). “Net Cost of Treasury Operations”

represents the gross costs, net of earned revenues, we 

incurred related to our own entity activities comprising 

both operating bureaus and Departmental Offices that 

are consolidated with the Department. “Net Non-Entity 

Costs” represent the gross costs, net of earned revenues, 

we incurred on behalf of the U.S. government (or General 

Fund), and primarily include federal debt interest costs, 

net of GSE non-entity revenues. “Total Net Cost of 

Treasury Operations and Non-Entity Costs” totaled 
28 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

$438.6 billion and $403.6 billion for FY 2017 and 2016, 

respectively, an increase of $35.0 billion (or 8.7 percent) 

over the prior year. “Net Non-Entity Costs” and “Net 

Cost of Treasury Operations” contributed $32.6 billion 

(primarily driven by net federal debt interest costs and 

GSE net revenue) and $2.4 billion, respectively, to the 

year-over-year increase in net costs. 

Figure 5 : Net Cost of Treasury Operations by Strategic 

Program (in billions)

Net Cost of Treasury Operations is presented on our 

Consolidated Statements of Net Cost by strategic 

program. There are three main categories of strategic 

programs presented — financial, economic, and security 

— as well as a management strategic program which is 

combined with the financial program due to the 

immateriality of the management program (Figure 5). 

Our Net Cost of Treasury Operations totaled $20.1 billion 

for FY 2017 compared to $17.7 billion for FY 2016, an 

increase of $2.4 billion (or 13.6 percent). This increase is 

primarily a result of increased valuation losses associated 

with our foreign denominated investments due to 

weakening currency exchange rates on certain foreign 

currencies against the U.S. dollar. 

Net Federal Debt Interest Costs (a non-entity cost) 

primarily reflects interest expense on the federal debt

which increased $26.7 billion (or 6.3 percent) in FY 2017. 

The higher cost was primarily attributable to an increase 

in outstanding debt held by the public, as well as an 

increased inflation adjustments associated with Treasury 

Inflation-Protected Securities which are driven by 

increases in the Consumer Price Index. 

GSEs Non-Entity Revenue, Net totaled $9.4 billion for 

2017 compared to $13.8 billion for 2016. The $4.4 billion 

decrease in this net revenue in 2017 was driven by an 

$18.2 billion year-to-year decrease in the fair value of our 

GSE investments. The value of these investments 

decreased by $15.9 billion at the end of FY 2017, 

compared to an increase of $2.3 billion at the end of FY 

2016. The change in value is attributable mainly to a 

higher discount rate which was driven by a higher longterm Treasury rate. This decrease in revenue was offset 

by a $13.8 billion year-to-year increase in senior preferred 

stock dividends received from the two GSEs due to higher

combined GSE earnings in 2017. 

Figure 6 : Total Budgetary Resources and Agency Outlays, Net (in billions)

Total Budgetary Resources of $818.5 billion in FY 2017 

(Figure 6) increased by $21.2 billion (or 2.7 percent), 

primarily due to a $19.0 billion increase in appropriations 

received to pay interest on the public debt. 

Agency Outlays, Net of $420.5 billion were higher in FY 

2017 (Figure 6) by $20.2 billion (or 5.0 percent), primarily 

due to a $19.0 billion increase in interest payments on 

public debt. 
DEPARTMENT OF THE TREASURY 29 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

Figure 7 : Net Revenue Received (Custodial) (in billions)

Net Revenue Received (Custodial), representing the net 

revenue we collected on behalf of the U.S. government, 

includes various taxes, primarily income taxes, as well as 

user fees, fines and penalties, and other revenue. Over 90 

percent of these revenues are related to income and social 

security taxes. Net revenue received was $3.1 trillion for 

FY 2017, an increase of $38.6 billion (or 1.3 percent) over 

the prior fiscal year. This increase is attributable mainly 

to an overall growth in individual income tax collections, 

partially offset by reduced estate and corporate income 

tax collections and deposit of earnings from the Federal 

Reserve System. 
30 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

MANAGEMENT ASSURANCES

THE SECRETARY’S ASSURANCE STATEMENT

The Department of the Treasury’s management is 

responsible for managing risks and maintaining effective 

internal control and financial management systems that 

meet the objectives of the Federal Managers’ Financial 

Integrity Act (FMFIA). We have evaluated our

management controls, internal controls over financial 

reporting, and compliance with federal financial systems 

standards. As part of the evaluation process, we

considered results of extensive testing and assessment 

across the Department and independent audits.

We can provide reasonable assurance that the objectives 

of Section 2 of the FMFIA for financial reporting and 

operations have been achieved, except for the material 

weaknesses noted below. Additionally, we are in 

substantial conformance with Section 4 of the FMFIA for 

Financial Management System Requirements. In 

accordance with Appendix A to the OMB Circular A-123,

Internal Control over Financial Reporting, we can provide 

a modified assurance that internal control over financial 

reporting was operating effectively as of June 30, 2017

based on the results of our assessment. We are not in 

substantial compliance with the Federal Financial 

Management Improvement Act (FFMIA) due to the IRS 

material weakness related to unpaid tax assessments.

As of September 30, 2017, Treasury had two FMFIA 

material weaknesses as follows: 

Operations: The Fiscal Service needs to improve internal 

controls over the processes used to prepare the U.S. 

Consolidated Financial Statements 

Financial Reporting: The IRS needs to improve internal 

controls over unpaid tax assessments 

We continue to make progress on these weaknesses, and 

will remain committed to focusing management attention 

and resources on appropriate corrective actions. Overall, 

we continue our efforts to maintain high standards, 

minimize internal control weaknesses, and meet federal 

financial management requirements. Additional 

information on the material weakness can be found in 

Part 3, Section E, of this report. 

Steven T. Mnuchin

Secretary of the Treasury

November 15, 2017 
DEPARTMENT OF THE TREASURY 31 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

SYSTEMS, CONTROLS AND LEGAL COMPLIANCE

FMFIA

Background

The FMFIA requires Executive branch agencies to 

establish and maintain internal control to ensure that 

federal programs operate efficiently, effectively, and 

in compliance with applicable laws. The management 

control objectives under FMFIA are to reasonably 

ensure that:

• Obligations and costs are in compliance with 

applicable laws; 

• Funds, property, and other assets are 

safeguarded against waste, loss, unauthorized 

use, or misappropriation; and

• Revenues and expenditures applicable to agency 

operations are properly recorded and accounted 

for to permit the preparation of accounts and 

reliable financial and statistical reports and to 

maintain accountability over the assets. 

FMFIA requires agencies to evaluate and report on 

the effectiveness of the organization’s internal 

controls to achieve the objectives of effective and 

efficient operations, reliable financial reporting, and 

compliance with applicable laws and regulations 

(FMFIA Section 2). Additionally, agencies are 

required to assess whether financial management 

systems comply with federal financial management 

systems requirements (FMFIA Section 4). Significant 

deficiencies that are material and affect our ability to 

meet these objectives are deemed “material 

weaknesses.” Additional information on our reported 

material weaknesses can be found in Part 3, Section 

D, of this report. 

Internal Control over Reporting

In accordance with Appendix A to OMB Circular A123, Internal Control over Reporting, and GAO’s 

Standards for Internal Control in the Federal 

Government, we use an annual testing and 

assessment methodology that identifies and 

documents internal controls over financial reporting 

and incorporates operational effectiveness. For FY 

2017, our components completed their testing and 

assessment of internal controls for material 

transactions as of June 30, 2017. Based on the results 

of this assessment which reported two material 

weaknesses, we provided a modified statement of

assurance regarding the effectiveness of our internal 

control over financial reporting as of June 30, 2017. 

Additional information on the material weaknesses

can be found in Part 3, Section D of this report. 

In conjunction with our OMB Circular A-123, 

Appendix A, FY 2017 Guidance and Implementation 

Plan, our components documented their compliance 

with applicable laws and regulations. Based on our 

assessment of this documentation, we are in 

compliance with applicable laws and regulations for 

FY 2017 with the exception of the FFMIA as 

addressed below and in Part 3, Section D, of this 

report. 
32 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

FFMIA AND FINANCIAL MANAGEMENT SYSTEMS 

FFMIA

The FFMIA requires federal agencies to implement and 

maintain financial management systems that 

substantially comply with federal financial management 

systems requirements, applicable federal accounting 

standards, and the U.S. Standard General Ledger at the 

transaction level. A financial management system 

includes an agency’s overall financial operation, reflecting 

the people, processes, and technology to capture, classify, 

summarize, and report data in a meaningful manner to 

support business decisions. 

The FFMIA Section 803(c) (1) requires us to make an 

annual determination of the agency’s substantial 

compliance with Section 803(a) of the Act based on review 

of relevant factors. We assess our financial management 

systems annually for conformance with the requirements 

of Appendix D to OMB Circular A-123, Compliance with 

the FFMIA, and other federal financial system 

requirements. Our assessment process includes the use of 

the FFMIA Compliance Determination Framework, which 

incorporates a risk model of risk levels against common 

goals and compliance indicators. OMB Circular A-123, 

Appendix D contains an outcome-based approach to 

assessing FFMIA compliance through a series of financial 

management goals that are common to all agencies. 

In addition, we assess available information from audit 

reports and other relevant and appropriate sources, such 

as FISMA compliance activities, to determine whether our 

financial management systems substantially comply with 

FFMIA. We also assess improvements and ongoing 

efforts to strengthen financial management systems and 

the impact of instances of noncompliance on overall 

financial management system performance. Based on the 

results of our overall assessment, we concluded that 

Treasury’s financial management systems are 

substantially compliant with the FFMIA requirements, 

with the exception of the IRS. 

The IRS did not substantially comply with federal 

financial management systems requirements or 

applicable federal accounting standards. The IRS has 

established a robust remediation plan to achieve 

compliance with the FFMIA requirements. The IRS 

received agreement from OMB that the current 

remediation plan satisfies the requirements of Appendix 

D to OMB Circular A-123, replacing the need for a waiver 

from OMB for remediating a material weakness taking 

longer than three years under FMFIA. The remediation 

plan is updated and reviewed by the IRS and Treasury 

executives on a quarterly basis. Additionally, the 

progress of the remediation plan is reviewed annually by 

TIGTA. 

Financial Management Systems 

Our financial management systems framework consists of 

two foundational components: (1) financial and mixed 

systems maintained by Treasury bureau components, and 

(2) the Treasury-wide Financial Analysis and Reporting 

System (FARS). Bureaus process and record detailed 

financial transactions and submit summary-level 

information to the FARS, which maintains the key 

financial data necessary for Treasury-wide consolidated 

financial reporting. This framework satisfies the 

financial operational and reporting needs of our reporting 

entities as well as our internal and external reporting 

requirements. The FARS framework plays a key role in 

the Department’s efforts to obtain an unmodified audit 

opinion. 

The FARS includes the following financial applications: 

• Treasury Information Executive Repository 

(TIER) — a financial data repository used to 

consolidate and validate bureau financial data 

• TIER Financial Statements (TFS) — a reporting 

application used to produce monthly and annual 

financial statements, notes, and other supporting 

reports 
DEPARTMENT OF THE TREASURY 33 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

Our bureaus submit summary-level financial data to 

TIER on a monthly basis. The TFS application uses the

bureau data to produce financial statements and report 

on a Treasury-wide and component level basis. 

Fifteen of our bureaus and offices use centralized 

financial management, budget formulation and 

performance management, and IT hosting provided by the 

Fiscal Service’s Administrative Resource Center (ARC). 

This shared service approach enables bureaus and offices 

to have access to core financial systems without having to 

maintain the necessary technical and systems 

architectures. ARC also provides administrative services 

in the areas of financial management transaction 

processing, human resources, procurement, and travel to 

our bureaus and offices and to other federal entities to 

support core business activities. Using a shared service 

reduces the need for Treasury to maintain duplicative 

financial management systems, thereby promoting 

efficiency and cost savings while enhancing the quality, 

timeliness, and accuracy of financial management 

processes. 

In FY 2017, ARC continued to refine financial 

management and procurement system services to its first 

cabinet-level customer agency, the Department of 

Housing and Urban Development. ARC took steps to 

invest in an application to automate the servicing of 

customer financial statements and made progress on its 

service-oriented architecture. 

Goals and Supporting Strategies

Our financial system goals and supporting strategies 

focus on improving, streamlining, and integrating the 

current bureau financial management systems, as well as 

the current FARS applications in order to support new 

financial requirements and to provide management with 

data-driven financial decision making. In FY 2017, we 

continued refining TIER and TFS to meet new and 

evolving reporting requirements, including the reporting 

of financial and award data to support compliance with 

the Digital Accountability and Transparency Act (P.L. 

113–101) (DATA Act). Supported by new business and 

system processes, we successfully submitted and certified 

the required DATA Act financial and award files for 

display to the public in FY 2017 on 

https://beta.usaspending.gov/#/. We will continue to 

refine our reporting efforts and will leverage any insights 

from the Treasury’s OIG and GAO to enhance 

transparency pursuant to their DATA Act 

implementation review. 

Additionally, in FY 2017, we migrated the FARS 

applications from the Main Treasury building to the IRS 

data centers in Memphis, Tennessee, and Martinsburg, 

West Virginia. The migration supports our data center 

consolidation initiative and incorporates new physical 

hardware for hosting the FARS. 

Along with bureau financial systems, the TIER and TFS 

applications form a unified financial governance solution 

that focuses on improving financial processes and 

controls. These systems and applications help us to 

reduce operating costs, provide assurance over the quality 

of our financial data, improve the timeliness and quality 

of financial management processes and reporting, 

enhance internal controls, and improve transparency in 

the entire reporting process.

We have established and maintained an information 

security program and practices for its financial systems 

consistent with applicable FISMA requirements, OMB 

policy and guidance, and National Institute of Standards 

and Technology standards and guidelines. Our systems 

undergo annual security reviews, and security 

weaknesses identified through those reviews are then 

remediated by developing and implementing plans of 

action and milestones. We monitor bureau conformance 

to government-wide information technology security 

targets and provides roll-up reports quarterly to OMB. 

The Department's compliance with FISMA is evaluated 

annually by representatives of the OIG.
34 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | MANAGEMENT’S DISCUSSION AND ANALYSIS

IMPROPER PAYMENTS

Background

The Improper Payments Elimination and Recovery 

Improvement Act (IPERIA) of 2012 requires agencies to 

annually report on all programs and activities, identify 

those that may be susceptible to significant improper 

payments, estimate annual improper payments in the 

susceptible programs and activities, and report the 

results of their improper payment activities. An 

improper payment is any payment (including 

overpayments and underpayments) that should not have 

been made or that was made in an incorrect amount. 

Appendix C to OMB Circular A-123, Requirements for 

Effective Estimation and Remediation of Improper 

Payments, defines “significant improper payments” as 

gross annual improper payments in a program exceeding 

both the threshold of 1.5 percent of program outlays and 

$10 million of all program or activity payments or $100 

million regardless of the improper payment percentage. 

Appendix C also requires agencies with programs 

susceptible to significant improper payments to 

implement corrective action plans that include improper 

payment root cause identification, reduction targets, and 

identification of accountable officials. 

Risk Assessments and Results 

In FY 2017, we completed a full program inventory and 

performed risk assessments to identify programs that 

have a significant risk of improper payments. We 

performed our assessment of each program, excluding 

the Earned Income Tax Credit (EITC), using the nine 

qualitative risk factors identified in Appendix C. We 

also performed quantitative risk assessments and 

assessed risks related to the amounts of payments 

processed relative to the OMB specified threshold 

amounts which define payment programs susceptible to 

improper payments. As a result of the risk assessments, 

we determined that the agency’s programs and activities, 

except for EITC, were deemed not susceptible to 

improper payments.

EITC Program 

The EITC is deemed a high priority program by OMB, 

because it is susceptible to significant improper 

payments. The EITC is a refundable tax credit that 

offsets income tax owed by low-income taxpayers. If the 

credit exceeds the amount of taxes due, the IRS provides a 

refund payment to those who qualify. The IRS estimates 

that for FY 2017, 24% ($16.2 billion) of the total EITC 

program payments of $67.9 billion were improper. The 

IRS has a robust enforcement program for the EITC 

which consists of examinations and audits, math error 

notices, and document matching. Additional information

on the IRS’s EITC program can be found in Part 3, 

Section E, of this report. 

Payment Recapture Audits

The Improper Payments Elimination and Recovery Act of 

2010 (IPERA) requires agencies to conduct payment 

recapture audits (also known as recovery audits) for each 

program and activity that expends $1 million or more 

annually, if conducting such audits would be costeffective. We performed the payment recapture activities 

in accordance with OMB Circular A-123, Appendix C. 

Details on our improper payments and payment recapture 

program activities and results can be found in Part 3, 

Section E, of this report.

Do Not Pay Initiative

Our Do Not Pay Working System (hereafter referred to as 

“Working System”) is the legislatively mandated and 

OMB designated source of centralized data and analytic 

services to help agencies verify eligibility and to identify 

and prevent potential fraud, waste, and abuse associated 

with improper payments. The results of the checks 

against these data sources provide information that an 

agency should consider in pre-award or prepayment 

assessments to help prevent improper payments. Fiscal 

Service, our shared service provider, compares our records 

in the financial system with payee records in the Working 

System. We review potential matches on an ongoing basis 

to prevent improper payments, and incorporate a pre-
DEPARTMENT OF THE TREASURY 35 

MANAGEMENT’S DISCUSSION AND ANALYSIS | FY 2017 AGENCY FINANCIAL REPORT

award check on potential contractors against the Working 

System. Additional information on the Do Not Pay 

initiative can be found in Part 3, Section E, of this report.
[Page intentionally left blank]
 

 

MESSAGE FROM THE ASSISTANT SECRETARY

FOR MANAGEMENT AND DEPUTY CHIEF

FINANCIAL OFFICER ........................................ 39

INSPECTOR GENERAL’S TRANSMITTAL LETTER ........... 41

INDEPENDENT AUDITORS’ REPORT ON THE

DEPARTMENT’S FINANCIAL STATEMENTS ............ 43

MANAGEMENT’S RESPONSE TO

INDEPENDENT AUDITORS’ REPORT .................... 49

FINANCIAL STATEMENTS ....................................... 50

NOTES TO THE FINANCIAL STATEMENTS .................. 57

REQUIRED SUPPLEMENTARY INFORMATION

(UNAUDITED ) .............................................. 128

DEPARTMENT OF THE TREASURY 39 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

MESSAGE FROM THE ASSISTANT SECRETARY FOR MANAGEMENT AND 

DEPUTY CHIEF FINANCIAL OFFICER 

Kody H. Kinsley

Assistant Secretary 

for Management

Carole Y. Banks

Deputy Chief Financial 

Officer

In Fiscal Year 2017, Treasury pursued an aggressive set of management 

initiatives designed to manage the U.S. government’s finances efficiently and 

responsibly. Treasury led and supported government-wide efforts to increase 

productivity, reduce waste, and modernize processes and systems. Treasury 

embraced the Administration’s call to comprehensively reform the federal 

government, embracing bold ideas to propel the Department and the federal 

government into the 21st century.

In Fiscal Year 2017, Treasury also demonstrated prudent fiscal and management leadership by: 

• Continuing to strengthen our internal cybersecurity through critical review of our High Value Assets, expansion of 

our education and awareness programs, and deploying insider threat detection more broadly; 

• Developing a budget strategy to better enable Treasury’s physical and Information Technology infrastructure to be

properly funded; 

• Continuing to centralize procurement activities to streamline processes and maximize category management; 

• Making significant progress toward consolidating numerous Treasury human resources systems into a single 

Integrated Talent Management system; and 

• Receiving an “A” on our small business report card for the seventh consecutive year. 

The Department received an unmodified audit opinion on its consolidated financial statements for the 18th consecutive year. 

Treasury continues to make steady progress toward resolving the two Federal Managers’ Financial Integrity Act material 

weaknesses remaining open as of September 30, 2017 (Internal Revenue Service – Unpaid Tax Assessments, and Bureau of 

the Fiscal Service – Systems, Controls, and Procedures to Prepare the Government-wide Financial Statements). Despite the 

complexity of Treasury’s financial systems contributing to these material weaknesses, we continue to make considerable 

progress towards closing the issues.

 

As we lead Treasury’s management programs and initiatives, we will continue to ensure that the Department can deliver its 

mission efficiently and provide the best value to the American people. 

Kody H. Kinsley 

Assistant Secretary for Management 

November 15, 2017 

Carole Y. Banks

Deputy Chief Financial Officer

November 15, 2017 
[Page intentionally left blank]
DEPARTMENT OF THE TREASURY 41 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

OFFICE OF

INSPECTOR GENERAL

DEPARTMENT OF THE TREASURY

WASHINGTON, D.C. 20220

INSPECTOR GENERAL’S TRANSMITTAL LETTER

 

November 15, 2017 

INFORMATION MEMORANDUM FOR SECRETARY MNUCHIN

FROM: Eric M. Thorson /s/

Inspector General

SUBJECT: Audit of the Department of the Treasury’s Consolidated Financial Statements for 

Fiscal Years 2017 and 2016 

INTRODUCTION

The Chief Financial Officer’s Act, as amended, requires the Department of the Treasury’s (Treasury) 

Inspector General or an independent auditor, as determined by the Inspector General, to audit Treasury’s

consolidated financial statements. We contracted with the independent certified public accounting firm of 

KPMG LLP (KPMG) to audit the consolidated financial statements of Treasury as of September 30, 2017 

and 2016, and for the years then ended, to provide a report on internal control over financial reporting, to 

report instances in which Treasury’s financial management systems did not substantially comply with the 

requirements of the Federal Financial Management Improvement Act of 1996 (FFMIA), and to report any 

reportable noncompliance with laws, regulations, contracts, and grant agreements tested. The contract 

required that the audit be performed in accordance with U.S. generally accepted government auditing 

standards and Office of Management and Budget (OMB) Bulletin No. 17-03, Audit Requirements for 

Federal Financial Statements. 

RESULTS OF INDEPENDENT AUDIT 

In its audit of Treasury, KPMG found 

• the consolidated financial statements were fairly presented, in all material respects, in accordance 

with U.S. generally accepted accounting principles; 

• a material weakness in internal control over unpaid tax assessments and a significant deficiency in 

internal control over financial reporting systems identified by the auditor of the Internal Revenue 

Service, collectively representing a material weakness for Treasury as a whole; 

• deficiencies in internal control over debt management information systems at the Bureau of Fiscal 

Service, representing a significant deficiency for Treasury as a whole; 
42 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

• noncompliance with certain requirements of FFMIA related to Federal financial management 

systems requirements and Federal accounting standards; and

• no instances of reportable noncompliance with laws, regulations, contracts, and grant agreements 

tested.

EVALUATION OF AUDITORS’ PERFORMANCE

In connection with the contract, we reviewed KPMG’s report and related documentation and inquired of its 

representatives. Our review, as differentiated from an audit in accordance with U.S. generally accepted 

government auditing standards, was not intended to enable us to express, and we do not express, an opinion 

on Treasury’s consolidated financial statements or conclusions about the effectiveness of internal control; 

whether Treasury’s financial management systems substantially complied with FFMIA; and compliance 

with laws, regulations, contracts, and grant agreements. KPMG is responsible for the attached auditor’s 

report dated November 15, 2017, and the conclusions expressed in the report. However, our review 

disclosed no instances where KPMG did not comply, in all material respects, with U.S. generally accepted 

government auditing standards. 

I appreciate the courtesy and cooperation extended to KPMG and my staff during the audit. Should you or 

your staff have questions, you may contact me at (202) 622-1090 or Deborah L. Harker, Assistant Inspector 

General for Audit, at (202) 927-5400. 

Attachment

cc: Kody H. Kinsley

Assistant Secretary for Management

 Carole Y. Banks 

 Deputy Chief Financial Officer 
KPMG LLP

Suite 12000

1801 K Street, NW

Washington, DC 20006

Independent Auditors’ Report

Inspector General 

Department of the Treasury: 

Report on the Financial Statements 

We have audited the accompanying consolidated financial statements of the Department of the Treasury 

(Department), which comprise the consolidated balance sheets as of September 30, 2017 and 2016, and the 

related consolidated statements of net cost, consolidated statements of changes in net position, combined 

statements of budgetary resources and statements of custodial activity for the years then ended, and the 

related notes to the consolidated financial statements (hereinafter referred to as “consolidated financial 

statements”). 

Management’s Responsibility for the Financial Statements 

Management is responsible for the preparation and fair presentation of these consolidated financial statements 

in accordance with U.S. generally accepted accounting principles; this includes the design, implementation, and 

maintenance of internal control relevant to the preparation and fair presentation of consolidated financial 

statements that are free from material misstatement, whether due to fraud or error. 

Auditors’ Responsibility

Our responsibility is to express an opinion on these consolidated financial statements based on our audits. We 

did not audit the financial statements of the Internal Revenue Service (IRS), a component entity of the 

Department, which statements reflect total assets of $60.3 and $57.2 billion, net cost of operations of $12.1 and 

$12.0 billion before applicable eliminating entries, budgetary resources of $12.8 and $12.8 billion, and custodial 

activity of $3,420 and $3,341 billion, as of and for the years ended September 30, 2017 and September 30, 

2016, respectively. Those statements were audited by other auditors, whose report has been furnished to us, 

and our opinion, insofar as it relates to the amounts included for IRS, is based solely on the report of the other 

auditors. 

We also did not audit the financial statements of the Office of Financial Stability (OFS), a component entity of 

the Department, which statements reflect total assets of $19.5 and $24.2 billion, net cost of operations of $4.1 

and $4.1 billion before applicable eliminating entries, and budgetary resources of $447 million and $3.9 billion, 

as of and for the years ended September 30, 2017 and September 30, 2016, respectively. Those statements 

were audited by other auditors, whose report has been furnished to us, and our opinion, insofar as it relates to 

the amounts included for OFS, is based solely on the report of the other auditors. 

We conducted our audits in accordance with auditing standards generally accepted in the United States of 

America, in accordance with the standards applicable to financial audits contained in Government Auditing 

Standards issued by the Comptroller General of the United States, and in accordance with Office of 

Management and Budget (OMB) Bulletin No. 17-03, Audit Requirements for Federal Financial Statements. 

Those standards and OMB Bulletin No. 17-03 require that we plan and perform the audit to obtain reasonable 

assurance about whether the consolidated financial statements are free from material misstatement. 

An audit involves performing procedures to obtain audit evidence about the amounts and disclosures in the 

consolidated financial statements. The procedures selected depend on the auditors’ judgment, including the 

KPMG LLP is a Delaware limited liability partnership and the U.S. member 

firm of the KPMG network of independent member firms affiliated with 

KPMG International Cooperative (“KPMG International”), a Swiss entity. 

43
44

assessment of the risks of material misstatement of the consolidated financial statements, whether due to fraud 

or error. In making those risk assessments, the auditor considers internal control relevant to the entity’s 

preparation and fair presentation of the consolidated financial statements in order to design audit procedures 

that are appropriate in the circumstances, but not for the purpose of expressing an opinion on the effectiveness 

of the entity’s internal control. Accordingly, we express no such opinion. An audit also includes evaluating the 

appropriateness of accounting policies used and the reasonableness of significant accounting estimates made 

by management, as well as evaluating the overall presentation of the consolidated financial statements. 

We believe that the audit evidence we have obtained is sufficient and appropriate to provide a basis for our 

audit opinion. 

Opinion on the Financial Statements 

In our opinion, based on our audits and the reports of the other auditors, the consolidated financial statements 

referred to above present fairly, in all material respects, the financial position of the Department of the Treasury 

as of September 30, 2017 and 2016, and its net costs, changes in net position, budgetary resources and 

custodial activity for the years then ended in accordance with U.S. generally accepted accounting principles. 

Emphasis of Matter 

As discussed in Notes 9 and 10, the Department is a participant in significant legislation and transactions 

whose purpose is to assist in stabilizing the financial markets. Also as discussed in Note 1A, the consolidated 

financial statements do not include the assets, liabilities, or results of operations of commercial entities in which 

the Department has a significant equity interest as it has determined that none of these entities meet the criteria 

for inclusion as a federal entity and are therefore not included in the consolidated financial statements. 

Furthermore, as discussed in Notes 1V, 9, and 10, the value of certain investments, loans, and commitments is 

based on estimates. These estimates are inherently subject to substantial uncertainty arising from the likelihood 

of future changes in general economic, regulatory, and market conditions. In addition, there are significant 

uncertainties related to the amounts that the Department will realize from its investments. As such, there will 

likely be differences between the estimated value of these investments, loans, and commitments as of 

September 30, 2017 and 2016, and the amounts that may ultimately be realized from these assets or may be 

required to settle these commitments. Such differences may be material and will also affect the ultimate cost of 

these programs. Our opinion is not modified with respect to these matters. 

Other Matters 

Interactive Data 

Management has elected to reference to information on websites or other forms of interactive data outside the 

Agency Financial Report to provide additional information for the users of its financial statements. Such 

information is not a required part of the basic consolidated financial statements or supplementary information 

required by the Federal Accounting Standards Advisory Board. The information on these websites or the other 

interactive data has not been subjected to any of our auditing procedures, and accordingly we do not express 

an opinion or provide any assurance on it.

Required Supplementary Information 

U.S. generally accepted accounting principles require that the information in the Management’s Discussion and 

Analysis and Required Supplementary Information sections be presented to supplement the basic consolidated 

financial statements. Such information, although not a part of the basic consolidated financial statements, is 

required by the Federal Accounting Standards Advisory Board who considers it to be an essential part of 

financial reporting for placing the basic consolidated financial statements in an appropriate operational, 

economic, or historical context. We, and the other auditors, have applied certain limited procedures to the 

required supplementary information in accordance with auditing standards generally accepted in the United 

States of America, which consisted of inquiries of management about the methods of preparing the information 

and comparing the information for consistency with management’s responses to our inquiries, the basic 
45

consolidated financial statements, and other knowledge we obtained during our audits of the basic consolidated 

financial statements. We do not express an opinion or provide any assurance on the information because the 

limited procedures do not provide us with sufficient evidence to express an opinion or provide any assurance. 

Other Information

Our audits were conducted for the purpose of forming an opinion on the basic consolidated financial statements 

as a whole. The Message from the Secretary of the Treasury, the Message from the Assistant Secretary for 

Management and Deputy Chief Financial Officer, and the Other Information sections are presented for 

purposes of additional analysis and are not a required part of the basic consolidated financial statements. Such 

information has not been subjected to the auditing procedures applied in the audits of the basic consolidated 

financial statements, and accordingly, we do not express an opinion or provide any assurance on it. 

Other Reporting Required by Government Auditing Standards

Internal Control Over Financial Reporting 

In planning and performing our audit of the consolidated financial statements as of and for the year ended 

September 30, 2017, we considered the Department’s internal control over financial reporting (internal control) 

to determine the audit procedures that are appropriate in the circumstances for the purpose of expressing our 

opinion on the consolidated financial statements, but not for the purpose of expressing an opinion on the 

effectiveness of the Department’s internal control. Accordingly, we do not express an opinion on the 

effectiveness of the Department’s internal control. This report includes our consideration of the results of the 

other auditors’ testing of internal control over financial reporting that are reported on separately by those other 

auditors. However, this reporting, insofar as it relates to the results of the other auditors, is based solely on the 

reports of the other auditors. We, and the other auditors, did not test all internal controls relevant to operating 

objectives as broadly defined by the Federal Managers’ Financial Integrity Act of 1982. 

Our consideration of internal control was for the limited purpose described in the preceding paragraph and was 

not designed to identify all deficiencies in internal control that might be material weaknesses or significant 

deficiencies and therefore, material weaknesses or significant deficiencies may exist that have not been 

identified. However, as described below, we and the other auditors identified certain deficiencies in internal 

control that we consider to be a material weakness and a significant deficiency. 

A deficiency in internal control exists when the design or operation of a control does not allow management or 

employees, in the normal course of performing their assigned functions, to prevent, or detect and correct, 

misstatements on a timely basis. A material weakness is a deficiency, or a combination of deficiencies, in 

internal control such that there is a reasonable possibility that a material misstatement of the entity’s financial 

statements will not be prevented, or detected and corrected, on a timely basis. We consider the deficiencies 

described below to be a material weakness. 

A. Material Weakness in Internal Control Over Financial Reporting at the Internal Revenue Service 

(Repeat Condition) 

IRS needs to improve internal control over financial reporting and systems to ensure reliable and timely 

financial information is obtained, maintained, and reported in accordance with OMB Circular A-123, 

Management’s Responsibility for Enterprise Risk Management and Internal Control. The other auditors 

reported a material weakness in internal control over unpaid tax assessments and a significant deficiency in 

internal control over financial reporting systems that we collectively considered a material weakness at the 

Department level. The other auditors performed an audit of IRS’s internal control over financial reporting for the 

purpose of providing an opinion on the effectiveness of internal control. Because of the material weakness, the 

other auditors’ opinion on IRS’s internal control over financial reporting stated that IRS did not maintain, in all 

material respects, effective internal control over financial reporting as of September 30, 2017, and thus a 

reasonable possibility exists that a material misstatement of IRS’s financial statements could occur and not be 

prevented or detected and corrected on a timely basis. IRS internal control deficiencies are summarized as 

follows: 
46

1. Unpaid Tax Assessments 

IRS continued to have system limitations in its subsidiary ledger and supporting financial systems and other 

control deficiencies that led to errors in tax payer accounts. As a result, IRS financial reporting systems did 

not provide timely reliable, and complete transaction-level financial information necessary to enable IRS to 

classify and report unpaid assessments balances in accordance with federal accounting standards and to 

effectively manage these amounts on a daily basis throughout the year. IRS applied a statistical estimation 

process to compensate for limitations in its financial reporting systems that render the systems unable to 

readily distinguish between federal taxes receivable, compliance assessments, and write-offs in order to 

accurately classify unpaid tax assessments in the proper categories for financial reporting purposes. In 

addition, IRS management and reporting of unpaid assessments continued to be hindered by inaccurate tax 

records resulting from IRS not recording information in taxpayer’s accounts accurately and timely. As a 

result of these system limitations and inaccurate tax records, IRS recorded multi-billion dollar adjustments to 

the year end balances of unpaid tax assessments generated by its subsidiary ledger in order to produce 

reliable amounts for reporting its federal taxes receivables, compliance assessments, and write-offs. 

2. Financial Reporting Systems 

IRS made progress in addressing previously reported control deficiencies related to its financial reporting 

systems, however, IRS continued to have information security program control deficiencies that limit IRS’s 

effectiveness in protecting the confidentiality integrity, and availability of sensitive taxpayer data and 

financial information. Specifically, IRS continued to have control deficiencies in (1) monitoring activities to 

reasonably assure compliance with security policies and procedures; (2) limiting or preventing unnecessary 

access and unauthorized changes to systems; (3) change controls over tax and financial management 

processing on the mainframe; (4) segregating incompatible duties; (5) reasonably assuring that software 

was supported by the vendor and updated to protect against known vulnerabilities; and (6) developing and 

implementing effective policies and procedures as part of IRS’s security management program. 

Recommendation 

The other auditors separately provided IRS management a report detailing the conditions identified and their 

recommendations to address the above material weakness. We recommend that the Assistant Secretary for 

Management (ASM) and Deputy Chief Financial Officer (DCFO) ensure that IRS implements corrective actions 

to resolve this material weakness. 

A significant deficiency is a deficiency, or a combination of deficiencies, in internal control that is less severe 

than a material weakness, yet important enough to merit attention by those charged with governance. We 

consider the deficiency described below to be a significant deficiency. 

B. Significant Deficiency in Internal Control Over Debt Management Information Systems

Effective information system controls and security programs over financial systems are essential to protecting 

information resources in accordance with OMB Circular No. A-130, Managing Information as a Strategic 

Resource. The Bureau of the Fiscal Service (Fiscal Service) relies on a number of information technology 

systems to manage the federal debt. Fiscal Service either had not developed and implemented adequate 

policies and procedures or was not consistently following them. For example, within the distributed 

environment, there were instances in which: (1) known vulnerabilities for servers were not being remediated on 

a timely basis and some vulnerabilities remained unresolved for more than a year, (2) servers could be 

accessed through generic local administrator accounts, and (3) servers were being scanned against outdated 

benchmarks resulting in ineffective monitoring of implemented configuration settings against baseline security 

requirements. Within the mainframe environment, there were a number of instances in which mainframe 

security controls were not employed in accordance with the concept of least privilege, some of which represent 

potentially significant security exposures. Additionally, within both the distributed and mainframe environments 

there were instances in which Fiscal Service was using information system components that are no longer 

supported by the vendor. 
47

Ongoing reorganization within Fiscal Service, particularly within Information and Security Services (ISS) which 

is the organization responsible for managing many of the information system controls, continued in fiscal year 

2017 and a number of key ISS positions were vacant during portions of the year. Ongoing change can 

introduce the risk that controls will not be performed as designed because of unclear assignment of 

responsibilities for certain processes, which may have contributed to some of the new control deficiencies. 

These control deficiencies increase the risk of unauthorized access to, modification of, or disclosure of sensitive 

data and programs and disruption of critical operations. 

Recommendations 

A separate report with additional details and recommendations for corrective action will be provided separately 

to Fiscal Service management. We recommend that the ASM and DCFO ensure that the Fiscal Service (1) 

increase its focus on assessing risks associated with continued change, design and implement effective 

controls to address such risks, and monitor the effectiveness of controls; and (2) implement requisite corrective 

actions to resolve control deficiencies over its information systems. 

Compliance and Other Matters 

As part of obtaining reasonable assurance about whether the Department’s consolidated financial statements 

are free from material misstatement, we, and the other auditors, performed tests of its compliance with certain 

provisions of laws, regulations, contracts, and grant agreements, noncompliance with which could have a direct 

and material effect on the determination of financial statement amounts. However, providing an opinion on 

compliance with those provisions was not an objective of our audit, and accordingly, we do not express such an 

opinion. The results of our tests and those of the other auditors disclosed no instances of noncompliance or 

other matters that are required to be reported herein under Government Auditing Standards or OMB 

Bulletin No. 17-03. 

We, and the other auditors, also performed tests of its compliance with certain provisions referred to in Section 

803(a) of the Federal Financial Management Improvement Act of 1996 (FFMIA). Providing an opinion on 

compliance with FFMIA was not an objective of our audit, and accordingly, we do not express such an opinion. 

The results of our tests and those of the other auditors disclosed instances described below, in which the 

Department’s financial management systems did not substantially comply with the Federal financial 

management systems requirements and applicable Federal accounting standards. The results of our tests and 

those of the other auditors disclosed no instances in which the Department’s financial management systems 

did not substantially comply with the United States Government Standard General Ledger at the transaction 

level. 

C. Noncompliance with Federal Financial Management Improvement Act of 1996 (Repeat Condition) 

The Department’s financial management systems did not substantially comply with the following FFMIA 

requirements: 

1. Federal Financial Management Systems Requirements 

As discussed in finding A. Material Weakness in Internal Control Over Financial Reporting at the Internal 

Revenue Service (Repeat Condition), the Department continues to have deficiencies in IRS’s financial 

management systems. Specifically, IRS did not consistently design, implement, and operate information 

system controls and security programs over its financial systems in accordance with the federal financial 

management system requirements. 
2. Applicable Federal Accounting Standards 

As discussed in finding A. Material Weakness in Internal Control Over Financial Reporting at the Internal 

Revenue Service (Repeat Condition), the Department has a material weakness at IRS that affected the 

Department’s ability to prepare its financial statements in accordance with the federal accounting standards. 

Specifically, IRS financial reporting systems did not provide timely reliable, and complete transaction-level 

financial information necessary to enable IRS to classify and report unpaid assessments balances in 

accordance with federal accounting standards. 

Recommendation 

The other auditors separately provided IRS management with recommendations to address the above 

noncompliance with FFMIA. We recommend that the ASM and DCFO ensure that IRS implements its 

remediation plan outlining actions to be taken to resolve noncompliance with the FFMIA requirements and the 

resources and responsible organizational units for such planned actions. 

Department’s Response to Findings

The Department indicated in a separate letter immediately following this report that it concurs with the findings 

and recommendations presented in our report. Further, the Department responded that it will take necessary 

corrective actions to address each of the matters presented. The Department’s response was not subjected to 

the auditing procedures applied in the audit of the consolidated financial statements and, accordingly, we 

express no opinion on the response. 

Purpose of the Other Reporting Required by Government Auditing Standards

The purpose of the communication described in the Other Reporting Required by Government Auditing 

Standards section is solely to describe the scope of our testing of internal control and compliance and the result 

of that testing, and not to provide an opinion on the effectiveness of the Department’s internal control or 

compliance. Accordingly, this communication is not suitable for any other purpose. 

Washington D.C. 

November 15, 2017

48
DEPARTMENT OF THE TREASURY 49 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S RESPONSE TO INDEPENDENT AUDITORS’ REPORT

November 15, 2017 

KPMG LLP

1801 K Street, NW 

Washington, DC 20006 

Ladies and Gentlemen:

On behalf of Secretary Mnuchin, we are responding to your audit report on the Department of the 

Treasury's fiscal year 2017 consolidated financial statements. Our bureaus and program offices are

proud of the Department's success in achieving an unmodified audit opinion on the Department's

financial statements for the eighteenth consecutive year.

The high level of professionalism, technical expertise, and integrity demonstrated by KPMG in 

conducting this year's audit contributed greatly to Treasury's successful fiscal year 2017 results. We

also appreciate the expertise and commitment demonstrated by the other organizations involved in the 

audit process -the Office of Inspector General, Government Accountability Office (GAO), and the 

firms that audited several of our bureaus.

We acknowledge the one material weakness and one significant deficiency at the Department level, 

and the one instance of noncompliance with laws and regulations described in your report. We agree

with your recommendations, and will focus on necessary corrective actions to address each of the 

issues.

Overall, we have made strong progress in enhancing our internal control environment. We are very 

proud of our progress, and remain committed to ensuring high standards of integrity and transparency in 

reporting our financial performance.

 

Kody H. Kinsley Carole Y. Banks 

Assistant Secretary for Management Deputy Chief Financial Officer
50 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Consolidated Balance Sheets

As of September 30, 2017 and 2016

(in millions) 2017 2016

ASSETS 

Intra-governmental Assets

Fund Balance (Note 2) $ 426,396 $ 435,246

Loans and Interest Receivable (Note 3) 1,455,625 1,400,654

Advances to Trust Funds (Note 4) 9,021 8,558

Due From the General Fund (Note 4) 20,373,777 19,699,152

Other Intra-governmental Assets 818 455

Total Intra-governmental Assets 22,265,637 21,544,065

 

Cash, Foreign Currency, and Other Monetary Assets (Note 5) 218,830 410,098

Gold and Silver Reserves (Note 6) 11,062 11,062

Reserve Position in the International Monetary Fund (Note 7) 11,509 9,570

Taxes, Interest, and Other Receivables, Net (Note 8) 53,496 50,306

Credit Program Receivables, Net (Note 9) 5,293 7,058

Loans and Interest Receivable, Net (Note 7) 7,380 8,627

Investments in Government Sponsored Enterprises (GSEs) (Note 10) 92,640 108,550

Investments in Multilateral Development Banks (Note 11) 7,708 7,648

Other Investments and Related Interest (Note 12) 8,559 9,860

Property, Plant, and Equipment, Net (Note 13) 3,060 3,005

Other Assets 986 1,059

Total Assets (Note 14) $ 22,686,160 $ 22,170,908

 

Heritage Assets (Note 13)

 

 

The accompanying notes are an integral part of these financial statements.
DEPARTMENT OF THE TREASURY 51 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Consolidated Balance Sheets

As of September 30, 2017 and 2016

(in millions) 2017 2016

LIABILITIES 

Intra-governmental Liabilities

Federal Debt and Interest Payable (Notes 4 and 15) $ 5,637,950 $ 5,466,422

Liability for Restoration of Federal Debt Principal and Interest (Notes 4 and 15) 660 -

Other Debt and Interest Payable (Note 16) 11,543 13,125

Due To the General Fund (Note 4) 1,755,057 1,906,623

Other Intra-governmental Liabilities (Note 18) 613 462

Total Intra-governmental Liabilities 7,405,823 7,386,632

 

Federal Debt and Interest Payable (Notes 4 and 15) 14,699,687 14,196,734

Certificates Issued to the Federal Reserve (Note 5) 5,200 5,200

Allocation of Special Drawing Rights (Note 5) 49,912 49,294

Gold Certificates Issued to the Federal Reserve Banks (Note 6) 11,037 11,037

Refunds Payable (Notes 4 and 22) 3,074 2,993

D.C. Federal Pension and Judicial Retirement Actuarial Liability (Note 17) 8,682 8,836

Other Liabilities (Note 18) 5,420 6,268

Total Liabilities (Note 18) 22,188,835 21,666,994

Commitments and Contingencies (Note 26)

NET POSITION

Unexpended Appropriations: 

 Funds from Dedicated Collections (Note 23) 200 200

 Other Funds 427,129 434,446

 Subtotal 427,329 434,646

Cumulative Results of Operations:

 Funds from Dedicated Collections (Note 23) 46,851 47,110

 Other Funds 23,145 22,158

 Subtotal 69,996 69,268

 

Total Net Position - Funds from Dedicated Collections (Combined Totals) (Note 23) 47,051 47,310

Total Net Position - Other Funds (Combined Totals) 450,274 456,604

Total Net Position (Note 19) 497,325 503,914

Total Liabilities and Net Position $ 22,686,160 $ 22,170,908

The accompanying notes are an integral part of these financial statements.
52 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Consolidated Statements of Net Cost

For the Fiscal Years Ended September 30, 2017 and 2016

(in millions) 2017 2016

Cost of Treasury Operations: 

Financial Program 

Gross Cost $ 15,343 $ 14,969

Less Earned Revenue (3,415) (3,129)

Net Program Cost 11,928 11,840

 

Economic Program 

Gross Cost 19,217 12,045

Less Earned Revenue (11,750) (7,078)

Net Program Cost 7,467 4,967

 

Security Program 

Gross Cost 436 412

Less Earned Revenue (5) (3)

Net Program Cost 431 409

 

Total Program Gross Costs 34,996 27,426

Total Program Gross Earned Revenues (15,170) (10,210)

Total Net Program Cost before Changes in Actuarial Assumptions 19,826 17,216

(Gain)/Loss on Pension, ORB, or OPEB Assumption Changes 264 501

Total Net Cost of Treasury Operations (Note 20) 20,090 17,717

 

Non-Entity Costs:

Federal Debt Interest 454,197 427,479

Restoration of Foregone Federal Debt Interest (Note 15) 1,587 635

Less Interest Revenue from Loans (42,483) (42,384)

Net Federal Debt Interest Costs 413,301 385,730

Accrued Restoration of Foregone Federal Debt Interest (Note 15) 660 -

Other Federal Costs, Net (Note 20) 14,725 14,554

GSEs Non-Entity Revenue, Net (Note 10) (9,439) (13,802)

Other, Net (689) (575)

Total Net Non-Entity Costs 418,558 385,907

Total Net Cost of Treasury Operations and Non-Entity Costs $ 438,648 $ 403,624

 

 

The accompanying notes are an integral part of these financial statements. 
DEPARTMENT OF THE TREASURY 53 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Consolidated Statements of Changes in Net Position

For the Fiscal Years Ended September 30, 2017 and 2016

(in millions) 2017 2016

CUMULATIVE RESULTS OF OPERATIONS (Note 19)

Beginning Balance $ 69,268 $ 70,891

Budgetary Financing Sources 

Appropriations Used 481,720 464,156

Non-Exchange Revenue 444 253

Donations and Forfeitures of Cash/Equivalent 117 416

Transfers In/Out Without Reimbursement (272) (48)

Other 8 (67)

Other Financing Sources (Non-Exchange) 

Donation/Forfeiture of Property 106 158

Accrued Interest and Discount on Debt 11,266 3,456

Accrued Interest on Restoration of Federal Debt Principal (Note 15) 660 (2,052)

Transfers In/Out Without Reimbursement - (3)

Imputed Financing Sources (Note 20) 552 681

Transfers to the General Fund and Other (Note 19) (55,225) (64,949)

Total Financing Sources 439,376 402,001

Net Cost of Treasury Operations and Non-Entity Costs (438,648) (403,624)

Net Change 728 (1,623)

Cumulative Results of Operations 69,996 69,268

 

UNEXPENDED APPROPRIATIONS (Note 19)

Beginning Balance 434,646 343,223

Budgetary Financing Sources 

Appropriations Received (Note 19) 488,588 565,550

Appropriations Transferred In/Out - 35

Other Adjustments (Note 19) (14,185) (10,006)

Appropriations Used (481,720) (464,156)

Total Budgetary Financing Sources (7,317) 91,423

Total Unexpended Appropriations 427,329 434,646

Net Position $ 497,325 $ 503,914

 

 

 

The accompanying notes are an integral part of these financial statements. 
54 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Combined Statement of Budgetary Resources

For the Fiscal Year Ended September 30, 2017

 Non-Budgetary 2017

(in millions) Budgetary Financing Total

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 316,775 $ 434 $ 317,209

Recoveries of unpaid prior year obligations 396 - 396

Other changes in unobligated balance (574) (739) (1,313)

Unobligated balance from prior year budget authority, net 316,597 (305) 316,292

Appropriations (discretionary and mandatory) (Note 19) 493,425 1 493,426

Borrowing authority (discretionary and mandatory) (Note 21) - 268 268

Spending authority from offsetting collections (discretionary and 

 mandatory) 7,569 962 8,531

Total Budgetary Resources $ 817,591 $ 926 $ 818,517

 

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments (Note 21) $ 501,405 $ 664 $ 502,069

Unobligated balance, end of year: 

 Apportioned, unexpired accounts 274,033 49 274,082

 Exempt from apportionment, unexpired accounts 1,616 - 1,616

 Unapportioned, unexpired accounts 40,003 213 40,216

 Unexpired unobligated balance, end of year 315,652 262 315,914

 Expired unobligated balance, end of year 534 - 534

Unobligated balance, end of year 316,186 262 316,448

Total Status of Budgetary Resources $ 817,591 $ 926 $ 818,517

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 75,010 $ 803 $ 75,813

New obligations and upward adjustments (Note 21) 501,405 664 502,069

Outlays (gross) (505,166) (582) (505,748)

Recoveries of prior year unpaid obligations (396) - (396)

Unpaid obligations, end of year 70,853 885 71,738

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 (197) 1 (196)

Change in uncollected payments, Federal sources 29 (1) 28

Uncollected payments, Federal sources, end of year (168) - (168)

Obligated Balance, End of Year $ 70,685 $ 885 $ 71,570

Obligated Balance, Start of Year $ 74,813 $ 804 $ 75,617

 

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 500,994 $ 1,231 $ 502,225

Actual offsetting collections (discretionary and mandatory) (7,869) (2,271) (10,140)

Change in uncollected payments, Federal sources 

 (discretionary and mandatory) 29 (1) 28

Recoveries of prior year paid obligations (discretionary and mandatory) 67 - 67

Budget Authority, Net (Discretionary and Mandatory) $ 493,221 $ (1,041) $ 492,180

 

Outlays, gross (discretionary and mandatory) $ 505,166 $ 582 $ 505,748

Actual offsetting collections (discretionary and mandatory) (7,869) (2,271) (10,140)

Outlays, net (discretionary and mandatory) 497,297 (1,689) 495,608

Distributed offsetting receipts (75,089) - (75,089)

Agency Outlays, Net (Discretionary and Mandatory) $ 422,208 $ (1,689) $ 420,519

 

 

 

The accompanying notes are an integral part of these financial statements.
DEPARTMENT OF THE TREASURY 55 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Combined Statement of Budgetary Resources

For the Fiscal Year Ended September 30, 2016 

 Non-Budgetary 2016

(in millions) Budgetary Financing Total

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 323,170 $ 572 $ 323,742

Recoveries of unpaid prior year obligations 7,034 89,424 96,458

Other changes in unobligated balance (8,355) (89,508) (97,863)

Unobligated balance from prior year budget authority, net 321,849 488 322,337

Appropriations (discretionary and mandatory) (Note 19) 465,346 - 465,346

Borrowing authority (discretionary and mandatory) (Note 21) - 365 365

Spending authority from offsetting collections (discretionary and 

 mandatory) 8,144 1,107 9,251

Total Budgetary Resources $ 795,339 $ 1,960 $ 797,299

 

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments (Note 21) $ 478,564 $ 1,526 $ 480,090

Unobligated balance, end of year: 

 Apportioned, unexpired accounts 274,048 42 274,090

 Exempt from apportionment, unexpired accounts 1,505 - 1,505

 Unapportioned, unexpired accounts 40,591 392 40,983

 Unexpired unobligated balance, end of year 316,144 434 316,578

 Expired unobligated balance, end of year 631 - 631

Unobligated balance, end of year 316,775 434 317,209

Total Status of Budgetary Resources $ 795,339 $ 1,960 $ 797,299

 

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 83,228 $ 90,171 $ 173,399

New obligations and upward adjustments (Note 21) 478,564 1,526 480,090

Outlays (gross) (479,748) (1,470) (481,218)

Recoveries of prior year unpaid obligations (7,034) (89,424) (96,458)

Unpaid obligations, end of year 75,010 803 75,813

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 (196) (407) (603)

Change in uncollected payments, Federal sources (1) 408 407

Uncollected payments, Federal sources, end of year (197) 1 (196)

Obligated Balance, End of Year $ 74,813 $ 804 $ 75,617

Obligated Balance, Start of Year $ 83,032 $ 89,764 $ 172,796

 

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 473,490 $ 1,472 $ 474,962

Actual offsetting collections (discretionary and mandatory) (8,563) (9,833) (18,396)

Change in uncollected payments, Federal sources 

 (discretionary and mandatory) (1) 408 407

Recoveries of prior year paid obligations (discretionary and mandatory) 110 - 110

Budget Authority, Net (Discretionary and Mandatory) $ 465,036 $ (7,953) $ 457,083

 

Outlays, gross (discretionary and mandatory) $ 479,748 $ 1,470 $ 481,218

Actual offsetting collections (discretionary and mandatory) (8,563) (9,833) (18,396)

Outlays, net (discretionary and mandatory) 471,185 (8,363) 462,822

Distributed offsetting receipts (62,565) - (62,565)

Agency Outlays, Net (Discretionary and Mandatory) $ 408,620 $ (8,363) $ 400,257

 

The accompanying notes are an integral part of these financial statements.
56 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Statements of Custodial Activity

For the Fiscal Years Ended September 30, 2017 and 2016

 

(in millions) 2017 2016

Sources of Custodial Revenue (Note 22)

Individual Income and FICA Taxes $ 2,976,444 $ 2,874,877

Corporate Income Taxes 338,529 345,552

Estate and Gift Taxes 23,780 22,337

Excise Taxes 85,333 97,931

Railroad Retirement Taxes 5,957 5,941

Unemployment Taxes 8,284 8,440

Deposit of Earnings, Federal Reserve System 81,287 115,672

Fines, Penalties, Interest and Other Revenue 5,040 4,389

Total Revenue Received 3,524,654 3,475,139

Less Refunds and Other Payments (437,323) (426,481)

Net Revenue Received 3,087,331 3,048,658

Non-Cash Accrual Adjustment 3,061 8,257

Total Custodial Revenue 3,090,392 3,056,915

 

Disposition of Custodial Revenue (Note 22)

Amounts Provided to Fund Non-Federal Entities 370 425

Amounts Provided to Fund the Federal Government 3,086,961 3,048,233

Non-Cash Accrual Adjustment 3,061 8,257

Total Disposition of Custodial Revenue 3,090,392 3,056,915

Net Custodial Revenue $ - $ -

 

The accompanying notes are an integral part of these financial statements. 
DEPARTMENT OF THE TREASURY 57 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

NOTES TO THE FINANCIAL STATEMENTS

TABLE OF CONTENTS

1. SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES ...................................................................................................................... 58

2. FUND BALANCE ................................................................................................................................................................................... 77

3. LOANS AND INTEREST RECEIVABLE – INTRA-GOVERNMENTAL ................................................................................................. 79

4. DUE FROM THE GENERAL FUND AND DUE TO THE GENERAL FUND ......................................................................................... 81

5. CASH, FOREIGN CURRENCY, AND OTHER MONETARY ASSETS .................................................................................................... 83

6. GOLD AND SILVER RESERVES, AND GOLD CERTIFICATES ISSUED TO THE FEDERAL RESERVE BANKS ................................. 85

7. RESERVE POSITION IN THE INTERNATIONAL MONETARY FUND AND RELATED LOANS AND INTEREST RECEIVABLE ...... 86

8. TAXES, INTEREST, AND OTHER RECEIVABLES, NET ...................................................................................................................... 87

9. CREDIT PROGRAM RECEIVABLES,NET ............................................................................................................................................ 88

10. INVESTMENTS IN GOVERNMENT SPONSORED ENTERPRISES ....................................................................................................... 90

11. INVESTMENTS IN MULTILATERAL DEVELOPMENT BANKS .......................................................................................................... 94

12. OTHER INVESTMENTS AND RELATED INTEREST ........................................................................................................................... 94

13. PROPERTY, PLANT, AND EQUIPMENT, NET .................................................................................................................................... 95

14. NON-ENTITY VS. ENTITY ASSETS ..................................................................................................................................................... 96

15. FEDERAL DEBT AND INTEREST PAYABLE AND RELATED LIABILITIES ....................................................................................... 97

16. OTHER DEBT AND INTEREST PAYABLE ........................................................................................................................................... 101

17. D.C. FEDERAL PENSION AND JUDICIAL RETIREMENT ACTUARIAL LIABILITY .......................................................................... 102

18. LIABILITIES .......................................................................................................................................................................................... 104

19. NET POSITION ..................................................................................................................................................................................... 105

20. CONSOLIDATED STATEMENTS OF NET COST AND NET COSTS OF TREASURY SUB-ORGANIZATIONS ................................... 106

21. ADDITIONAL INFORMATION RELATED TO THE COMBINED STATEMENTS OF BUDGETARY RESOURCES .............................. 112

22. SOURCES AND DISPOSITION OF CUSTODIAL REVENUE ................................................................................................................. 115

23. FUNDS FROM DEDICATED COLLECTIONS ........................................................................................................................................ 117

24. RECONCILIATION OF NET COST OF TREASURY OPERATIONS AND NON-ENTITY COSTS TO BUDGET ................................... 121

25. SCHEDULE OF FIDUCIARY ACTIVITY ................................................................................................................................................. 122

26. COMMITMENTS AND CONTINGENCIES ............................................................................................................................................. 123

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED – SEE ACCOMPANYING AUDITORS’ REPORT) ................................... 128
58 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

1. SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES

A. REPORTING ENTITY

The accompanying financial statements include the operations of the Department of the Treasury, one of 24 Chief Financial 

Officers (CFO) Act agencies of the Executive Branch of the United States (U.S.) government, and certain custodial activities 

the Department manages on behalf of the entire U.S. government. Except where the content clearly indicates otherwise, the 

use of the terms “Department”, “Treasury”, “we”, “us”, or “our” refers to the Department of the Treasury, including its 

Departmental Offices (DO) and operating bureaus which are further discussed below. The following paragraphs describe the 

activities of the reporting entity. 

We were established by an Act of Congress approved on September 2, 1789. Many subsequent acts affected our development, 

delegating new duties to our charge and establishing the numerous bureaus and divisions that now comprise the 

Department. As a major policy advisor to the President, the Secretary of the Treasury (Secretary) has primary responsibility

for formulating and managing the domestic and international tax and financial policies of the U.S. government. 

Further, the Secretary is responsible for recommending and implementing U.S. domestic and international economic and 

fiscal policy; governing the fiscal operations of the U.S. government; maintaining foreign assets control; managing the 

federal debt; collecting income and excise taxes; representing the U.S. on international monetary, trade, and investment 

issues; overseeing our overseas operations; and directing the manufacture of coins, currency, and other products for customer 

agencies and the public. 

Our reporting entities include DO and seven operating bureaus. For financial reporting purposes, DO is composed of:

Community Development Financial Institutions (CDFI) Fund, Office of D.C. Pensions (ODCP), Exchange Stabilization Fund 

(ESF), Federal Financing Bank (FFB), Government Sponsored Enterprises (GSEs) Program, International Assistance 

Programs (IAP), Office of Financial Research (OFR), Office of Financial Stability (OFS), Office of Inspector General (OIG), 

Small Business Lending Fund (SBLF), Special Inspector General for the Troubled Asset Relief Program (SIGTARP), 

Treasury Forfeiture Fund (TFF), Treasury Inspector General for Tax Administration (TIGTA), and the DO policy offices. 

Our seven operating bureaus are: Bureau of Engraving and Printing (BEP), Bureau of the Fiscal Service (Fiscal Service), 

Financial Crimes Enforcement Network (FinCEN), Internal Revenue Service (IRS), U.S. Mint (Mint), Office of the 

Comptroller of the Currency (OCC), and Alcohol and Tobacco Tax and Trade Bureau (TTB). Our consolidated financial 

statements reflect the reporting of our entity activities, comprising both our operating bureaus and DO. This includes

appropriations received to conduct our operations and revenue generated from those operations. They also reflect the 

reporting of certain non-entity (custodial) functions we perform on behalf of the U.S. government and others. Non-entity 

activities include collecting certain federal revenue, servicing the federal debt, disbursing certain federal funds, and 

maintaining certain assets and liabilities for the U.S. government (refer to Notes 4 and 14), as well as for other federal 

entities. Our reporting entity does not include the General Fund of the U.S. Government (General Fund), which maintains 

receipt, disbursement, and appropriation accounts for all federal agencies. 
DEPARTMENT OF THE TREASURY 59 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Following U.S. Generally Accepted Accounting Principles (GAAP) for federal entities, we do not consolidate into our financial 

statements the assets, liabilities, or results of operations of any financial organization or commercial entity in which we hold 

either a direct or indirect majority equity investment, unless they constitute a part of the reporting entity per GAAP. Even 

though some of the equity investments are significant, these entities meet the criteria of “bailed out” entities under 

paragraph 50 of Statement of Federal Financial Accounting Concepts (SFFAC) No. 2, Entity and Display, which directs that 

such “bailout” investments should not be consolidated into the Financial Report of the U.S. Government, either in part or as 

a whole. 

B. BASIS OF ACCOUNTING AND PRESENTATION

The financial statements have been prepared from our accounting records in conformity with GAAP, and Office of 

Management and Budget (OMB) Circular No. A-136, Financial Reporting Requirements, as revised. Accounting principles 

generally accepted for federal entities are the standards prescribed by the Federal Accounting Standards Advisory Board 

(FASAB). The American Institute of Certified Public Accountants recognizes FASAB as the official accounting standardssetting body for the U.S. government. 

These financial statements consist of the Consolidated Balance Sheets, the Consolidated Statements of Net Cost, the 

Consolidated Statements of Changes in Net Position, the Combined Statements of Budgetary Resources, and the Statements 

of Custodial Activity. The statements and the related notes are prepared in a comparative form to present both fiscal year

(FY) 2017 and 2016 information. 

To provide additional clarity to our financial statements, we have presented additional financial statement line items on the 

Consolidated Balance Sheets and Consolidated Statements of Changes in Net Position than are required by the guidance in 

OMB Circular No. A-136. The following summarizes how our additional financial statement line items relate to the financial 

statement guidelines of the OMB Circular No. A-136. For the Consolidated Balance Sheets: (i) “Advances to Trust Funds”

and “Due From the General Fund” represent other intra-governmental assets; (ii) “Gold and Silver Reserves” and the 

“Reserve Position in the International Monetary Fund” (IMF) represent other monetary assets; (iii) “Loans and Interest 

Receivable, Net” (non-intra-governmental) represents other assets; (iv) “Liability for Restoration of Federal Debt Principal 

and Interest” (intra-governmental) and “Due To the General Fund” represent other intra-governmental liabilities; (v) 

“Certificates Issued to the Federal Reserve,” “Allocation of Special Drawing Rights,” “Gold Certificates Issued to the Federal 

Reserve Banks,” “Refunds Payable,” and the “D.C. Federal Pension and Judicial Retirement Actuarial Liability” represent 

other liabilities. For the Consolidated Statements of Changes in Net Position, “Accrued Interest and Discount on Debt,”

“Accrued Interest on Restoration of Federal Debt Principal,” and “Transfers to the General Fund and Other” represent other 

non-exchange financing sources.

We have eliminated transactions and balances among our entities from the Consolidated Balance Sheets, Consolidated 

Statements of Net Cost, and Consolidated Statements of Changes in Net Position. We present the Statement of Budgetary 

Resources on a combined basis; therefore, intra-departmental transactions and balances have not been eliminated from these 

statements. 

While these financial statements have been prepared from our accounting records in accordance with the formats prescribed 

by OMB, these financial statements are in addition to the financial reports used to monitor and control budgetary resources 

which are prepared from the same accounting records. 
60 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Intra-governmental assets and liabilities are those due from or to other federal entities. Intra-governmental earned 

revenues are collections or accruals of revenue from other federal entities, and intra-governmental costs are payments or 

accruals of expenditures to other federal entities. 

The financial statements should be read with the realization that we are a component of the U.S. government, a sovereign 

entity and, accordingly, our liabilities not covered by budgetary resources cannot be liquidated without the legislative 

enactment of an appropriation, and that the payment of all liabilities other than for contracts can be abrogated by the 

sovereign entity. Liabilities represent the probable and measurable future outflow or other sacrifice of resources as a result 

of past transactions or events. Liabilities covered by budgetary resources are those liabilities for which Congress has 

appropriated funds or funding is otherwise available to pay amounts due. Liabilities not covered by budgetary or other 

resources represent amounts owed in excess of available, congressionally appropriated funds or other amounts, and there is 

no certainty that the appropriations will be enacted. 

We have reclassified certain FY 2016 activity and balances presented on the financial statements to conform to the 

presentation in the current year, the effects of which are immaterial. There are numerous acronyms used throughout the 

notes herein as well as other sections of this Agency Financial Report (AFR). Refer to the “Glossary of Acronyms” located in 

the Appendix of this report for a complete listing of these acronyms and their definitions. 

C. FUND BALANCE

“Fund Balance” is the aggregate amount of our accounts with the U.S. government’s central accounts from which we are

authorized to make expenditures and pay liabilities. It is an asset because it represents our claim to the U.S. government’s 

resources. “Fund Balance” is not equivalent to unexpended appropriations because it also includes non-appropriated 

revolving and enterprise funds, suspense accounts, and custodial funds such as deposit funds, special funds, and trust funds. 

D. LOANS AND INTEREST RECEIVABLE

Intra-Governmental

Intra-governmental entity loans and interest receivable from other federal agencies represent the principal and related 

interest receivable on loans we issue through FFB. We do not record loan loss allowance for credit reform subsidy costs for 

loans purchased from federal agencies or for guaranteed loans made to non-federal borrowers because those agencies 

guarantee the outstanding balances (interest and principal). 

Intra-governmental non-entity loans and interest receivable from other federal agencies represent the principal and related 

interest receivable on loans we issue, through the Fiscal Service. We act as an intermediary issuing these loans because the 

agencies receiving these loans lend these funds to third parties to carry out various programs of the U.S. government. 

Because of our intermediary role in issuing these loans, we do not record a loan loss allowance related to these non-entity 

intra-governmental loans. Instead, the ultimate lender, the federal agency that issued the loans to the public, recognizes 

loan loss allowances and subsidy costs. We accrue interest revenue on intra-governmental loans when earned. 
DEPARTMENT OF THE TREASURY 61 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Public 

Public loans and interest receivable primarily represent supplemental borrowing arrangements between the U.S. and the 

IMF (refer to Note 7). These loans are denominated in Special Drawing Rights (SDRs) and recorded at the equivalent U.S. 

dollar amount (refer to the accounting policy below entitled “Special Drawing Rights”). We periodically adjust the value of 

these loans, due to fluctuations in the value of the U.S. dollar with respect to the SDR, to maintain the amount of these loans 

in dollar terms. We do not record a loan loss allowance for these loans as we do not anticipate any defaults on the repayment 

of these loans. 

E. ADVANCES TO TRUST FUNDS 

Advances to the Unemployment Trust Fund

The General Fund issues advances to the Department of Labor’s (DOL) Unemployment Trust Fund for states to pay 

unemployment benefits. The Fiscal Service accounts for the advances issued on behalf of the General Fund. As outlined in 

42 United States Code (USC) 1323, Repayable Advances to Federal Unemployment Account, these advances bear an interest 

rate that is computed as the average interest rate as of the end of the calendar month preceding the issuance date of the 

advance for all interest-bearing obligations of the U.S. that form the public debt, to the nearest lower 1/8 of 1.0 percent. 

Interest on the advances is due on September 30 of each year. DOL repays advances when the Secretary, in consultation 

with the Secretary of the DOL, determines that the balance in the Unemployment Trust Fund is adequate to allow 

repayment.

Advances to the Federal Supplementary Medical Insurance Trust Fund

The General Fund issues advances to the Department of Health and Human Services’ (HHS) Federal Supplementary 

Medical Insurance Trust Fund to temporarily replace the reduction in Medicare Part B participants’ premiums. The Fiscal 

Service accounts for the advances issued on behalf of the General Fund. As outlined in 42 USC 1395, Prohibition Against 

Any Federal Interference, these advances do not bear any interest. HHS repays advances over time from amounts collected 

from certain participants’ increase in premiums until the balance due reaches zero. 

F. CASH, FOREIGN CURRENCY, AND OTHER MONETARY ASSETS

Substantially all of our operating cash is non-entity government-wide cash held in depository institutions and Federal 

Reserve Bank (FRB) accounts. Agencies deposit funds that are submitted to them directly into either a Federal Reserve 

Treasury General Account (TGA) or a local TGA depositary. We transfer the balances in these TGA accounts into the 

Federal Reserve Bank of New York’s (FRBNY) TGA throughout the day. 

Operating cash of the U.S. government represents balances from tax collections, customs duties, other revenue, federal debt 

receipts, and other various receipts, net of cash outflows for budget outlays and other payments held in the FRBs and in 

foreign and domestic financial institutions. Outstanding checks net against operating cash until they clear the Federal 

Reserve System (FR System). 

The FRBNY maintains the TGA, which functions as the U.S. government’s checking account for deposits and disbursements 

of public funds. Cash in the TGA is restricted for government-wide operations. 

We classify our foreign currency investments having original maturities of three months or less as cash equivalents. SDR

holdings comprise most of the other monetary assets (refer to the accounting policy below entitled “Special Drawing Rights”).
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FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

G. TAXES, INTEREST, AND OTHER RECEIVABLES, NET

We do not accrue federal taxes receivable, net, and the corresponding liability due to the General Fund, until related tax 

returns are filed or assessments are made by the IRS and agreed to by either the taxpayer or the court. Additionally, 

prepayments are netted against liabilities. We make accruals to reflect penalties and interest on taxes receivable through 

the balance sheet date. 

Taxes receivable consist of unpaid assessments (taxes and associated penalties and interest) due from taxpayers. The 

existence of a receivable is supported by a taxpayer agreement, such as filing of a tax return without sufficient payment, or a 

court ruling in favor of the IRS. We record an allowance for doubtful accounts to reflect an estimate of the portion of total 

taxes receivable deemed to be uncollectible. 

Compliance assessments are unpaid assessments which neither the taxpayer nor a court has affirmed the taxpayer owes to 

the U.S. government. Examples include assessments resulting from an IRS audit or examination in which the taxpayer does 

not agree with the results. Compliance assessment write-offs consist of unpaid assessments for which the IRS does not 

expect further collections due to factors such as taxpayers’ bankruptcy, insolvency, or death. We do not report compliance 

assessments and related write-offs on the balance sheet. Statutory provisions require the accounts to be maintained until 

the statute for collection expires. 

H. CREDIT PROGRAM RECEIVABLES, NET

We account for all of our credit program receivables under the provisions of credit reform accounting pursuant to the Federal 

Credit Reform Act (FCRA). Credit programs include loans or equity securities associated with our state and local Housing 

Finance Agency (HFA) initiative programs, SBLF program, CDFI Fund programs, and the Troubled Asset Relief Program 

(TARP) (refer to Note 9). 

To account for our credit program receivables, we apply the accounting provisions of Statement of Federal Financial 

Accounting Standards (SFFAS) No. 2, Accounting for Direct Loans and Loan Guarantees, as amended. SFFAS No. 2 

requires measurement of the asset or liability at the net present value of the estimated future cash flows. The cash flow 

estimates for each credit program transaction reflect the actual structure of the instruments. For each of these instruments, 

we estimate cash inflows and outflows related to the program over the estimated term of the instrument. Further, each 

cash-flow estimate reflects the specific terms and conditions of the program, technical assumptions regarding the underlying 

assets, risk of default or other losses, and other factors as appropriate. The measurement of assets within these programs is 

primarily derived from inputs which generally represent market data and, when such data is not available, management’s 

best estimate of how a market participant would assess the asset’s inherent risk. 

The primary purpose of the FCRA is to measure the cost of federal credit programs, and to place the cost of such credit 

programs on a basis equivalent with other federal spending. FCRA requires that the ultimate costs of a credit program be 

calculated and the budgetary resources be obtained before incurring the direct loan obligations. To accomplish this, we first 

predict or estimate the future performance of direct and guaranteed loans when preparing our annual budget. We reestimate the data used for these budgetary estimates at the fiscal year-end to reflect changes in actual loan performance and 

actual interest rates in effect when the loans were issued. The re-estimated data reflect adjustments for market risks, asset 

performance, and other key variables and economic factors. We then use the re-estimated data to report the cost of the loans 

disbursed under the direct or guaranteed loan program as a “Program Cost” in our Consolidated Statements of Net Cost. 
DEPARTMENT OF THE TREASURY 63 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Cash flows associated with our credit programs generally include disbursements, repayments, repurchases, fees, recoveries, 

interest, dividends, proceeds from sales of instruments, borrowings from Treasury, negative subsidy, and the subsidy cost 

received from the program accounts. We draw security-level data and assumptions used as the basis for cash flow model 

forecasts and program performance from widely available market sources, as well as information published by investees. 

Key inputs and assumptions to the cash flow forecasts include, but are not limited to: 

• Security characteristics such as unpaid principal balance, coupon rate, weighted-average loan age, issued bond balance, 

credit rating, maturity date, sinking fund schedules, principal and interest payment schedules, and performance of 

underlying collateral; 

• Discount rate and Market Adjusted Discount Rate (MADR); 

• Department actions, as well as changes in legislation; 

• Forecast dividend payments, late payments, prepayment rates and default rates; 

• Expected escrow conversion and return rates; 

• Default and recovery reports published by Moody’s and Standard and Poor’s; and

• Other third-party market sources. 

The recorded subsidy cost associated with each of our credit programs represents the difference between our projected costs 

of the program and the future cash flows we anticipate receiving. The subsidy allowance specifically takes into consideration 

projected repayments and defaults, and the projected cost of borrowings. We amortize the allowance to reflect the difference 

between projected and actual financing costs. 

Our actions, as well as changes in legislation, may impact estimated future cash flows and related subsidy costs. We 

recognize the cost or cost savings of a modification in subsidy costs when the terms of a program are modified. Workouts are 

actions taken to maximize repayments of existing credit programs, and the expected effects on cash flows are included in the 

original estimate and re-estimates of the subsidy cost. Subsidy costs are also impacted by re-estimates which may occur as a 

result of updates to the original program subsidy cost estimates to reflect actual cash flows experience, as well as changes in 

forecasts of estimated future cash flows associated with the credit program.

I. INVESTMENTS

Investments in GSEs

We hold senior preferred stock and warrants for the purchase of common stock of two GSEs: the Federal National Mortgage 

Association (Fannie Mae) and the Federal Home Loan Mortgage Corporation (Freddie Mac). We present these non-federal 

investment holdings at their fair value. We record changes in the valuation of these investments as non-entity exchange 

transactions on the Consolidated Statements of Net Cost. We also record dividends related to these investments as nonentity exchange transactions, and accrue when declared. 
64 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

The GSE Senior Preferred Stock Purchase Agreements (SPSPAs), which we entered into with each GSE when the GSEs 

were placed under conservatorship, require that we increase our investment in the GSEs’ senior preferred stock if, at the end 

of any quarter, the Federal Housing Finance Agency (FHFA), acting as the conservator, determines that the liabilities of 

either GSE exceed its respective assets. Since funding to the GSEs to pay their excess liabilities is appropriated directly to 

us, we report such payments, as needed, as entity expenses within the “Economic Program” on the Consolidated Statements 

of Net Cost, and in the line item, “Cumulative Results of Operations,” on the Consolidated Balance Sheets. These payments 

also result in an increase to the non-entity investment in the GSEs’ senior preferred stock, with a corresponding increase to

“Due To the General Fund”, as we hold the investment on behalf of the General Fund. 

Investments in Multilateral Development Banks

On behalf of the U.S., we invest in Multilateral Development Banks (MDBs) to support poverty reduction, private sector 

development, transitions to market economies, and sustainable economic growth and development, thereby advancing U.S. 

economic, political, and commercial interests abroad. As a participating member country, we provide a portion of the capital 

base of the MDBs, through subscriptions to capital, which allows the MDBs to issue loans at market-based rates to middleincome developing countries. These paid-in capital investments are non-marketable equity investments valued at cost on 

our Consolidated Balance Sheets.

In addition, on behalf of the U.S., we contribute funding to MDBs to finance grants and extend credit to poor countries at 

below market-based interest rates. We report these U.S. contributions, also referred to as “concessional window” 

contributions, as an expense within the “Economic Program” on our Consolidated Statements of Net Cost. 

Other Investments and Related Interest

The ESF holds most of our foreign currency investments. We classify the ESF’s other foreign currency denominated assets 

and investment securities as either available-for-sale or trading securities recorded at fair value. These holdings are 

normally invested in interest-bearing securities issued or held through foreign governments or monetary authorities. We 

recognize interest on investments, amortization of premiums, and accretion of discounts on an accrual basis, and amortize or 

accrete premiums and discounts over the life of the related investment security as an adjustment to yield using the effective 

interest method. 

J. PROPERTY, PLANT, AND EQUIPMENT, NET

General

Property, plant, and equipment (PP&E) is composed of capital assets used in providing goods or services. It also includes 

assets acquired through capital leases, which are initially recorded at the amount recognized as a liability for the capital 

lease at its inception. PP&E is stated at full cost, including costs related to acquisition, delivery, and installation, less 

accumulated depreciation. Major alterations and renovations, including leasehold and land improvements, are capitalized, 

while maintenance and repair costs are charged to expense as incurred. Costs for construction projects are recorded as 

construction-in-progress until completed, and are valued at actual (direct) cost plus applied overhead and other indirect 

costs.
DEPARTMENT OF THE TREASURY 65 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Internal-use software encompasses software design, development, and testing of projects adding significant new 

functionality and long-term benefits. We accumulate costs for developing internal-use software in work-in-development until 

we place a project into service and testing and final acceptances are successfully completed. Once completed, we transfer the 

costs to depreciable property. 

We lease land and buildings from the General Services Administration (GSA) to conduct most of our operations. We have no 

material leases that meet capital lease requirements for financial reporting purposes. GSA charges a standard level user fee 

which approximates commercial rental rates for similar properties. 

Our bureaus are diverse both in size and in operating environment. Accordingly, our capitalization policy provides minimum 

capitalization thresholds, which generally range from $25,000 to $50,000 for all property categories except for internal-use 

software. Minimum capitalization thresholds for internal-use software generally range from $50,000 to $250,000 (except for 

the IRS, for which minimum capitalization thresholds generally ranges from $10 million to $50 million). We also use a 

capitalization threshold for bulk purchases, which generally ranges from $50,000 to $500,000 for non-manufacturing 

bureaus, and $25,000 to $50,000 for manufacturing bureaus. Bureaus determine the individual items that comprise bulk 

purchases based on our guidance. 

Depreciation is expensed on a straight-line basis over the estimated useful life of the asset with the exception of leasehold 

improvements and capital leases. We depreciate leasehold improvements over the term of the lease or the useful life of the 

improvement, whichever is shorter. We depreciate capital leases over the estimated life of the asset or term of the lease, 

whichever is shorter. Service life ranges (2 to 50 years) are wide due to the diversity of our PP&E. We do not depreciate 

land and land improvements, construction-in-progress, and internal-use software in development. We record impairment 

costs related to a significant and permanent decline in the service utility of general PP&E and construction-in-progress in 

the period incurred. 

Heritage Assets

Heritage assets are of historical significance. Multi-use heritage assets are those heritage assets for which the predominant 

use is general government operations. We capitalize all acquisition, reconstruction, and betterment costs for our multi-use 

heritage asset buildings as general PP&E, and depreciate these costs over their service life. 

K. FEDERAL DEBT AND INTEREST PAYABLE

We issue federal debt in the form of Treasury securities. This debt relates to monies borrowed from the public and certain 

other federal agencies to fund the operations of the U.S. government. We issue certain federal debt at a discount or 

premium. We amortize these discounts and premiums over the term of the security using an interest method for all longterm securities and the straight-line method for short-term securities. Interest costs accrue as an expense as incurred and 

are reported on the Consolidated Statements of Net Cost as non-entity costs. 
66 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

L. COMMITMENTS AND CONTINGENCIES

Through FFB, we make loan commitments with federal agencies, or private sector borrowers with loans guaranteed by 

federal agencies, to extend credit for their own use (refer to the accounting policy above entitled “Loans and Interest 

Receivable, Intra-Governmental”). We establish loan commitments when FFB and other parties fully execute promissory 

notes or bonds in which we become obligated to issue such loans immediately or at some future date. We reduce loan 

commitments when we issue the loans or when the commitments expire. Most of our obligations give a borrower the 

contractual right to a loan or loans immediately or at some point in the future within an agreed upon timeframe. 

On behalf of the U.S., we subscribe to capital for certain MDBs, portions of which are capital commitments which are 

callable under certain limited circumstances to meet the obligations of the respective MDB. The callable capital 

commitments become binding on the U.S. when we issue instruments of subscription stating our intention to subscribe to the 

U.S. portion of callable capital, subject to the amounts provided for in appropriations acts. 

Additionally, on behalf of the U.S., we have established financial commitments through our participation in the IMF through 

a quota subscription and certain borrowing arrangements that supplement IMF resources. U.S. financial commitments to 

the IMF become binding when the U.S. consents to an increase in its participation as an IMF member country, and all other 

conditions to the increase have been met. The outstanding financial commitment in the U.S. quota decreases or increases 

when the IMF draws upon or repays funding obtained pursuant to a letter of credit established by the U.S. to make domestic 

currency available to the IMF as needed. The outstanding financial commitment in the supplemental borrowing 

arrangements decrease or increase when the IMF borrows and repays loans under this supplemental funding arrangement 

(refer to Note 7). 

In accordance with SFFAS No. 5, Accounting for Liabilities of the Federal Government, we recognize material contingent 

liabilities meeting the following criteria:

• A past event or exchange transaction has occurred; 

• A future cash outflow is probable; and

• A future cash outflow is measurable. 

The estimated liability we record is either a specific amount or within a range of amounts. If some amount within the range 

is a better estimate than any other amount within the range, that amount is recognized. If no amount within the range is a 

better estimate than any other amount, we recognize the minimum amount in the range, and we disclose the range and a 

description of the nature of the contingency. We follow this policy in recording a contingent liability, if any, related to the 

GSE SPSPA program (refer to Note 10), and loss contingencies that may arise from claims, assessments, litigations, fines, 

penalties, and other sources (refer to Note 26).

If one or more, but not all, of the above criteria for recognition are met, and there is a reasonable possibility of loss, we will 

disclose, if material, the nature of the contingent liability, along with a range of possible loss, if estimable, and a description 

of the nature of the contingency. 

M. SPECIAL DRAWING RIGHTS

The SDR is an international reserve asset created by the IMF to supplement its member countries’ official reserves. Under 

its Articles of Agreement, the IMF may allocate SDRs to member countries in proportion to their IMF quotas. Pursuant to 

the Special Drawing Rights Act of 1968, as amended, the ESF holds all SDRs allocated to or otherwise acquired by the U.S. 
DEPARTMENT OF THE TREASURY 67 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Allocations and Holdings

We record the SDR holdings as part of “Cash, Foreign Currency, and Other Monetary Assets,” and we record the SDR 

allocations as a liability entitled “Allocation of Special Drawing Rights” when the IMF allocates SDRs to the Department. 

We carry this liability since the SDRs may be withdrawn as needed by the IMF unless the following occurs: a withdrawal by 

the U.S. from the IMF membership, cancellation of the SDRs, or liquidation of the IMF or SDR Department of the IMF.

SDR holdings increase primarily as a result of IMF SDR allocations. We record SDR transactions as incurred, and include 

acquisitions and sales of SDRs, interest received on SDR holdings, interest charges on SDRs allocations, and valuation 

adjustments. The U.S. government also receives remuneration in SDRs from the IMF based on claims on the IMF as 

represented by the U.S. Reserve Position in the IMF and loans receivable from supplemental borrowing arrangements. We 

credit remuneration to the ESF, which transfers to the TGA account an equivalent amount of dollars plus nominal interest. 

The allocations and holdings are revalued monthly based on the SDR valuation rate as calculated by the IMF, resulting in 

the recognition of unrealized gains or losses on revaluation that are reported on the Consolidated Statements of Net Cost.

Certificates Issued to the Federal Reserve

The Special Drawing Rights Act of 1968 authorizes the Secretary to issue certificates, not to exceed the value of SDR 

holdings, to the FRB in return for dollar amounts equal to the face value of certificates issued. We issue certificates to 

finance the acquisition of SDRs from other countries or to provide U.S. dollar resources to finance other ESF operations. 

Certificates issued are redeemed by us at such times and in such amounts as the Secretary may determine, and do not bear 

interest. We report certificates issued to the FRB at their face value which approximates their carrying value since, under 

the terms of the agreement, there is no set repayment date and no interest accrued while certificates remain outstanding.

N. REFUNDS PAYABLE

Refunds payable arise in the normal course of tax administration when it is determined that taxpayers have paid more than 

the actual taxes they owe. We record amounts concluded to be valid refunds owed to taxpayers as a liability entitled 

“Refunds Payable” on the Consolidated Balance Sheets, with a corresponding receivable from the General Fund included in 

the line entitled “Due From the General Fund.”

O. FEDERAL EMPLOYEE BENEFITS PAYABLE – FECA ACTUARIAL LIABILITY

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

employees injured on the job, and employees who have incurred a work-related injury or occupational disease. The FECA 

program is administered by the DOL which pays valid claims and subsequently seeks reimbursements from us for these paid 

claims. Generally, we reimburse the DOL within two to three years once funds are appropriated. The FECA liability 

consists of two components. The first component is based on actual claims paid by the DOL but not yet reimbursed by us. 

The second component is the estimated liability for future workers compensation as a result of past events. We report both 

components in “Other Liabilities” on the Consolidated Balance Sheets. These future workers’ compensation estimates are 

generated by applying actuarial procedures developed to estimate the liability for FECA benefits. The actuarial liability 

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

compensation cases. 
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FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

P. ANNUAL, SICK, AND OTHER LEAVE

We report annual and compensatory leave earned by our employees, but not yet used, as an accrued liability. We adjust the 

accrued balance annually to reflect current pay rates. Any portion of the accrued leave for which funding is not available is 

recorded as an unfunded liability as reported in “Other Liabilities” on the Consolidated Balance Sheets. We expense sick 

and other leave as taken and do not record a liability for such amounts, because employees do not vest in sick and other 

leave benefits. 

Q. PENSION COSTS, OTHER RETIREMENT BENEFITS, AND OTHER POST-EMPLOYMENT BENEFITS

Federal Pension Costs, Other Retirement Benefits, and Other Post-Employment Benefits

We recognize the full cost of our employees’ pension benefits, including recognizing imputed cost for the difference between 

the estimated service cost and the sum of participants’ pension benefit withholdings and agency contributions. However, the 

Office of Personnel Management (OPM) rather than the Department recognizes the assets and liabilities associated with 

these benefits. 

Most of our employees hired prior to January 1, 1984 participate in the Civil Service Retirement System (CSRS), and 

employees hired between January 1, 1984 and December 31, 1986 are covered under the CSRS Offset System, to which we

contribute 7.0 percent and 7.5 percent of pay for regular and law enforcement employees, respectively. On January 1, 1987, 

the Federal Employees’ Retirement System (FERS) went into effect pursuant to the Federal Employees’ Retirement System 

Act of 1986, Public Law (P.L.) 99-335. FERS is a three-tiered retirement system consisting of a Basic Benefit Plan, Thrift 

Savings Plan (TSP), and Social Security Benefits. For the FERS Basic Benefit Plan, we contribute between 11.9 percent and 

13.7 percent for regular employees, and between 28.4 percent and 30.1 percent for law enforcement officers. The TSP under 

FERS is a 401(k)-type savings plan in which we automatically contribute one percent of base pay and match any employee 

contributions up to an additional four percent of base pay. For most employees hired after December 31, 1983, we also 

contribute the employer’s matching share for Social Security. 

Similar to federal retirement plans, OPM, rather than the Department, reports the assets and liability for future payments 

to retired employees who participate in the Federal Employees Health Benefits Program (FEHBP) and Federal Employees 

Group Life Insurance (FEGLI) Program. We report the full cost of providing other retirement benefits (ORB). We also 

recognize an expense and a liability for other post-employment benefits (OPEB), which includes all types of benefits, 

provided to former or inactive (but not retired) employees, their beneficiaries, and covered dependents. Additionally, one of 

our bureaus, OCC, separately sponsors a defined life insurance benefit plan for current and retired employees, and is the 

administrator for a private defined benefit retirement plan, the Pentegra Defined Benefit Plan (PDBP), that provides 

retirement, disability, and death benefits for certain retired employees who meet eligibility requirements. In addition to the 

TSP, the OCC separately sponsors a 401(k) plan.
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FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

District of Columbia Federal Pension and Judicial Retirement Plans

Pursuant to Title XI of the Balanced Budget Act of 1997, as amended, we became responsible for benefit payments to certain 

District of Columbia (D.C.) police officers, firefighters, teachers and judges under D.C. retirement plans (refer to Note 17). 

The actuarial cost method used to determine costs and actuarial liability for the retirement plans is the Individual Entry Age 

Normal Funding Method, which approximates the methodology specified by the Aggregate Entry Age Normal Actuarial Cost 

Method. The methodology bases actuarial liability on long-term economic assumptions. The pension benefit costs incurred 

by the plans are included on the Consolidated Statements of Net Cost.

The economic assumptions used for the valuation of the D.C. Federal Pension and Judicial retirement plans differ from those 

used by the OPM for the following reasons: (i) the annual rate of salary increase assumptions are based on different plan 

member experience; (ii) the annual rate of inflation and cost-of-living adjustment assumptions are based on different 

statutory requirements (applicable Consumer Price Index [CPI] and period of calculation); and (iii) for the annual rate of 

investment return assumption, OPM and the D.C. Federal Pension and Judicial retirement plans use the same underlying 

yield curve but, unlike the D.C. Federal Pension plan, OPM converts to a single equivalent rate.

R. REVENUE AND FINANCING SOURCES

Our activities are financed either through exchange revenue we receive from others or through non-exchange revenue and 

financing sources (such as appropriations provided by the Congress and penalties, fines, and certain user fees collected). 

User fees primarily include collections from the public for the IRS costs to process installment agreements, letter ruling and 

determinations, and income verification. We recognize exchange revenue when earned, i.e., goods are delivered or services 

are rendered. We recognize revenue from reimbursable agreements when providing services. We record non-exchange 

revenues when received or when accrued due to a legal claim. We recognize appropriations used as financing sources when 

related expenses are incurred or assets are purchased. 

We also incur certain costs paid in total or in part by other federal entities, such as pension costs, the FEHBP, and any unreimbursed payments made from the Treasury Judgment Fund on our behalf. We recognize these subsidized costs on the 

Consolidated Statements of Net Cost, and we recognize the imputed financing for these costs on the Consolidated 

Statements of Changes in Net Position. As a result, there is no effect on net position. We also recognize other non-exchange 

financing sources, such as donations and transfers of assets without reimbursements, for the period in which they occurred 

on the Consolidated Statements of Changes in Net Position. 

We recognize revenue we receive from disposition of forfeited property as non-exchange revenue on the Consolidated 

Statements of Changes in Net Position. We report costs related to the Forfeiture Fund program on the Consolidated 

Statements of Net Cost. The TFF is the special fund account for depositing non-tax forfeiture proceeds received pursuant to 

laws enforced or administered by law enforcement bureaus that participate in the TFF. We report forfeited property 

balances in “Other Assets” on the Consolidated Balance Sheets. 
70 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

S. CUSTODIAL REVENUES

Non-entity revenue reported on our Statements of Custodial Activity includes cash we collected, primarily from taxes. It 

does not include revenue collected by other federal agencies, such as user fees and other receipts, which are remitted for 

general operating purposes of the U.S. government or are dedicated for certain trust funds. We present the Statements of 

Custodial Activity on the “modified accrual basis.” We recognize revenues as cash is collected, and record a “non-cash 

accrual adjustment” representing the net increase or decrease during the reporting period in net revenue-related assets and 

liabilities, mainly taxes receivable. 

T. APPROPRIATIONS AND OTHER BUDGETARY ACTIVITY

Combined Statement of Budgetary Resources Activity

We record appropriations when authorized by legislation. Incurred obligations of appropriations are recorded when we place 

an order or sign a contract for goods and services, award a grant, or take other actions that require us to make payments to 

the public or another federal entity. Outlays are recorded when disbursements are made. 

Permanent and Indefinite Appropriations

We use permanent and indefinite appropriations to disburse tax refunds, income tax credits, and child tax credits. We 

recognize refund payment funding as appropriations are used. Permanent indefinite authority for refund activity is 

available for an unlimited period of time in the amount necessary to cover the refund and/or credit. We report tax refunds 

and credits as a custodial activity of the Department, since they are, in substance, a custodial revenue-related activity 

resulting from taxpayer overpayments of their tax liabilities. 

We have two permanent and indefinite appropriations related to debt activity. One permanent and indefinite appropriation 

is used to pay interest on the public debt securities, and the other is used to redeem securities that are matured, called, or 

eligible for early redemption. These accounts are not annual appropriations and do not have refunds. We report debt 

redemption appropriations related to our liability on our Consolidated Balance Sheets. We record interest appropriations at 

the beginning of the fiscal year and again at mid-year, if necessary, and we return any unused authority to the General Fund 

at the end of the fiscal year. Permanent indefinite authority for debt redemptions and related interest is available for an 

unlimited period of time. 

We also have permanent and indefinite appropriations to fund increases in the projected subsidy costs of credit programs as 

determined by the re-estimation process required by the FCRA, and to also cover our renewable energy project. 

Additionally, we have other permanent and indefinite appropriations to make certain payments on behalf of the U.S. 

government. We receive these appropriations to make payments to the FRB for fiscal services provided, and to the financial 

institutions for services provided as financial agents of the U.S. government. They also include appropriations provided to 

make other disbursements on behalf of the U.S. government, including payments made to various parties as a result of 

certain claims and judgments rendered against the U.S. 

U. INCOME TAXES

As an agency of the U.S. government, we are exempt from all income taxes imposed by any governing body, whether it is a 

federal, state, commonwealth, local, or foreign government. 
DEPARTMENT OF THE TREASURY 71 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

V. USE OF ESTIMATES

We have made certain estimates and assumptions relating to the reporting of assets, liabilities, revenues, expenses, and the

disclosure of contingent liabilities to prepare our financial statements. Actual results may differ from these estimates. 

Adverse changes in the outlook for the key assumptions underlying management’s estimates may materially affect the 

results of our operations, cash flows and/or our financial position in future periods. Transactions subject to estimates 

principally include loan and credit program receivables, credit reform subsidy costs, investments in GSEs and other nonfederal securities and related impairment, tax receivables, loan guarantees, depreciation, actuarial liabilities, cost and 

earned revenue allocations, as well as contingencies and any related recognized liabilities. The following is a discussion of 

certain significant transactions subject to estimation.

We account for all of our credit program receivables in accordance with credit reform accounting (refer to the accounting 

policy above entitled “Credit Program Receivables, Net” and Note 9). These receivables are derived using credit reform 

modeling, which is subject to the use of estimates and forecasts that have inherent uncertainty. We recognize the sensitivity 

of credit reform modeling to slight changes in certain model assumptions such as general economic conditions, specific stock 

price volatility of the entities in which we have an equity interest, estimates of expected default, and prepayment rates. 

We use regular review of model factors, statistical modeling, and annual re-estimates to reflect the most accurate cost of the 

credit programs to the U.S. government. The purpose of re-estimates is to update original program subsidy cost estimates to 

reflect actual cash flow experience as well as changes in forecasts of future cash flows. We update forecasts of future cash 

flows based on actual program performance to date, additional information about the portfolio, additional publicly available 

relevant historical market data on securities performance, revised expectations for future economic conditions, and 

enhancements to cash flow projection methods. 

We perform annual calculations, as of September 30, to assess our need for recording an estimated liability in accordance 

with SFFAS No. 5 related to our funding commitment to the GSEs under the SPSPAs. Liability recognition is predicated on 

the probable future occurrence of an excess of liabilities and minimum capital reserve amounts, as defined, over the assets of 

either GSE at the end of any reporting quarter. The occurrence of future GSE deficits, which ultimately determines our

liability to the GSEs, is most sensitive to future changes in the housing price index and, to a lesser extent, future changes in 

guarantee fees received by the GSEs on single family mortgages and interest rates. 

The annual valuation as of September 30 of the preferred stock and warrants comprising the “Investments in Government 

Sponsored Enterprises” line item on the Consolidated Balance Sheets incorporates various forecasts, projections and cash 

flow analyses to develop an estimate of the assets’ fair value. The value of the senior preferred stock is estimated by first 

estimating the fair value of the total equity of each GSE (which, in addition to the senior preferred stock, is comprised of 

other equity instruments including common stock, common stock warrants, and junior preferred stock). The fair value of the 

total equity is based on a discounted cash flow valuation methodology, whereby the primary input is the present value of the 

projected quarterly dividend payments. The fair value of the GSEs’ other equity instruments is then deducted from its total 

equity, with the remainder representing the fair value of the senior preferred stock. The primary input into the warrants 

valuation is the market value of the shares of common stock of the GSEs which, along with the junior preferred stock, are 

traded on the over-the-counter (OTC) Bulletin Board. We evaluate the need for adjusting our OTC market-based valuation 

of the warrants for the effects, if any, of significant events occurring after the close of the market but before the end of the 

measurement date. We record any changes in valuation, including impairment, and disclose changes in accordance with 

SFFAS No. 7, Accounting for Revenue and Other Financing Sources and Concepts for Reconciling Budgetary and Financial 

Accounting, as amended. Since the valuation is an annual process, we deem changes in valuation of the preferred stock and 
72 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

warrants as usual and recurring. Note 10 includes a detailed discussion of the results of the asset valuation and estimated 

liability assessment. 

Estimation of such complex and long-duration receivables, investments, and contingencies is subject to uncertainty. It is 

possible that new developments will adversely impact the value of receivables, investments, and contingencies, as well as 

ultimate amounts we are required to fund. Except as expressly noted herein, we have not revalued or included in our 

estimates as of September 30, 2017 the effects of any new developments that may have occurred subsequent to September 

30, 2017. Refer to the accounting policy entitled “Pension Costs, Other Retirement Benefits, and Other Post-Employment 

Benefits” above and Note 8 for additional discussion related to the estimation of actuarial liabilities and tax receivables, 

respectively.

W. OTHER-THAN-TEMPORARY IMPAIRMENTS

A decline in the market value (either due to credit, price, or currency) of any investment below cost that is deemed to be 

other-than-temporary is accounted for as an impairment, and the carrying value is reduced to fair value for financial 

reporting purposes. To determine whether an impairment is other-than-temporary, we consider whether we have the ability 

and intent to hold the investment until a market price recovery, and consider whether evidence indicating the cost of the 

investment is recoverable outweighs evidence to the contrary. 

X. CREDIT, MARKET AND FOREIGN CURRENCY RISK

Credit risk is the potential, no matter how remote, for financial loss from a failure of a borrower or counterparty to perform 

in accordance with underlying contractual obligations. We take on possible credit risk when we make direct loans or 

guarantees to non-federal entities, provide credits to foreign entities, or become exposed to institutions which engage in 

financial transactions with foreign countries (refer to Note 12). Our following programs entail credit risk: monetary assets 

held; committed but undisbursed direct loans; funding commitment to the GSEs; GSE obligations obtained under the HFA 

initiative (the New Issue Bond Program); investments, loans, and other credit programs including the CDFI Fund programs, 

SBLF, and TARP. 

Our activities generally focus on the underlying problems in the credit markets. We developed these programs to provide 

credit where borrowers are not able to get access to credit with reasonable terms and conditions. Because these programs 

attempt to correct for a market imperfection, it can expose us to potential costs and losses. Additional risk of costs and losses 

could result from terrorist attacks under the Terrorism Risk Insurance Program. The extent of the risk we assumed is 

described in more detail in the notes to the financial statements and, where applicable, is factored into credit reform models 

and reflected in fair value measurements (refer to Notes 9, 10, and 26). 

For Emergency Economic Stabilization Act (EESA) programs, the statute requires calculation of budgetary costs of the 

troubled assets and guarantees of troubled assets by adjusting the discount rate for market risks. We adjust our cost 

estimates for the TARP programs based on a MADR to reflect the additional return required by the market to compensate 

for variability around the expected losses reflected in the cash flows. Consistent with SFFAS No. 2, market risk relative to 

asset type is factored in the cash flow estimates. The inclusion of the MADR is the mechanism for deriving a fair value of the 

assets. 

We face certain risks and uncertainties as a result of holding securities denominated in foreign currency. The price of 

holdings of such securities may widely fluctuate as a result of volatility in foreign currency markets and changes in real and 

perceived credit risk of our counterparties. 
DEPARTMENT OF THE TREASURY 73 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Y. FUNDS FROM DEDICATED COLLECTIONS

We account for revenues and other financing sources for funds from dedicated collections (FDC) separately from other funds. 

Such funds are financed by specifically identified revenues provided to the U.S. government by non-federal sources, often 

supplemented by federal and other financing sources, which remain available over time. Statute requires use of these 

specifically identified revenues and other financing sources for designated activities, benefits, or purposes. We apply the 

following criteria for purposes of designating funds as dedicated collections: (i) a statute committing the U.S. government to 

use specifically identified revenues and/or other financing sources that are originally provided to the U.S. government by a 

non-federal source only for designated activities, benefits, or purposes; (ii) explicit authority for the fund to retain revenues 

and/or other financing sources not used in the current period for future use to finance the designated activities, benefits, or 

purposes; (iii) a requirement to account for and report on the receipt, use, and retention of the revenues and/or other 

financing sources that distinguishes the fund from the U.S. government’s general revenues; and (iv) for funds comprised of 

both federal and non-federal sources, such funding is predominantly non-federal, or the non-federal funding is material to 

our financial statements. 

Z. ALLOCATION TRANSFERS

We are a party to allocation transfers with other federal agencies as both a transferring (parent) entity and/or a receiving 

(child) entity. Allocation transfers are legal delegations by one department of its authority to obligate budget authority and 

outlay funds to another department. A separate fund account (allocation account) is created in Treasury as a subset of the 

parent fund account for tracking and reporting purposes. All allocation transfers of balances are credited to this account, 

and subsequent obligations and outlays incurred by the child entity are charged to this allocation account as they execute the 

delegated activity on behalf of the parent. Parent federal agencies report both the proprietary and budgetary activity and 

the child agency does not report any financial activity related to budget authority allocated from the parent federal agency to 

the child federal agency. However, OMB guidance requires the child to report the activity when we receive allocation 

transfers, as the child, from the Executive Office of the President (See Circular No. A-136, II.4.2, question 5 for two 

exceptions). 

We allocate funds, as the parent, to the Department of Energy and HHS. Also, we receive allocation transfers, as the child, 

from the Agency for International Development, HHS, Department of Transportation, Executive Office of the President, and 

GSA. 

AA. FIDUCIARY ACTIVITIES

Fiduciary activities are the collection or receipt, and the management, protection, accounting, investment, and disposition by 

the U.S. government of cash or other assets in which non-federal individuals or entities have an ownership interest that the 

U.S. government must uphold. Fiduciary cash and other assets are not assets of the U.S. government. We do not report 

these activities in our consolidated financial statements, but instead are reported in Note 25. 
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FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

AB. RELATED PARTIES AND OTHER ENTITIES

The primary related parties with whom we conduct business are other federal agencies, mainly through the normal lending 

activities of the Fiscal Service and the FFB. We disclose these activities in the consolidated financial statements. 

Additionally, the Secretary serves on the Federal Housing Finance Oversight Board, and consults with the Director of FHFA 

on matters involving Fannie Mae and Freddie Mac. This provides us with an advisory role in the FHFA’s actions as the 

conservator for Fannie Mae and Freddie Mac. We have no transactions with FHFA, but rather transact directly with the 

GSEs. We also utilize the services of the FRBs to execute a variety of transactions on behalf of the Fiscal Service and the 

ESF. Due to the magnitude and variety of services provided, the following provides an overview of the FRBs’ purpose, 

governance, and the various services provided on our behalf. 

Federal Reserve System

Congress, under the Federal Reserve Act of 1913, created the FR System. The FR System consists of the Federal Reserve 

Board of Governors (Board), the Federal Open Market Committee (FOMC), and the FRBs. Collectively, the FR System 

serves as the nation’s central bank and is responsible for formulating and conducting monetary policy, issuing and 

distributing currency (Federal Reserve Notes), supervising and regulating financial institutions, providing nationwide 

payments systems (including large-dollar transfers of funds, automated clearinghouse [ACH] operations, and check 

collection), providing certain financial services to federal agencies and fiscal principals, and serving as the U.S. government’s 

bank. Monetary policy includes actions undertaken by the FR System that influence the availability and cost of money and 

credit as a means of helping to promote national economic goals. The FR System also conducts operations in foreign markets 

in order to counter disorderly conditions in exchange markets or to meet other needs specified by the FOMC to carry out its 

central bank responsibilities. The FR System is not included in the federal budget. The FR System is considered an 

independent central bank, and the executive branch of the U.S. government does not ratify its decisions. 

We interact with the FRBs in a variety of ways, including the following:

• The FRBs serve as our fiscal agent and depositary, executing banking and other financial transactions on our behalf

(refer to Note 5). We reimburse the FRBs for these services, the cost of which is included on the Consolidated 

Statements of Net Costs. 

• The FRBs hold Treasury and other federal securities in the FRBs’ System Open Market Account (SOMA) for the purpose 

of conducting monetary policy (refer to Note 15). 

• The FRBs hold gold certificates issued by the Department in which the certificates are collateralized by gold (refer to 

Note 6). 

• The FRBs hold SDR certificates issued by the Department which are collateralized by SDRs (refer to Notes 5 and 7). 

• The FRBs are required by Board policy to transfer their excess earnings to us on behalf of the U.S. government (refer to 

Notes 8 and 22). 

We also consult with the FR System on matters affecting the economy and certain financial stabilization activities. We 

account for and disclose the above financial activities involving us in our consolidated financial statements. In accordance 

with SFFAC No. 2, we do not consolidate the FR Systems’ assets, liabilities, and operations into our financial statements.
DEPARTMENT OF THE TREASURY 75 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Federal Reserve System Structure 

The Board is an independent regulatory organization governed by seven members appointed by the President and confirmed 

by the Senate. The full term of a Board member is 14 years, and the appointments are staggered so that one term expires on 

January 31 of each even-numbered year. The Board has a number of supervisory and regulatory responsibilities for 

institutions including, among others, state-chartered banks that are members of the FR System, bank holding companies, 

and savings and loan holding companies. In addition, the Board has general supervisory responsibilities for the 12 FRBs, 

and issues currency (Federal Reserve Notes) to the FRBs for distribution. 

The FOMC is comprised of the seven Board members and five of the 12 FRB presidents. FOMC formulates and conducts 

monetary policy primarily through open market operations (the purchase and sale of certain securities in the open market), 

the principal tool of national monetary policy. These operations affect the amount of reserve balances available to depository 

institutions, thereby influencing overall monetary and credit conditions. The 12 FRBs are chartered under the Federal 

Reserve Act, which requires each member bank to own the capital stock of its FRB. Each FRB has a board of directors that 

exercises supervision and control of each FRB, with three members appointed by the Board, and six board members elected 

by their member banks. 

The FRBs participate in formulating and conducting monetary policy, distribute currency and coin, and serve as our fiscal 

agent, as well as the fiscal agent for other federal agencies and fiscal principals. Additionally, the FRBs provide short-term 

loans to depository institutions and loans to participants in programs or facilities with broad-based eligibility in unusual and 

crucial circumstances when approved by the Board and Secretary of the Treasury. 

Federal Reserve System Assets and Liabilities

The FRBs hold Treasury and other securities in the SOMA for the purpose of conducting monetary policy. Treasury 

securities held by the FRBs totaled $2.0 trillion and $1.8 trillion as of September 30, 2017 and 2016, respectively (refer to 

Note 15). These assets are generally subject to the same market (principally interest-rate) and credit risks as other financial 

instruments. In the open market, the FR System purchases and sells Treasury securities as a mechanism for controlling the 

money supply. 

The FRBs have deposit liabilities with Treasury and depository institutions. The FRBs issue Federal Reserve Notes, the 

circulating currency of the U.S., which are collateralized by the Treasury securities and other assets held by the FRBs. 

Financial and other information concerning the FR System, including financial statements for the Board and the FRBs, may 

be obtained from the FR System website.
76 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

FRB Residual Earnings Transferred to the Department 

FRBs generate income from interest earned on securities, reimbursable services provided to federal agencies, and the 

provision of priced services to depository institutions as specified by the Monetary Control Act of 1980. Although the FRBs 

generate earnings from carrying out open market operations, via the earnings on securities held in the SOMA account, their 

execution of these operations is for the purpose of accomplishing monetary policy rather than generating earnings. Each 

FRB is required by Board policy to transfer to us its residual (or excess) earnings after providing for the cost of operations, 

payment of dividends, and surplus funds not to exceed an FRB’s allocated portion of an aggregate of $10 billion for all FRBs, 

in accordance with the provisions of Fixing America’s Surface Transportation Act (P.L. 114-94). 

FRBs’ residual earnings may vary due to, among other things, changes in the SOMA balance levels that may occur in 

conducting monetary policy. Under P.L. 114-94, if an FRB’s earnings for the year are not sufficient to provide for the cost of 

operations, payment of dividends, or allocated portion of the $10 billion aggregate surplus funds limitation, an FRB will 

suspend its payments to us until such earnings become sufficient. The FRB residual earnings of $81.3 billion and $115.7 

billion for fiscal years ended September 30, 2017 and 2016, respectively, are reported as custodial revenues on our

Statements of Custodial Activity. They constituted 2.3 percent and 3.3 percent of our total custodial revenues collected in FY 

2017 and 2016, respectively. “Taxes, Interest and Other Receivables, Net” includes a receivable for FRB’s residual earnings 

which represents the earnings due to us as of September 30, but not collected by us until after the end of the month (refer to 

Note 8). 
DEPARTMENT OF THE TREASURY 77 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

2. FUND BALANCE 

As of September 30, 2017 and 2016, Fund Balance consisted of the following:

(in millions) 2017 2016

Appropriated Funds $ 422,556 $ 431,008

Revolving Funds 1,743 2,277

Special Funds 985 783

Clearing Funds 554 689

Deposit Funds 67 78

Other Funds (principally Receipt, Suspense, and Trust Funds) 491 411

Total Fund Balance $ 426,396 $ 435,246

Appropriated funds consist of amounts appropriated annually by Congress to fund our operations. 

We use revolving funds for continuing cycles of business-like activity in which the fund charges for the sale of products or 

services and uses the proceeds to finance its spending, usually without requirement for annual appropriations. A public 

enterprise revolving fund is an account that is authorized by law to be credited with offsetting collections from the public, 

and those monies are used to finance operations. Also included in revolving funds are the working capital fund and 

financing funds. The working capital fund is a fee-for-service fund established to support operations of our components. The 

financing funds relate to credit reform activities.

Special funds include funds designated for specific purposes. Clearing funds represent reconciling differences with our

balances as reported in the U.S. government’s central accounts. These fund accounts temporarily hold unidentifiable 

general, special, or trust fund collections that belong to the U.S. government until they are classified to the proper receipt or 

expenditure account by the federal entity. Deposit funds are accounts that record amounts held temporarily by the U.S. 

government until ownership is determined, and include seized cash and other amounts received as an advance that are not 

accompanied by an order. 

STATUS OF FUND BALANCE 

As of September 30, 2017 and 2016, the status of the fund balance consisted of the following: 

(in millions) 2017 2016

Unobligated Balance - Available $ 275,698 $ 275,595

Unobligated Balance - Not Available 40,750 41,614

Unpaid Obligations 71,570 75,617

Subtotal 388,018 392,826

Adjustment for ESF (94,659) (94,273)

Adjustment for Intra-Treasury Investments (9,354) (9,347)

Adjustment for Borrowing Authority (6,600) (6,520)

Adjustment for IMF 134,785 138,373

Adjustment for Authority Unavailable for Obligations 12,099 12,091

Other Adjustments 2,107 2,096

Total Status of Fund Balance $ 426,396 $ 435,246
78 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Portions of the Unobligated Balance Not Available, as shown on the Combined Statement of Budgetary Resources, include 

amounts appropriated in prior fiscal years that are not available to fund new obligations. However, we may use such 

amounts for upward and downward adjustments for existing obligations in future years. The Unpaid Obligations represent 

amounts designated for payment of goods and services ordered but not received, or goods and services received but for which 

payment has not yet been made. 

Since the following line items are either a component of Fund Balance or post to budgetary status accounts, the following 

adjustments are required to reconcile the budgetary status to the non-budgetary Fund Balance as reported on the 

Consolidated Balance Sheets:

• Adjustments for ESF – ESF investments in Treasury securities (which are eliminated on the Consolidated Balance 

Sheets), foreign investments, SDR holdings, and related balances that meet the criteria for reporting as part of 

budgetary resources are reported on the Combined Statements of Budgetary Resources; however, they are not a 

component of the Fund Balance as they represent invested funds; 

• Adjustments for Intra-Treasury Investments – Budgetary resources include Treasury security investments; however, we 

have moved the money from the Fund Balance to Investments, which we eliminate on the Consolidated Balance Sheets; 

• Adjustments for Borrowing Authority – Borrowing authority is in budgetary status reported on the Combined 

Statements of Budgetary Resources but not in the Fund Balance because we have not received the amounts; 

• Adjustments for IMF – The funding received through appropriation warrants for IMF is reported as a component of 

Fund Balance; however, the IMF transactions are not reported as budgetary resources and uses on the Combined 

Statements of Budgetary Resources (refer to Note 7); and 

• Adjustment for Authority Unavailable for Obligations – Resources unavailable for obligations reduced the budgetary 

resources reported on the Combined Statements of Budgetary Resources; however, they do not impact the Fund Balance. 

As of September 30, 2017 and 2016, we had no budgetary authority in the Fund Balance that was specifically withheld from 

apportionment by the OMB. We hold balances in non-entity funds, such as certain deposit funds (e.g., seized cash), for the 

public or for another federal entity, such as the General Fund. Such funds have an offsetting liability equal to the Fund 

Balance. Refer to Note 7 regarding restrictions related to the line of credit held on the U.S. quota in the IMF. 
DEPARTMENT OF THE TREASURY 79 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

3. LOANS AND INTEREST RECEIVABLE – INTRA-GOVERNMENTAL 

ENTITY INTRA-GOVERNMENTAL

Through FFB, we issue loans to federal agencies for the agencies’ own use or for the agencies to loan to private sector 

borrowers whose loans are guaranteed by the federal agencies. FFB is a wholly-owned Government corporation that 

operates under the general supervision of the Secretary, and has its own broad statutory authority to finance any obligations 

that are issued, sold, or guaranteed by federal agencies. For agencies that have the statutory authority to borrow in the 

market, but not from Treasury through the Fiscal Service (refer to the Non-Entity Intra-Governmental section below), FFB 

uses its statutory authority to make these loans directly to federal agencies. 

FFB also uses its statutory authority to finance direct or indirect federally-guaranteed obligations which, as a matter of longstanding federal credit policy, is the least expensive and most efficient method of financing these credit-risk obligations when 

compared to private sector lender financing. When a federal agency has to honor its guarantee because a private-sector 

borrower defaults, the federal agency that guaranteed the loan must obtain an appropriation or use other resources to repay 

FFB. 

All principal and interest on FFB loans to federal agencies and private-sector borrowers are, or have a commitment to be, 

backed by the full faith and credit of the U.S. government. Accordingly, we have not recognized any credit-related losses on 

its loans, nor have we recorded an allowance for uncollectible intra-governmental loans. 

As of September 30, 2017 and 2016, entity intra-governmental loans (issued by FFB) and interest receivable consisted of the 

following: 

Loans Interest 2017 Loans Interest 2016

(in millions) Receivable Receivable Total Receivable Receivable Total

Department of Agriculture $ 45,080 $ 353 $ 45,433 $ 43,339 $ 25 $ 43,364

United States Postal Service(1) 15,000 53 15,053 15,000 61 15,061

Department of Energy 14,448 70 14,518 15,616 70 15,686

Department of Education 1,563 13 1,576 1,442 12 1,454

Department of Housing & Urban

 Development 1,193 3 1,196 554 1 555

Other Agencies 4 - 4 3 - 3

Total Entity Intra-governmental $ 77,288 $ 492 $ 77,780 $ 75,954 $ 169 $ 76,123

(1) The United States Postal Service (USPS) experienced an operating deficit in both FY 2017 and FY 2016.

We, along with Congress and other stakeholders are aware of the current and long-term financial issues

of the USPS. Congress is considering legislative solutions for returning the USPS to financial stability. 
80 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

NON-ENTITY INTRA-GOVERNMENTAL 

Through the Fiscal Service, we account for and report on the principal borrowings from and repayments to the General Fund 

for various funds managed by other federal agencies, as well as the related interest due to the General Fund. These federal 

agencies are statutorily authorized to borrow from the General Fund, through the Fiscal Service, to make loans for a broad 

range of purposes, such as education, housing, farming, and small business support. 

As of September 30, 2017 and 2016, non-entity intra-governmental loans (issued by the Fiscal Service) and interest 

receivable that were due to the General Fund consisted of the following: 

Loans Interest 2017 Loans Interest 2016

(in millions) Receivable Receivable Total Receivable Receivable Total

Department of Education $ 1,178,495 $ - $ 1,178,495 $ 1,126,370 $ - $ 1,126,370

Department of Agriculture 69,987 - 69,987 75,627 - 75,627

Department of Homeland Security 30,440 - 30,440 23,017 - 23,017

Department of Housing and Urban

 Development 28,082 - 28,082 30,447 - 30,447

Export Import Bank of the U.S. 24,645 - 24,645 25,022 - 25,022

Department of Transportation 14,298 - 14,298 10,868 - 10,868

Small Business Administration 7,693 - 7,693 8,020 - 8,020

Department of Labor 5,744 - 5,744 5,706 - 5,706

Department of Energy 5,538 30 5,568 5,209 28 5,237

Railroad Retirement Board 3,712 41 3,753 3,577 39 3,616

Overseas Private Investment

 Corporation 3,015 - 3,015 2,491 - 2,491

Executive Office of the President/

 Defense Security Cooperation 

 Agency 2,505 - 2,505 2,499 - 2,499

Department of Defense 1,631 - 1,631 1,631 - 1,631

National Credit Union Administration - - - 1,000 1 1,001

Other Agencies 1,989 - 1,989 2,978 1 2,979

Total Non-Entity Intra-

 governmental $ 1,377,774 $ 71 $ 1,377,845 $ 1,324,462 $ 69 $ 1,324,531

Total Intra-governmental Loans

 and Interest Receivable (Entity 

 and Non-Entity) $ 1,455,062 $ 563 $ 1,455,625 $ 1,400,416 $ 238 $ 1,400,654

As a result of Hurricanes Harvey, Irma, and Maria, Congress enacted the Additional Supplemental Appropriations for 

Disaster Relief Requirements Act of 2017 (Pub. L. 115-72) on October 26, 2017. The Act provides, among other things, debt 

relief for the Federal Emergency Management Agency’s National Flood Insurance Program— an agency of the Department 

of Homeland Security—by cancelling $16.0 billion of the Program’s debt to Treasury. In FY 2018, the debt forgiveness will 

reduce the Department of Homeland Security’s non-entity intra-governmental loans receivable balance shown above.
DEPARTMENT OF THE TREASURY 81 

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4. DUE FROM THE GENERAL FUND AND DUE TO THE GENERAL FUND

The General Fund consists of assets and liabilities used to finance the daily and long-term operations of the U.S government, 

as a whole. It also includes accounts used in the management of the Budget of the U.S. Government. 

We hold and manage General Fund assets, such as loans and interest receivable, cash, and investments in the GSEs on 

behalf of the U.S. government. General Fund assets constitute resources available to meet the operating needs of the U.S. 

government. We report these managed assets separately on the Consolidated Balance Sheets, with a corresponding amount 

reported as Due To the General Fund that represents a liability to reflect assets we owed to the General Fund. 

General Fund liabilities, primarily federal debt and interest payable and liability for restoration of federal debt principal and 

interest, are obligations of the U.S. government. We report these Department-managed liabilities separately on the 

Consolidated Balance Sheets, with a corresponding amount reported as Due From the General Fund that represents a 

receivable, or future funds required of the General Fund to repay borrowings from the public and other federal agencies. 

As of September 30, 2017 and 2016, the General Fund liabilities we owed exceeded the assets held on behalf of the General 

Fund by $18.6 trillion and $17.8 trillion, respectively. This represents the amount needed by the U.S. government, through 

a combination of future tax collections and/or continued borrowing from the public and federal agencies to meet its 

obligations.

As of September 30, 2017 and 2016, Due From the General Fund included the following non-entity liabilities: 

Liabilities Requiring Funding from the General Fund (in millions) 2017 2016

Federal Debt and Interest Payable - Held by the Public (Note 15) $ 14,699,687 $ 14,196,734

Federal Debt and Interest Payable - Intra-governmental (Note 15) 5,637,950 5,466,422

Liability for Restoration of Federal Debt Principal and Interest - Intra-

 governmental (Note 15) 660 -

Refunds Payable (Note 22) 3,074 2,993

Adjustment for Eliminated Liabilities 32,406 33,003

Total Due From the General Fund $ 20,373,777 $ 19,699,152

The Adjustment for Eliminated Liabilities principally represents investments in U.S. government securities held by our

reporting entities that were eliminated against Federal Debt and Interest Payable Intra-governmental.
82 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

As of September 30, 2017 and 2016, Due To the General Fund included the following non-entity assets: 

Assets to be Distributed to the General Fund (in millions) 2017 2016

Fund Balance $ 793 $ 694

Loans and Interest Receivable - Intra-governmental (Note 3) 1,377,845 1,324,531

Advances to Trust Funds 9,021 8,558

Cash Due To the General Fund (Held by the Department) (Note 5) 153,475 347,077

Accounts Receivable - Intra-governmental 790 377

Foreign Currency 152 118

Custodial Gold without Certificates and Silver Held by the Mint 25 25

Taxes and Other Non-Entity Receivables Due To the General Fund 53,341 50,201

Credit Reform Downward Subsidy Re-estimates 120 152

Loans and Interest Receivable 8 8

Investments in Government Sponsored Enterprises (Note 10) 92,640 108,550

Adjustment for Eliminated Assets 66,847 66,332

Total Due To the General Fund $ 1,755,057 $ 1,906,623

The assets to be distributed to the General Fund do not represent all of the non-entity assets we manage. Refer to Note 14 for all 

of our non-entity assets held.

The Fund Balance reported above represents the non-entity funds we hold on behalf of the General Fund. It is used to 

administer programs such as the Presidential Election Campaign and payments for Legal Services Corporation and thus not 

available for our general use. 

The Advances to Trust Funds consists of Advances to the Unemployment Trust Fund and Advances to the Federal 

Supplementary Medical Insurance Trust Fund. The General Fund issues advances to the DOL’s Unemployment Trust Fund 

to disburse to states for unemployment benefits. We transfer DOL’s repayment of these advances to the General Fund. 

The Bipartisan Budget Act of 2015 (P.L. 114-74) authorized a transfer from the General Fund to HHS’ Federal 

Supplementary Medical Insurance Trust Fund to temporarily replace the reduction in Medicare Part B participants’ 

premiums. We transfer HHS’s repayment of these advances to the General Fund. Beginning in FY 2017, we commenced 

reporting this balance within the line item entitled “Advances to Trust Funds” on our Consolidated Balance Sheet, with an 

offsetting liability due to the General Fund. 

Taxes and Other Non-Entity Receivables Due To the General Fund primarily represents IRS-related federal taxes receivable 

(refer to Note 8).

The Adjustment for Eliminated Assets principally represents loans and interest payable owed by our Treasury reporting 

entities, which were eliminated against Loans and Interest Receivable Intra-governmental held by the Fiscal Service.
DEPARTMENT OF THE TREASURY 83 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

5. CASH, FOREIGN CURRENCY, AND OTHER MONETARY ASSETS

Cash, Foreign Currency, and Other Monetary Assets held as of September 30, 2017 and 2016 were as follows: 

(in millions) 2017 2016

Entity:

Cash $ 27 $ 32

Foreign Currency and Foreign Currency Denominated Assets 12,651 11,756

Other Monetary Assets:

 Special Drawing Right Holdings 51,491 50,057

 U.S. Dollars Held in Cash by the IMF 308 309

Total Entity 64,477 62,154

Non-Entity:

Operating Cash of the U.S. government 153,323 346,956

Foreign Currency 152 118

Miscellaneous Cash Held by All Treasury Reporting Entities 878 870

Total Non-Entity 154,353 347,944

Total Cash, Foreign Currency, and Other Monetary Assets $ 218,830 $ 410,098

We hold non-entity operating and other miscellaneous cash due to the General Fund which consisted of the following as of 

September 30, 2017 and 2016: 

(in millions) 2017 2016

Operating Cash - FRB Account $ 159,322 $ 353,312

Outstanding Checks (5,999) (6,356)

Total Operating Cash of the U.S. government 153,323 346,956

Miscellaneous Cash 154 127

Subtotal 153,477 347,083

Amounts Due to the Public (2) (6)

Total Cash Due to the General Fund (Note 4) $ 153,475 $ 347,077

ENTITY

Entity cash, foreign currency, and other monetary assets principally include foreign currency, foreign currency denominated 

assets (FCDAs), and SDRs. These assets are valued as of September 30, 2017 and 2016 using current exchange rates plus 

accrued interest. 

Foreign Currency and Foreign Currency Denominated Assets 

Foreign currency and FCDAs represent foreign deposit accounts and securities with original maturities of three months or 

less which were valued at $12.7 billion and $11.8 billion as of September 30, 2017 and 2016, respectively. 

Special Drawing Rights

The SDR is an international reserve asset created by the IMF to supplement existing reserve assets. The IMF has allocated 

new SDRs on several occasions to members participating in the IMF’s SDR department. The SDR derives its value as a 

reserve asset essentially from the commitments of participants to hold and accept SDRs and to honor various obligations 

connected with their proper functioning as a reserve asset. Pursuant to the Special Drawing Rights Act of 1968, as 

amended, we issued certificates to the Federal Reserve, valued at $5.2 billion which were reported as a liability on the 
84 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Consolidated Balance Sheets as of September 30, 2017 and 2016. The certificates were issued to finance the ESF’s 

acquisition of SDRs from other countries or to provide U.S. dollar resources for financing other ESF operations. 

On a daily basis, the IMF calculates the value of the SDR using the currency exchange rate in terms of the U.S. dollar from 

weighted amounts of each of five freely usable currencies, as defined by the IMF. These currencies are the U.S. dollar, the 

European euro, the Japanese yen, the British pound sterling, and the Chinese renminbi. We revalue the U.S. SDR holdings 

and allocations from the IMF monthly based on the SDR valuation rate calculated by the IMF.

Pursuant to the IMF Articles of Agreement, SDR holdings and allocations acquired by the U.S. are permanent resources or 

liabilities unless:

• cancelled by the Board of Governors pursuant to an 85.0 percent majority decision of the total voting power of IMF 

members;

• the SDR department of the IMF is liquidated;

• the IMF is liquidated; or

• the U.S. chooses to withdraw from the IMF or terminate its participation in the SDR department

Except for the payment of interest and charges on SDR allocations to the U.S., the payment of the U.S. commitment related 

to SDR allocations is conditional on events listed above, in which the U.S. has a substantial or controlling voice. The U.S.

has received no SDR allocations since 2009.

As of September 30, 2017 and 2016, the total amount of SDR holdings of the U.S. was the equivalent of $51.5 billion and 

$50.1 billion, respectively. As of September 30, 2017 and 2016, the total value of SDR allocations to the U.S. was the 

equivalent of $49.9 billion and $49.3 billion, respectively.

NON-ENTITY

We manage the non-entity cash, foreign currency, and other monetary assets which principally included Operating Cash of 

the U.S. government. Also included is foreign currency maintained by various U.S. disbursing offices, miscellaneous cash 

such as seized monetary instruments, undistributed cash, and offers in compromises which are maintained as a result of our

tax collecting responsibilities. The Operating Cash of the U.S. government represents balances from tax collections, other 

revenues, federal debt receipts, and other receipts, net of checks outstanding, which are held in the FRBNY. 
DEPARTMENT OF THE TREASURY 85 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

6. GOLD AND SILVER RESERVES, AND GOLD CERTIFICATES ISSUED TO 

THE FEDERAL RESERVE BANKS

Through the Mint, we are responsible for safeguarding most of the U.S. government’s gold and all of the silver reserves in 

accordance with 31 USC 5117; a smaller portion of the gold is in the custody of the FRBs. 

The gold reserves we hold are partially offset by a liability for gold certificates issued by the Secretary to the FRBs at the 

statutory rate, as provided in 31 USC 5117. Since 1934, Gold Certificates have been issued in non-definitive or book-entry 

form to the FRBs. Our liability incurred by issuing the Gold Certificates, as reported on the Consolidated Balance Sheets, is 

limited to the gold we hold at the statutory value. Upon issuance of Gold Certificates to the FRBs, we deposit the proceeds 

from the certificates into the operating cash of the U.S. government. All of our certificates issued are payable to the FRBs. 

The Mint also holds 100,000 fine troy ounces (FTO) ($4 million at the statutory carrying value) of gold reserves without 

certificates. 

The gold and silver bullion reserve (deep storage and working stock) are reported on the consolidated financial statements at 

the values stated in 31 USC 5116 – 5117 (statutory rates) which are $42.2222 per FTO of gold and no less than 

$1.292929292 per FTO of silver. Accordingly, the silver is valued at $1.292929292 per FTO. The market values of the gold 

and silver reserves disclosed below are based on the London Gold Fixing. As of September 30, 2017 and 2016, the values of 

gold and silver reserves consisted of the following:

2017

Statutory 2017

Carrying Market Market

Statutory Value Rate Per Value

 FTOs Rate (in millions) FTO (in millions)

Gold 248,046,116 $ 42.2222 $ 10,473 $ 1,283.10 $ 318,268

Gold Held by Federal Reserve Banks 13,452,811 $ 42.2222 568 $ 1,283.10 17,261

Total Gold 261,498,927 11,041 335,529

Silver 16,000,000 $ 1.2929 21 $ 16.86 270

Total Gold and Silver Reserves $ 11,062 $ 335,799

2016

Statutory 2016

Carrying Market Market

Statutory Value Rate Per Value

 FTOs Rate (in millions) FTO (in millions)

Gold 248,046,116 $ 42.2222 $ 10,473 $ 1,322.50 $ 328,041

Gold Held by Federal Reserve Banks 13,452,811 $ 42.2222 568 $ 1,322.50 17,791

Total Gold 261,498,927 11,041 345,832

Silver 16,000,000 $ 1.2929 21 $ 19.35 310

Total Gold and Silver Reserves $ 11,062 $ 346,142
86 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

7. RESERVE POSITION IN THE INTERNATIONAL MONETARY FUND AND 

RELATED LOANS AND INTEREST RECEIVABLE

The U.S. participates in the IMF through a quota subscription and certain borrowing arrangements that supplement IMF 

resources. 

As a result of the Consolidated Appropriations Act, 2016 (P.L. 114-113) we obtained appropriation warrants to cover the full 

amount of the commitment made to the IMF and received current indefinite authority to maintain the U.S. dollar equivalent 

of the SDR funding commitment levels. The IMF transactions—other than related interest earnings and cost estimates for 

U.S. quota and New Arrangements to Borrow (NAB) adjustments—are not reported as budgetary resources and uses on our 

Combined Statement of Budgetary Resources. 

RESERVE POSITION IN THE INTERNATIONAL MONETARY FUND

We pay quota subscriptions partly through the transfer of reserve assets, such as foreign currencies or SDRs, which are 

international reserve assets created by the IMF, and partly by making domestic currency available as needed through a noninterest-bearing letter of credit. This letter of credit, issued by us and maintained by the FRBNY, represents our available 

commitment to the IMF which may be drawn upon by the IMF. 

Transfers to the IMF under the U.S. quota do not result in net budgetary outlays as they constitute an exchange of monetary 

assets in which the U.S. receives an equal offsetting claim on the IMF in the form of an increase in the U.S. reserve position 

in the IMF. Similarly, when the IMF repays dollars to the U.S., no net budgetary receipt results because the U.S. reserve 

position declines concurrently in an equal amount. The U.S. reserve position is an interest-bearing asset like other 

international reserve assets held by the U.S., and is available at any time to meet U.S. funding needs.

The U.S. quota is denominated in SDRs. As of September 30, 2017 and 2016, the U.S. quota in the IMF was SDR 83.0 

billion. The equivalent U.S. dollar value of the U.S. quota consisted of the following: 

(in millions) 2017 2016

Letter of Credit (1) $ 105,627 $ 106,116

Reserve Position (2) 11,509 9,570

Total U.S. Quota in the IMF $ 117,136 $ 115,686

(1) Letter of Credit amounts are included as part of the “Fund Balance” as reported on the Consolidated Balance Sheets and “Appropriated 

Funds” as disclosed in Note 2. Amounts also include approximately 0.25 percent of the U.S. quota held in cash in an IMF account at 

the FRBNY. 

(2) The Reserve Position amounts are reported as “Reserve Position in the IMF” on the Consolidated Balance Sheets. 

Fluctuations in the value of the U.S. dollar with respect to the SDR result in valuation changes in dollar terms for the U.S. 

quota. We periodically adjust this balance to maintain the SDR value of the U.S. quota as required by the IMF Articles of 

Agreement. As of September 30, 2017 and 2016, the U.S. quota reflects a net upward adjustment in value of $1.5 billion and 

a net downward adjustment in value of $648 million, respectively, due to the depreciation and appreciation of the U.S. dollar 

against the SDR, respectively. 

LOANS AND INTEREST RECEIVABLE

In addition to quota subscriptions, the IMF maintains borrowing arrangements to supplement its resources in order to 

forestall or cope with an impairment of the international monetary system when IMF liquidity is low. The U.S. has the 

authority to participate in two such arrangements – the NAB and the General Arrangements to Borrow (GAB). When the 
DEPARTMENT OF THE TREASURY 87 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

U.S. transfers funds to the IMF under these supplemental borrowing arrangements, the U.S. receives in exchange a liquid 

and interest-bearing claim on the IMF. As of September 30, 2017 and 2016, the IMF had not utilized the GAB.

In accordance with P.L. 114-113, the NAB participation as of September 30, 2017 and 2016 was SDR 28.2 billion, which was 

equivalent to $39.9 billion and $39.4 billion respectively. As of September 30, 2017 and 2016, under the U.S. NAB 

arrangement with the IMF, there was $7.4 billion and $8.6 billion, respectively, of U.S. loans outstanding which were 

reported as “Loans and Interest Receivable” on the Consolidated Balance Sheets. 

8. TAXES, INTEREST, AND OTHER RECEIVABLES, NET

As of September 30, 2017 and 2016, Taxes, Interest, and Other Receivables, Net consisted of the following:

(in millions) 2017 2016

Non-Entity 

Federal Taxes Receivable, Gross $ 197,188 $ 178,181

Less Allowance on Taxes Receivable (145,176) (129,165)

Interest Receivable on FRB Deposits of Earnings 347 376

Other Receivables 1,117 936

Less Allowance on Other Receivables (121) (118)

Total Non-Entity (Note 14) 53,355 50,210

 

Entity 

Miscellaneous Entity Receivables and Related Interest 141 96

Total Taxes, Interest, and Other Receivables, Net $ 53,496 $ 50,306

Federal taxes receivable constitutes the largest portion of these receivables, with IRS-related taxes receivable representing 

the majority of the balance. IRS federal taxes receivable consists of tax assessments, penalties, and interest which were not 

paid or abated, and which were agreed to by either the taxpayer and IRS, or the courts. Federal taxes receivable is reduced 

by an allowance for doubtful accounts which we established to represent an estimate for uncollectible amounts. The portion 

of taxes receivable estimated to be collectible and the allowance for doubtful accounts are based on projections of 

collectability from a statistical sample of taxes receivable (refer to the section entitled Required Supplementary Information 

(unaudited) for additional discussion on IRS Federal Taxes Receivable, Net).

In addition to amounts attributed to taxes, these receivables also include accrued interest income due on funds deposited in 

FRBs. We do not establish an allowance for the receivable on deposits of FRB earnings.
88 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

9. CREDIT PROGRAM RECEIVABLES, NET

We administer a number of programs designed to stabilize the nation’s financial system and restore the flow of credit to 

consumers, businesses, and homeowners. As of September 30, 2017 and 2016, Credit Program Receivables, Net consisted of 

the following:

(in millions) 2017 2016

State and Local Housing Finance Agency Program (GSE sponsored) $ 4,363 $ 5,718

Other (1) 930 1,340

Total $ 5,293 $ 7,058

(1) Includes CDFI, SBLF, and TARP credit program receivables valued at $568 million, $269 million and $93 million, respectively, as of

September 30, 2017, and $401 million, $449 million, and $490 million, respectively, as of September 30, 2016. 

STATE AND LOCAL HOUSING FINANCE AGENCY PROGRAM (GSE SPONSORED) 

Under the Housing and Economic Recovery Act of 2008 (HERA), (P.L. 110-289), we, together with the FHFA, Fannie Mae, 

and Freddie Mac, created a program in October 2009 to provide support to HFAs. The HFA Program is comprised of the 

New Issue Bond Program (NIBP) that is designed to support low mortgage rates and expand resources for low- and middleincome borrowers to purchase or rent homes, making them more affordable over the long term. Under the terms of the 

NIBP, we purchased securities of Fannie Mae and Freddie Mac backed by new mortgage revenue bonds issued by HFAs. As 

of September 30, 2017 and 2016, the HFA net credit program receivable of $4.4 billion and $5.7 billion, respectively, included 

a positive subsidy allowance of $669 million and $791 million, respectively, which reflects our projection that the HFA 

program will result in a net cost to us after accounting for repayments, interest, and fees. 

We performed a financial statement re-estimate of the NIBP program’s cost as of September 30, 2017 and 2016. These reestimates resulted in a downward re-estimate, or a decrease in the cost of the program, of $98 million and $38 million as of 

September 30, 2017 and 2016, respectively. The downward re-estimates in FY 2017 and 2016 were primarily driven by 

higher than estimated principal collections, and a higher prepayment curve used in the projection of future years’ cash flows

as a result of improved economic conditions. 

SUMMARY TABLES

The following tables provide the net composition, subsidy cost, re-estimates, a reconciliation of subsidy cost allowances, and 

the components of the subsidy for each of our credit programs for the fiscal years ended September 30, 2017 and 2016. The 

tables also include budget subsidy rates pertaining only to the cohorts for the fiscal year presented. These rates cannot be 

applied to the direct loans disbursed during the current reporting year to yield the subsidy expense. The subsidy expense for 

new loans reported in 2017 and 2016 could result from disbursements of loans from both current year cohorts and prior 

year(s) cohorts, and also includes modifications and re-estimates. Amounts reported in the line item “Net Credit Program 

Receivables” are not necessarily the same as the proceeds that we would expect to receive from selling these assets. 
DEPARTMENT OF THE TREASURY 89 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

 2017

(in millions) HFA Other(2) TOTAL

Credit Program Receivables, Net: 

 Credit Program Receivables, Gross $ 5,032 $ 973 $ 6,005

 Subsidy Cost Allowance (669) (43) (712)

Net Credit Program Receivables $ 4,363 $ 930 $ 5,293

New Credit Program Loans Disbursed $ - $ 176 $ 176

Obligations for Loans Not Yet Disbursed $ - $ 866 $ 866

 

Reconciliation of Subsidy Cost Allowance: 

 Balance, Beginning $ 791 - 103 - 894

 Subsidy Cost for Disbursements - (3) (3)

 Fees, Interest and Dividend Revenue Received 160 38 198

 Net Proceeds from Sales and Repurchases of Assets 

 Less than Cost - (82) (82)

 Loans Written Off - (13) (13)

 Subsidy Allowance Amortized (1) (184) (34) (218)

Balance, Ending, Before Re-estimates 767 9 776

 Subsidy Re-estimates (98) 34 (64)

Balance, Ending $ 669 $ 43 $ 712

 

Re-estimates 

 Interest on Re-estimate $ (25) $ 1 $ (24)

 Technical/Default Re-estimate (73) 33 (40)

Total Re-estimates – Increase (Decrease) in 

 Subsidy Cost $ (98) $ 34 $ (64)

 

Reconciliation of Subsidy Costs: 

 Subsidy Cost for Disbursements $ - $ (3) $ (3)

 Subsidy Re-estimates (98) 34 (64)

Total Credit Program Receivables Subsidy Costs $ (98) $ 31 $ (67)

Administrative Expense $ 1 $ 8 $ 9

 

 2016

(in millions) HFA Other(3) TOTAL

Credit Program Receivables, Net: 

 Credit Program Receivables, Gross $ 6,509 $ 1,443 $ 7,952

 Subsidy Cost Allowance (791) (103) (894)

Net Credit Program Receivables $ 5,718 $ 1,340 $ 7,058

New Credit Program Loans Disbursed $ - $ 213 $ 213

Obligations for Loans Not Yet Disbursed $ - $ 789 $ 789

 

Reconciliation of Subsidy Cost Allowance: 

 Balance, Beginning $ 865 $ 767 $ 1,632

 Subsidy Cost for Disbursements - (4) (4)

 Subsidy Cost for Modifications - 25 25

 Fees, Interest, and Dividend Revenue Received 212 45 257

 Net Proceeds from Sales, Repurchases, and Repayments 

 of Assets Less than Cost - (37) (37)

 Subsidy Allowance Amortized (1) (248) (47) (295)

 Other - (547) (547)

Balance, Ending, Before Re-estimates 829 202 1,031

 Subsidy Re-estimates (38) (99) (137)

Balance, Ending $ 791 $ 103 $ 894

 

Re-estimates 

 Interest on Re-estimate $ (9) $ (1) $ (10)

 Technical/Default Re-estimate (29) (98) (127)

Total Re-estimates – Increase (Decrease) in 

 Subsidy Cost $ (38) $ (99) $ (137)

 

Reconciliation of Subsidy Costs: 

 Subsidy Cost for Disbursements $ - $ (4) $ (4)

 Subsidy Cost for Modifications - 25 25

 Subsidy Re-estimates (38) (99) (137)

Total Credit Program Receivables Subsidy Costs $ (38) $ (78) $ (116)

Administrative Expense $ 2 $ 9 $ 11

(1) Amount includes net interest income (expense) on borrowings from the Fiscal Service and financing account balance.

(2) CDFI Financial Assistance Direct Loan Program budget subsidy rates for Interest Differential and for Defaults were 1.56% and 9.97%, respectively.

(3) CDFI Financial Assistance Direct Loan Program budget subsidy rates for Interest Differential and for Defaults were 1.66%, and 10.72%, respectively. 
90 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

10. INVESTMENTS IN GOVERNMENT SPONSORED ENTERPRISES

Congress established Fannie Mae and Freddie Mac as GSEs to support mortgage lending. A key function of the GSEs is to 

purchase mortgages, package those mortgages into securities, which are subsequently sold to investors, and guarantee the 

timely payment of principal and interest on these securities. 

Leading up to the financial crisis, increasingly difficult conditions in the housing market challenged the soundness and 

profitability of the GSEs, thereby threatening to undermine the entire housing market. In response, Congress passed HERA 

(P.L. 110-289) in July 2008. This act created FHFA, with enhanced regulatory authority over the GSEs, and provided the 

Secretary with certain authorities intended to ensure the financial stability of the GSEs, if necessary. In September 2008, 

FHFA placed the GSEs under conservatorship, and we invested in the GSEs by entering into a SPSPA with each GSE. We 

took these actions to preserve the GSEs’ assets, ensure a sound and solvent financial condition, and mitigate systemic risks 

that contributed to market instability. The purpose of such actions is to maintain the solvency of the GSEs so they can 

continue to fulfill their vital roles in the home mortgage market while the Administration and Congress determine what 

structural changes should be made to the housing finance system. Draws under the SPSPAs result in an increased 

investment in the GSEs as further discussed below.

Under the SPSPAs, we initially received from each GSE: (i) 1,000,000 shares of non-voting variable liquidation preference 

senior preferred stock with a liquidation preference value of $1,000 per share, and (ii) a non-transferable warrant for the 

purchase, at a nominal cost, of 79.9 percent of common stock on a fully-diluted basis. The warrants expire on September 7, 

2028. Under the amended SPSPAs, the quarterly dividend payment changed from a 10.0 percent per annum fixed rate 

dividend on the total liquidation preference (as discussed below) to an amount equivalent to the GSEs’ positive net worth 

above a capital reserve amount. The capital reserve amount, which was initially set at $3.0 billion for calendar year 2013, 

declines by $600 million at the beginning of each calendar year thereafter until it reaches zero by calendar year 2018. On 

January 1, 2017 and 2016, the capital reserve amount had declined to $600 million and $1.2 billion for calendar years 2017 

and 2016, respectively. The GSEs will not pay a quarterly dividend if their positive net worth is below their required capital 

reserve threshold. We received cash dividends of $25.3 billion and $11.5 billion during fiscal years ended September 30, 

2017 and 2016, respectively. 

The SPSPAs, which have no expiration date, provide for us to disburse funds to the GSEs if, at the end of any quarter, the 

FHFA determines that the liabilities of either GSE exceed its assets. Draws from the Department under the SPSPAs are 

designed to ensure that the GSEs maintain positive net worth, with a fixed maximum amount available to each GSE under 

this agreement, established as of December 31, 2012 (refer to the “Contingent Liability to GSEs” section below). Draws 

against the funding commitment of the SPSPAs do not result in the issuance of additional shares of senior preferred stock; 

instead, it increases the liquidation preference of the initial 1,000,000 shares by the amount of the draw. The combined 

cumulative liquidation preference totaled $189 billion as of September 30, 2017 and 2016. There were no payments to the 

GSEs for the fiscal years ended September 30, 2017 and 2016. 

ACCOUNTING TREATMENT

Entity Transactions― If we estimate a probable contingent liability to the GSEs, we will accrue and report this liability on 

our Consolidated Balance Sheets, and fund the liability through our direct appropriations. We will report the liability 

accrual, if any, at its gross amount as an “entity” cost on our Consolidated Statements of Net Cost, and within the line item, 

“Cumulative Results of Operations” on our Consolidated Balance Sheets, without considering the increase in senior preferred 

stock liquidation preference/fair value adjustments, and future dividend receipts from the GSEs.
DEPARTMENT OF THE TREASURY 91 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Non-Entity Transactions― If we make actual payments to the GSEs, they will result in increases to the U.S. government’s 

liquidation preference in the GSEs’ senior preferred stock, and thus represent General Fund exchange revenue reported on 

our Consolidated Statements of Net Cost as “GSEs Non-Entity Revenue, Net.” Changes in the fair valuation of the GSE 

preferred stock and common stock warrants, and related dividends received, are General Fund-related costs and revenues 

which we report as “GSEs Non-Entity Revenue, Net.”

INVESTMENTS IN GSES 

As of September 30, 2017 and 2016, our investments in the GSEs consisted of the following: 

Gross Cumulative

Investments Valuation 9/30/2017

GSEs Investments (in millions) As of 9/30/17 Gain/(Loss) Fair Value

Fannie Mae Senior Preferred Stock $ 116,989 $ (74,489) $ 42,500

Freddie Mac Senior Preferred Stock 72,160 (41,060) 31,100

Fannie Mae Warrants Common Stock 3,104 9,256 12,360

Freddie Mac Warrants Common Stock 2,264 4,416 6,680

Total GSEs Investments $ 194,517 $ (101,877) $ 92,640

Gross Cumulative

Investments Valuation 9/30/2016

GSEs Investments (in millions) As of 9/30/16 Gain/(Loss) Fair Value

Fannie Mae Senior Preferred Stock $ 116,989 $ (58,889) $ 58,100

Freddie Mac Senior Preferred Stock 72,160 (32,560) 39,600

Fannie Mae Warrants Common Stock 3,104 4,016 7,120

Freddie Mac Warrants Common Stock 2,264 1,466 3,730

Total GSEs Investments $ 194,517 $ (85,967) $ 108,550

SENIOR PREFERRED STOCK AND WARRANTS FOR COMMON STOCK

In determining the fair value of the senior preferred stock and warrants for common stock, we relied on the GSEs’ public 

filings and press releases concerning their financial statements, as well as non-public, long-term financial forecasts, monthly 

summaries, quarterly credit supplements, independent research regarding preferred stock trading, independent research 

regarding the GSEs’ common stock trading on the OTC Bulletin Board, discussions with each of the GSEs and FHFA, and 

other information pertinent to the valuations. Because the instruments are not publicly traded, there is no comparable 

trading information available. The fair valuations rely on significant unobservable inputs that reflect assumptions about the 

expectations that market participants would use in pricing. 

The fair value of the senior preferred stock considers the amount of forecasted dividend payments. The fair valuations 

assume that a hypothetical buyer would acquire the discounted dividend stream as of the transaction date. The fair value of 

the senior preferred stock decreased as of September 30, 2017 when compared to September 30, 2016, primarily reflecting a 

higher discount rate which was driven by a higher long-term Treasury rate (or risk-free rate), as well as an increase in the 

market value of the GSEs’ other equity securities that comprise their total equity (refer to Note 1V). 
92 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Factors impacting the fair value of the warrants include the nominal exercise price and the large number of potential 

exercise shares, the market trading of the common stock that underlies the warrants as of September 30, the principal 

market, and the market participants. Other factors impacting the fair value include, among other things, the holding period 

risk related directly to the assumption of the amount of time that it will take to sell the exercised shares without depressing 

the market. The fair value of the warrants increased at the end of FY 2017, when compared to 2016, primarily due to 

increases in the market price of the underlying common stock of each GSE.

CONTINGENT LIABILITY TO GSES

As part of the annual process undertaken by the Department, we prepare a series of long-term financial forecasts to assess, 

as of September 30, the likelihood and magnitude of future draws to be required by the GSEs under the SPSPAs within the 

forecast time horizon. We used 25-year financial forecasts prepared through years 2042 and 2041 in assessing if a 

contingent liability was required as of September 30, 2017 and 2016, respectively. If future payments under the SPSPAs are 

deemed to be probable within the forecast horizon, we will estimate and accrue a contingent liability to the GSEs to reflect 

the forecasted equity deficits of the GSEs. We will not discount this accrued contingent liability, nor will we take into 

account any of the offsetting dividends that we could receive, as the dividends, if any, would be owed directly to the General 

Fund. We will adjust such recorded accruals in subsequent years as new information develops or circumstances change. 

Based on our annual assessment, we estimated there was no probable future funding draws as of September 30, 2017 and 

2016, and thereby accrued no contingent liability. However, as of September 30, 2017, it is reasonably possible that market 

volatility or non-recurring events—for instance, changes to accounting policies that impact credit loss calculations or tax 

laws that affect the value of the GSEs’ deferred tax assets—could potentially cause the GSEs to generate quarterly losses 

and, therefore, result in future funding draws against our funding commitment. Due to challenges quantifying future 

market volatility or the timing, magnitude, and likelihood of non-recurring events, we could not estimate the total amount of 

this reasonably possible future funding liability as of September 30, 2017. At September 30, 2017 and 2016, the maximum 

remaining contractual commitment to the GSEs for the remaining life of the SPSPAs was $258.1 billion. 

In assessing the need for an estimated contingent liability, we rely on the GSEs’ public filings and press releases concerning 

their financial statements, monthly summaries, and quarterly credit supplements, as well as non-public, long-term financial 

forecasts, the FHFA House Price Index, discussions with each of the GSEs and FHFA, and other information pertinent to the 

liability estimates. The forecasts prepared in assessing the need for an estimated contingent liability as of September 30, 

2017 include three potential wind-down scenarios, with varying assumptions regarding the timing as to when the GSEs 

would cease issuing new guaranteed mortgage-backed securities. The forecasts also assume a continued gradual wind-down 

of the retained portfolios (and corresponding net interest income) through 2018, as directed under the amended SPSPAs for 

each GSE to reduce the maximum balance of its retained mortgage portfolio by 15.0 percent per annum beginning December 

31, 2013. The maximum balance of the GSEs’ retained mortgage portfolio was initially set at $650 billion as of December 31, 

2012, and the amended SPSPAs requires that we reduce this maximum balance to $250 billion by December 31, 2018.

ESTIMATION FACTORS

Our forecasts concerning the GSEs may differ from actual experience. Estimated senior preferred values and future draw 

amounts will depend on numerous factors that are difficult to predict including, but not limited to, changes in government 

policy with respect to the GSEs, the business cycle, inflation, home prices, unemployment rates, interest rates, changes in 

housing preferences, home financing alternatives, availability of debt financing, market rates of guarantee fees, outcomes of 

loan refinancings and modifications, new housing programs, and other applicable factors. 
DEPARTMENT OF THE TREASURY 93 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

FINANCIAL PERFORMANCE OF THE GSES

The summarized unaudited aggregated financial condition of the GSEs as of September 30, 2017 and 2016, along with their 

summarized unaudited aggregated financial operating results for the nine months ended September 30, 2017 and 2016 were 

as follows: 

(in millions) 2017 2016

Combined Assets

 Investment Securities $ 129,997 $ 165,805

 Mortgage Loans 4,997,651 4,831,397

 Other 233,767 274,002

Total Combined Assets 5,361,415 5,271,204

Combined Liabilities

 Long-Term Debt 5,214,940 5,103,417

 Other 137,577 160,101

Total Combined Liabilities 5,352,517 5,263,518

Combined Net Equity $ 8,898 $ 7,686

For the Nine Months Ended September 30 

Combined Net Interest Income $ 26,285 $ 25,984

Combined Benefit for Loan Losses 1,303 4,587

Combined Net Interest Income After Benefit for Loan Losses $ 27,588 $ 30,571

Combined Net Income $ 17,542 $ 10,246

We obtained this financial information from the GSEs’ quarterly financial reports filed with the Securities and Exchange

Commission. The financial information above excludes certain financial guarantees not directly reflected on the

GSEs’ balance sheets.

GSES NON-ENTITY REVENUE

For the fiscal years ended September 30, 2017 and 2016, GSEs Non-Entity Revenue, Net consisted of the following: 

Summary of GSEs Non-Entity Revenue (in millions) 2017 2016

Fair Value Loss/(Gain) on GSEs Warrants/Preferred Stock $ 15,910 $ (2,280)

GSEs Preferred Stock Dividends (25,349) (11,522)

Total GSEs Non-Entity Revenue, Net $ (9,439) $ (13,802)

REGULATORY ENVIRONMENT

To date, Congress has not approved a plan to address the future of the GSEs, thus the GSEs continue to operate under the 

direction of their conservator, the FHFA, whose stated strategic goals for the GSEs are to: (i) maintain foreclosure 

prevention activities and credit availability to foster liquid, efficient, competitive, and resilient national housing finance 

markets; (ii) reduce taxpayer risk through increasing the role of private capital in the mortgage market; and (iii) build a new 

single-family securitization infrastructure.

The Temporary Payroll Tax Cut Continuation Act of 2011 (P.L. 112-78) was funded by an increase of ten basis points in the 

GSEs’ guarantee fees (referred to as “the incremental fees”) which began in April 2012, and is effective through October 1, 

2021. The incremental fees are remitted to us and not retained by the GSEs and, thus, do not affect the profitability of the 

GSEs. For FY 2017 and 2016, the GSEs remitted to us the incremental fees totaling $3.2 billion and $2.8 billion, 

respectively, which are reported within the line item entitled “Fines, Penalties, Interest and Other Revenue” on our 

Statements of Custodial Activity. 
94 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

11. INVESTMENTS IN MULTILATERAL DEVELOPMENT BANKS

As of September 30, 2017 and 2016, Investments in Multilateral Development Banks consisted of the following:

(in millions) 2017 2016

International Bank for Reconstruction and Development $ 2,850 $ 2,844

Inter-American Development Bank (1) 2,023 2,001

Asian Development Bank 991 991

European Bank for Reconstruction and Development 636 636

International Finance Corporation 569 569

African Development Bank 369 337

North American Development Bank 225 225

Multilateral Investment Guarantee Agency 45 45

Total $ 7,708 $ 7,648

Refer to Note 26 for a description of the additional commitments related to these institutions. 

(1) Includes Inter-American Investment Corporation 

12. OTHER INVESTMENTS AND RELATED INTEREST

Other investments and related interest include foreign currency holdings that we typically invest in interest-bearing 

securities issued or held through foreign governments or monetary authorities (refer to Note 5). ESF holds most of our

foreign currency investments. Of the total $8.5 billion fair value of foreign investments (excluding interest receivable) held 

at September 30, 2017, $1.8 billion will mature within one year, $4.8 billion will mature after one year but before five years, 

and $1.9 billion will mature after five years but before ten years. 

As of September 30, 2017 and 2016, Other Investments and Related Interest consisted of the following:

Cost/ Unamortized 9/30/17

Acquisition (Premium)/ Interest Net Unrealized 9/30/17

Type of Investment (in millions) Value Discount Receivable Investment Gain/(Loss) Fair Value

Foreign Investments:

 Euro Bonds & Notes $ 5,879 $ 481 $ 69 $ 6,429 $ 299 $ 6,728

 Japanese Government Bonds 1,754 2 1 1,757 56 1,813

Other Investments 29 (1) - 28 (10) 18

Total Non-Federal $ 7,662 $ 482 $ 70 $ 8,214 $ 345 $ 8,559

Cost/ Unamortized 9/30/16

Acquisition (Premium)/ Interest Net Unrealized 9/30/16

Type of Investment (in millions) Value Discount Receivable Investment Gain/(Loss) Fair Value

Foreign Investments:

 Euro Bonds & Notes $ 5,223 $ 217 $ 60 $ 5,500 $ (207)$ 5,293

 Japanese Government Bonds 3,959 6 2 3,967 582 4,549

Other Investments 30 (2) - 28 (10) 18

Total Non-Federal $ 9,212 $ 221 $ 62 $ 9,495 $ 365 $ 9,860
DEPARTMENT OF THE TREASURY 95 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

13. PROPERTY, PLANT, AND EQUIPMENT, NET

As of September 30, 2017 and 2016, Property, Plant, and Equipment, Net consisted of the following:

2017

Net

Depreciation Service Accumulated Book

(in millions) Method Life Cost Depreciation Value

Buildings, Structures and Facilities S/L 3 - 50 years $ 766 $ (459) $ 307

Furniture, Fixtures and Equipment S/L 2 - 20 years 2,831 (2,051) 780

Construction-in-Progress N/A N/A 103 - 103

Land and Land Improvements N/A N/A 18 (2) 16

Internal-Use Software in Use S/L 2 - 15 years 3,574 (2,076) 1,498

Internal-Use Software in Development N/A N/A 181 - 181

Assets Under Capital Lease S/L 2 - 25 years 21 (12) 9

Leasehold Improvements S/L 2 - 25 years 415 (249) 166

Total $ 7,909 $ (4,849)$ 3,060

2016

Net

Depreciation Service Accumulated Book

(in millions) Method Life Cost Depreciation Value

Buildings, Structures and Facilities S/L 3 - 50 years $ 766 $ (446) $ 320

Furniture, Fixtures and Equipment S/L 2 - 20 years 2,787 (2,023) 764

Construction-in-Progress N/A N/A 61 - 61

Land and Land Improvements N/A N/A 18 (2) 16

Internal-Use Software in Use S/L 2 - 15 years 3,108 (1,789) 1,319

Internal-Use Software in Development N/A N/A 336 - 336

Assets Under Capital Lease S/L 2 - 25 years 14 (10) 4

Leasehold Improvements S/L 2 - 25 years 413 (228) 185

Total $ 7,503 $ (4,498) $ 3,005

The service life ranges vary significantly due to the diverse nature of PP&E we hold.

HERITAGE ASSETS

We have 15 heritage assets, of which five are considered multi-use, for FY 2017 and 2016. The Treasury Complex (Main 

Treasury Building and Annex), declared a national historical landmark in 1972, is treated as a multi-use heritage asset and 

is expected to be preserved indefinitely. The buildings that house the Mint in Denver, San Francisco, Fort Knox, and West 

Point are also multi-use heritage assets and included on the National Register of Historic Places. Additionally, the Mint 

maintains heritage assets consisting of four coin collections and six historical artifacts. 
96 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

14. NON-ENTITY VS. ENTITY ASSETS 

Non-entity assets are those that we hold and manage on behalf of the General Fund but are not available for our use. The 

table below shows our total assets, segregated between non-entity and entity, as of September 30, 2017 and 2016: 

 2017

(in millions) Non-Entity Entity Total

Intra-governmental Assets: 

Fund Balance (a) $ 1,668 $ 424,728 $ 426,396

Loans and Interest Receivable (Note 3) 1,377,845 77,780 1,455,625

Advances to Trust Funds (Note 4) 9,021 - 9,021

Due From the General Fund (Note 4) 20,373,777 - 20,373,777

Other Intra-governmental Assets 789 29 818

Total Intra-governmental Assets 21,763,100 502,537 22,265,637

Cash, Foreign Currency, and Other Monetary Assets (Note 5) (b) 154,353 64,477 218,830

Gold and Silver Reserves (Note 6) (c) 11,062 - 11,062

Taxes, Interest, and Other Receivables, Net (Note 8) 53,355 141 53,496

Investments in GSEs (Note 10) 92,640 - 92,640

Other Assets (d) 8 44,487 44,495

Total Assets $ 22,074,518 $ 611,642 $ 22,686,160

(a) $793 million of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(b) $153.6 billion of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(c) $25 million of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(d) Other Assets (Entity) include loans and interest receivable, other investments and related interest, reserve position in the IMF, and other 

various assets on the Consolidated Balance Sheets not separately presented in this table.

 2016

(in millions) Non-Entity Entity Total

Intra-governmental Assets:

Fund Balance (e) $ 2,228 $ 433,018 $ 435,246

Loans and Interest Receivable (Note 3) 1,324,531 76,123 1,400,654

Advances to Trust Funds (Note 4) 8,558 - 8,558

Due From the General Fund (Note 4) 19,699,152 - 19,699,152

Other Intra-governmental Assets 377 78 455

Total Intra-governmental Assets 21,034,846 509,219 21,544,065

Cash, Foreign Currency, and Other Monetary Assets (Note 5) (f) 347,944 62,154 410,098

Gold and Silver Reserves (Note 6) (g) 11,062 - 11,062

Taxes, Interest, and Other Receivables, Net (Note 8) 50,210 96 50,306

Investments in GSEs (Note 10) 108,550 - 108,550

Other Assets (h) 8 46,819 46,827

Total Assets $ 21,552,620 $ 618,288 $ 22,170,908

(e) $694 million of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(f) $347.2 billion of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(g) $25 million of the non-entity balance represents assets held on behalf of the General Fund (refer to Note 4).

(h) Other Assets (Entity) include loans and interest receivable, other investments and related interest, reserve position in the IMF, and other 

various assets on the Consolidated Balance Sheets not separately presented in this table.
DEPARTMENT OF THE TREASURY 97 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

15. FEDERAL DEBT AND INTEREST PAYABLE AND RELATED LIABILITIES

Treasury is responsible for administering the federal debt on behalf of the U.S. government. The federal debt includes 

borrowings from the public as well as borrowings from federal agencies. The federal debt does not include debt issued by 

other governmental agencies, such as the Tennessee Valley Authority or Department of Housing and Urban Development. 

Debt held by the public primarily represents the amount the U.S. government has borrowed to finance cumulative cash 

deficits. In contrast, debt held by other federal agencies, primarily trust funds, represents balances of Treasury securities 

held by individual federal agencies with either the authority or the requirement to invest excess receipts in Treasury 

securities, with the principal and interest guaranteed by the full faith and credit of the U.S. government. 

Federal Debt and Interest Payable as of September 30, 2017 and 2016 was as follows: 

Held by Other Federal Agencies (Intra-governmental) (in millions) 2017 2016

Beginning Balance $ 5,354,167 $ 4,980,598

New Borrowings/(Repayments) - Net 173,554 373,569

Subtotal at Par Value 5,527,721 5,354,167

Premium/(Discount) 72,073 72,598

Debt Principal Not Covered by Budgetary Resources (Note 18) 5,599,794 5,426,765

Interest Payable Covered by Budgetary Resources 38,156 39,657

Total $ 5,637,950 $ 5,466,422

Held by the Public (in millions) 2017 2016

Beginning Balance $ 14,173,424 $ 13,123,847

New Borrowings - Net of Repayments 500,005 1,049,577

Subtotal at Par Value 14,673,429 14,173,424

Premium/(Discount) (39,204) (33,800)

Debt Principal Not Covered by Budgetary Resources (Note 18) 14,634,225 14,139,624

Interest Payable Covered by Budgetary Resources 65,462 57,110

Total $ 14,699,687 $ 14,196,734

FEDERAL DEBT HELD BY OTHER FEDERAL AGENCIES

Certain federal agencies are allowed to invest excess funds in debt securities we issue on behalf of the U.S. government. The 

terms and the conditions of debt securities issued allow the U.S. government to meet its cash needs. The vast majority of 

debt securities are non-marketable securities issued at par value, but others are issued at market prices and interest rates 

that reflect market terms. The average intra-governmental interest rate for debt held by the federal entities, excluding 

Treasury Inflation-Protected Securities (TIPS) and Floating Rate Notes (FRNs), for both FY 2017 and 2016 was 2.8 percent. 

The average intra-governmental interest rate on TIPS for both FY 2017 and 2016 was 1.3 percent. The average interest rate 

represents the original issue weighted effective yield on securities outstanding at the end of the fiscal year. 

The federal debt also includes intra-governmental marketable debt securities that certain agencies are permitted to buy and 

sell on the open market. The debt held by federal agencies at par value (not including premium/discount or interest payable) 

as of September 30, 2017 and 2016 was as follows: 
98 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

(in millions) 2017 2016

Social Security Administration $ 2,889,869 $ 2,842,592

Office of Personnel Management 1,014,837 994,528

Department of Defense Agencies 898,480 815,608

Department of Health and Human Services 273,197 259,742

All Other Federal Entities — Consolidated 451,338 441,697

Total Federal Debt Held by Other Federal Agencies $ 5,527,721 $ 5,354,167

These amounts do not include Intra-departmental debt and related interest that are eliminated from our financial statements.

FEDERAL DEBT HELD BY THE PUBLIC

Federal Debt Held by the Public at par value (not including premium/discount or interest payable) as of September 30, 2017 

and 2016 consisted of the following: 

Average

Interest

(at par value in millions) Term Rates 2017

Marketable:

Treasury Bills 1 Year or Less 1.1% $ 1,799,570

Treasury Notes Over 1 Year - 10 Years 1.8% 8,798,940

Treasury Bonds Over 10 Years 4.2% 1,948,414

Treasury Inflation-Protected Securities (TIPS) 5 Years or More 0.8% 1,286,123

Treasury Floating Rate Notes (FRN) 2 Years 1.2% 342,630

Total Marketable 14,175,677

Non-Marketable On Demand to Over 40 Years 2.3% 497,752

Total Federal Debt Held by the Public $ 14,673,429

Average

Interest

(at par value in millions) Term Rates 2016

Marketable:

Treasury Bills 1 Year or Less 0.4% $ 1,644,759

Treasury Notes Over 1 Year - 10 Years 1.8% 8,624,253

Treasury Bonds Over 10 Years 4.4% 1,825,339

Treasury Inflation-Protected Securities (TIPS) 5 Years or More 0.8% 1,209,814

Treasury Floating Rate Notes (FRN) 2 Years 0.4% 334,139

Total Marketable 13,638,304

Non-Marketable On Demand to Over 40 Years 2.0% 535,120

Total Federal Debt Held by the Public $ 14,173,424

We generally issue Treasury bills, notes, bonds, and TIPS to meet the borrowing needs of the U.S. government. We issue 

marketable bills at a discount or at par, and pay the par amount of the security upon maturity. The average interest rate on

Treasury bills represents the original issue effective yield on securities outstanding at year end. 
DEPARTMENT OF THE TREASURY 99 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

We issue marketable notes and bonds as long-term securities that pay semi-annual interest based on the securities’ stated 

interest rates. We issue these securities at either par value or at an amount that reflects a discount or premium. The 

average interest rate on marketable notes and bonds represents the stated interest rate adjusted by any discount or 

premium on securities outstanding at year-end. We also issue TIPS that have interest and redemption payments tied to the 

CPI for all Urban Consumers, a widely used measurement of inflation. We adjust the principal for TIPS daily over the life of 

the security based on the CPI for all Urban Consumers. At maturity, TIPS are redeemed at the inflation-adjusted principal 

amount, or the original par value, whichever is greater. TIPS pay a semi-annual fixed rate of interest applied to the 

inflation-adjusted principal. The average interest rate on TIPS represents the stated interest rate on principal plus 

inflation, adjusted by any discount or premium on securities outstanding as of the end of the fiscal year. The inflationadjusted TIPS principal balance of federal debt held by the public included inflation of $103.7 billion and $90.8 billion as of 

September 30, 2017 and 2016, respectively.

We also issue marketable FRNs which pay interest quarterly based on the interest rate at the time of payment. The interest 

rate of FRNs can change over time and is indexed to the highest acceptable discount rate of the most recent 13-week 

marketable bill auction. Similar to marketable notes and bonds, we issue these securities at either par value or at an 

amount that reflects a discount or premium. The average interest rate on marketable FRNs represents the highest accepted 

discount rate of the most recent 13-week marketable auction as of September 30, adjusted by any discount or premium on 

securities outstanding as of that date. 

Federal Debt Held by the Public includes federal debt held outside of the U.S. government by individuals, corporations, 

FRBs, state and local governments, foreign governments, and central banks. As of September 30, 2017, the FRBs had total 

holdings of $2.0 trillion which: (i) excluded $502.0 billion in Treasury securities used in overnight reverse repurchase 

transactions, and (ii) included a net of $1.3 billion in Treasury securities held by the FRB as collateral for securities lending 

activities. As of September 30, 2016, the FRBs had total holdings of $1.8 trillion which: (i) excluded $713.9 billion in 

Treasury securities used in overnight reverse repurchase transactions, and (ii) included a net of $0.7 billion in Treasury 

securities held by the FRB as collateral for securities lending activities. The FRB holds Treasury securities in the FRB 

SOMA for the purpose of conducting monetary policy. 

STATUTORY DEBT LIMIT 

Congress has provided us with statutory authority to take certain extraordinary measures in the event that the public debt 

nears the statutory debt limit and a delay in raising the statutory debt limit occurs. These measures authorize us to deviate 

from our normal debt management operations—which include the investment (or non-investment) of trust fund balances in 

Treasury securities—to avoid exceeding the statutory debt limit.

During the period of the delay in raising the statutory debt limit, we may undertake the following extraordinary measures: 

(i) suspend new issuances of Treasury securities to the Government Securities Investment Fund (G Fund) of the FERS TSP, 

the Civil Service Retirement and Disability Fund (Civil Service Fund), the Postal Service Retiree Health Benefits Fund 

(Postal Benefits Fund), and the ESF; (ii) redeem early a certain amount of Treasury securities held by the Civil Service Fund 

and Postal Benefit Fund; (iii) suspend new issuances of State and Local Government Series (SLGS) securities; (iv) utilize 

FFB to exchange outstanding Treasury securities held by the Civil Service Fund for non-Treasury securities (refer to Note 

16); and (v) issue cash management bills to manage short-term financing needs. 
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FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

When the period of delay in raising the statutory debt limit ends, we discontinue our use of extraordinary measures and 

resume our normal debt management operations. Furthermore, we are required by the relevant statutes, to issue to the G 

Fund, along with the OPM-administered Civil Service Fund and Postal Benefits Fund (the OPM funds), Treasury securities 

that bears such interest rates and maturity dates necessary to replicate the investments the funds would have held had the 

delay not occurred (the unissued securities). In addition, relevant statutes require us to pay these funds the related lost 

interest (foregone interest) on the unissued securities. While we may restore the ESF, relevant statutes do not permit us to 

pay the ESF interest lost during a period of delay. 

A delay in raising the statutory debt limit occurred from March 16, 2015 until Friday, October 30, 2015. On Monday, 

November 2, 2015, Congress enacted the Bipartisan Budget Act of 2015 (P.L. 114-74) which temporarily suspended the debt 

limit through March 15, 2017. Another delay in raising the debt limit occurred from March 16, 2017 until September 7, 

2017. On September 8, 2017, Congress enacted the Continuing Appropriations Act, 2018 and Supplemental Appropriations 

for Disaster Relief Requirements Act, 2017 (P.L. 115-56) which temporarily suspended the debt limit through December 8, 

2017.

During the period March 16, 2015 through October 30, 2015, we undertook the extraordinary measures as described above. 

On November 2, 2015, when Congress temporarily suspended the debt limit, we resumed normal debt management 

operations. On this date, we restored unissued securities totaling $352.6 billion, of which $204.8 billion was restored to the 

G Fund and $147.8 billion was restored to the two OPM funds. We also restored foregone interest totaling $2.7 billion, of 

which $1.7 billion was restored to the G Fund on the next interest payment date of November 3, 2015 and $971 million was 

restored to the two OPM funds on the next semi-annual interest payment date of December 31, 2015. In addition, we 

restored the ESF and resumed issuance of SLGS securities.

Of the $2.7 billion of foregone interest paid in FY 2016, $635 million was reported in FY 2016 as a current year, non-entity 

expense within the line item, “Restoration of Foregone Federal Debt Interest.” In FY 2016, we reversed the $2.1 billion of 

accrued foregone interest as part of other financing sources on the Consolidated Statement of Changes in Net Position in 

connection with the actual payment of interest.

During the period March 16, 2017 through September 7, 2017, we again departed from our normal debt management 

operations and undertook extraordinary measures to avoid exceeding the statutory debt limit. On September 8, 2017, when 

Congress temporarily suspended the debt limit, we discontinued the use of extraordinary measures and resumed normal 

debt management operations. On this date, we restored unissued securities totaling $294.9 billion, of which $192.6 billion 

was restored to the G Fund and $102.3 billion was restored to the two OPM funds. We also restored foregone interest of $1.6 

billion to the G Fund on the next interest payment date of September 11, 2017. Foregone interest related to the unissued 

securities during the period of March 16, 2017 through September 7, 2017 for the two OPM funds, which totaled $660 million 

through September 30, 2017, will be restored on the next semi-annual interest payable date of December 31, 2017. 

The liability for the interest related to the unissued securities for the OPM funds as of September 30, 2017 totaling $660 

million was reported on our Consolidated Balance Sheets in the line item “Liability for Restoration of Federal Debt Principal 

and Interest.” A corresponding amount was reported in the “Due From the General Fund” on the Consolidated Balance 

Sheets (refer to Note 4). Additionally, the accrued foregone interest expense totaling $660 million was reported as a nonentity expense within the line item, “Accrued Restoration of Foregone Federal Debt Interest,” on Consolidated Statements of 

Net Cost, with an offsetting amount reported within the line item, “Accrued Interest on Restoration of Federal Debt 

Principal,” as part of other financing sources on the Consolidated Statements of Changes in Net Position. 
DEPARTMENT OF THE TREASURY 101 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

16. OTHER DEBT AND INTEREST PAYABLE

Through FFB, we have outstanding borrowings and related accrued interest owed to the Civil Service Fund. At September 

30, 2017 and 2016, FFB had outstanding borrowings of $11.5 billion and $13.1 billion, inclusive of $86 million and $101

million of accrued interest payable, respectively. During FY 2017 and 2016, FFB paid $1.6 billion and $2.0 billion in 

principal, respectively. The outstanding borrowings at September 30, 2017 had stated interest rates that ranged from 2.25

percent to 4.63 percent per annum, and an effective interest rate of 2.97 percent. The outstanding borrowings at September 

30, 2016 had stated interest rates that ranged from 2.25 percent to 4.63 percent per annum, and an effective interest rate of 

3.08 percent. Maturity dates ranged from June 30, 2018 to June 30, 2029 for outstanding borrowings at September 30, 2017, 

and from June 30, 2017 to June 30, 2029 for outstanding borrowings at September 30, 2016.
102 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

17. D.C. FEDERAL PENSION AND JUDICIAL RETIREMENT ACTUARIAL 

LIABILITY

Title XI of the Balanced Budget Act of 1997, as amended intended to relieve the D.C. government of the burden of unfunded 

pension liabilities transferred to the District by the U.S. government in 1979. To fulfill our responsibility, we manage two 

funds ― the D.C. Teachers’, Police Officers’, and Firefighters’ Federal Pension Fund (the D.C. Federal Pension Fund) and the 

District of Columbia Judicial Retirement and Survivors’ Annuity Fund (the Judicial Retirement Fund). We are required to 

make annual amortized payments from the General Fund to the D.C. Federal Pension Fund and the Judicial Retirement 

Fund. The D.C. Federal Pension Fund benefit payments relate to creditable service performed on or before June 30, 1997, 

while the Judicial Retirement Fund benefit payments relate to all creditable service. 

A reconciliation of the combined actuarial pension liability for the D.C. Federal Pension Fund and the Judicial Retirement 

Fund as of September 30, 2017 and 2016 is as follows: 

(in millions) 2017 2016

Beginning Liability Balance $ 8,836 $ 8,849

Pension Expense:

Normal Cost 6 6

Interest on Pension Liability During the Year 102 136

Actuarial (Gains) Losses During the Year:

From Experience 26 (94)

From Discount Rate Assumption Change 428 385

From Other Assumption Changes (164) 107

Total Pension Expense 398 540

Less Amounts Paid (552) (553)

Ending Liability Balance $ 8,682 $ 8,836
DEPARTMENT OF THE TREASURY 103 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

D.C. Federal Judicial 2017

Additional Information ($ in millions): Pension Fund Retirement Fund Total

Amount Received from the General Fund $ 452 $ 16 $ 468

Annual Rate of Investment Return Assumption 0.71% - 4.03% 0.71% - 4.03%

Future Annual Rate of Inflation and Cost-Of-

 Living Adjustment:

 Police Officers 1.82% N/A

 Firefighters 1.82% N/A

 Teachers 1.86% N/A

 Judicial N/A 1.69%

Future Annual Rate of Salary Increases:

 Police Officers 1.80% N/A

 Firefighters 2.20% N/A

 Teachers 3.00% N/A

 Judicial N/A 1.08%

D.C. Federal Judicial 2016

Additional Information ($ in millions): Pension Fund Retirement Fund Total

Amount Received from the General Fund $ 461 $ 14 $ 475

Annual Rate of Investment Return Assumption 1.12% - 4.17% 1.12% - 4.17%

Future Annual Rate of Inflation and Cost-Of-

 Living Adjustment:

 Police Officers 1.87% N/A

 Firefighters 1.87% N/A

 Teachers 1.90% N/A

 Judicial N/A 1.99%

Future Annual Rate of Salary Increases:

 Police Officers 2.00% N/A

 Firefighters 2.20% N/A

 Teachers 3.00% N/A

 Judicial N/A 1.15%
104 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

18. LIABILITIES

LIABILITIES NOT COVERED BY BUDGETARY AND OTHER RESOURCES 

As of September 30, 2017 and 2016, liabilities not covered by budgetary and other resources consisted of the following: 

(in millions) 2017 2016

Intra-governmental Liabilities Not Covered by Budgetary 

 and Other Resources 

Federal Debt Principal, Premium/Discount (Note 15) $ 5,599,794 $ 5,426,765

Liability for Restoration of Federal Debt Principal and Interest (Note 15) 660 -

Other Intra-governmental Liabilities 130 114

Total Intra-governmental Liabilities Not Covered by Budgetary 5,600,584 5,426,879

 and Other Resources

Federal Debt Principal, Premium/Discount (Note 15) 14,634,225 14,139,624

Gold and Silver Reserves (Note 6) 11,062 11,062

D.C. Federal Pension and Judicial Retirement - Actuarial 

 Liability (Unfunded) 4,841 5,002

Other Liabilities 1,041 1,052

Total Liabilities Not Covered by Budgetary and Other Resources 20,251,753 19,583,619

Total Liabilities Covered by Budgetary and Other Resources 1,937,082 2,083,375

Total Liabilities $ 22,188,835 $ 21,666,994

OTHER LIABILITIES

Total “Other Liabilities” displayed on the Consolidated Balance Sheets consists of both liabilities that are covered and not 

covered by budgetary resources. “Other Liabilities” at September 30, 2017 and 2016, consisted of the following: 

Non- 2017 Non- 2016

(in millions) Current Current Total Current Current Total

Intra-governmental

Accounts Payable $ 77 $ - $ 77 $ 130 $ - $ 130

Unfunded Federal Workers Compensation 

 Program Liability (FECA) 43 52 95 44 54 98

Other Accrued Liabilities 440 1 441 233 1 234

Total Intra-governmental $ 560 $ 53 $ 613 $ 407 $ 55 $ 462

With the Public

Liability for Deposit Funds (Held by the

 U.S. government for Others)

 and Suspense Accounts $ 1,156 $ - $ 1,156 $ 1,236 $ - $ 1,236

Actuarial Federal Workers Compensation 

 Program Liability (FECA) - 592 592 - 597 597

Accrued Funded Payroll and Benefits 420 - 420 413 - 413

Accounts Payable and Other Accrued

 Liabilities 3,170 82 3,252 3,943 79 4,022

Total With the Public $ 4,746 $ 674 $ 5,420 $ 5,592 $ 676 $ 6,268
DEPARTMENT OF THE TREASURY 105 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

19. NET POSITION

Cumulative Results of Operations represents the net results of operations since inception, and includes cumulative amounts 

related to investments in capitalized assets and donations and transfers of assets in and out without reimbursement. Also 

included as a reduction in Cumulative Results of Operations are accruals for which the related expenses require funding 

from future appropriations and assessments. These future funding requirements include, among others: (a) accumulated 

annual leave earned but not taken; (b) accrued FECA; (c) credit reform cost re-estimates; (d) unfunded D.C. Federal pension; 

and (e) expenses for contingent liabilities. 

Unexpended Appropriations represents the amount of spending authorized as of year-end that is unliquidated or unobligated 

and has not lapsed, been rescinded, or withdrawn. No-year appropriations remain available for obligation until expended. 

Annual appropriations remain available for upward or downward adjustment of obligations until canceled. We report 

adjustments related to unexpended appropriations, such as cancellations of expired funds or rescissions, as “Other 

Adjustments” on the Consolidated Statements of Changes in Net Position. 

APPROPRIATIONS RECEIVED

Congress appropriates the amount reported as “Appropriations Received” from the General Fund receipts, such as income 

taxes, that are not dedicated by law for a specific purpose. This amount will not necessarily agree with the “appropriations 

(discretionary and mandatory)” amount reported on the Combined Statements of Budgetary Resources because of differences 

between proprietary and budgetary accounting concepts and reporting requirements. For example, certain dedicated 

receipts are recorded as “appropriations (discretionary and mandatory)” on the Combined Statements of Budgetary 

Resources, but are recognized as exchange or non-exchange revenue (i.e., typically in revolving, special, and non-revolving 

trust funds) and reported on the Consolidated Statements of Changes in Net Position in accordance with SFFAS No. 7.

TRANSFERS TO THE GENERAL FUND AND OTHER

The amount reported as “Transfers to the General Fund and Other” on the Consolidated Statements of Changes in Net 

Position under “Other Financing Sources” includes the following for the years ended September 30, 2017 and 2016: 

(in millions) 2017 2016

Categories of Transfers to the General Fund and Other 

Interest Revenue $ 44,304 $ 44,636

Increase in Liquidation Preference of GSEs Preferred Stock, 

 GSEs Preferred Stock Dividends and Valuation Changes (Note 10) 9,439 13,802

Other 1,482 6,511

Total $ 55,225 $ 64,949

Included in “Transfers to the General Fund and Other” is the annual valuation adjustment on the GSE Senior Preferred

Stock investments and related dividends. These transfers also include distribution of interest revenue to the General Fund. 

We accrue interest revenue on inter-agency loans held on behalf of the U.S. government. We report a corresponding amount 

on the Consolidated Statements of Net Cost under “Non-Entity Costs: Less Interest Revenue from Loans.” Eliminations 

between our bureaus reduce the amount reported on the Consolidated Statements of Net Cost. 
106 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

The “Other” line generally includes collections from other federal agencies for reimbursement of costs we incurred for our

administration of trust funds established within the Social Security Act. We execute these administrative services as 

directed by statute. The FY 2016 activity also includes a $3.8 billion transfer of forfeited assets to a Fiscal Service-managed 

miscellaneous receipt account. Seigniorage and numismatic profits also are included in the “Other” line. Seigniorage is the 

face value of newly minted circulating coins less the cost of production. Numismatic profit is any profit on the sale of proof 

coins, uncirculated coins, commemorative coins, and related products and accessories. The Mint is required to distribute 

seigniorage and numismatic profits in excess of operating expenses to the General Fund (refer to Note 21). In any given 

year, the amount recognized as seigniorage may differ from the amount distributed to the General Fund by an insignificant 

amount due to timing differences. The “Other” line also includes the credit reform downward re-estimate subsidies 

transferred to the General Fund resulting from a change in forecasts of future cash flows. 

20. CONSOLIDATED STATEMENTS OF NET COST AND NET COSTS OF 

TREASURY SUB-ORGANIZATIONS

Our Consolidated Statements of Net Cost display information on a consolidated basis. We consist of DO and seven operating 

bureaus that we provide supporting schedules for Net Cost in the notes to the financial statements (refer to Note 1). These 

supporting schedules provide consolidating information, which fully displays the costs, revenues, and net cost of DO and 

each operating bureau.

The classification of sub-organizations has been determined in accordance with SFFAS No. 4, Managerial Cost Accounting 

Standards and Concepts, which states that the predominant factor is the reporting entity’s organization structure and 

existing responsibility components, such as bureaus, administrations, offices, and divisions within a department.

Each sub-organization is responsible for accumulating costs. The assignment of the costs to Department-wide programs is 

the result of using the following cost assignment methods: (1) direct costs; (2) cause and effect; and (3) cost allocation.

INTRA-DEPARTMENTAL COSTS/REVENUES

We report intra-departmental costs/revenues resulting from the provision of goods and/or services on a reimbursable basis 

among our sub-organizations as costs by providing sub-organizations and as revenues by receiving sub-organizations. We

recognized intra-departmental imputed costs on the Consolidated Statements of Net Cost of $695 million and $646 million 

during FY 2017 and 2016, respectively. Accordingly, we eliminated such costs or revenues in the consolidation process.

INTRA-GOVERNMENTAL COSTS

Intra-governmental costs relate to the source of goods and services we purchased and not to the classification of the related 

intra-governmental revenue.

In certain cases, other federal agencies incur costs that are directly identifiable to our operations. In accordance with SFFAS 

No. 30, Inter-Entity Cost Implementation Amending SFFAS No. 4, Managerial Cost Accounting Standards and Concepts, we

recognize identified costs paid on our behalf by other agencies. The imputed inter-departmental financing sources we 

currently recognize include the actual cost of future benefits for the federal pension plans that other federal entities pay, the 

Federal Employees Health Benefits Program, and any un-reimbursed contract dispute payments made from the Treasury 

Judgment Fund on our behalf. We reflect the funding for these costs as costs on the Consolidated Statements of Net Cost, 
DEPARTMENT OF THE TREASURY 107 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

and as imputed financing sources on the Consolidated Statements of Changes in Net Position. Costs paid by other agencies 

on our behalf were $552 million and $681 million for the fiscal years ended September 30, 2017 and 2016, respectively.

CONSOLIDATED STATEMENTS OF NET COST PRESENTATION

OMB Circular No. A-136, Financial Reporting Requirements, as revised, requires that the presentation of the Consolidated 

Statements of Net Cost align directly with the goals and outcomes identified in Treasury’s Strategic Plan. Accordingly, we

have presented the gross costs and earned revenues by our major program categories as defined by the strategic goals 

reported in our FY 2014 – 2017 Strategic Plan. The majority of our bureaus’ and reporting entities’ net cost information falls 

within a single program category in the Consolidated Statements of Net Cost. DO and TTB allocate costs and related 

revenues to multiple programs using a net cost percentage calculation. All of our management offices coordinate, on a 

Treasury-wide basis, their efforts to achieve the Management program-related strategic goals. For financial statement 

presentation purposes, we combine the net costs associated with our Management program-related goals with the net costs 

associated with our Financial program-related strategic goals. 

Our Consolidated Statements of Net Cost also present interest expense on the federal debt and other federal costs incurred 

on behalf of the U.S. government. We do not reflect these costs as program costs related to our strategic plan missions. We 

eliminate these costs in the consolidation process to the extent that they involve transactions with our sub-organizations. 

Non-entity other federal costs shown on the Consolidated Statements of Net Cost for the fiscal years ended September 30, 

2017 and 2016 consisted of the following: 

(in millions) 2017 2016

Credit Reform Interest on Uninvested Funds (Intra-governmental) $ 8,322 $ 7,349

Judgment Claims and Contract Disputes 2,705 3,563

Resolution Funding Corporation 2,628 2,628

Corporation for Public Broadcasting 495 485

All Other Payments 575 529

Total $ 14,725 $ 14,554
108 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

20. CONSOLIDATED STATEMENT OF NET COST AND NET COSTS OF 

TREASURY SUB-ORGANIZATIONS (IN MILLIONS) 

For Fiscal Year Ended September 30, 2017 

 

 

Program Costs

Bureau of

Engraving &

Printing

Bureau of the

Fiscal

Service

Departmental

Office(a)

Financial 

Crimes 

Enforcement 

Network

Internal 

Revenue 

Service U.S. Mint

FINANCIAL PROGRAM

Intra-governmental Gross Costs $ - $ 443 $ 2,314 $ - $ 4,270 $ -

Less Earned Revenue - (209) (3,071) - (152) -

Intra-governmental Net Costs - 234 (757) - 4,118 -

Gross Costs with the Public - 1,735 949 - 8,449 -

Less Earned Revenue - (152) (176) - (415) -

Net Costs with the Public - 1,583 773 - 8,034 -

 Net Cost: Financial Program - 1,817 16 - 12,152 -

ECONOMIC PROGRAM

Intra-governmental Gross Costs 107 - 374 - - 77

Less Earned Revenue (4) - (241) - - -

Intra-governmental Net Costs 103 - 133 - - 77

Gross Costs with the Public 598 - 15,020 - - 2,185

Less Earned Revenue (703) - (7,582) - - (2,236)

Net Costs with the Public (105) - 7,438 - - (51)

 Net Cost (Revenue): Economic Program (2) - 7,571 - - 26

SECURITY PROGRAM

Intra-governmental Gross Costs - - 209 26 - -

Less Earned Revenue - - (28) (2) - -

Intra-governmental Net Costs - - 181 24 - -

Gross Costs with the Public - - 177 92 - -

Less Earned Revenue - - - - - -

Net Costs with the Public - - 177 92 - -

 Net Cost: Security Program - - 358 116 - -

Total Net Program Cost (Revenue)

 Before Changes in Actuarial

 Assumptions (2) 1,817 7,945 116 12,152 26

(Gain)/Loss on Pension, ORB, or OPEB

 Assumption Changes - - 264 - - -

Total Net Cost of (Revenue From)

 Treasury Operations $ (2) $ 1,817 $ 8,209 $ 116 $ 12,152 $ 26

(a) Of the total $7.6 billion of net cost reported by Departmental Offices (DO) for the Economic Program, Treasury International Assistance Programs, OFS, 

and DO Policy Offices contributed $1.7 billion, $4.1 billion, and $1.2 billion respectively. Other net costs were spread throughout other DO programs or 

offices. 
DEPARTMENT OF THE TREASURY 109 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

20. CONSOLIDATED STATEMENT OF NET COST AND NET COSTS OF 

TREASURY SUB-ORGANIZATIONS (IN MILLIONS) (CON’T): 

For Fiscal Year Ended September 30, 2017 

 

Program Costs

Office of the 

Comptroller of the 

Currency

Alcohol

and

Tobacco

Tax and

Trade

Bureau

Combined 

Total Eliminations

2017 

Consolidated

FINANCIAL PROGRAM

Intra-governmental Gross Costs $ - $ 14 $ 7,041 $ 2,872 $ 4,169

Less Earned Revenue - (2) (3,434) (765) (2,669)

Intra-governmental Net Costs - 12 3,607 2,107 1,500

Gross Costs with the Public - 41 11,174 - 11,174

Less Earned Revenue - (3) (746) - (746)

Net Costs with the Public - 38 10,428 - 10,428

 Net Cost: Financial Program - 50 14,035 2,107 11,928

ECONOMIC PROGRAM

Intra-governmental Gross Costs 157 16 731 342 389

Less Earned Revenue (36) - (281) (222) (59)

Intra-governmental Net Costs 121 16 450 120 330

Gross Costs with the Public 979 46 18,828 - 18,828

Less Earned Revenue (1,169) (1) (11,691) - (11,691)

Net Costs with the Public (190) 45 7,137 - 7,137

 Net Cost (Revenue): Economic Program (69) 61 7,587 120 7,467

SECURITY PROGRAM

Intra-governmental Gross Costs - - 235 68 167

Less Earned Revenue - - (30) (25) (5)

Intra-governmental Net Costs - - 205 43 162

Gross Costs with the Public - - 269 - 269

Less Earned Revenue - - - - -

Net Costs with the Public - - 269 - 269

 Net Cost: Security Program - - 474 43 431

Total Net Program Cost (Revenue)

 Before Changes in Actuarial

 Assumptions (69) 111 22,096 2,270 19,826

(Gain)/Loss on Pension, ORB, or OPEB

 Assumption Changes - - 264 - 264

Total Net Cost of (Revenue From)

 Treasury Operations $ (69)$ 111 $ 22,360 $ 2,270 $ 20,090
110 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

20. CONSOLIDATED STATEMENT OF NET COST AND NET COSTS OF 

TREASURY SUB-ORGANIZATIONS (IN MILLIONS) (CON’T): 

For Fiscal Year Ended September 30, 2016 

 

 

Program Costs

Bureau of

Engraving &

Printing

Bureau of the

Fiscal

Service

Departmental

Office(a)

Financial 

Crimes 

Enforcement 

Network

Internal 

Revenue

Service U.S. Mint

FINANCIAL PROGRAM

Intra-governmental Gross Costs $ - $ 452 $ 2,704 $ - $ 4,342 $ -

Less Earned Revenue - (211) (2,899) - (99) -

Intra-governmental Net Costs - 241 (195) - 4,243 -

Gross Costs with the Public - 1,635 819 - 8,139 -

Less Earned Revenue - (139) (145) - (405) -

Net Costs with the Public - 1,496 674 - 7,734 -

 Net Cost: Financial Program - 1,737 479 - 11,977 -

ECONOMIC PROGRAM

Intra-governmental Gross Costs 104 - 463 - - 79

Less Earned Revenue (6) - (128) - - (3)

Intra-governmental Net Costs 98 - 335 - - 76

Gross Costs with the Public 613 - 7,139 - - 2,900

Less Earned Revenue (675) - (2,235) - - (2,995)

Net Costs with the Public (62) - 4,904 - - (95)

 Net Cost (Revenue): Economic Program 36 - 5,239 - - (19)

SECURITY PROGRAM

Intra-governmental Gross Costs - - 211 25 - -

Less Earned Revenue - - (41) - - -

Intra-governmental Net Costs - - 170 25 - -

Gross Costs with the Public - - 171 95 - -

Less Earned Revenue - - - - - -

Net Costs with the Public - - 171 95 - -

 Net Cost: Security Program - - 341 120 - -

Total Net Program Cost (Revenue)

 Before Changes in Actuarial

 Assumptions 36 1,737 6,059 120 11,977 (19)

(Gain)/Loss on Pension, ORB, or OPEB

 Assumption Changes - - 492 - - -

Total Net Cost of (Revenue From)

 Treasury Operations $ 36 $ 1,737 $ 6,551 $ 120 $ 11,977 $ (19)

(a) Of the total $5.2 billion of net cost reported by Departmental Offices (DO) for the Economic Program, Treasury International Assistance Programs and 

OFS contributed $2.0 billion and $4.1 billion respectively, partially offset by ESF which contributed net income of $1.6 billion. Other net costs were spread 

throughout other DO programs or offices. 
DEPARTMENT OF THE TREASURY 111 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

20. CONSOLIDATED STATEMENT OF NET COST AND NET COSTS OF 

TREASURY SUB-ORGANIZATIONS (IN MILLIONS) (CON’T): 

For Fiscal Year Ended September 30, 2016 

 

Program Costs

Office of the 

Comptroller of the 

Currency

Alcohol

and

Tobacco

Tax and

Trade

Bureau

Combined 

Total Eliminations

2016 

Consolidated

FINANCIAL PROGRAM

Intra-governmental Gross Costs $ - $ 15 $ 7,513 $ 3,181 $ 4,332

Less Earned Revenue - (3) (3,212) (774) (2,438)

Intra-governmental Net Costs - 12 4,301 2,407 1,894

Gross Costs with the Public - 44 10,637 - 10,637

Less Earned Revenue - (2) (691) - (691)

Net Costs with the Public - 42 9,946 - 9,946

 Net Cost: Financial Program - 54 14,247 2,407 11,840

ECONOMIC PROGRAM

Intra-governmental Gross Costs 161 15 822 421 401

Less Earned Revenue (35) (1) (173) (130) (43)

Intra-governmental Net Costs 126 14 649 291 358

Gross Costs with the Public 948 44 11,644 - 11,644

Less Earned Revenue (1,129) (1) (7,035) - (7,035)

Net Costs with the Public (181) 43 4,609 - 4,609

 Net Cost (Revenue): Economic Program (55) 57 5,258 291 4,967

SECURITY PROGRAM

Intra-governmental Gross Costs - - 236 90 146

Less Earned Revenue - - (41) (38) (3)

Intra-governmental Net Costs - - 195 52 143

Gross Costs with the Public - - 266 - 266

Less Earned Revenue - - - - -

Net Costs with the Public - - 266 - 266

 Net Cost: Security Program - - 461 52 409

Total Net Program Cost (Revenue)

 Before Changes in Actuarial

 Assumptions (55) 111 19,966 2,750 17,216

(Gain)/Loss on Pension, ORB, or OPEB

 Assumption Changes 9 - 501 - 501

Total Net Cost of (Revenue From)

 Treasury Operations $ (46) $ 111 $ 20,467 $ 2,750 $ 17,717
112 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

21. ADDITIONAL INFORMATION RELATED TO THE COMBINED 

STATEMENTS OF BUDGETARY RESOURCES

UNDELIVERED ORDERS

Undelivered orders represent goods and services ordered and obligated which have not been received. This includes any 

orders for which we have paid in advance, but for which delivery or performance has not yet occurred. Undelivered orders as 

of September 30, 2017 and 2016 consisted of the following: 

(in millions) 2017 2016

Paid $ 11 $ 10

Unpaid 14,334 18,443

Undelivered orders at the end of the year $ 14,345 $ 18,453

CONTRIBUTED CAPITAL

Contributed capital represents the current year authority and prior year balances of amounts actually transferred through 

non-expenditure transfers to miscellaneous receipt accounts of the General Fund to repay a portion of a capital investment

or transfer seigniorage and numismatic profits (refer to Note 19). Contributed capital for the fiscal years ended September 

30, 2017 and 2016 was $117 million and $195 million, respectively. 

APPORTIONMENT CATEGORIES OF NEW OBLIGATIONS AND UPWARD ADJUSTMENTS

Apportionment categories are determined in accordance with the guidance provided in OMB Circular No. A-11, Preparation, 

Submission and Execution of the Budget. Apportionment Category A represents resources apportioned for calendar 

quarters. Apportionment Category B represents resources apportioned for other time periods for activities, projects or 

objectives, or for any combination thereof. New obligations and upward adjustments for direct and reimbursable obligations 

by apportionment category for the fiscal years ended September 30, 2017 and 2016 consisted of the following: 

(in millions) 2017 2016

Direct - Category A $ 35 $ 106

Direct - Category B 27,925 31,768

Direct - Exempt from Apportionment 467,038 441,961

Total Direct 494,998 473,835

Reimbursable - Category B 5,728 4,954

Reimbursable - Exempt from Apportionment 1,343 1,301

Total Reimbursable 7,071 6,255

Total Direct and Reimbursable $ 502,069 $ 480,090

TERMS OF BORROWING AUTHORITY USED

Several of our programs have authority to borrow under the FCRA, as amended. The FCRA provides indefinite borrowing 

authority to financing accounts to fund the unsubsidized portion of direct loans and to satisfy obligations in the event the 

financing account’s resources are insufficient. OMB Circular No. A-11 defines repayment requirements. Interest expense 

due is calculated based on the beginning balance of borrowings outstanding and the borrowings/repayments activity that 

occurred during the fiscal year. Undisbursed Departmental borrowings earn interest at the same rate as the financing 

account pays on its debt owed to the Fiscal Service. In the event that principal and interest collections exceed the interest 

expense due, we receive the excess payment. If principal and interest do not exceed interest expense due, we will borrow the 
DEPARTMENT OF THE TREASURY 113 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

difference. We make periodic principal repayments based on the analysis of cash balances and future disbursement needs. 

All interest on borrowings is due on September 30. Interest rates on FCRA borrowings range from 1.92 percent to 6.36 

percent.

AVAILABLE BORROWING

The available borrowing authority and related changes in available borrowing authority as of and for the fiscal years ended 

September 30, 2017 and 2016 are shown below: 

(in millions) 2017 2016

Beginning Balance $ 6,520 $ 93,963

Current Authority 268 365

Borrowing Authority Withdrawn (1) - (87,501)

Borrowing Authority Converted to Cash (188) (307)

Ending Balance $ 6,600 $ 6,520

(1) In FY 2016, Congress passed the Consolidated Appropriations Act of 2016 (P.L. 114-113) which ended the application of FCRA in 

connection with IMF programs. The decrease in this activity for FY 2017 is a result of the FY 2016 withdrawal of borrowing authority 

and obtaining an appropriation warrant to cover the full amount of the commitment made to the IMF. 

RECONCILIATION OF THE PRESIDENT’S BUDGET

The Budget of the United States (also known as the President’s Budget), with actual numbers for FY 2017, was not 

published at the time that these financial statements were issued. The FY 2019 President’s Budget is expected to be 

published in February 2018, will be located on the OMB website, and will be available from the U.S. Government Publishing

Office. The following chart displays the differences between the Combined Statement of Budgetary Resources (SBR) in the 

FY 2016 AFR and the actual FY 2016 balances included in the FY 2018 President’s Budget.
114 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Reconciliation of FY 2016 Combined Statement of Budgetary Resources

to the FY 2018 President’s Budget

Obligations Outlays (net Distributed

Budgetary and Upward of offsetting Offsetting Net

(in millions) Resources Adjustments collections) Receipts Outlays

Combined Statement of Budgetary Resources (SBR) Amounts $ 797,299 $ 480,090 $ 462,822 $ (62,565) $ 400,257

IRS non-entity tax credit payments and other outlays not in SBR (1) 127,101 127,101 121,821 - 121,821

Tax and Trade Bureau (TTB) non-entity collections for Puerto Rico not in SBR 417 417 417 - 417

Expired funds in SBR (700) - - - -

Non-Treasury offsetting receipts - - - (857) (857)

Other (51) (47) (53) - (53)

President's Budget Amounts $ 924,066 $ 607,561 $ 585,007 $ (63,422) $ 521,585

(1) These are primarily refundable Earned Income Tax Credit, Refundable Premium Tax Credit and Child Tax Credit, reported with refunds as 

custodial activities in our financial statements and thus are not reported as budgetary resources.

LEGAL ARRANGEMENTS AFFECTING USE OF UNOBLIGATED BALANCES

The use of unobligated balances is restricted based on annual legislation requirements or enabling authorities. Funds are 

presumed to be available for only one fiscal year unless otherwise noted in the annual appropriation language. Unobligated 

balances in unexpired Treasury account fund symbols are available in the next fiscal year for new obligations unless some 

restrictions have been placed on those funds by law. In those situations, the restricted funding will be temporarily 

unavailable until such time as the reasons for the restriction have been satisfied or legislation has been enacted to remove 

the restriction.

Amounts in expired Treasury account fund symbols are not available for new obligations, but may be used to make 

adjustments to reflect, and make disbursements to liquidate, obligations that were created before the budgetary authority 

expired.
DEPARTMENT OF THE TREASURY 115 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

22. SOURCES AND DISPOSITION OF CUSTODIAL REVENUE 

We collect the majority of federal revenue from income and excise taxes. The table below shows collection activity, by 

revenue type and tax year, for the fiscal years ended September 30, 2017 and 2016: 

Tax Year

Pre- 2017

(in millions) 2017 2016 2015 2015 Collections

Individual Income and FICA Taxes $ 1,929,988 $ 988,750 $ 32,331 $ 25,375 $ 2,976,444

Corporate Income Taxes 218,569 108,883 1,773 9,304 338,529

Estate and Gift Taxes 162 20,873 1,050 1,695 23,780

Excise Taxes 62,684 22,455 40 154 85,333

Railroad Retirement Taxes 4,592 1,363 - 2 5,957

Unemployment Taxes 4,433 3,706 32 113 8,284

Fines, Penalties, Interest & Other Revenue -

 Tax Related 218 1 - 1 220

Tax Related Revenue Received 2,220,646 1,146,031 35,226 36,644 3,438,547

Deposit of Earnings, Federal Reserve System 61,837 19,450 - - 81,287

Fines, Penalties, Interest & Other Revenue -

 Non-Tax Related 3,952 868 - - 4,820

Non-Tax Related Revenue Received 65,789 20,318 - - 86,107

Total Revenue Received $ 2,286,435 $ 1,166,349 $ 35,226 $ 36,644 $ 3,524,654

Less Amounts Collected for Non-Federal Entities 370

Total $ 3,524,284

Tax Year

 Pre- 2016 

(in millions) 2016 2015 2014 2014 Collections

Individual Income and FICA Taxes $ 1,833,546 $ 982,879 $ 32,757 $ 25,695 $ 2,874,877

Corporate Income Taxes 228,219 107,207 2,426 7,700 345,552

Estate and Gift Taxes 18 8,006 906 13,407 22,337

Excise Taxes 74,711 23,011 67 142 97,931

Railroad Retirement Taxes 4,527 1,411 1 2 5,941

Unemployment Taxes 4,311 3,974 50 105 8,440

Fines, Penalties, Interest & Other Revenue -

 Tax Related 470 - 1 1 472

Tax Related Revenue Received 2,145,802 1,126,488 36,208 47,052 3,355,550

Deposit of Earnings, Federal Reserve System 72,244 43,428 - - 115,672

Fines, Penalties, Interest & Other Revenue -

 Non-Tax Related 3,069 848 - - 3,917

Non-Tax Related Revenue Received 75,313 44,276 - - 119,589

Total Revenue Received $ 2,221,115 $ 1,170,764 $ 36,208 $ 47,052 $ 3,475,139

Less Amounts Collected for Non-Federal Entities 425

Total $ 3,474,714
116 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

AMOUNTS PROVIDED TO FUND THE U.S. GOVERNMENT 

For the fiscal years ended September 30, 2017 and 2016, collections of custodial revenue transferred to other federal entities 

were as follows: 

(in millions) 2017 2016

Department of the Interior $ 760 $ 749

General Fund 3,086,201 3,047,484

Total $ 3,086,961 $ 3,048,233

FEDERAL TAX REFUNDS AND OTHER PAYMENTS 

Federal tax refunds and other payments include amounts paid to taxpayers who have paid more than the actual taxes they 

owe, as well as payments for various refundable tax credits. Refunds and other payments, by revenue type and tax year, 

were as follows for the years ended September 30, 2017 and 2016: 

Tax Year

2017

(in millions) 2017 2016 2015

Pre2015Refunds / 

Payments

Individual Income and FICA Taxes $ 46,278 $ 306,351 $ 27,804 $ 8,734 $ 389,167

Corporate Income Taxes 5,167 14,447 7,758 17,523 44,895

Estate and Gift Taxes - 188 381 478 1,047

Excise Taxes 411 956 224 462 2,053

Railroad Retirement Taxes - 3 - (1) 2

Unemployment Taxes 1 114 15 29 159

Total $ 51,857 $ 322,059 $ 36,182 $ 27,225 $ 437,323

Tax Year

2016

(in millions) 2016 2015 2014

Pre2014Refunds / 

Payments

Individual Income and FICA Taxes $ 37,029 $ 300,721 $ 26,529 $ 8,030 $ 372,309

Corporate Income Taxes 6,511 19,143 7,345 18,283 51,282

Estate and Gift Taxes 357 529 130 285 1,301

Excise Taxes 157 611 379 243 1,390

Railroad Retirement Taxes - 3 - - 3

Unemployment Taxes 1 155 18 22 196

Total $ 44,055 $ 321,162 $ 34,401 $ 26,863 $ 426,481

FEDERAL TAX REFUNDS AND OTHER AMOUNTS PAYABLE

As of September 30, 2017 and 2016, refunds and other amounts payable consisted of the following:

(in millions) 2017 2016

Internal Revenue Service $ 3,062 $ 2,974

Alcohol and Tobacco Tax and Trade Bureau 12 19

Total $ 3,074 $ 2,993
DEPARTMENT OF THE TREASURY 117 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

23. FUNDS FROM DEDICATED COLLECTIONS

ESF represents the majority of our FDC activities. In addition, such funds managed by BEP, Mint, and OCC (our nonappropriated bureaus) and certain funds managed by the IRS are public enterprise (or revolving) funds and receive no 

appropriations from the Congress. Fiscal Service, DO, IRS, OFR, TFF, and the CDFI Fund manage other miscellaneous 

FDCs. 

The following is a list of FDCs and a brief description of the purpose, accounting, and uses of these funds.

Bureau Fund Code Fund Title/Description

Exchange Stabilization Fund (ESF)

ESF 020X4444 Exchange Stabilization Fund

Public Enterprise/Revolving Funds

BEP 020X4502 Bureau of Engraving and Printing Fund

Mint 020X4159 Public Enterprise Fund

OCC 020X8413 Assessment Funds

IRS 020X4413 Federal Tax Lien Revolving Fund

Other FDC Funds

Fiscal Service 020X5080 Gifts to Reduce Public Debt

Fiscal Service 020X5081 Presidential Election Campaign

Fiscal Service 020X8625 Gulf Coast Restoration Trust Fund

Fiscal Service 020X8902 Esther Cattell Schmitt Gift Fund

Fiscal Service 5805585 Travel Promotion Fund, Corp for Travel Promotion

Fiscal Service 580X5585 Travel Promotion Fund, Corp for Travel Promotion

Fiscal Service 020X5581 HOPE Reserve Fund

Fiscal Service 0205445002 Debt Collection Special Fund

Fiscal Service 0205445003 Debt Collection Special Fund

Fiscal Service 0201/25445 Debt Collection Special Fund

Fiscal Service 0202/35445 Debt Collection Special Fund

Fiscal Service 0203/45445 Debt Collection Special Fund 

Fiscal Service 0204/55445 Debt Collection Special Fund

Fiscal Service 0205/65445 Debt Collection Special Fund

Fiscal Service 0206/75445 Debt Collection Special Fund

Fiscal Service 0207/85445 Debt Collection Special Fund

DO 020X8790 Gifts and Bequests Trust Fund

IRS 020X5510 Private Collection Agency Program

IRS 020X5433 Informant Reimbursement

IRS 020X5622 Special Compliance Personnel Program Account

OFR 020X5590 Financial Research Fund

TFF 020X5697 Treasury Forfeiture Fund

CDFI 020X8524 Capital Magnet Fund
118 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Pursuant to the legal authority found in Section 10 of the Gold Reserve Act of 1934, as amended, the ESF may purchase or 

sell foreign currencies, hold U.S. foreign exchange and SDR assets, and may provide financing to foreign governments and 

foreign entities. The ESF accounts for and reports its holdings to the Fiscal Service on the Standard Form 224, “Statement 

of Transactions,” and provides other reports to Congress. Interest on SDRs in the IMF, investments in Treasury securities, 

and investments in foreign currency assets are ESF’s primary sources of revenue. The ESF’s earnings and realized gains on 

foreign currency assets represent inflows of resources to the government, and the interest revenues earned from U.S. 

Securities are the result of intra-departmental flows.

The BEP, Mint, OCC, and IRS operate “public enterprise/revolving funds” to account for all or some of their respective 

revenues and expenses. 31 USC 5142 established the Bureau of Engraving and Printing Fund for BEP to account for 

revenue and expenses related to the currency printing activities. P.L. 104-52 (31 USC 5136) established the Public 

Enterprise Fund for the Mint to account for all revenue and expenses related to the production and sale of numismatic 

products and circulating coinage. Revenues and other financing sources at the Mint are mainly from the sale of numismatic 

and bullion products and the sale of circulating coins to the FRB system. These revenues represent inflows of resources to 

the government. 12 USC 481 established the Assessment Funds for OCC. Revenue and financing sources are from the bank 

examinations and assessments for the oversight of the national banks, savings associations, and savings and loan holding 

companies. These non-appropriated funds contribute to the inflows of resources to the government to specifically fund these 

entities’ operations. 26 USC 7810 established the Federal Tax Lien Revolving Fund to account for revenue and expenses 

from the sale of property foreclosed upon by a holder of a lien. Such revenue represents inflows of resources to the federal

government. There are minimal transactions with other government agencies.

There are other FDCs at several of our bureaus, such as donations to the Presidential Election Campaign Fund, gifts to 

reduce the public debt, and other enforcement related activities. Public laws and the U.S. Code established and authorized 

the use of these funds. Sources of revenues and other financing sources include contributions, cash and property forfeited in 

enforcement activities, public donations, and other allocations, all which represent inflows to the government.

INTRA-GOVERNMENTAL INVESTMENTS IN TREASURY SECURITIES

The U.S. government does not set aside assets to pay future benefits or other expenditures associated with FDCs. Our

bureaus and other federal agencies invest some of the funds that they collect from the public, if they have the statutory 

authority to do so, in Treasury securities. The Fiscal Service collects cash and makes deposits in the General Fund, which is 

then available for general government purposes.

When our bureaus or other federal agencies redeem these securities to make expenditures, the government finances those 

redemptions out of accumulated cash balances, by collecting taxes or other receipts, by borrowing from the public, or by 

curtailing expenditures. This is the same way that the government finances all other expenditures.

The securities are an asset to our bureaus and other federal agencies and a liability of the General Fund. Because our

bureaus and other federal agencies are parts of the U.S. government, these assets and liabilities offset each other from the 

standpoint of the government as a whole. For this reason, they do not represent an asset or a liability in the U.S. 

government-wide financial statements.

Our financial statements do not display the balances related to the investments made by our bureaus because the bureaus 

are subcomponents of the Department. However, the General Fund remains liable to the Fiscal Service for the invested 

balances and the Fiscal Service remains liable to the investing bureaus (refer to Note 4).
DEPARTMENT OF THE TREASURY 119 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Summary Information for Funds from Dedicated Collections

as of and for the Fiscal Year Ended September 30, 2017

Public

Exchange Enterprise/

Stabilization Revolving Other FDC Combined

(in millions) Fund Funds Funds FDC Funds

ASSETS

Fund Balance $ - $ 1,048 $ 1,060 $ 2,108

Investments and Related Interest - Intra-governmental 22,091 1,793 3,606 27,490

Cash, Foreign Currency and Other Monetary Assets 64,142 - 12 64,154

Investments and Related Interest 8,541 - - 8,541

Other Assets - 1,591 228 1,819

Total Assets $ 94,774 $ 4,432 $ 4,906 $ 104,112

LIABILITIES

Intra-governmental Liabilities $ - $ 29 $ 1,075 $ 1,104

Certificates Issued to the Federal Reserve 5,200 - - 5,200

Allocation of Special Drawing Rights 49,912 - - 49,912

Other Liabilities 46 686 113 845

Total Liabilities 55,158 715 1,188 57,061

Net Position

Unexpended Appropriations 200 - - 200

Cumulative Results of Operations 39,416 3,717 3,718 46,851

Total Liabilities and Net Position $ 94,774 $ 4,432 $ 4,906 $ 104,112

Statement of Net Cost

Gross Cost $ 7,655 $ 4,103 $ 698 $ 12,456

Less: Earned Revenue (7,434) (4,148) (322) (11,904)

Total Net Cost of (Revenue From) Operations $ 221 $ (45)$ 376 $ 552

Statement of Changes in Net Position

Cumulative Results of Operations:

Beginning Balance $ 39,637 $ 3,492 $ 3,981 $ 47,110

Budgetary Financing Sources - (19) (168) (187)

Other Financing Sources - 199 281 480

Total Financing Sources - 180 113 293

Revenue From (Net Cost of) Operations (221) 45 (376) (552)

Change in Net Position (221) 225 (263) (259)

Ending Balance $ 39,416 $ 3,717 $ 3,718 $ 46,851
120 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Summary Information for Funds from Dedicated Collections

as of and for the Fiscal Year Ended September 30, 2016

Public

Exchange Enterprise/

Stabilization Revolving Other FDC Combined

(in millions) Fund Funds Funds FDC Funds

ASSETS

Fund Balance $ - $ 944 $ 935 $ 1,879

Investments and Related Interest - Intra-governmental 22,680 1,662 3,733 28,075

Cash, Foreign Currency and Other Monetary Assets 61,813 - 17 61,830

Investments and Related Interest 9,842 - - 9,842

Other Assets - 1,686 241 1,927

Total Assets $ 94,335 $ 4,292 $ 4,926 $ 103,553

LIABILITIES

Intra-governmental Liabilities $ - $ 32 $ 763 $ 795

Certificates Issued to the Federal Reserve 5,200 - - 5,200

Allocation of Special Drawing Rights 49,294 - - 49,294

Other Liabilities 4 768 182 954

Total Liabilities 54,498 800 945 56,243

Net Position

Unexpended Appropriations 200 - - 200

Cumulative Results of Operations 39,637 3,492 3,981 47,110

Total Liabilities and Net Position $ 94,335 $ 4,292 $ 4,926 $ 103,553

Statement of Net Cost

Gross Cost $ 317 $ 4,804 $ 576 $ 5,697

Less: Earned Revenue (1,925) (4,841) (309) (7,075)

Gains/Losses on Pension, ORB, or OPEB Assumption Changes - 9 - 9

Total Net Cost of (Revenue From) Operations $ (1,608)$ (28)$ 267 $ (1,369)

Statement of Changes in Net Position

Cumulative Results of Operations:

Beginning Balance $ 38,029 $ 3,415 $ 7,202 $ 48,646

Budgetary Financing Sources - (61) (3,339) (3,400)

Other Financing Sources - 110 385 495

Total Financing Sources - 49 (2,954) (2,905)

Revenue From (Net Cost of) Operations 1,608 28 (267) 1,369

Change in Net Position 1,608 77 (3,221) (1,536)

Ending Balance $ 39,637 $ 3,492 $ 3,981 $ 47,110
DEPARTMENT OF THE TREASURY 121 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

24. RECONCILIATION OF NET COST OF TREASURY OPERATIONS AND 

NON-ENTITY COSTS TO BUDGET

The Reconciliation of Net Cost of Operations to Budget explains the difference between the budgetary net obligations and the 

proprietary net cost of Treasury operations and non-entity costs. For the fiscal years ended September 30, 2017 and 2016, 

the Reconciliation of Net Cost of Operations to Budget consisted of the following:

(in millions) 2017 2016

RESOURCES USED TO FINANCE ACTIVITIES

Budgetary Resources Obligated: 

New Obligations and Upward Adjustments (Note 21) $ 502,069 $ 480,090

Less: Actual Offsetting Collections and Recoveries of Prior Year Unpaid 

 Obligations, Net of Change in Uncollected Payments (10,508) (114,447)

New Obligations and Upward Adjustments Net of Offsetting Collections and Recoveries 491,561 365,643

Less: Distributed Offsetting Receipts (75,089) (62,565)

Net Obligations 416,472 303,078

 

Other Resources:

Donations and Forfeiture of Property 106 158

Financing Sources for Accrued Interest and Discount on Debt 11,266 3,456

Financing Sources for Accrued Interest on Restoration of Federal Debt Principal (Note 15) 660 (2,052)

Transfers In/Out Without Reimbursement - (3)

Imputed Financing Sources from Cost Absorbed by Others 552 681

Transfers to the General Fund and Other (Note 19) (55,225) (64,949)

Net Other Resources Used to Finance Activities (42,641) (62,709)

Total Resources Used to Finance Activities 373,831 240,369

 

RESOURCES USED TO FINANCE ITEMS NOT PART OF THE NET COST OF

 TREASURY OPERATIONS AND NON-ENTITY COSTS 

Change in Budgetary Resources Obligated for Goods, Services, and Benefits Ordered but not

 yet Provided (3,934) (97,256)

Resources that Fund Expenses Recognized in Prior Periods (77) 115

Budgetary Offsetting Collections & Receipts that do not affect Net Cost of Treasury 

 Operations and Non-Entity Costs (73,724) (60,595)

Adjustment to Accrued Interest and Discount on Debt 13,839 5,810

Resources that Finance the Acquisition of Assets or Liquidation of Liabilities (551) (7,444)

Other Resources or Adjustments to Net Obligated Resources that do not Affect Net Cost of 

 Treasury Operations and Non-Entity Costs 436 (4,209)

Total Resources Used to Finance Items Not Part of the Net Cost of Treasury Operations and 

 Non-Entity Costs (64,011) (163,579)

Total Resources Used to Finance the Net Cost of Treasury Operations and Non-

 Entity Costs 437,842 403,948

 

Total Components of Net Cost of Treasury Operations and Non-Entity Costs That Will 

 Require or Generate Resources in Future Periods (26) (290)

Total Components of Net Cost of Treasury Operations and Non-Entity Costs That Will Not 

 Require or Generate Resources (a) 832 (34)

Total Components of Net Cost of Treasury Operations and Non-Entity Costs

 That Will Not Require or Generate Resources in the Current Period 806 (324)

Net Cost of Treasury Operations and Non-Entity Costs $ 438,648 $ 403,624

(a) The Components not requiring or generating resources primarily include depreciation and amortization and revaluation of assets or

liabilities. 
122 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

25. SCHEDULE OF FIDUCIARY ACTIVITY

We have identified the following funds as meeting the criteria for fiduciary activity. Details of the funds are provided below.

Bureau Fund Code Authority Fund Title/Description

Fiscal Service 020X6133 31 USC 1322 Payment of Unclaimed Monies

BEP 020X6513.013 31 USC 5119 Mutilated Currency Claims Funds

Fiscal Service 020X6045 31 USC 3328 Proceeds, Payments of Unpaid Checks

Fiscal Service 020X6048 31 USC 3329, 3330 Proceeds of Withheld Foreign Checks

Fiscal Service 020015X6078 50 APP. USC 2012 War Claims Fund, Foreign Claims Settlement Commission

Fiscal Service 020X6092 31 USC 1321 Debt Management Operations

Fiscal Service 020X6104 22 USC 1627 Albanian Claims Fund, Treasury

Fiscal Service 020X6210 22 USC 1623 Iraq Claims Settlement Fund

Fiscal Service 020X6309 22 USC 1627(a) Libyan Claims Settlement Fund

Fiscal Service 020X6310 22 USC 1627(a) Libyan Claims Settlement Fund

Fiscal Service 020X6312 22 USC 1627 Iranian Claims Settlement Fund

Fiscal Service 020X6314 22 USC 1644g German Democrat Settlement Fund

Fiscal Service 020X6315 22 USC 1645h Vietnam Claims Settlement Fund

Fiscal Service 020X6501.018 31 USC 3513 Small Escrow Amounts

Fiscal Service 020X6720 31 USC 3513 Small Difference Account for Deposit and Check Adjustments

Fiscal Service 020X6830 104 Stat. 1061 Net Interest Payments to/from State

Fiscal Service 020X6999 31 USC 3513 Accounts Payable, Check Issue Underdrafts

IRS 020X6737 90 Stat. 269-270 Internal Revenue Collections for Northern Mariana Island

IRS 020X6738 31 USC 3513 Coverover Withholdings-U.S. Virgin Islands

IRS 020X6740 31 USC 3515 Coverover Withholdings-Guam

IRS 020X6741 31 USC 3513 Coverover Withholdings-American Samoa

OAS 020X6317.001 22 USC 2431 Belize Escrow, Debt Reduction

“Payment of Unclaimed Monies” is a fund authorized by 31 USC 1322, permitting the Fiscal Service to collect unclaimed 

monies on behalf of the public. Our other fiduciary activities as listed above are included in All Other Fiduciary Funds.

Schedule of Fiduciary Activity 

2017 2016

Payment of All Payment of All

Unclaimed Other Total Unclaimed Other Total

Monies Fiduciary Fiduciary Monies Fiduciary Fiduciary

(in millions) Fund Funds Funds Fund Funds Funds

Fiduciary Net Assets, Beginning of

 the Year $ 647 $ 132 $ 779 $ 608 $ 133 $ 741

Increases:

 Contributions to Fiduciary Net Assets 51 382 433 39 342 381

 Investment earnings - - - - 1 1

Total Increases 51 382 433 39 343 382

Decreases:

 Disbursements to and on behalf

 of beneficiaries (2) (416) (418) - (344) (344)

Total Decreases (2) (416) (418) - (344) (344)

Net Increase (Decrease) in

 Fiduciary Assets 49 (34) 15 39 (1) 38

Fiduciary Net Assets, End of Year $ 696 $ 98 $ 794 $ 647 $ 132 $ 779
DEPARTMENT OF THE TREASURY 123 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Schedule of Fiduciary Net Assets

2017 2016

Payment of All Payment of All

Unclaimed Other Total Unclaimed Other Total

Monies Fiduciary Fiduciary Monies Fiduciary Fiduciary

(in millions) Fund Funds Funds Fund Funds Funds

Fiduciary Net Assets

Cash and Cash Equivalents $ 696 $ 42 $ 738 $ 647 $ 69 $ 716

Investments - 61 61 - 67 67

Other Assets - - - - 1 1

Total Fiduciary Assets 696 103 799 647 137 784

Less: Fiduciary Liabilities - (5) (5) - (5) (5)

Total Fiduciary Net Assets $ 696 $ 98 $ 794 $ 647 $ 132 $ 779

26. COMMITMENTS AND CONTINGENCIES

LEGAL CONTINGENCIES

We are a party in various administrative proceedings, legal actions, and claims, which may ultimately result in settlements 

or decisions adverse to the U.S. government. These contingent liabilities arise in the normal course of operations and their 

ultimate disposition is unknown. We disclose contingent liabilities where the conditions for liability recognition have not 

been met and the likelihood of unfavorable outcome is more than remote. We do not accrue for possible losses related to 

cases where we cannot estimate the potential loss or the likelihood of an unfavorable outcome is less than probable.

In some cases, a portion of any loss that may occur may be paid by our Judgment Fund, which is separate from our operating 

resources. For cases related to the Contract Disputes Act of 1978 (P.L. 95-563) and awards under federal anti-discrimination 

and whistle-blower protection acts, we must reimburse the Judgment Fund from future appropriations.

In the opinion of our management and legal counsel, based on information available as of the date of this report, the 

expected outcome of other legal actions, individually or in the aggregate, will not have a materially adverse effect on our

consolidated financial statements, except for the pending legal actions described below which may have a materially adverse 

impact on our consolidated financial statements depending on the outcomes of the cases.

Pending Legal Actions

• Tribal Trust Fund Cases: Native American tribes have filed numerous cases in the U.S. District Courts seeking a 

declaration that the U.S. has not provided the tribes with a full and complete accounting of their trust funds, and also 

seeking an order requiring the U.S. government to provide such an accounting. In addition, there are a number of other 

related cases seeking damages in the U.S. Court of Federal Claims, which do not name us as a defendant. The U.S. 

government is currently in discussion with counsel representing most of the remaining plaintiff tribes with tribal trust 

fund cases pending against the U. S. about the feasibility of an out-of-court settlement. Plaintiff tribes in several of the 

pending cases have chosen to pursue active litigation, rather than settlement discussion, and the U.S. government is 

litigating those cases vigorously. We are unable to determine the likelihood of an unfavorable outcome or an estimate of 

potential loss at this time.

• GSE Related Cases: A number of cases were filed in the U.S. Court of Federal Claims and U.S. District Courts in which 

the plaintiffs allege, among other things, that the U.S. government took their property and contractual rights as 
124 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

preferred and common stockholders when the third amendments to the SPSPAs between us and each GSE were 

executed in August 2012 (refer to Note 10). One case also alleges that the U.S. government took plaintiffs’ property and 

contractual rights when the GSEs were placed into conservatorship and entered into the SPSPAs with us in September 

2008. In the U.S. Court of Federal Claims, the plaintiffs seek just compensation (damages) from the U.S. government. 

In the U.S. District Courts, the plaintiffs seek to set aside the third amendments to the SPSPAs as well as damages, and 

in some cases a declaration that the FHFA’s structure violates the separation of powers. The U.S. District Court for the 

District of Columbia (D.C.) granted the defendants’ motions to dismiss four cases pending in that court. On February 

21, 2017, the U.S. Court of Appeals for the D.C. Circuit affirmed dismissal of all claims against the Department. On 

October 16, 2017, the plaintiff petitioned the Supreme Court for a writ of certiorari. An additional case in the U.S. 

District Court for the D.C. was dismissed and not appealed. Cases in the U.S. District Court for the Northern District of 

Illinois, the U.S. District Court for the Northern District of Iowa, the U.S. District Court for the Eastern District of 

Kentucky, and the U.S. District Court for the Southern District of Texas have been dismissed by the District Courts and 

appeals are pending. We are unable to determine the likelihood of an unfavorable outcome or an estimate of potential 

loss in these cases at this time.

• Starr International Co., Inc. v. United States: The plaintiff, an American International Group, Inc. (AIG) shareholder, 

brought suit on behalf of two classes of shareholders. The suit alleges that the U.S. government violated the Fifth 

Amendment to the U. S. Constitution by illegally exacting or taking property without just compensation. One class, the 

Credit Agreement Shareholder Class, claimed the U.S. government violated the Fifth Amendment when it conveyed a 

majority share of AIG’s equity and voting rights in connection with an $85 billion loan to AIG during the 2008 financial 

crisis. Starr also asserted a Fifth Amendment violation on behalf of the second class, the Reverse Stock Split 

Shareholder Class, alleging that a June 2009 reverse stock split constituted a taking of the common stockholders’ 

asserted right to a shareholder vote on whether to approve a reverse split of AIG’s common stock. The U.S. Court of 

Federal Claims held that the Credit Agreement Shareholder Class prevails on liability, but recovers no damages, and 

that the Reverse Stock Split Shareholder Class does not prevail on liability or damages. Upon appeal, the U.S. Court of 

Appeals for the Federal Circuit overturned the lower court’s finding with respect to the Credit Agreement Shareholder 

Class and held that the plaintiff did not have standing to bring the illegal exaction claim, since equity-acquisition claims 

belong exclusively to AIG and not to its shareholders. (AIG’s board of directors declined to pursue any claims against 

the U.S. government in a unanimous vote in January 2013.) The U.S. Court of Appeals for the Federal Circuit also 

affirmed the trial court’s ruling on the reverse stock split claim. On October 6, 2017, the plaintiff petitioned the 

Supreme Court for a writ of certiorari. We are unable to determine the likelihood of an unfavorable outcome or make an 

estimate of potential loss at this time.

• Unredeemed Savings Bonds Related Cases: A number of plaintiffs filed claims in the U.S. Court of Federal Claims 

requesting that we redeem matured savings bonds not possessed by the applicable states, but which have registered 

owners with last known addresses in those states. We informed the applicable states we would not redeem these 

savings bonds since those states were not the registered owners of the bonds. On August 20, 2015, the U.S. Court of 

Federal Claims partially dismissed one claim and denied the U.S. government’s motion to dismiss with respect to other 

claims. On August 8, 2017, the court ruled in favor of two states, and the U.S. government has appealed. We are unable 

to determine the likelihood of an unfavorable outcome or an estimate of potential loss at this time.

• Adam Steele, Brittany Montrois, and Joseph Henchman v. United States: The plaintiffs filed a class claim in the U.S. 

District Court for the District of Columbia seeking refunds of all user fees paid, plus interest, to obtain a preparer tax 

identification number (PTIN). Additionally, the plaintiffs seek to force us to cease charging a user fee to obtain a PTIN 

and asking for more information than is necessary to issue a PTIN. On June 1, 2017, the U.S. District Court for the D.C. 

found for the plaintiffs in the previously mentioned matters. On October 24, 2017, a motion for stay was filled and is 
DEPARTMENT OF THE TREASURY 125 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

awaiting a ruling as the U.S. government considers whether or not to appeal. We are unable to determine the likelihood 

of an unfavorable outcome or an estimate of potential loss at this time.

• Anonymous Whistleblower Cases: A number of whistleblower cases were filed in the U.S. Tax Court under seal, 

appealing the denial of an award by the IRS Whistleblower Office. The anonymous claimants allegedly provided 

confidential information about tax fraud committed by multiple taxpayers to the IRS. The U.S. Tax Court is currently 

holding these cases in abeyance until it determines the scope and standard of review it will follow. We are unable to 

determine the likelihood of an unfavorable outcome or an estimate of potential loss at this time. 

• American Recovery and Reinvestment Tax Act of 2009 (ARRA) Related Cases: A number of cases were filed in the U.S. 

Court of Federal Claims alleging that the U.S. government violated statutory and regulatory mandates to make proper 

payments to plaintiffs under ARRA, Section 1603, for having placed certain energy properties into service. We have 

determined there is a reasonably possible likelihood of an unfavorable outcome in some of the cases. On October 28, 

2016, the U.S. Court of Federal Claims entered judgment against the U. S. in the amount of $207 million in one of the 

cases. The U.S. government appealed the judgment and the case remains in litigation. Additional related cases with 

alleged damages of approximately $49 million have been filed. Another unrelated case with alleged damages of $47 

million remains in litigation.

• Other Legal Actions: We are also involved in employment related legal actions (e.g., matters alleging discrimination and 

other claims before federal courts, the Equal Employment Opportunity Commission, and the Merit Systems Protection 

Board) for which an unfavorable outcome is reasonably possible, but for which an estimate of potential loss cannot be 

determined at this time. We do not expect that these cases will have a material adverse effect on our consolidated 

financial position or results. 

OTHER COMMITMENTS AND CONTINGENCIES

Loan Commitments 

Through the FFB, we make loan commitments with federal agencies, or private sector borrowers with loans guaranteed by 

federal agencies, to extend them credit for their own use (refer to Notes 1L and 3). As of September 30, 2017 and 2016, we

had loan commitments totaling $12.7 billion and $12.5 billion, respectively.

Multilateral Development Banks

On behalf of the U. S., we have subscribed to capital for certain MDBs, portions of which are callable under certain limited 

circumstances to meet the obligations of the respective MDB. There has never been, nor is there anticipated, a call on the 

U.S. commitment for these subscriptions. As of September 30, 2017 and 2016, U.S. callable capital in MDBs was as follows:

(in millions) 2017 2016

Inter-American Development Bank $ 49,181 $ 49,181

International Bank for Reconstruction and Development 43,521 43,427

Asian Development Bank 18,702 18,701

African Development Bank 4,592 4,085

European Bank for Reconstruction and Development 3,055 3,055

North American Development Bank 1,275 1,275

Multilateral Investment Guarantee Agency(1) 315 315

Total $ 120,641 $ 120,039

(1) Both FY 2017 and 2016 include commitments of $22 million for the undisbursed portion of the subscription to paid-in capital 

investments. 
126 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Terrorism Risk Insurance Program 

Congress originally enacted the Terrorism Risk Insurance Act in November 2002, to address market disruptions resulting 

from terrorist attacks on September 11, 2001. Most recently, the Terrorism Risk Insurance Program Reauthorization Act of 

2015 (P.L. 114-1) extended the Terrorism Risk Insurance Program (TRIP) until December 31, 2020. The TRIP helps to 

ensure available and affordable commercial property and casualty insurance for terrorism risk, and simultaneously allows 

private markets to stabilize. The authority to pay claims under the TRIP is activated when the Secretary (in consultation 

with the Secretary of the Department of Homeland Security and the Attorney General of the United States) certifies an “act 

of terrorism.” In the event of certification of an “act of terrorism,” insurers may be eligible to receive reimbursement from 

the U.S. government for associated insured losses – assuming an aggregate insured loss threshold (“program trigger”) has 

been reached – once a particular insurer has satisfied its designated deductible amount. For calendar years 2017 and 2016, 

the program trigger amount was $140 million and $120 million, respectively. This amount will increase by $20 million 

annually through calendar year 2020. Insured losses above insurer deductibles will be shared between insurance companies 

and the U.S. government. The TRIP includes both mandatory and discretionary authority for Treasury to recoup federal 

payments made under the TRIP through policyholder surcharges under certain circumstances, and contains provisions 

designed to manage litigation arising from or relating to a certified act of terrorism. There were no claims under the TRIP as 

of September 30, 2017 or 2016.

Exchange Stabilization Agreement

The North American Framework Agreement (NAFA), which we signed in 1994, includes the Exchange Stabilization 

Agreement (ESA) with Mexico. Through the ESF, we have a swap line for $3.0 billion with Mexico under the NAFA and its 

implementing ESA. The amounts and terms (including the assured source of repayment) of any borrowing under NAFA and 

ESA will have to be negotiated and agreed to before any actual drawing can occur. The ESA does provide sample clauses 

that state that transactions shall be exchange rate neutral for the ESF, and bear an interest rate based on that comparable 

to Treasury bills. There were no drawings outstanding on the ESF swap line as of September 30, 2017 and 2016. 

IMF Commitments 

The U.S. participates in the IMF through a quota subscription and the NAB which is a borrowing arrangement that 

supplements IMF resources. As of September 30, 2017 and 2016, the U. S. financial commitment under the U.S. quota was 

SDR 83.0 billion, which was equivalent to $117.1 billion and $115.7 billion, respectively. Its financial commitment under the 

NAB arrangement was SDR 28.2 billion as of September 30, 2017 and 2016, which was equivalent to $39.9 billion and $39.4 

billion, respectively. Refer to Note 7 for further information. 

Housing Programs Under TARP 

We design housing programs under TARP to provide stability for both the housing market and homeowners. These 

programs assist homeowners who are experiencing financial hardships to remain in their homes until their financial position 

improves or they relocate to a more sustainable living situation, and to obtain other assistance designed to prevent 

foreclosures. As of September 30, 2017 and 2016, we had committed up to $37.4 billion and $37.5 billion, respectively, for 

these programs. Outstanding commitments totaled $10.8 billion and $15.0 billion as of September 30, 2017 and 2016, 

respectively. For FY 2017 and 2016, payments made on behalf of the housing programs under TARP totaled $4.1 billion and 

$4.3 billion, respectively, reported within the Economic Program on our Consolidated Statements of Net Cost. 
DEPARTMENT OF THE TREASURY 127 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Commitment to GSEs

The SPSPAs between us and each GSE, which have no expiration date, provide for us to disburse funds to the GSEs if, at the 

end of any quarter, the FHFA determines that the liabilities exceed the GSE’s assets. At September 30, 2017 and 2016, our

maximum remaining potential commitment to the GSEs was $258.1 billion. Refer to Note 10 for further information.
128 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED – SEE ACCOMPANYING 

AUDITORS’ REPORT) 

INTRODUCTION

This section provides the Required Supplementary Information as prescribed by accounting standards.

OTHER CLAIMS FOR REFUNDS

We estimated that $10.4 billion and $7.1 billion as of September 30, 2017 and 2016, respectively, may be payable as other 

claims for tax refunds. This estimate represents amounts (principal and interest) that we may pay for claims pending 

judicial review by the federal courts or internally, by Appeals. In FY 2017, the total estimated payout (including principal 

and interest) for claims pending judicial review by the federal courts and appeals courts is $8.2 billion and $2.2 billion, 

respectively. In FY 2016, the total estimated payout (including principal and interest) for claims pending judicial review by 

the federal courts and appeals courts was $4.8 billion and $2.3 billion, respectively. To the extent judgments against the 

government in these cases prompt other similarly situated taxpayers to file similar refund claims, these amounts could 

become significantly greater. 

IRS FEDERAL TAXES RECEIVABLE, NET

In accordance with SFFAS No. 7, some unpaid tax assessments do not meet the criteria for financial statement recognition. 

Internal Revenue Code 6201 authorizes and requires us to make inquiries, determinations, and assessments of all taxes 

which taxpayers have not duly paid (including interest, additions to the tax, and assessable penalties) under the law. 

Unpaid assessments result from taxpayers filing returns without sufficient payment, as well as from tax compliance 

programs such as examination, under-reporter, substitute for return, and combined annual wage reporting. We also have

authority to abate the paid or unpaid portion of an assessed tax, interest, and penalty. Abatements occur for a number of 

reasons and are a normal part of the tax administration process. Abatements may result in claims for refunds or a reduction 

of the unpaid assessed amount.

Under federal accounting standards, we consider unpaid assessments which require taxpayer or court agreement federal 

taxes receivable. We consider assessments not agreed to by taxpayers or the courts compliance assessments and not federal 

taxes receivable. Due to the lack of agreement, these compliance assessments are less likely to have future collection 

potential than those unpaid assessments that we consider federal taxes receivable.

We call assessments with little or no future collection potential write-offs. Write-offs principally consist of amounts owed by 

deceased, bankrupt, or defunct taxpayers, including many failed financial institutions liquidated by the Federal Deposit 

Insurance Corporation and the former Resolution Trust Corporation. Write-offs have little or no future collection potential, 

but statutory provisions require that we maintain these assessments until the statute for collection expires.

Although we do not consider compliance assessments and write-offs receivables under federal accounting standards, they 

represent legally enforceable claims of the U.S. government. 

The components of the total unpaid assessments at September 30, 2017 and 2016, were as follows: 
DEPARTMENT OF THE TREASURY 129 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

(in millions) 2017 2016

Total Unpaid Assessments $ 382,000 $ 391,000

Less Compliance Assessments (74,000) (74,000)

Write Offs (111,000) (139,000)

Gross Federal Taxes Receivable 197,000 178,000

Less Allowance for Doubtful Accounts (145,000) (129,000)

Federal Taxes Receivables, Net $ 52,000 $ 49,000

To eliminate double counting, the compliance assessments reported above exclude trust fund recovery penalties assessed 

against officers and directors of businesses involved in the non-remittance of federal taxes withheld from their employees. 

The penalties totaled $1 billion as of September 30, 2017 and 2016, respectively. We report the related unpaid assessments 

of those businesses as taxes receivable or write-offs, but we may also recover portions of those businesses’ unpaid 

assessments from any and all individual officers and directors against whom we assess a trust fund recovery penalty.

ALCOHOL AND TOBACCO TAX AND TRADE BUREAU

As an agent of the U.S. government and as authorized by 26 USC, the TTB collects excise taxes from alcohol, tobacco, 

firearms, and ammunition industries. In addition, the TTB collects special occupational taxes from certain tobacco 

businesses. During FY 2017 and 2016, TTB collected approximately $21.8 billion and $22.1 billion in taxes, interest, and 

other revenues, respectively. TTB also collects Federal excise taxes on certain articles produced in Puerto Rico and the 

Virgin Islands, and imported into the U.S. In accordance with 26 USC 7652, such taxes collected on rum imported into the 

U.S. are “covered over” or paid into the treasuries of Puerto Rico and the Virgin Islands.

TTB remits substantially all of the taxes collected, net of related refund disbursements, to the General Fund. We further 

distribute this revenue to Federal agencies in accordance with various laws and regulations. The firearms and ammunition 

excise taxes are an exception. TTB remits those revenues to the Fish and Wildlife Restoration Fund under provisions of the 

Pittman-Robertson Act of 1937. 

DEFERRED MAINTENANCE AND REPAIRS

In FY 2017 and 2016, we had no material amounts of deferred maintenance and repair costs to report on vehicles, buildings, 

and structures we owned.

Deferred maintenance and repairs applies to owned PP&E. Deferred maintenance and repairs are maintenance and repair 

activity that we had not performed when it should have been, or scheduled to be, and put off or delayed for a future period. 

We define maintenance and repairs as the act of keeping capitalized assets in an “acceptable condition” to serve their 

required mission. It includes preventive maintenance, normal repairs, replacement of parts and structural components, and 

other activities needed to preserve the asset so that it continues to provide acceptable services and achieves its expected 

useful life. Deferred maintenance and repairs excludes activities aimed at expanding the capacity or significantly upgrading 

the assets to a different form than it was originally intended (i.e., activities related to capitalized improvements, 

modernization, and/or restoration).

Logistic personnel use condition assessment surveys and/or the total life-cycle cost methods to determine if there are any 

deferred maintenance and repairs needed to keep an asset in acceptable operating condition. We use periodic condition 

assessments, physical inspections, and review of manufacturing and engineering specifications, work orders, and building 

and other structure logistics reports under these methodologies. 
130 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

STATEMENT OF BUDGETARY RESOURCES DISAGGREGATED BY TREASURY REPORTING ENTITY

The following tables provide the Statement of Budgetary Resources for the fiscal years ended September 30, 2017 and 2016 

disaggregated by Treasury reporting entity rather than by Treasury major budget account, since we manage our budget at 

the reporting entity level. 
DEPARTMENT OF THE TREASURY 131 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Fiscal Year 2017 Combining Statement of Budgetary Resources Disaggregated

by Sub-organization Accounts

Bureau of Bureau of Fin. Crimes Internal

Engraving & the Fiscal Departmental Enforcement Revenue

(in millions): Printing Service Offices (a) Network Service

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 134 $ 1,379 $ 312,864 $ 50 $ 948

Recoveries of unpaid prior year obligations 12 90 167 3 100

Other changes in unobligated balance - (60) (1,189) (1) (43)

Unobligated balance from prior year budget authority, net 146 1,409 311,842 52 1,005

Appropriations (discretionary and mandatory) - 476,362 5,207 115 11,631

Borrowing authority (discretionary and mandatory) - - 268 - -

Spending authority from offsetting collections (discretionary and 

 mandatory) 706 243 3,804 3 165

Total Budgetary Resources $ 852 $ 478,014 $ 321,121 $ 170 $ 12,801

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments $ 779 $ 476,598 $ 9,399 $ 120 $ 11,745

Unobligated balance, end of year:

 Apportioned, unexpired accounts 74 1,291 271,524 44 528

 Exempt from apportionment, unexpired accounts - 9 90 - 7

 Unapportioned, unexpired accounts - 88 39,892 - 236

 Unexpired unobligated balance, end of year 74 1,388 311,506 44 771

 Expired unobligated balance, end of year (1) 28 216 6 285

Unobligated balance, end of year 73 1,416 311,722 50 1,056

Total Status of Budgetary Resources $ 852 $ 478,014 $ 321,121 $ 170 $ 12,801

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 115 $ 1,177 $ 72,224 $ 46 $ 1,665

New obligations and upward adjustments 779 476,598 9,399 120 11,745

Outlays (gross) (700) (476,726) (12,989) (117) (11,734)

Recoveries of prior year unpaid obligations (12) (90) (167) (3) (100)

Unpaid obligations, end of year 182 959 68,467 46 1,576

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 (52) (38) (68) (1) (28)

Change in uncollected payments, Federal sources 12 24 (9) - 1

Uncollected payments, Federal sources, end of year (40) (14) (77) (1) (27)

Obligated Balance, End of Year $ 142 $ 945 $ 68,390 $ 45 $ 1,549

Obligated Balance, Start of Year $ 63 $ 1,139 $ 72,156 $ 45 $ 1,637

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 706 $ 476,605 $ 9,279 $ 118 $ 11,796

Actual offsetting collections (discretionary and mandatory) (718) (270) (5,314) (2) (227)

Change in uncollected payments, Federal sources

 (discretionary and mandatory) 12 24 (9) - 1

Recoveries of prior year paid obligations (discretionary and mandatory) - 2 3 - 62

Budget Authority, Net (Discretionary and Mandatory) $ - $ 476,361 $ 3,959 $ 116 $ 11,632

Outlays, gross (discretionary and mandatory) $ 700 $ 476,726 $ 12,989 $ 117 $ 11,734

Actual offsetting collections (discretionary and mandatory) (718) (270) (5,314) (2) (227)

Outlays, net (discretionary and mandatory) (18) 476,456 7,675 115 11,507

Distributed offsetting receipts - (45,128) (29,550) - (411)

Agency Outlays, Net (Discretionary and Mandatory) $ (18)$ 431,328 $ (21,875)$ 115 $ 11,096

(a) Of the $321 billion of Total Budgetary Resources for DO, GSE, ESF, and OAS had $259 billion, $40 billion, and $14 billion, respectively. 

The remainder is spread throughout other offices.
132 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Fiscal Year 2017 Combining Statement of Budgetary Resources Disaggregated

by Sub-organization Accounts

Alcohol

and

Office of the Tobacco

Comptroller Tax and

of the Trade Non-

(in millions): U. S. Mint Currency Bureau Budgetary Budgetary

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 433 $ 1,399 $ 2 $ 316,775 $ 434

Recoveries of unpaid prior year obligations 19 4 1 396 -

Other changes in unobligated balance (19) - (1) (574) (739)

Unobligated balance from prior year budget authority, net 433 1,403 2 316,597 (305)

Appropriations (discretionary and mandatory) - - 111 493,425 1

Borrowing authority (discretionary and mandatory) - - - - 268

Spending authority from offsetting collections (discretionary and 

 mandatory) 2,387 1,217 6 7,569 962

Total Budgetary Resources $ 2,820 $ 2,620 $ 119 $ 817,591 $ 926

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments $ 2,205 $ 1,110 $ 113 $ 501,405 $ 664

Unobligated balance, end of year:

 Apportioned, unexpired accounts 616 - 5 274,033 49

 Exempt from apportionment, unexpired accounts - 1,510 - 1,616 -

 Unapportioned, unexpired accounts - - - 40,003 213

 Unexpired unobligated balance, end of year 616 1,510 5 315,652 262

 Expired unobligated balance, end of year (1) - 1 534 -

Unobligated balance, end of year 615 1,510 6 316,186 262

Total Status of Budgetary Resources $ 2,820 $ 2,620 $ 119 $ 817,591 $ 926

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 293 $ 268 $ 25 $ 75,010 $ 803

New obligations and upward adjustments 2,205 1,110 113 501,405 664

Outlays (gross) (2,277) (1,091) (114) (505,166) (582)

Recoveries of prior year unpaid obligations (19) (4) (1) (396) -

Unpaid obligations, end of year 202 283 23 70,853 885

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 - (7) (2) (197) 1

Change in uncollected payments, Federal sources - - - 29 (1)

Uncollected payments, Federal sources, end of year - (7) (2) (168) -

Obligated Balance, End of Year $ 202 $ 276 $ 21 $ 70,685 $ 885

Obligated Balance, Start of Year $ 293 $ 261 $ 23 $ 74,813 $ 804

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 2,387 $ 1,217 $ 117 $ 500,994 $ 1,231

Actual offsetting collections (discretionary and mandatory) (2,387) (1,217) (5) (7,869) (2,271)

Change in uncollected payments, Federal sources

 (discretionary and mandatory) - - - 29 (1)

Recoveries of prior year paid obligations (discretionary and mandatory) - - - 67 -

Budget Authority, Net (Discretionary and Mandatory) $ - $ - $ 112 $ 493,221 $ (1,041)

Outlays, gross (discretionary and mandatory) $ 2,277 $ 1,091 $ 114 $ 505,166 $ 582

Actual offsetting collections (discretionary and mandatory) (2,387) (1,217) (5) (7,869) (2,271)

Outlays, net (discretionary and mandatory) (110) (126) 109 497,297 (1,689)

Distributed offsetting receipts - - - (75,089) -

Agency Outlays, Net (Discretionary and Mandatory) $ (110)$ (126)$ 109 $ 422,208 $ (1,689)
DEPARTMENT OF THE TREASURY 133 

FINANCIAL SECTION | FY 2017 AGENCY FINANCIAL REPORT

Fiscal Year 2016 Combining Statement of Budgetary Resources Disaggregated

by Sub-organization Accounts

Bureau of Bureau of Fin. Crimes Internal

Engraving & the Fiscal Departmental Enforcement Revenue

(in millions): Printing Service Offices (a) Network Service

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 101 $ 1,227 $ 319,343 $ 47 $ 1,015

Recoveries of unpaid prior year obligations - 56 96,249 3 114

Other changes in unobligated balance - (5) (97,739) (1) (58)

Unobligated balance from prior year budget authority, net 101 1,278 317,853 49 1,071

Appropriations (discretionary and mandatory) - 450,673 2,839 113 11,615

Borrowing authority (discretionary and mandatory) - - 365 - -

Spending authority from offsetting collections (discretionary and 

 mandatory) 681 257 3,970 2 122

Total Budgetary Resources $ 782 $ 452,208 $ 325,027 $ 164 $ 12,808

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments $ 648 $ 450,829 $ 12,163 $ 114 $ 11,860

Unobligated balance, end of year:

 Apportioned, unexpired accounts 134 1,310 271,813 45 470

 Exempt from apportionment, unexpired accounts - 3 95 - 7

 Unapportioned, unexpired accounts - 31 40,689 - 146

 Unexpired unobligated balance, end of year 134 1,344 312,597 45 623

 Expired unobligated balance, end of year - 35 267 5 325

Unobligated balance, end of year 134 1,379 312,864 50 948

Total Status of Budgetary Resources $ 782 $ 452,208 $ 325,027 $ 164 $ 12,808

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 110 $ 651 $ 170,648 $ 45 $ 1,380

New obligations and upward adjustments 648 450,829 12,163 114 11,860

Outlays (gross) (643) (450,247) (14,338) (110) (11,461)

Recoveries of prior year unpaid obligations - (56) (96,249) (3) (114)

Unpaid obligations, end of year 115 1,177 72,224 46 1,665

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 (43) (25) (505) - (23)

Change in uncollected payments, Federal sources (9) (13) 437 (1) (5)

Uncollected payments, Federal sources, end of year (52) (38) (68) (1) (28)

Obligated Balance, End of Year $ 63 $ 1,139 $ 72,156 $ 45 $ 1,637

Obligated Balance, Start of Year $ 67 $ 626 $ 170,143 $ 45 $ 1,357

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 681 $ 450,930 $ 7,174 $ 115 $ 11,737

Actual offsetting collections (discretionary and mandatory) (672) (246) (13,102) - (155)

Change in uncollected payments, Federal sources

 (discretionary and mandatory) (9) (13) 437 (1) (5)

Recoveries of prior year paid obligations (discretionary and 

 mandatory) - 2 67 - 38

Budget Authority, Net (Discretionary and Mandatory) $ - $ 450,673 $ (5,424)$ 114 $ 11,615

Outlays, gross (discretionary and mandatory) $ 643 $ 450,247 $ 14,338 $ 110 $ 11,461

Actual offsetting collections (discretionary and mandatory) (672) (246) (13,102) - (155)

Outlays, net (discretionary and mandatory) (29) 450,001 1,236 110 11,306

Distributed offsetting receipts - (45,505) (15,990) - (1,070)

Agency Outlays, Net (Discretionary and Mandatory) $ (29)$ 404,496 $ (14,754)$ 110 $ 10,236

(a) Of the $325 billion of Total Budgetary Resources for DO, GSE, ESF, and OAS had $259 billion and $40 billion, and $15 billion, respectively. 

The remainder is spread throughout other offices. 
134 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | FINANCIAL SECTION

Fiscal Year 2016 Combining Statement of Budgetary Resources Disaggregated

by Sub-organization Accounts

Alcohol

and

Office of the Tobacco

Comptroller Tax and

of the Trade Non-

(in millions): U. S. Mint Currency Bureau Budgetary Budgetary

BUDGETARY RESOURCES

Unobligated balance brought forward, October 1 $ 703 $ 1,301 $ 5 $ 323,170 $ 572

Recoveries of unpaid prior year obligations 17 18 1 7,034 89,424

Other changes in unobligated balance (58) - (2) (8,355) (89,508)

Unobligated balance from prior year budget authority, net 662 1,319 4 321,849 488

Appropriations (discretionary and mandatory) - - 106 465,346 -

Borrowing authority (discretionary and mandatory) - - - - 365

Spending authority from offsetting collections (discretionary and 

 mandatory) 3,043 1,170 6 8,144 1,107

Total Budgetary Resources $ 3,705 $ 2,489 $ 116 $ 795,339 $ 1,960

STATUS OF BUDGETARY RESOURCES

New obligations and upward adjustments $ 3,272 $ 1,090 $ 114 $ 478,564 $ 1,526

Unobligated balance, end of year:

 Apportioned, unexpired accounts 318 - - 274,048 42

 Exempt from apportionment, unexpired accounts - 1,400 - 1,505 -

 Unapportioned, unexpired accounts 117 - - 40,591 392

 Unexpired unobligated balance, end of year 435 1,400 - 316,144 434

 Expired unobligated balance, end of year (2) (1) 2 631 -

Unobligated balance, end of year 433 1,399 2 316,775 434

Total Status of Budgetary Resources $ 3,705 $ 2,489 $ 116 $ 795,339 $ 1,960

CHANGE IN OBLIGATED BALANCE

Unpaid Obligations:

Unpaid obligations, brought forward, October 1 $ 304 $ 238 $ 23 $ 83,228 $ 90,171

New obligations and upward adjustments 3,272 1,090 114 478,564 1,526

Outlays (gross) (3,266) (1,042) (111) (479,748) (1,470)

Recoveries of prior year unpaid obligations (17) (18) (1) (7,034) (89,424)

Unpaid obligations, end of year 293 268 25 75,010 803

Uncollected Payments:

Uncollected payments, Federal sources, brought forward, October 1 - (4) (3) (196) (407)

Change in uncollected payments, Federal sources - (3) 1 (1) 408

Uncollected payments, Federal sources, end of year - (7) (2) (197) 1

Obligated Balance, End of Year $ 293 $ 261 $ 23 $ 74,813 $ 804

Obligated Balance, Start of Year $ 304 $ 234 $ 20 $ 83,032 $ 89,764

BUDGET AUTHORITY AND OUTLAYS, NET

Budget authority, gross (discretionary and mandatory) $ 3,043 $ 1,170 $ 112 $ 473,490 $ 1,472

Actual offsetting collections (discretionary and mandatory) (3,047) (1,168) (6) (8,563) (9,833)

Change in uncollected payments, Federal sources

 (discretionary and mandatory) - (3) 1 (1) 408

Recoveries of prior year paid obligations (discretionary and 

 mandatory) 3 - - 110 -

Budget Authority, Net (Discretionary and Mandatory) $ (1)$ (1)$ 107 $ 465,036 $ (7,953)

Outlays, gross (discretionary and mandatory) $ 3,266 $ 1,042 $ 111 $ 479,748 $ 1,470

Actual offsetting collections (discretionary and mandatory) (3,047) (1,168) (6) (8,563) (9,833)

Outlays, net (discretionary and mandatory) 219 (126) 105 471,185 (8,363)

Distributed offsetting receipts - - - (62,565) -

Agency Outlays, Net (Discretionary and Mandatory) $ 219 $ (126)$ 105 $ 408,620 $ (8,363)
1 DEPARTMENT OF THE TREASURY

 

SECTION A: TAX GAP AND TAX BURDEN......................137

SECTION B: REDUCE THE FOOTPRINT ..........................145

SECTION C: MANAGEMENT CHALLENGES.....................146

SECTION D: SUMMARY OF FINANCIAL STATEMENT

AUDIT AND MANAGEMENT ASSURANCES....170 

SECTION E: PAYMENT INTEGRITY................................174 

SECTION F: FRAUD REDUCTION REPORT ......................189

SECTION G: CIVIL MONETARY PENALTIES

INFLATION ADJUSTMENT ..........................192 

SECTION H: GRANTS OVERSIGHT AND NEW EFFICIENCY

ACT REQUIREMENTS................................199

APPENDIX: GLOSSARY OF ACRONYMS .........................200 
[Type text]

2 DEPARTMENT OF THE TREASURY
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 137 

SECTION A: TAX GAP AND TAX BURDEN

TAX GAP 

The tax gap is the difference between the amount of tax imposed by law and what taxpayers actually pay on time. The tax 

gap provides an estimate of the level of overall noncompliance and voluntary compliance during the relevant tax periods 

and under the Internal Revenue Code (IRC) provisions in effect at the time. Tax gap estimates provide the Internal 

Revenue Service (IRS) with periodic appraisals about the nature and extent of noncompliance for use in formulating tax 

administration strategies. 

Individual refundable income tax credits feature eligibility rules that are often complex because they must address 

complicated family relationships and residency arrangements. Compliance with these rules is difficult for the IRS to 

verify due to the lack of available third-party data. The relatively high over claim rates for these credits are, in part, a 

result of this complexity. 

Measuring and reporting on taxpayer compliance related to various tax provisions is inherently complex and challenging. 

To measure overall compliance with the current tax system, the IRS develops estimates of the tax gap. The IRS also 

undertakes analyses of compliance behavior with respect to specific tax provisions, such as refundable and non-refundable 

tax credits. The IRS enforcement strategies and the Administration's legislative proposals are influenced by its National 

Research Program (NRP) that involves conducting detailed audits of a statistically representative sample of taxpayers to 

estimate compliance with individual income tax provisions, and provides data on misreporting on voluntarily filed returns. 

Misreporting can be in favor of the taxpayer or the government, although estimates indicate that taxpayers overall 

underreport tax. This can manifest as either underpayments of the liability due at the time the return is filed, claiming 

and receiving an excessive refund, or a combination of the scenarios. 

Tax Gap Estimates

The gross tax gap is the amount of tax liability that is not paid voluntarily and on time. The estimated annual average 

gross tax gap for the Tax Year (TY) 2008 – 2010 timeframe is $458 billion. The net tax gap is the gross tax gap less tax 

that will be subsequently collected, through voluntary payments or as the result of IRS administrative and enforcement 

activities. It is the portion of the gross tax gap that will not be paid. It is estimated that $52 billion of the gross tax gap 

will eventually be collected, resulting in a net tax gap of $406 billion. 

The IRS estimates the tax gap on a periodic basis. The most recent estimates covering the TY 2008 – 2010 timeframe

were released in Fiscal Year (FY) 2016. A summary of those estimates was included in the FY 2016 Agency Financial 

Report (AFR). The IRS expects to release tax gap estimates covering the TY 2011 – 2013 timeframe in FY 2019. 

More details on the tax gap can be found in documents on the IRS website at www.IRS.gov: 

• Description of the Tax Gap (https://www.irs.gov/uac/the-tax-gap); and

• Federal Tax Compliance Research: Tax Gap Estimates for Tax Years 2008 – 2010 (https://www.irs.gov/pub/irssoi/p1415.pdf). 
138 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

The tax gap structure separates noncompliance into components by the type of tax and source of noncompliance. The 

three primary sources of noncompliance that result in payment of less than the tax owed are: (1) the non-filing tax gap 

(the tax not paid on time by those who do not file required returns on time); (2) the underreporting tax gap (the net 

understatement of tax on timely filed returns); and (3) the underpayment tax gap (the amount of tax reported on timely 

filed returns that is not paid on time). The estimated gross tax gap for each of these components are $32 billion, 

$387 billion, and $39 billion, respectively. The gross tax gap estimates can also be grouped by type of tax. The estimated 

gross tax gap for individual income tax is $319 billion, for corporation income tax is $44 billion, for employment tax is 

$91 billion, and for estate and excise tax combined is $4 billion.

Total tax credits account for the second largest share (15 percent) of the individual income tax underreporting tax gap. 

Earned Income Tax Credit (EITC) accounts for 10 percent of the individual income tax underreporting tax gap, followed by 

the refundable and non-refundable child tax credit (three percent), and the refundable and non-refundable education 

credits (two percent). With limited resources, the IRS must make prudent resource-allocation decisions to address 

noncompliance. 

INDIVIDUAL INCOME TAX UNDERREPORTING TAX GAP ESTIMATES FOR CREDITS: TY 2008 – 2010 

($ IN BILLIONS) (1)

Share of Individual 

Income Tax 

Tax Return Line Items Tax Gap

Underreporting Tax 

Gap 

Share of Gross Tax 

Gap 

Gross Tax Gap $458 N/A 100%

Individual Income Tax Underreporting Tax Gap $264 100% 58%

Total Credits $ 40 15% 9%

Child Tax Credit and Additional Child Tax Credit $ 7 3% 2%

EITC $ 27 10% 6%

Education Credits

All Other Credits

$ 

$ 

4

2

 2%

 1%

 1%

(2)

(1) The estimates are the annual averages for the TY 2008 – 2010 timeframe.

(2) Less than 0.5 percent

Note: Components might not sum to totals because of rounding.

Tax Gap Estimation Methodology

Estimating the tax gap is inherently challenging and requires assessing alternative methods, assumptions, and data 

sources. There is no single approach for estimating all the components of the tax gap. Each approach to estimating the 

tax gap is subject to non-sampling error. The uncertainty of the estimates is not readily captured by standard errors that 

typically accompany estimates based on sample data. For that reason, standard errors, confidence intervals, and 

statistical comparisons across years are not reported. 

Unlike prior tax gap estimates that pertain to a single tax year, these estimates reflect an estimated average compliance 

rate and associated average annual tax gap for the TY 2008 – 2010 timeframe. The tax gap is estimated using pooled 

individual income tax compliance data from several tax years because the aggregated data provides more information 

upon which to base estimates of individual income tax underreporting, categorized by sources of noncompliance. The 

individual income tax NRP reporting compliance studies are the foundation for the individual income tax underreporting 

tax gap estimates. The methodology incorporates additional data and analytical techniques designed to account for 

income that is not detected by the NRP audits. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 139 

COMPLIANCE WITH INDIVIDUAL INCOME TAX CREDITS

Compliance Estimates 

The IRS is responsible for administering 21 refundable and non-refundable individual income tax credits. These credits 

generally have many different eligibility rules, often relating to personal family and living arrangements, which determine 

eligibility. Complexity in the form of many differing rules is a contributor to tax credit errors. Additionally, these credits 

are difficult for the IRS to verify due to the lack of available relevant third-party data. 

The IRS conducted an in-depth analysis of Child Tax Credit (CTC) compliance during the past fiscal year, highlights of 

which are summarized below. The IRS also completed an analysis of compliance with the EITC in FY 2014, and plans to 

analyze compliance with the American Opportunity Tax Credit (AOTC) and other education credits in FY 2018. 

Compliance with the Patient Protection and Affordable Care Act (ACA) Premium Tax Credit (PTC) will be reported once 

data become available (expected late calendar year 2018). 

Compliance Estimates for the Child Tax Credit

The IRS recently completed an analysis of taxpayer compliance behavior regarding the refundable and non-refundable 

components of the CTC. The refundable portion of the credit is referred to as the Additional Child Tax Credit (ACTC). 

The non-refundable portion of the credit is often referred to as the CTC, including on the Form 1040. For purposes of this 

analysis, CTC refers to the combined amount of the refundable and non-refundable parts of the credit.

The analysis is based on data from the IRS NRP individual income tax reporting study. The total number of tax returns 

claiming the CTC was 31 million in TY 2006 and 35 million in TY 2011. The aggregate dollar amount of CTC claims was 

$46 billion in TY 2006 and $55 billion in TY 2011. The increase in claims for the CTC occurred primarily in TY 2008 and 

TY 2009, due to the expansion of eligibility for the ACTC associated with lowering the earned income threshold in those 

two years. Total dollars of overclaims averaged $6.2 billion annually in TY 2006 – 2008 and $10.5 billion annually in TY 

2009 – 2011. The dollar overclaim percentage for the CTC averaged 13 percent in TY 2006 – 2008 and 20 percent in TY 

2009 – 2011. Qualifying child errors were the most frequent type of known error leading to a CTC overclaim. The percent 

of children claimed for the CTC who were disallowed for the credit was 13 percent in TY 2006 – 2008 and 19 percent in TY 

2009 – 2011. During both time periods, qualifying child errors accounted for approximately 80 percent of overclaimed 

dollars, where the reason for the error was known. 

Relationship of Tax Compliance Estimation to Improper Payments

The Improper Payment Elimination and Recovery Act of 2010 (IPERA) requires certain reporting for payment programs 

determined to be susceptible to significant improper payments. The focus of IPERA, and its subsequent amendments, and 

guidance documents, is on implementing internal controls to prevent and detect improper payments. IPERA does not take 

into consideration all aspects of administering tax provisions in a system that relies heavily on voluntary reporting. In 

keeping with IPERA requirements, the IRS has historically reported risk assessments for refundable credits, as well as 

improper payment estimates for the EITC in Part 3, Section E of this report. 
140 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

The IRS has followed this practice largely because refundable credits may result in a payment to the taxpayer in excess of 

tax liability. However, the distinction between the portion of a credit that offsets tax liability and the portion that is 

refundable is governed by multiple variables, including other return elements and information provided by the taxpayer, 

some of which are unrelated to the refundable credit in question. Evaluating only the refunded portion of a credit offers 

little insight into where tax compliance occurs or how the IRS should address compliance problems. In improper payment 

reporting, the IRS reports on the EITC in its entirety without regard to whether errors are the result of complexity in the 

tax code, taxpayer behavior, or the IRS’s processes, and despite the fact that amounts of tax offset by the credit are 

currently considered negative revenue receipts. 

The same features of the tax system and taxpayer behaviors that create the compliance problems with refundable credits 

also create the risk of noncompliance with other tax provisions. Treasury and IRS analyses, as well as audits by the 

Government Accountability Office (GAO) and Treasury Inspector General for Tax Administration (TIGTA), have 

consistently found that payment errors for EITC and other tax credit programs are largely attributable to the statutory 

design and complexity of the credits within the tax system, and not rooted in internal control weaknesses, financial 

management or financial reporting deficiencies. Several credits passed into law by Congress to assist certain individuals 

and businesses to promote social and economic objectives have eligibility rules that are often complex and lead to high 

overclaim rates. 

Tax refunds, which constitute a transfer of cash from the federal government to a taxpayer, are an integral part of the tax 

system as a whole. The IRS tax gap estimation measures compliance with the current tax system and always includes 

noncompliance with refundable and non-refundable credits. Whether a tax credit results in a refund instead of a 

reduction in tax liability depends on all of the taxpayers' characteristics, such as income, deductions, and other credits 

claimed, and is not simply driven by the credit itself. 

Refundable Credits and the Challenges of Compliance 

Eligibility rules for refundable tax credits contribute to the compliance burden for taxpayers and administrative costs for 

the IRS. These rules differ by credit and are often complex because they must address complicated family relationships 

and residency arrangements to determine eligibility. The relatively high overclaim error rates for these credits are a 

result, in part, of this complexity. Additionally, the lack of third-party data to verify eligibility requirements for these 

refundable credits also complicates the ability of the IRS to administer these credits. Such data may not exist, may be 

unreliable or inaccurate, or may be reported to the IRS too late to be useful during tax return processing. The IRS also

has limited authority to correct mismatches at filing and must use more burdensome audits to correct errors. The IRS 

continually looks for complete and accurate data sources to verify eligibility for claimed refundable credits without placing 

an undue burden on taxpayers. 

The Protecting Americans from Tax Hikes (PATH) Act accelerated the due date for employers to submit Forms W-2 and 

Forms 1099 for non-employee compensation. The PATH Act also included a provision that required the IRS to hold 

refunds for filers claiming the EITC and the refundable portion of the CTC until February 15. The IRS integrated the 

Form W-2 information into its databases, leveraged pre-refund filtering processes for identity theft prevention, and 

employed refund fraud systems to screen all returns. This provided the IRS additional time to perform income verification 

for the EITC and ACTC returns. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 141 

Faced with the complexities of claiming certain refundable credits, many potential credit recipients seek help filing their 

tax returns from paid preparers. Over 50 percent of taxpayers claiming refundable credits use paid preparers. Although 

these preparers provide a service that relieves taxpayers of costs associated with their own time, resources, and anxiety 

about the accuracy of their returns, these services carry their own burden for taxpayers. For example, taxpayers must 

absorb the cost of preparer fees and must still face the risk of errors on their returns. Unenrolled paid preparers, who 

prepare most EITC returns, are not subject to the IRS’s regulation and have higher error rates for EITC returns than 

taxpayers who prepare their own returns or who hire enrolled paid preparers. 

The nature of refundable credits also attracts identity theft fraud. The fraudsters create a burden to taxpayers who must 

navigate identity theft procedures to successfully file their own returns. This includes use of an identity theft personal 

identification number and filing of affidavits with the IRS to prove identity theft. 

The IRS has a responsibility to detect and address errors and misreporting on tax returns, including those claiming the 

refundable credits. Filters and other detection tools are constantly being enhanced to improve accuracy and reduce 

taxpayer burden, but in some instances, enforcement activities must take place. The IRS rejects millions of electronically 

filed returns claiming refundable credits for a variety of reasons, such as missing forms, incorrect Social Security Numbers 

(SSNs), or if another taxpayer has claimed the same child. Most taxpayers can correct their electronic returns and 

successfully re-file with little burden. In some cases, a taxpayer must print and send in their paper return, resulting in 

refund delays and possible audits with the associated costs. Despite the compliance burden and costs associated with 

these refundable tax credits, the burden to taxpayers may be lower than with other payment or benefit programs. For 

example, tax credit recipients can self-certify; they do not need to meet with caseworkers, nor submit upfront 

documentation as is required with some direct service anti-poverty programs, such as Supplemental Security Income (SSI) 

or Temporary Assistance for Needy Families (TANF). 

The IRS may initiate a correspondence audit if it identifies, through its scoring and selection process, potential 

noncompliance with eligibility requirements. Most refundable credit audits are conducted pre-refund, meaning the IRS 

holds the credit refund until the taxpayer proves eligibility. The IRS sends a letter to the taxpayer requesting 

documentation showing that the taxpayer meets credit eligibility requirements. In addition to the refund delay, taxpayers 

face the burden of gathering and sending in the requested information. In FY 2017, the IRS conducted over 327,000 EITC 

exams, the majority through correspondence audits. 

Sustained annual budget reductions at the IRS have heightened the importance of determining how best to allocate finite, 

declining resources to ensure the IRS can still meet agency-wide strategic goals of increasing taxpayer compliance, using 

resources more efficiently, and minimizing taxpayer burden. 

TAX BURDEN

The IRC creates the basis for a progressive tax system that applies higher rates of taxation to progressively higher levels 

of income. For TY 2016, individual income tax rates ranged from 10.0 percent for the lowest income filers to 39.6 percent

for the highest income brackets. The amount of taxable income can be adjusted through the application of exemptions and 

deductions, which will influence the amount of taxes owed. In addition, many taxpayers qualify for one or more 

refundable tax credits, which collectively have a significant impact on tax administration and federal tax revenues and 

refund payments. 

The IRS measures tax liability by income level for individuals and by revenue and assets for corporations. Using these

data, it is possible to illustrate how tax liability rises with increases in Adjusted Gross Income (AGI) for individuals
142 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

(Figures 1.1 and 1.2 and Table 1). Similar data for corporations shows the tax burden based on the percentage of taxable 

income (Figure 2 and Table 2). This information is the most recent data available for individuals (TY 2015) and 

corporations (TY 2014). 

INDIVIDUAL INCOME TAX LIABILITY

FIGURE 1.1: AVERAGE AGI REPORTED AND AVERAGE INDIVIDUAL INCOME TAX LIABILITY FOR TY 2015 

$1,720 $22,057

$39,202 $71,321

$135,245 $284,914

$1,550,725

$57 $615 $2,174 $6,271 $17,070 $55,238

$421,312

Under $15,000 $15,000 to

under $30,000

$30,000 to

under $50,000

$50,000 to

under $100,000

$100,000 to

under $200,000

$200,000 to

under $500,000

$500,000

or more

Average AGI per return Average income tax per return

FIGURE 1.2: INDIVIDUAL INCOME TAX LIABILITY AS A PERCENTAGE OF AGI FOR TY 2015 

3.3% 2.8%

5.5%

8.8%

12.6%

19.4%

27.2%

Under $15,000 $15,000 to

under $30,000

$30,000 to

under $50,000

$50,000 to

under $100,000

$100,000 to

under $200,000

$200,000 to

under $500,000

$500,000

or more
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 143 

TABLE 1: INDIVIDUAL INCOME TAX DATA BY AGI FOR TY 2015 

Average

Average AGI Income tax Income tax

Adjusted Gross Number of Total per return per return as a

Income taxable returns AGI income tax (in whole (in whole) percentage

(AGI) (in thousands) (in millions) (in millions) dollars) dollars) of AGI

Under $15,000 35,824 $ 61,630 $ 2,033 $ 1,720 $ 57 3.3%

$15,000 under 

$30,000 30,043 662,661 18,468 22,057 615 2.8%

$30,000 under 

$50,000 26,539 1,040,372 57,698 39,202 2,174 5.5%

$50,000 under 

$100,000 32,802 2,339,474 205,693 71,321 6,271 8.8%

$100,000 under 

$200,000 18,533 2,506,498 316,350 135,245 17,070 12.6%

$200,000 under 

$500,000 5,428 1,546,515 299,832 284,914 55,238 19.4%

$500,000 or more 1,324 2,053,160 557,817 1,550,725 421,312 27.2%

Total 150,493 $ 10,210,310 $ 1,457,891
144 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

CORPORATION TAX LIABILITY

FIGURE 2: CORPORATION TAX LIABILITY AS A PERCENTAGE OF TAXABLE INCOME FOR TY 2014 DATA

32.9%

20.5%

24.2%

30.1%

32.6% 32.9% 32.5% 32.3%

25.9%

31.6%

29.3%

22.6%

Zero

Assets

$1

to under

$500

$500

to under

$1,000

$1,000

to under

$5,000

$5,000

to under

$10,000

$10,000

to under

$25,000

$25,000

to under

$50,000

$50,000

to under

$100,000

$100,000

to under

$250,000

$250,000

to under

$500,000

$500,000

to under

$2,500,000

$2,500,000

or more

TABLE 2: CORPORATION TAX DATA BY TOTAL ASSETS FOR TY 2014 

Total Assets Income subject to tax Total income tax after credits Percentage of income tax 

(in thousands) (in millions) (in millions) after credits to taxable income

Zero Assets $ 16,236 $ 5,347 32.9%

$1 under $500 8,728 1,786 20.5%

$500 under $1,000 3,787 918 24.2%

$1,000 under $5,000 13,567 4,080 30.1%

$5,000 under $10,000 8,587 2,802 32.6%

$10,000 under $25,000 13,741 4,526 32.9%

$25,000 under $50,000 12,827 4,170 32.5%

$50,000 under $100,000 15,225 4,919 32.3%

$100,000 under $250,000 32,119 8,303 25.9%

$250,000 under $500,000 29,921 9,453 31.6%

$500,000 under $2,500,000 120,328 35,316 29.3%

$2,500,000 or more 1,126,109 254,458 22.6%

Total $ 1,401,175 $ 336,078
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 145 

SECTION B: REDUCE THE FOOTPRINT

One of our key goals is the efficient and effective acquisition, utilization, management, and disposal of our real property 

assets. The Assistant Secretary for Management (ASM) is responsible for ensuring that we develop and maintain 

appropriate procedures, reviews, and reporting requirements in accordance with Treasury directives, as well as applicable 

OMB and General Service Administration (GSA) regulations that pertain to the acquisition, utilization and disposal of 

real property.

The ASM is responsible for tracking our real property square footage footprint and developing the annual agency 

evaluation of compliance for the implementation of the Reduce the Footprint Policy. To ensure the optimal utilization of 

our existing space inventory, and to achieve real property cost saving and footprint reductions, we direct our components

to pursue consolidation or co-location opportunities into existing inventory before pursuing any new space acquisitions.

Additionally, we are taking other actions to reduce overall square footage and reduce the related costs associated with real 

property, including:

• Better utilizing real property by undertaking space realignment; 

• Increasing teleworking, hoteling, and workspace sharing; and

• Maximizing utilization through improved workstation standards.

Our total square footage and related operation and maintenance costs associated with real property assets subject to the 

Reduce the Footprint Policy (from the latest available FY 2016 reporting compared to the FY 2015 Reduce the Footprint 

baseline, as assigned by GSA) are shown in the table below. We did not have excess domestic office or warehouse assets, 

as reflected in the below table: 

 2015

(in millions) (Baseline) 2016 Change

 

Square Footage 26.9 26.4 (0.5) 

Operation and Maintenance Costs $ 93.0 $ 91.9 $ (1.1) 
146 DEPARTMENT OF THE TREASURY

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SECTION C: MANAGEMENT CHALLENGES 

In accordance with the Reports Consolidation Act of 2000, the Inspectors General are required to identify specific 

management and performance challenges facing the Department. At the end of each fiscal year, the Treasury Office of 

Inspector General (OIG) and TIGTA send an update of these management challenges to the Secretary of the Treasury 

(hereafter referred to as “Secretary”) and cite any new challenges for the upcoming fiscal year. The Special Inspector 

General for the Troubled Asset Relief Program (SIGTARP) did not identify any management or performance challenges for 

the Office of Financial Stability (OFS). This section contains the management and performance challenges reported by

OIG and TIGTA.
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 147 

TREASURY INSPECTOR GENERAL MANAGEMENT CHALLENGES

OFFICE OF

INSPECTOR GENERAL

DEPARTMENT OF THE TREASURY

WASHINGTON, D.C. 20220

October 16, 2017

INFORMATION MEMORANDUM FOR SECRETARY MNUCHIN 

FROM: Eric M. Thorson /s/

Inspector General

SUBJECT: Management and Performance Challenges Facing the

Department of the Treasury (OIG-CA-18-002)

In accordance with the Reports Consolidation Act of 2000, we are providing you with our perspective on the most serious 

management and performance challenges facing the Department of the Treasury (hereinafter Treasury or the 

Department). 

We are reporting four challenges of which one is new and three are updated from last year.

• Operating in an Uncertain Environment (New Challenge)

• Cyber Threats 

• Anti-Money Laundering and Terrorist Financing/Bank Secrecy Act Enforcement

• Efforts to Promote Spending Transparency and to Prevent and Detect Improper Payments

This year, we removed “Management of Treasury’s Authorities Intended to Support and Improve the Economy” that was 

reported as a challenge in the prior year’s memorandum. We had reported this as a challenge for the past several years as 

Treasury has had to administer large dollar initiatives related to authorities created to address the financial crisis as 

enacted under the Housing and Economic Recovery Act of 2008, the American Recovery and Reinvestment Act of 2009, the 

Dodd-Frank Wall Street Reform and Consumer Protection Act (Dodd-Frank), and the Small Business Jobs Act of 2010. In 

addition, Treasury was given authority under the Resources and Ecosystems Sustainability, Tourist Opportunities, and 

Revived Economies of the Gulf Coast States Act of 2012 to address the specific economic and environmental restoration of 

the Gulf Coast region. We no longer consider Treasury’s management of these authorities as a continuing challenge since 

the offices and programs established to implement and administer the requirements have been in place for a number of 

years and several programs are reaching maturity. 

In addition to the above challenges, we continue to report our elevated concerns about two matters: currency and coin 

production and documenting key activities and decisions. 

 

2018 Management and Performance Challenges 

Challenge 1: Operating in an Uncertain Environment 

In assessing the Department’s most serious challenges, we remain mindful of external factors and future uncertainties 

that affect its operations. Most notable are the proposed budget cuts and new requirements imposed by Executive Order 

(E. O.) 13781, Comprehensive Plan for Reorganizing the Executive Branch (March 13, 2017). In its implementation of E. 

O. 13781, the Office of Management and Budget (OMB) required agencies to submit Agency Reform Plans, which include 

long-term workforce plans and that are in alignment with their strategic plans, to OMB concurrently with their fiscal year 

2019 budget requests. These plans are to include proposals in four categories: eliminate activities; restructure or merge; 

improve organizational efficiency and effectiveness; and workforce management. After consideration of all Agency Reform 

Plans, OMB intends to work with agencies in developing crosscutting reform proposals that involve multiple agencies, 
148 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

which could include merging agencies, components, programs, or activities that have similar missions. These proposals, 

along with the agency plans and public input, will be used by OMB in developing its comprehensive Government–wide 

Reform Plan to reorganize the Executive Branch.1 

Needless to say, OMB’s Government–wide Reform Plan may significantly impact the administration of the Department’s 

programs and operations. With looming uncertainties as to the impact of the plan, the Department must plan for the 

potential long-term restructuring of certain functions or offices/bureaus and/or budget cuts. This may require the 

Department to take immediate actions to achieve near-term cost savings while focusing its limited resources on programs 

that are in the highest need to citizens and/or where there is a unique Federal role. That said, it is also essential that 

these reforms be managed and communicated effectively such that performance and accountability can be improved and

missions can still be met throughout the Department.

Another related uncertainty facing the Department involves the repeated cycle of budget and debt ceiling stopgaps. As I 

reported in my last memorandum to you, Congress has yet to resolve unfinished business when it comes to the Nation’s 

debt, and the long-term sustainability of the large programs. Although legislation was passed to temporarily extend the 

debt limit until December 8, 2017, no long-term solution has been found. 

Tackling these more critical matters at hand could be more challenging as several Presidentially-appointed,

Senate-confirmed leadership positions within Treasury remain vacant since January 2017. Further complicating this, the 

Federal Vacancies Reform Act of 1998 requires executive branch agencies to report to Congress and the Government 

Accountability Office (GAO) information on the temporary filling of executive agencies’ vacant Presidentially-appointed, 

Senate-confirmed positions. The Department will soon, if not already, reach the 210 day provisions for some temporary 

acting positions. 

Challenge 2: Cyber Threats 

Cybersecurity is a long-standing and serious challenge facing the Nation today. A reliable critical infrastructure, including 

information systems and networks, is vital to our national security and economic stability. Cyber threats are a persistent 

concern as Treasury’s information systems are critical to the core functions of government and the Nation’s financial 

infrastructure. As cyber threats continue to evolve and become more sophisticated and subtle, they pose an ongoing 

challenge for Treasury to fortify and safeguard its internal systems and operations and the financial sector it oversees. 

Effective public-private coordination continues to be required to address the cyber threat against the Nation’s critical 

infrastructure. In this regard, Treasury is looked upon to provide effective leadership to financial institutions in 

particular, and the financial sector in general, to strengthen awareness and preparedness against cyber threats. 

Attackers frequently exploit vulnerable networks in a string of trusted connections to gain access to government systems. 

Attempted cyber-attacks against Federal agencies, including Treasury, and financial institutions are increasing in 

frequency and severity, and continue to evolve at an accelerated rate. Such attacks include distributed denial of service 

attacks, phishing or whaling attacks, fraudulent wire payments, malicious spam (malspam), and ransomware. Organized 

hacking groups leverage published and unpublished vulnerabilities and vary their methods to make attacks hard to detect 

and even harder to prevent. Criminal groups and nation-states are constantly seeking to steal information; commit fraud; 

and disrupt, degrade, or deny access to information systems. In addition to Treasury’s own networks and systems, 

management must be cognizant of, and mitigate, the risks posed by attacks made against other agencies and Treasury 

contractors and subcontractors. Treasury frequently enters into interconnection agreements with other Federal, State, and 

local agencies, and service providers, to conduct its business. Treasury management must exercise due care when 

authorizing such internetwork connections and verify that third parties comply with Federal policies and standards. 

Management is also challenged with ensuring that critical data and information maintained by cloud service providers are 

properly protected.

Ensuring the government has a sufficient number of cybersecurity professionals is an ongoing challenge that was reported 

by GAO not long ago.2 Similarly, the results of OMB’s Cybersecurity Sprint identified the lack of cybersecurity and 

information technology talent as a major resource constraint for Federal agencies. The cybersecurity sprint highlighted 

the need for agencies to improve recruitment, retention, and training of their information technology workforce. In our 

audits of select Treasury bureaus, we continue to find that causes for many of our findings related to information systems’ 

 

1 OMB, M-17-22, Comprehensive Plan for Reforming the Federal Government and Reducing the Federal Civilian Workforce (April 12, 

2017)

2 GAO, Actions Needed to Address Challenges (GAO-16-885T; issued September 19, 2016) 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 149 

security measures involved a lack of resources and/or management oversight, which echoed GAO and OMB’s observations 

of agencies’ impairments. I would like to note that my office has not been immune from these same difficulties as 

overseeing Treasury’s cyber and information security programs becomes increasingly challenging with our current 

resources. 

Challenge 3: Anti-Money Laundering and Terrorist Financing/Bank Secrecy Act Enforcement 

As previously reported, identifying, disrupting, and dismantling the financial networks that support terrorists, organized 

transnational crime, weapons of mass destruction proliferators, and other threats to international security continue to be 

challenging. Treasury’s Office of Terrorism and Financial Intelligence (TFI) is dedicated to disrupting the ability of 

terrorist organizations to fund such activities through intelligence analysis, sanctions, and international private-sector 

cooperation that identify donors, financiers, and facilitators funding terrorist organizations.

TFI’s ability to effectively gather and analyze intelligence information on financial crimes and terrorism requires a stable 

cadre of staff. Concerns over TFI’s ability to meet mission critical objectives are heightened by multiple vacant key 

positions. Some key leadership positions have been vacant for a number of years, including the Director of the Financial 

Crimes Enforcement Network (FinCEN), the Assistant Secretary of Intelligence and Analysis, and Deputy Assistant 

Secretaries. Because of TFI’s complementary missions in intelligence gathering and coordination with international and 

domestic intelligence and law enforcement entities, stability and coordination within TFI is imperative to reduce 

duplication, enhance information gathering and intelligence analysis, and increase efficiency.

Major challenges for the U.S. and Treasury involve stopping the Islamic State of Iraq and Syria (ISIS), rogue regimes and 

countries, and other bad actors who want to harm people and properties and disrupt the global financial system. Stopping 

ISIS depends on a whole-of-government approach to combating terrorism and other illicit financing and requires 

collaboration and coordination within Treasury and with other Federal agencies. Coordination and collaboration are key to 

successfully tracking and disrupting terrorist and other criminal networks and requires TFI regularly work with 

interagency partners to leverage diplomatic engagement, regulatory and law enforcement, and intelligence collection and 

analysis tools. The effort to disrupt ISIS requires an effective and efficient working relationship within TFI, including 

FinCEN and the Office of Foreign Assets Control (OFAC).

OFAC’s administration of U.S. sanction programs is constantly evolving. Most notable were the significant changes to the 

Iran and Cuba sanction programs. Trade sanctions with Cuba has eased some since 2014 resulting from a regime change 

and improved relations. The U.S. eased nuclear-related sanctions with Iran, but continued imposing sanctions made 

pursuant to existing laws and related to Iran's human rights policies, support for terrorism, interference in specified 

countries in the region, and missile and advanced conventional weapons programs. The sanctions continue to bar U.S. 

individuals and entities from most forms of investment in or trade with Iran. In other areas, the U.S. has increased 

sanctions against the North Korea for missiles testing and Russia for its assertiveness towards other countries, including 

the U.S.

Enhancing the transparency of the financial system is one of the cornerstones of the effort to disrupt the ability of terrorist 

organizations. FinCEN faces continuing challenges to enhance financial transparency and strengthen efforts to combat 

financial crime and collect, analyze, and report data on national and international threats. FinCEN has focused on 

enhancing enforcement efforts through compliance with the Bank Secrecy Act (BSA) in partnership with Federal banking 

regulators and law enforcement. FinCEN’s key initiatives to strengthen financial transparency include, among other 

things, issuing rules and regulations such as the Customer Due Diligence rule that required financial institutions to 

identify beneficial ownership of financial accounts of legal entity customers. FinCEN is also challenged with providing 

clarifying guidance to financial institutions that are reluctant to do business with State-legalized marijuana dispensaries. 

While these dispensaries remain illegal under Federal law, increasingly, states have passed laws allowing businesses to 

dispense marijuana. Other areas of concern for FinCEN include the increasing use of (1) mobile banking, internet 

banking, internet gaming, and peer-to-peer transactions; and (2) money service businesses, including virtual currency 

administrators and exchanges.3 FinCEN and other regulatory agencies will need to ensure that providers of these services 

who are covered by BSA understand their obligations to report information to FinCEN. 

 

3 Bitcoins are an example of a virtual currency. These consist of a series of numbers created automatically on a set schedule and traded 

anonymously between digital addresses or "wallets." Certain exchange firms buy or sell Bitcoins for legal tender at a rate that 

fluctuates with the market. Congress and regulators continue their efforts to determine the legality, legitimacy, and regulatory 

framework for virtual currencies such as Bitcoins.
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Given the criticality of Treasury’s mission to combat terrorist financing and money laundering, we continue to consider 

anti-money laundering and combating terrorist financing programs and operations as inherently high-risk.

Challenge 4: Efforts to Promote Spending Transparency and to Prevent and Detect Improper Payments 

Spending Transparency

Treasury continues to make progress in its Government-wide and Department-wide implementation of the Digital 

Accountability and Transparency Act of 2014 (DATA Act). The DATA Act requires the Federal Government to provide 

consistent, reliable, and useful online data about how it spends taxpayer dollars. To fulfill its purposes, the DATA Act 

imposed several mandates on the Director of OMB, the Secretary of the Treasury, the Inspector General of each Federal 

agency, and the Comptroller General of the United States. Several of these mandates have already been successfully met. 

As required within one year after enactment, on May 8, 2015, OMB and Treasury standardized 57 Government-wide 

financial data elements for Federal funds made available to or expended by Federal agencies and entities receiving 

Federal funds. 

On May 9, 2017, Treasury, in consultation with OMB, met its second mandate to ensure that financial data was posted, in 

accordance with the financial data standards established by Treasury and OMB, and displayed on USAspending.gov4

within two years after enactment of the DATA Act. 

While there have been reported successes to date, OMB and Treasury must still ensure the data standards established are 

applied to the data made available on USAspending.gov by May 2018. The Department continues to make progress in its 

efforts to comply with the DATA Act by executing its comprehensive implementation plan that conforms to the 

Government-wide technical and informational guidance issued by OMB and Treasury. Given the broad implications and 

critical roles assigned to Treasury by the DATA Act, we consider this an ongoing high risk implementation project and 

management challenge. 

It should be noted that we have initiated a series of audits of Treasury’s efforts to meet its responsibilities under the 

DATA Act. As of this writing, we are performing two DATA Act audits focusing on Treasury’s (1) Government-wide 

implementation efforts, and (2) Department-wide implementation efforts. 

Detect Improper Payments

In light of the continuing problem with improper payments (estimated at $144 billion, or 4.67 percent of all program 

outlays, for fiscal year 2016), the Federal Government has intensified efforts to reduce improper payments in major 

Federal programs. The Do Not Pay Initiative and the Treasury Bureau of the Fiscal Service’s (Fiscal Service) Do Not Pay 

Business Center are chief components of efforts designed to prevent and detect improper payments to individuals and 

entities. 

The Do Not Pay Business Center provides two services to agencies: the Do Not Pay Portal and the Do Not Pay Data 

Analytics Service. The Do Not Pay Portal is intended to provide users with a single entry point to search data sources such 

as the Social Security Administration’s (SSA) publicly available Death Master File, the Department of Health and Human 

Service Office of Inspector General’s List of Excluded Individuals/Entities, the General Services Administration’s System 

for Award Management, and Treasury’s Debt Check Database. However, as we reported in November 2014, the 

effectiveness of the Do Not Pay Business Center as a tool to prevent and detect improper payments is hindered because 

the center does not have access to, among other things, SSA’s full death data.5 In October 2016, GAO reported that 

restrictions on the center’s access to SSA’s full death data remained in place.6 

The Do Not Pay Data Analytics Service supports agencies’ efforts to identify and prevent improper payments by 

identifying trends and patterns in agency payment and other information that may be indicative of improper payments. 

The results of these analyses are provided to agencies at no cost for further study so they can prevent future improper 

 

4 In May 2017, Treasury launched a new version of USAspending.gov, currently referred to as Beta.USAspending.gov, which is being 

run parallel to USAspending.gov to minimize disruptions to users’ access and add system enhancements. Treasury intends to retire 

the legacy USAspending.gov in fall 2017. 5 OIG, Fiscal Service Successfully Established the Do Not Pay Business Center But Challenges Remain (OIG-15-006; November 6, 

2014) 6 GAO, Improper Payments, Strategy and Additional Actions Needed to Help Ensure Agencies Use the Do Not Pay Working System as 

 Intended (GAO-17-15; issued October 14, 2016)
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DEPARTMENT OF THE TREASURY 151 

payments. We have on-going audit work assessing the services provided to agencies by the Do Not Pay Data Analytics 

Service. 

With its potential to reduce improper payments, the Do Not Pay Business Center is a major and important undertaking by 

Fiscal Service and Treasury. As part of our ongoing audit work in this area, we will continue to monitor the steps taken by 

Fiscal Service to improve the effectiveness of the Do Not Pay Business Center. We are also planning to review the Do Not 

Pay Program’s data analytic capabilities during the coming fiscal year. 

Other Matters of Concern 

Although we are not reporting these as management and performance challenges, we are highlighting two areas of 

concern that are repeated from last year’s letter: (1) currency and coin production, and (2) documenting key activities and 

decisions. 

Currency and Coin Production

Challenges continue to exist with coin and currency production at the Bureau of Engraving and Printing (BEP) and 

the United States Mint (Mint). In the case of the Mint, the costs of producing penny and nickel coins were double their 

face value because of rising metal prices resulting in higher production costs. The Mint continues to review U.S. 

currency to include the production and use of coins, the use of alternative metals, and the suitability of Mint facilities 

for production. The Mint must also ensure strong internal controls are in place to safeguard the integrity and protect 

U.S. coinage. This is done by preventing the acceptance of illegitimate coinage under its redemption program which is 

planned to be reinstated in 2017, as well as maintaining proper physical security at all Mint facilities. For BEP, it is 

imperative that effective project management practices are applied to thwart counterfeiters and identify and 

implement counterfeit deterrence features in a timely manner to safeguard U.S. currency from this significant threat.

In addition, BEP and the Mint need to consider the effect of alternative payment methods and other technological 

advances (such as stored value cards, the Internet, smartphones, and virtual currencies) as well as consumer demand 

on their respective business models, practices, future planning and interactions with their customers, and the Federal 

Reserve Bank.

Documenting Key Activities and Decisions

Over the years, my office repeatedly cites the Department’s and bureaus’ lapses in maintaining a complete and 

concurrent record of key activities and decisions. This continues to be identified as a problem as reported in our more 

recent audits of Fiscal Service’s selection of a financial agent in its rebid of the Direct Express® Debit MasterCard,®

the Office of the Comptroller of the Currency’s supervision of banks’ use of independent consultants, and FinCEN’s 

case files supporting its Bank Secrecy Act enforcement actions. 

We believe developing and maintaining proper documentation supports transparency and confidence in Treasury’s 

decision making process. Maintaining proper documentation is a fundamental tenet of government accountability and 

transparency, and is in the best long-term interest of Treasury and its component offices and bureaus if actions are 

later questioned, as they have been. 

We would be pleased to discuss our views on the management and performance challenges and the other matters 

expressed in this memorandum in more detail.

cc: Kody H. Kinsley 

Assistant Secretary for Management
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TREASURY INSPECTOR GENERAL FOR TAX ADMINISTRATION MANAGEMENT CHALLENGES

October 13, 2017

MEMORANDUM FOR SECRETARY MNUCHIN

FROM: J. Russell George

Inspector General

SUBJECT: Management and Performance Challenges Facing the Internal Revenue Service for Fiscal 

Year 2018

The Reports Consolidation Act of 20001 requires that the Treasury Inspector General for Tax Administration (TIGTA)

summarize, for inclusion in the annual Department of the Treasury Agency Financial Report, its perspective on the most 

serious management and performance challenges confronting the Internal Revenue Service (IRS).

Each year, TIGTA evaluates IRS programs, operations, and management functions to identify the areas of highest 

vulnerability to the Nation’s tax system. For Fiscal Year (FY) 2018, the IRS’s top management and performance 

challenges, in order of priority, are:

1. Security Over Taxpayer Data and Protection of IRS Resources;

2. Identity Theft and Impersonation Fraud;

3. Providing Quality Taxpayer Service and Expanding Online Services;

4. Upgrading Tax Systems;

5. Implementing Tax Law Changes;

6. Improving Tax Compliance;

7. Reducing Fraudulent Claims and Improper Payments;

8. Impact of Global Economy on Tax Administration;

9. Protecting Taxpayer Rights; and

10. Achieving Program Efficiencies and Cost Savings.

TIGTA’s assessment of the major IRS management challenges for FY 2018 has changed from the prior fiscal year. The 

changes include reprioritizing challenges three through seven and revising three challenges to reflect the current nature of 

the challenges.

Although not listed separately, human capital is also a significant concern and it affects the IRS’s ability to address the 

above challenges. It remains a serious, underlying issue with wide-ranging implications for both the IRS and taxpayers. 

Between FYs 2011 and 2016, the IRS budget decreased by more than $900 million and it lost approximately 12,000 fulltime equivalents, including many employees with substantial institutional knowledge and technical expertise. The IRS 

will continue to be challenged to allocate sufficient resources to deliver its priority program areas, including customer 

service and enforcement activities.

The following information detailing the management and performance challenges is provided to promote economy, 

efficiency, and effectiveness in the IRS’s administration of the Nation’s tax laws.

SECURITY OVER TAXPAYER DATA AND PROTECTION OF IRS RESOURCES

The IRS relies extensively on its computer systems to support both its financial and mission-related operations. These 

computer systems collect and process large amounts of taxpayer data. However, the threat landscape continues to evolve 

and bad actors are persistent in their pursuit of monetary gain and identity information. Recent cyber events against the 

IRS have illustrated that these bad actors are continually seeking new ways to attack and exploit IRS systems and 

processes in order to access tax information for the purpose of identity theft and filing fraudulent tax refunds. From the 

 

1 31 U.S.C. § 3516(d) (2006).
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DEPARTMENT OF THE TREASURY 153 

exploitation of IRS’s Get Transcript application to the Data Retrieval Tool exploitation, the IRS has closed one systemic 

weakness only to find that criminals have discovered another means to access tax information from the IRS. In addition, 

the recent breach at Equifax that exposed sensitive personal information, including Social Security Numbers (SSN), could 

increase the risk of identity theft. As a result, we believe that protecting the confidentiality of taxpayer information will 

continue to be a top concern for the IRS.

TIGTA has assessed the IRS’s electronic authentication platforms and made recommendations to develop a Service-wide 

strategy that establishes consistent oversight of all authentication needs across IRS functions and programs, ensures that 

the level of authentication risk for all current and future online applications accurately reflects the risk, and ensures that 

the authentication processes meet Government Information Security Standards.2 The IRS continues to take steps in 

response to TIGTA’s recommendations to provide more secure authentication, including the implementation of two-factor 

authentication and the strengthening of application and network controls.3 However, we remain concerned about the 

IRS’s logging and monitoring capabilities over all connections to IRS online services. TIGTA is currently assessing the 

IRS’s efforts to improve its authentication processes and has identified areas in which the IRS still needs improvement.4 

Specifically, the IRS has still not fully implemented network monitoring tools designed to improve prevention and 

detection of automated attacks and is not effectively monitoring audit logs for suspicious activity. Due to the importance 

of secure authentication of individuals’ identities, we are planning to conduct additional reviews in this area.

The IRS also shares sensitive data with various outside entities, including other Federal, State, and local agencies; 

financial institutions; and contractors for tax administration purposes. However, TIGTA found that the IRS did not 

ensure that encryption requirements are being enforced or that applicable protocols are being used to fully protect 

sensitive information during transmission.5 In addition, the IRS did not remediate high-risk vulnerabilities or install 

security patches on its servers used to transmit data in a timely manner.

In addition to external threats, the IRS must ensure that its systems and data are protected against internal threats. 

These threats may appear in the form of malicious insiders or disgruntled employees who seek to misuse their access to 

taxpayer data or sensitive IRS business practices for personal gain. These threats may also come in the form of employees 

who unintentionally do something to create a security weakness that may be exploited by others or unnecessarily expose 

data to unauthorized disclosure. For example, audits of various internal systems have identified that users have been 

given more access privileges than their job requires, systems have not been updated with security patches on a timely 

basis, and high-risk security vulnerabilities have not been mitigated as required.6

Additionally, TIGTA’s Office of Investigations’ data analysis techniques have identified IRS employees who access 

taxpayer records without authorization and then use the information to engage in illegal activities. In one recent 

investigation, TIGTA identified an IRS employee who accessed thousands of names, dates of birth, and SSNs from IRS 

data systems and then filed hundreds of fraudulent returns that claimed more than $550,000 in fraudulent tax refunds. 

The IRS employee worked with two co-conspirators to cash the refunds.7 As a result of TIGTA’s investigation, the former 

employee was sentenced to serve over nine years in Federal prison and was ordered to pay more than $438,000 in 

restitution.8 We believe that the IRS must make significant gains in its deployment of audit trails for all of its data 

systems to enable TIGTA and the IRS to identify IRS employees who abuse their access authority in order to steal or 

improperly manipulate taxpayer data.

Besides safeguarding a vast amount of sensitive financial and personal data, the IRS must also protect its employees and 

more than 550 offices. In the last several years, threats directed at the IRS have remained the second largest component 

of the Office of Investigations’ work. Recent incidents involving taxpayers who threatened or assaulted IRS employees 

underscore the dangers that these employees face each day. For example, a taxpayer mailed a device to the IRS campus in 

Ogden, Utah in July 2017 that appeared to be a pipe bomb. This incident caused the IRS to shut down the campus while 

the bomb squad examined the device.9 Physical violence, harassment, and intimidation of IRS employees continue to pose 

challenges to the implementation of a fair and effective system of tax administration.

 

2 TIGTA, Ref. No. 2016-40-007, Improved Tax Return Filing and Tax Account Access Authentication Processes and Procedures Are 

Needed (Nov. 2015). 3 TIGTA, Ref. No. 2016-20-082, Improvements Are Needed to Strengthen Electronic Authentication Process Controls (Sept. 2016). 4 TIGTA, Audit No. 201720004, Review of E-Authentication to IRS Online Services, report planned for October 2017. 5 TIGTA, Ref. No. 2017-20-004, Improvements Are Needed to Ensure the Protection of Data Transfers to External Partners (Oct. 2016). 6TIGTA, Ref. No. 2017-20-061, The External Network Perimeter Was Generally Secure, Though the Security of Supporting Components 

Could Be Improved (Sept. 2017); TIGTA, Ref. No. 2017-20-004, Improvements Are Needed to Ensure the Protection of Data Transfers to 

External Partners (Oct. 2016); and GAO, Ref. No. GAO-17-395, Information Security: Control Deficiencies Continue to Limit IRS's 

Effectiveness in Protecting Sensitive Financial and Taxpayer Data (July 26, 2017). 7 N.D. Ala. Plea Agr. filed Feb. 8, 2016. 8 N.D. Ala. Amended Judgment filed Oct. 14, 2016.

9 W.D. Wash. Crim. Compl. filed July 7, 2017.
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IDENTITY THEFT AND IMPERSONATION FRAUD

Tax-related identity theft continues to have a significant impact on tax administration. Identity theft for the purpose of 

tax fraud occurs when an individual uses another person’s name and Taxpayer Identification Number (TIN), generally a 

SSN, to file a fraudulent tax return to obtain a tax refund. Unscrupulous individuals are stealing identities at an 

alarming rate for this purpose. The IRS lists identity theft as one of the top “Dirty Dozen” tax scams.10 

Since 2012, TIGTA has issued a series of reports assessing the IRS’s efforts to detect and prevent fraudulent tax refunds 

resulting from identity theft. Our ongoing audit work shows that the IRS is making progress in detecting and resolving 

identity theft issues and providing victim assistance. Most recently, we reported in February 2017 that IRS efforts are 

resulting in improved detection of identity theft individual tax returns at the time returns are processed and before 

fraudulent tax refunds are released.11

However, because new identity-theft patterns are constantly evolving, the IRS needs to continuously adapt its detection 

and prevention processes. For example, identity theft also affects businesses. In September 2015, TIGTA determined that 

processing filters could be developed to identify business tax returns containing certain characteristics that could indicate 

potential identity theft cases.12 In June 2017, TIGTA concluded that IRS processes are still not sufficient to identify all 

employment identity theft victims.13 Specifically, the IRS did not identify instances in which identity thieves 

electronically filed tax returns with evidence that the thieves had used the victims’ SSNs to gain employment. Further, 

we determined that IRS processes do not identify employment identity theft when processing paper tax returns.

In addition, the IRS must work to protect taxpayers by educating them on the numerous schemes employed by criminals 

posing as IRS employees that attempt to deceive taxpayers into providing their personal financial information or coerce 

them into paying money on phony tax obligations through wire transfers or preloaded debit cards. One of these schemes, 

the telephone impersonation scam, continues to be one of TIGTA’s top priorities and has also landed at the top of the IRS’s 

“Dirty Dozen” tax scams. The number of complaints TIGTA has received about this scam continues to climb, cementing its 

status as the largest, most pervasive impersonation scam in the history of our agency. As of September 1, 2017, more than 

two million people have reported to TIGTA that they received an impersonation call, and more than 11,500 victims have 

reported that they have paid the impersonators more than $60 million.

These criminals continuously change their tactics, hoping to ensnare even more victims. According to the victims we have

interviewed, scammers demand that the victims immediately pay the money using Apple iTunes® gift cards,14 Target gift 

cards, prepaid debit cards, wire transfers, Western Union payments, or MoneyGram® payments in order to avoid being 

immediately arrested. Because of the complexity of the scammers’ call center operations, the telephone impersonation 

scam will continue to pose a challenge to both the IRS and TIGTA, given that scams such as these are not typically 

resolved quickly and place a strain on limited IRS and TIGTA resources. Many taxpayers are aware of the impersonation 

scam through public service announcements and other outreach efforts which, in turn, create other challenges for the IRS 

when those taxpayers question legitimate IRS employees who are conducting official IRS business. Taxpayers have even 

threatened employees or called the police because they thought IRS employees were impostors.

TIGTA investigations have resulted in more than 90 individuals being arrested or criminally charged for their 

involvement in this scam and numerous investigations are still underway. In addition to criminal prosecutions, we have 

created and instituted an “Advise and Disrupt” strategy to thwart scammers using robo-dialers. Sustained investigative 

efforts and ongoing outreach to ensure that people do not become victims in the first place are critical to ensure continued 

success in combating this scam.

In addition to the telephone impersonation scam, taxpayers also fall victim to other scams. We continue to receive 

reports of people who have become victims of lottery winning scams and are also seeing an uptick in the number of 

reported phishing attempts.15 The lottery scam starts with an unsolicited e-mail or telephone call from an impersonator 

 

10 Compiled annually, the “Dirty Dozen” lists a variety of common scams that taxpayers may encounter. 11 TIGTA, Ref. No. 2017-40-017, Efforts Continue to Result in Improved Identification of Fraudulent Tax Returns Involving Identity 

Theft; However, Accuracy of Measures Needs Improvements (Feb. 2017). 12 TIGTA, Ref. No. 2015-40-082, Processes Are Being Established to Detect Business Identity Theft; However, Additional Actions Can 

Help Improve Detection (Sept. 2015). 13 TIGTA, Ref. No. 2017-40-031, The Number of Employment-Related Identity Theft Victims Is Significantly Greater Than Identified

(June 2017).

14 An Apple Inc.® gift card can be used to purchase anything available on the Apple App Store, iTunes Store, iBooks Store, or Mac App 

Store.

15 A fraudulent attempt, usually made through e-mail, to steal an individual’s personal information by posing as a trustworthy person or 

entity.
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DEPARTMENT OF THE TREASURY 155 

to an unsuspecting victim. The caller tells the intended victims that they have won a lottery or other valuable prize; 

however, in order to collect their prizes, the victims are advised that they must send money to prepay the tax on their 

“winnings” to the IRS. A new phishing scheme involves scammers sending e-mails purporting to be a business’s Chief 

Executive or Financial Officer. These e-mails notify the employees that there is an error on their Form W-2, Wage and 

Tax Statement, and direct the employees to either e-mail their Form W-2 to the sender, or provide information that is on 

the Form W-2 for verification. Both approaches result in the theft of the employee’s personal identifying information.

PROVIDING QUALITY TAXPAYER SERVICE AND EXPANDING ONLINE SERVICES 

Providing taxpayers with quality customer service is a key component in the IRS’s mission. Ensuring that taxpayers 

understand and meet their tax responsibilities is crucial for the IRS in its effort to encourage voluntary compliance with 

the tax laws. Resolving questions before tax returns are filed helps taxpayers avoid unintentional errors and 

noncompliance, and also reduces the burden on both taxpayers and the IRS that results from the issuance of notices and 

correspondence. Successfully addressing and resolving taxpayer inquiries through a quality customer service process 

allows the IRS to direct its limited resources more efficiently. 

Taxpayers have multiple options to choose from when they need assistance from the IRS. These include toll-free telephone 

lines, face-to-face assistance at Taxpayer Assistance Centers (TAC) or Volunteer Program sites, and self-assistance using 

IRS.gov and other social media channels (e.g., Twitter, Facebook, and YouTube). For the 2017 Filing Season, the IRS 

transitioned all the TACs to appointment service. The IRS indicated that budget cuts, the transition to appointment 

service, and continued promotion of alternative service options will result in the reduction of the number of TAC 

employees available to assist taxpayers. The IRS estimated it would assist approximately 3.4 million taxpayers at the 

TACs in FY 2017, down more than two million from FY 2015 when it assisted 5.6 million taxpayers. In addition, although 

the IRS reported 376 TACs for the 2017 Filing Season, 24 of those were not open because they had not been staffed. 

To address declining budgets, the IRS continues to increase its dependence on technology-based services and external 

partners in an effort to direct taxpayers to the most cost-effective method to provide the needed service. The IRS notes 

that this approach allows it to focus limited telephone and walk-in resources on customer issues that can be best resolved 

with person-to-person interaction. The IRS’s Future State16 initiative, which includes expanding online tools available to 

taxpayers, will play a significant part in the IRS’s effort to modernize the taxpayer experience and allow its limited staff to 

better serve taxpayers who require one-on-one assistance. The IRS’s goal is to eventually provide taxpayers with dynamic 

online tax account access that will allow them to view recent payments, make minor changes and adjustments to their tax 

accounts, and correspond digitally with the IRS.

In recent years, TIGTA has also identified a number of customer service issues related to taxpayers who were victims of 

identity theft. In FY 2017, we completed a review to assess the IRS’s actions to improve and expand the Identity 

Protection Personal Identification Number (IP PIN)17 Program.18 We identified approximately two million taxpayers for 

whom the IRS had resolved an identity theft case, but did not place a case resolution marker used to generate an IP PIN 

on the taxpayer’s account. The IRS stated that this results from inconsistent case resolution guidance among different 

IRS functional areas in instances in which the victim’s address is unknown. These inconsistent procedures will create 

burden for the two million taxpayers who do not have the marker on their account. For example, while these individuals 

do not have a marker that will result in the generation of an IP PIN, they do have an identity-theft indicator because they 

are a confirmed victim of identity theft. As such, when these taxpayers electronically file subsequent tax returns, they will 

experience delays while the IRS manually reviews and processes their returns.

UPGRADING TAX SYSTEMS 

Successful modernization of IRS systems and the development and implementation of new information technology 

applications are critical to meeting the IRS’s evolving business needs and to enhancing services provided to taxpayers. 

The IRS’s reliance on legacy systems and its use of outdated programming languages pose significant risks to the IRS’s 

ability to deliver its mission. 

The IRS has a large and increasing amount of aged hardware, some of which is three to four times older than industry 

standards. In the IRS’s FY 2016 President’s Budget, the IRS noted that its information technology infrastructure poses 

significant risk of failures, although it is unknown when these failures will occur, how severe they will be, or whether they

will have material impacts on tax administration during the Filing Season. Aged information technology hardware still in 

 

16 Preparing the IRS to adapt to the changing needs of taxpayers is described generally as the IRS Future State initiative. A key part of 

this effort is for taxpayers to have a more complete online experience for their IRS interactions. 

17 An IP PIN is a six-digit number assigned to taxpayers that allows their tax returns/refunds to be processed without delay and helps 

prevent the misuse of their SSNs on fraudulent Federal income tax returns.

18 TIGTA, Ref. No. 2017-40-026, Inconsistent Processes and Procedures Result in Many Victims of Identity Theft Not Receiving Identity 

Protection Personal Identification Numbers (Mar. 2017).
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use introduces an unnecessary risk that excessive system downtime could occur due to hardware failures. As information 

technology hardware ages, it becomes more difficult to obtain adequate support. Aged hardware failures have a negative 

impact on IRS employee productivity, security of taxpayer information, and customer service. 

TIGTA reported that the IRS has not yet achieved its stated objective of reducing the percentage of its aged information 

technology hardware to an acceptable level of 20 to 25 percent. In fact, the IRS’s percentage of aged information 

technology hardware has steadily increased from 40 percent at the beginning of FY 2013 to 64 percent at the beginning of 

FY 2017.19 

Further, the IRS has been using the Individual Master File (IMF), which uses an outdated assembly language code, for 

more than 50 years. The IMF is the source for individual taxpayer accounts. Within the IMF, accounts are updated, taxes 

are assessed, and refunds are generated. Most of the IRS’s information systems and processes depend on the IMF, either 

directly or indirectly. In 2009, the IRS began developing Customer Account Data Engine 2 (CADE 2) to address the issues 

regarding tax processing and to eventually replace the IMF. CADE 2 is a key component of IRS systems modernization 

that establishes the foundation for capturing, storing, managing, and sharing taxpayer information. CADE 2 is one of the 

most complex modernization programs in the Federal Government and involves major changes to several core information 

technology systems. The IRS has implemented Transition State 1 for the CADE 2, which began in October 2009 and was 

completed in July 2014. The first transition state provides daily processing and a single centralized relational database 

for all individual taxpayer accounts. However, CADE 2 is currently still being developed, and the IRS does not have a firm 

date on when the target state (completion) of CADE 2 will be operational. Therefore, the IRS will be relying on legacy 

systems for years to come.

Another area of concern regarding IRS systems modernization is ensuring that systems and data remain secure and 

reliable. The IRS implemented the Integrated Production Model (IPM) to provide a single point of access to core taxpayer 

data (such as taxpayer accounts and tax returns). The accuracy, completeness, and reliability of data on the IPM are 

essential to the IRS and its tax administration mission. The IRS made significant changes to the IPM system, including 

moving data to different software and hardware platforms. When these changes occurred, business ownership and 

security responsibilities of the IPM were moved to the Big Data Analytics General Support System.20 TIGTA found that 

the IRS did not follow its change management procedures when absorbing the IPM system into the Big Data Analytics 

General Support System.21 As a result, approximately 10 percent of security controls which previously protected IPM 

system data were not captured by the Big Data Analytics General Support System. Without following the security change 

management process, there is an increased risk that changes could expose taxpayer data to additional security 

vulnerabilities. Additionally, changes to operating environments or applications introduce new or increase existing 

security vulnerabilities, heightening risk to the overall information technology infrastructure.

Cloud computing holds tremendous potential for the Federal Government to deliver value to the public by increasing 

operational efficiency and responding faster to constituent needs. In December 2010, the U.S. Chief Information Officer 

directed all Federal agencies to shift to a “cloud first” policy. However, TIGTA reported that the IRS does not have an 

enterprise-wide cloud strategy.22 Although the IRS formed a working group in July 2016 to develop this strategy, it is not 

complete and no timeline has been established for completion. In addition, the IRS did not comply with Office of 

Management and Budget guidance requiring agencies to use the Federal Risk and Authorization Management Program to 

conduct risk assessments, perform security authorizations, and grant Authorities to Operate for cloud services for the 

Form 990, Return of Organization Exempt From Income Tax, Cloud Project. Without a documented strategy for the 

selection, management, and inventory of cloud services, there is an increased risk that deployed cloud services will not 

meet the IRS’s business and technical needs.

IMPLEMENTING TAX LAW CHANGES

One of the continuing challenges the IRS faces each year in processing tax returns is the implementation of new tax laws 

as well as changes resulting from expired tax provisions. Legislative actions generating the changes often occur late in the 

year, shortly before the filing season begins. As a result, the IRS must act quickly to assess the change and determine the 

necessary actions to ensure that all legislative requirements are satisfied. These actions may require revisions to various 

tax forms, instructions, and publications, as well as reprogramming computer systems to ensure that tax returns are 

accurately processed based on the changes. Errors in the IRS’s tax return processing systems may delay tax refunds, 

affect the accuracy of taxpayer accounts, or result in incorrect taxpayer notices.

 

19 TIGTA, Ref. No. 2017-20-051, Sixty-Four Percent of the Internal Revenue Service’s Information Technology Hardware Infrastructure Is 

Beyond Its Useful Life (Sept. 2017). 20 This system is a data warehouse. It provides the ability to conduct rapid advanced analytics. 21 TIGTA, Ref. No. 2017-20-029, The Big Data Analytics General Support System Security Controls Need Improvement (June 2017). 22 TIGTA, Ref. No. 2017-20-032, The Internal Revenue Service Does Not Have a Cloud Strategy and Did Not Adhere to Federal Policy 

When Deploying a Cloud Service (Aug. 2017).
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 157 

For the 2017 Filing Season, tax law changes included the continued implementation of the Patient Protection and 

Affordable Care Act and the Health Care and Education Reconciliation Act of 2010 (collectively referred to as the 

Affordable Care Act or ACA),23 and those provisions of the Protecting Americans from Tax Hikes Act of 2015 (PATH Act)24

specifically intended to reduce fraudulent and improper refundable credit claims. The majority of the PATH Act’s 

provisions were effective January 1, 2016, and affect the processing of Tax Year 2016 returns. The IRS has developed 

processes to implement key tax provisions of the PATH Act, including holding refunds for taxpayers claiming the Earned 

Income Tax Credit (EITC)25 and Additional Child Tax Credit (ACTC)26 until February 15 and identifying Child Tax 

Credit,27 ACTC, and American Opportunity Tax Credit (AOTC)28 claims filed by individuals with an inactive Individual 

Taxpayer Identification Number. 

In addition, the IRS was affected in the 2017 Filing Season by the Trade Preferences Extension Act of 2015 (Trade Act).29 

The Trade Act retroactively extended the Health Coverage Tax Credit (HCTC) for Tax Year 2014 and continued the credit 

through Tax Year 2019. The Trade Act required the IRS to provide HCTC advance monthly payments on behalf of eligible 

applicants starting in June 2016. The IRS implemented an interim manual process to issue HCTC advance monthly 

payments on behalf of eligible applicants until the replacement systemic process was ready for use in January 2017. 

However, TIGTA found that many of the individuals identified as potentially eligible may not meet requirements to 

receive or claim the HCTC. Specifically, TIGTA identified 506,396 (57 percent) of the 896,213 individuals that the Pension 

Benefit Guaranty Corporation identified as potentially eligible to claim HCTC on the Tax Year 2015 return, as of 

December 2015, had a characteristic that disqualified them from claiming the HCTC.30 

The Trade Act also requires that an individual claiming the AOTC, Lifetime Learning Credit, or the Tuition and Fees 

Deduction must receive a statement from the educational institution to claim these benefits. This statement, which is 

generally on Form 1098-T, Tuition Statement, provides the name, address, and Employer Identification Number (EIN) of 

the educational institution. This provision is effective for tax years beginning after June 29, 2015. However, the IRS has 

not developed processes to identify all AOTC claims for which the student did not receive a Form 1098-T from the 

educational institution or for which the institution’s EIN is not provided. 

The ACA created the refundable Premium Tax Credit (PTC) to help offset the cost of health care insurance for those with 

low or moderate income. Eligible individuals can elect to receive some, all, or none of the PTC in advance. TIGTA verified 

the PTC claims made during the 2016 Filing Season and reported that the IRS accurately determined the amount of 

allowable tax credit on 97 percent of the returns.31 However, TIGTA found that not all the Exchanges32 had provided the 

required Exchange Periodic Data to the IRS prior to the start of the 2016 Filing Season. Without the required data, the 

IRS was unable to perform computer matches to verify filed claims or verify that individuals who received the advance 

PTC had filed a tax return as required. In addition, TIGTA found that the IRS is sending erroneous notifications to the 

Exchanges and individuals indicating that the individuals had received the PTC in advance but did not file the required 

tax return. This could result in denial of the advance PTC for the 2016 coverage year or delay the receipt of advanced 

credit payments while the individuals provided proof that they had filed a tax return.

TIGTA also reported that some of the processes to ensure that employers were in compliance with the Employer Shared 

Responsibility Provision33 did not function as intended.34 Specifically, the IRS was unable to process paper information 

 

23 Pub. L. No. 111-148, 124 Stat. 119 (2010) (codified as amended in scattered sections of the U.S. Code), as amended by the Health Care 

and Education Reconciliation Act of 2010, Pub. L. No. 111-152, 124 Stat. 1029. 24 Consolidated Appropriations Act of 2016, Pub. L. No. 114-113, Div. Q, (2015). 25 The EITC was created in 1975 as part of the Tax Reduction Act of 1975 § 204, 26 U.S.C § 32. The EITC is used to offset the impact of 

Social Security taxes on low-income families and to encourage them to seek employment. 26 The ACTC is intended to reduce the individual income tax burden for families, better recognize the financial responsibilities of raising 

dependent children, and promote family values. 

27 A tax credit for families with dependent children that is used to reduce the individual income tax burden for families, better recognize 

the financial responsibilities of raising dependent children, and promote family values. 

28 The AOTC is intended to help offset the costs of higher education for taxpayers, their spouses, and dependents who qualify as eligible 

students. 

29 Pub. L. No. 114-27, 129 Stat. 362. 30 TIGTA, Ref. No. 2017-40-033, Implementation of the Health Coverage Tax Credit Enrollment and Systemic Advance Monthly Payment 

Process (May 2017). 31 TIGTA, Ref. No. 2017-43-022, Affordable Care Act: Verification of Premium Tax Credit Claims During the 2016 Filing Season (Mar. 

2017).

32 The Exchanges are where taxpayers find information about health insurance options, purchase qualified health plans, and, if eligible, 

obtain help paying premiums and out-of-pocket costs. 33 The Employer Shared Responsibility Provision requires employers with an average of 50 or more full-time employees (including fulltime equivalent employees) to offer health insurance coverage to full-time employees and their dependents beginning in January 2015. 34 TIGTA, Ref. No. 2017-43-027, Affordable Care Act: Assessment of Efforts to Implement the Employer Shared Responsibility Provision

(Apr. 2017).
158 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

returns timely and accurately; the criteria used to identify validation errors in the submissions did not always work as 

intended; and the development and implementation of key systems needed to identify noncompliant employers have been 

delayed, not initiated, or cancelled. As a result, the IRS did not have accurate and complete data to identify noncompliant 

employers. 

IMPROVING TAX COMPLIANCE 

Despite IRS efforts to reduce it, the Tax Gap remains a serious and persistent challenge. The Tax Gap is defined as the 

difference between the estimated amount taxpayers owe and the amount they voluntarily and timely pay for a tax year. 

In FY 2016, the IRS issued Tax Gap estimates for Tax Years 2008 through 2010 that suggest compliance is substantially 

unchanged since the last estimate for Tax Year 2006. The Tax Gap for Tax Years 2008 through 2010 is estimated to be 

$458 billion annually, compared to the $450 billion estimated for Tax Year 2006. In an effort to lower the Tax Gap, the 

IRS identifies questionable tax returns to determine if any adjustments to the information reported on the tax returns are 

needed. In addition, the IRS issues notices and contacts taxpayers to collect delinquent taxes. If necessary, the IRS takes 

enforcement action, such as filing liens and seizing assets, to collect the taxes. 

The IRS’s compliance programs continue to be affected by reductions in the number of staff assigned to work cases, 

although enforcement revenue produced by these programs did not change significantly in FY 2016. Specifically, the 

combined number of enforcement personnel decreased between 5 and 8 percent each year since FY 2012 (14,829) and 

resulted in the lowest number over the past 10 years in FY 2016 (11,195). Unpaid assessments increased from $411.8 

billion in FY 2015 to $421.8 billion at the end of FY 2016. The IRS has projects underway to improve processes in a 

variety of areas, including contacting delinquent taxpayers earlier, developing new processes to deliver inventory to 

Collection and Examination functions, and optimizing outreach and communication.35

The Automated Substitute for Return (ASFR) Program is a key compliance program for the IRS and enforces filing 

compliance on taxpayers who have not filed individual income tax returns but appear to owe a significant tax liability. 

Through the ASFR, the IRS secures a valid income tax return or prepares a Substitute for Return for taxpayers with a 

proposed tax assessment based on third-party information returns reported to the IRS combined with other internal data. 

However, due to significant resource reductions, the Program is now used mainly as support for other key compliance 

programs. ASFR inventory receipts and 30-day letter issuances decreased by 89 and 98 percent, respectively, between 

FYs 2009 and 2016. With fewer cases entering inventory and ultimately being worked, the cases that are worked should 

be the highest priority cases. However, TIGTA’s analysis showed the cases that have been worked have not resulted in 

more revenue per case.36 IRS collections from closed ASFR cases were approximately $2.9 billion (87 percent) less in the 

2015-2016 period than in the 2010-2011 period, and 85 percent fewer ASFR cases were closed. The decrease in tax dollars 

collected is significant and can be directly attributed to the decline in cases started and worked by the ASFR Program. 

Employment tax noncompliance also continues to steadily grow. As of December 2015, 1.4 million employers owed 

approximately $45.6 billion in unpaid employment taxes, interest, and penalties. The Trust Fund Recovery Penalty 

(TFRP) is an enforcement tool the IRS can use to discourage employers from continuing egregious employment tax 

noncompliance and provides an additional source of collection for unpaid employment taxes.37 In FY 2015, the IRS 

assessed the TFRP against approximately 27,000 responsible persons—38 percent fewer than just five years before, as a 

result of diminished revenue officer resources. In contrast, the number of employers with egregious employment tax 

noncompliance (20 or more quarters of delinquent employment taxes) is steadily growing—it has more than tripled in a 

17-year period.

We also reported in July 2017 that billions of dollars of potential underreported taxes are not being addressed because 

most discrepancy cases identified by the IRS are not worked.38 Discrepancy cases result when employers’ wage and 

withholding information reported on filed Forms W-2, Wage and Tax Statement, and Forms W-3, Transmittal of Wage and 

Tax Statements, do not match what was reported on the employers’ employment tax return. Our analysis found that the 

IRS did not work discrepancy cases that had a potential underreported total tax difference of more than $7 billion. 

 

 

 

35 TIGTA, Ref. No. 2017-30-072, Trends in Compliance Activities Through Fiscal Year 2016 (Sept. 2017). 36 TIGTA, Ref. No. 2017-30-078, A Significantly Reduced Automated Substitute for Return Program Negatively Affected Collection and 

Filing Compliance (Sept. 2017). 37 TIGTA, Ref. No. 2017-IE-R004, A More Focused Strategy Is Needed to Effectively Address Egregious Employment Tax Crimes (Mar. 

2017).

38 TIGTA, Ref. No. 2017-40-038, Case Selection Processes Result in Billions of Dollars in Potential Employer Underreported Tax Not 

Being Addressed (July 2017).
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 159 

REDUCING FRAUDULENT CLAIMS AND IMPROPER PAYMENTS

The Office of Management and Budget describes an improper payment as any payment that should not have been made, 

was made in an incorrect amount, or was made to an ineligible recipient. The Improper Payment Information Act of 

200239 requires Federal agencies, including the IRS, to estimate the amount of their improper payments and report to 

Congress annually on the causes of and the steps taken to reduce such improper payments. The Improper Payment 

Elimination and Recovery Act of 201040 amended the 2002 Act by strengthening agency reporting requirements and 

redefining significant improper payments.

Although refundable credits provide benefits to individuals, the unintended consequence of these credits is that they can 

result in the issuance of improper payments and can be the targets of unscrupulous individuals who file erroneous claims. 

Refundable credits can result in tax refunds even if no income tax is withheld or paid; that is, the credits can exceed an 

individual’s tax liability. Consequently, they pose a significant risk as an avenue for those seeking to defraud the 

Government. 

The IRS issued an estimated $25 billion in potentially improper EITC, ACTC, and AOTC payments in FY 2016. This 

represents a significant loss to both the Federal Government and taxpayers. TIGTA remains concerned about the IRS’s 

inability to significantly reduce these payments. 

In April 2017, we reported that the IRS concluded that the ACTC and the AOTC presented a medium risk of improper 

payments for FY 2016.41 However, the IRS’s medium-risk rating continues to be contrary to its own compliance data, 

which shows that both the ACTC and AOTC programs present a high risk of improper payments. Our review of these 

revised assessments found that they still do not include the use of available IRS compliance data to quantify erroneous 

payments. Because the IRS does not rate these programs as high risk, it is not required to establish a corrective action 

plan to reduce the improper payments.

Using the IRS’s own compliance data, we computed the FY 2016 potential estimated improper payment rate for the ACTC 

and the AOTC. We estimate that 25.2 percent ($7.2 billion) of ACTC payments were improper42 and 24.1 percent ($1.1 

billion) in AOTC payments were improper.43 The IRS is not required to perform a risk assessment of the EITC because it 

is designated as a high-risk program by the Office of Management and Budget. For FY 2016, the IRS estimates EITC 

payments totaling $16.8 billion were issued improperly.

Congress enacted the PATH Act on December 18, 2015, which includes program integrity provisions intended to reduce 

fraudulent and improper EITC, Child Tax Credit, ACTC, and AOTC payments. For example, one of the PATH Act’s 

provisions is intended to ensure that the IRS has the information and time needed to verify the income of individuals 

claiming the EITC and the ACTC before the related refund is issued. According to the U.S. House of Representatives 

Committee on Ways and Means, these integrity provisions are projected to save roughly $7 billion over 10 years by 

reducing fraud, abuse, and improper payments in refundable credit programs. 

According to the IRS, approximately $1 billion (6 percent) of improper EITC payments are from program design 

limitations. However, as we continue to report, IRS compliance resources are limited, and, consequently, the IRS does not 

address the majority of potentially erroneous EITC claims despite having established processes that identify billions of 

dollars in potentially erroneous EITC payments. Although the PATH Act gives the IRS more time to verify EITC and 

ACTC claims before refunds are issued, it does not expand the IRS’s authority to systemically correct erroneous claims. 

Currently, under the Internal Revenue Code, the IRS can use its math error authority to address erroneous EITC claims 

by systemically correcting mathematical or clerical errors on such claims. For example, it can correct entries made on the 

wrong line on the tax return or mathematical errors made in computing income or the EITC. However, the majority of 

potentially erroneous EITC claims that the IRS identifies do not contain the types of errors for which it has math error 

authority. To address those potentially erroneous EITC claims identified that cannot be addressed using math error 

authority, the IRS must conduct an audit. The IRS estimated that it costs $1.50 to resolve an erroneous EITC claim using 

math error authority compared to $278 to conduct a pre-refund audit.44

 

39 Pub. L. No. 107-300, 116 Stat. 2350. 40 Pub. L. No. 111-204, 124 Stat. 2224. 41 TIGTA, Ref. No. 2017-40-030, Revised Refundable Credit Risk Assessments Still Do Not Provide an Accurate Measure of the Risk of 

Improper Payments (Apr. 2017). 42 We estimate that the potential ACTC improper payment rate for FY 2016 is between 22.7 percent and 27.8 percent and the potential 

amount of improper payments is between $6.5 billion and $7.9 billion.

43 We estimate that the potential AOTC improper payment rate for FY 2016 is between 19.6 percent and 28.7 percent and the potential 

amount of improper payments is between $900 million and $1.3 billion.

44 Cost to use math error authority as of June 25, 2014, as provided by the IRS. The IRS provided the cost of a pre-refund audit based on 

FY 2010 financial data, which is the most current available.
160 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

The IRS, in conjunction with the Assistant Secretary of the Treasury for Tax Policy, has in each year since FY 2013 set 

forth a legislative proposal requesting additional error correction authority as part of its annual budget submission. Such 

authority, if provided by law, would allow the IRS to correct, during processing, tax returns when the information provided 

by the taxpayer does not match the information contained in Government databases (e.g., income information reported on 

the tax return does not match Forms W-2 from the Social Security Administration). Without this additional error 

authority, billions of dollars in identified potentially erroneous claims will continue to go unaddressed each year.

IMPACT OF GLOBAL ECONOMY ON TAX ADMINISTRATION

The globalization of financial markets and the increased importance of multinational corporations are making it 

increasingly difficult for the IRS to administer and enforce tax compliance. As the IRS noted in its most recent strategic 

plan, the evolution and proliferation of virtual commerce has expanded the exchange of goods, services, and currencies – 

real and virtual – across jurisdictions, further complicating tax administration.45 

As globalization and technological advancements continue to reduce barriers to cross-border commerce, tax authorities 

around the world have increased the sharing of tax-related information with other countries to administer and enforce the 

tax laws of their respective countries. The information received from these other countries presents a potentially 

important source of data, including data indicating whether taxpayers have foreign income and/or assets, and assists the 

IRS in effectively administering and enforcing tax law compliance. However, TIGTA found that the IRS did not have an 

adequate tracking system to account for the records that foreign countries sent on a regular basis and that access to the 

information is provided to a relatively small percentage of IRS compliance employees.46 

Additionally, expanding overseas activities of U.S. entities (individuals, trusts, and businesses) have increased certain 

opportunities for tax avoidance and/or evasion. The IRS established an international enforcement program to address 

these issues and identified the Mutual Collection Assistance Request (MCAR) Program as a focus area. An MCAR is a 

request for assistance from another country to collect taxes covered by the treaty of the other country. While the MCAR 

Program is a useful collection tool, TIGTA found that the total dollar amount of U.S. liabilities collected by five mutual 

collection income tax treaty partners peaked in FY 2013 but dropped off significantly since then. This is largely because 

the IRS does not use the MCAR Program to its full potential. 

Another area that has seen significant growth has been foreign investment in the U.S. housing market. The National 

Association of Realtors provides estimates of nonresident alien individuals’ investment in U.S. property; based on those 

estimates, nonresident alien individuals’ investment in U.S. property increased from $34.8 billion during the 12-month 

period ending March 2013 to $43.5 billion during the 12-month period ending March 2016.47 With this increase comes a 

greater risk of noncompliance with tax laws and regulations. TIGTA found that the IRS can improve controls to ensure 

that nonresident aliens are properly reporting rental income from their U.S. property.48 In a random sample of 149 

nonresident aliens who rented their U.S. property in Tax Year 2013, TIGTA found 102 (68 percent) reduced their gross 

rental income without applying for a tax benefit by submitting an election statement. As a result, almost $1.8 million in 

gross rental income should have been subject to a 30 percent tax withholding of $533,000, or $56.2 million when projected 

to the population. The IRS needs to improve compliance checks for ensuring that election statements are made. 

The IRS also needs to improve tools for identifying nonresident aliens who are not reporting rental income from U.S. 

property they own. From a sample of nonresident aliens owning property in five counties, TIGTA identified foreign 

property owners who appeared to have failed to report and pay tax on rental income earned. TIGTA estimates that there 

is potentially unreported rental income of $60.9 million for the counties included in the sample. 

PROTECTING TAXPAYER RIGHTS

The IRS must balance its tax compliance activities against the rights of taxpayers to receive fair and equitable treatment. 

This challenge will have increased significance now that the IRS has begun assigning certain taxpayer accounts to private 

debt collection companies, as mandated by the Fixing America’s Surface Transportation (FAST) Act.49 Enacted in 

December 2015, the FAST Act includes a provision that requires the IRS to use private debt collection companies to 

collect unpaid tax debts involving certain inactive tax receivables. As a condition of receiving a contract, the private 

collection companies must respect taxpayer rights, including abiding by the consumer protection provisions of the Fair 

 

45 Internal Revenue Service Strategic Plan – FY 2014 - 2017, IRS Pub. 3744 (Rev. June 2014). 46 TIGTA, Ref. No. 2017-30-077, Exchange of Information Capabilities Are Underutilized by the IRS (Sept. 2017). 47 National Association of Realtors, Profile of International Activity in US Residential Real Estate, years 2013-2016, 

https://www.nar.realtor/research-and-statistics/research-reports. 48 TIGTA, Ref. No. 2017-30-048, Additional Controls Are Needed to Help Ensure That Nonresident Alien Individual Property Owners 

Comply With Tax Laws (Aug. 2017). 49 Pub. L. No. 114-94, Div. C, Title XXXII, § 32102, 129 Stat. 1312, 1733-36 (2015), codified in Internal Revenue Code § 6306. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 161 

Debt Collection Practices Act.50 The IRS will need to ensure that collection company employees abide by these provisions 

and respect taxpayer rights during their contacts with taxpayers. 

The IRS continues to dedicate significant resources and attention to complying with taxpayer rights provisions of the IRS 

Restructuring and Reform Act of 1998 (RRA 98).51 As mandated by RRA 98, TIGTA conducts annual audits of a number 

of these taxpayer rights provisions. In general, the IRS has improved its compliance with these statutory taxpayer rights 

provisions and is documenting its protection of taxpayer rights. However, during the review of the IRS’s compliance with 

Notice of Federal Tax Lien due process procedures, TIGTA found that the IRS did not always notify taxpayers’ 

representatives of the Notice of Federal Tax Lien filings as required.52 Based on the sample results, TIGTA estimated 

that 28,913 taxpayers may have been adversely affected because the IRS did not follow procedures to notify taxpayers’ 

authorized representatives of the taxpayers’ rights related to the Notices of Federal Tax Lien.

We also continued to identify errors related to the determination of the Collection Statute Expiration Date (CSED) on 

taxpayer accounts during our review of the IRS Office of Appeals Collection Due Process Program.53 The CSED is the 

expiration of the time period established by law to collect taxes. From a statistically valid sample, TIGTA identified 

instances in which the IRS incorrectly extended the CSED, allowing the IRS additional time it should not have had to 

collect delinquent taxes. 

In addition, TIGTA conducted an audit to evaluate the IRS’s use of seizures against property owners suspected of 

structuring currency transactions to avoid Bank Secrecy Act54 reporting requirements.55 The Bank Secrecy Act requires 

financial institutions to report currency transactions in excess of $10,000. This Federal law also makes it a crime for 

property owners to structure currency transactions in such a way as to avoid the filing of the report and subjects 

structured amounts to civil or criminal forfeiture proceedings. TIGTA determined that the IRS enforced the Bank Secrecy 

Act’s anti-structuring provisions primarily against individuals and businesses whose income was legally obtained, and 

compromised the rights of some individuals and businesses in these investigations. TIGTA determined that 91 percent of 

the 278 investigations in its sample in which source of funds could be determined were of businesses and individuals 

whose funds were obtained legally. While the Bank Secrecy Act does not distinguish between legal and illegal sources of 

funds, IRS procedures dictate that the overall purpose of its civil forfeiture program is to disrupt and dismantle criminal

enterprises. Most people affected by the program did not appear to be criminal enterprises or engaged in other alleged 

illegal activity; rather, they were legal businesses such as jewelry stores, restaurant owners, gas station owners, and scrap

metal dealers. 

As part of this audit, we reviewed all 28 criminal investigations during FY 2015 that resulted in asset seizures in which 

structuring was the primary criminal basis for the seizure to determine if the IRS complied with a new policy. Under the 

new policy, the IRS will no longer pursue legal source structuring cases unless exceptional circumstances justify the 

seizure and the seizure is approved by the appropriate IRS executive. We reviewed available supporting documentation 

and determined that for 20 of the 28 investigations, the seizures either conformed to policy, were not actually for 

structuring violations, or occurred well before the policy change. However, for five cases, we believe that the actions taken 

by the Government were inconsistent with the new policy, and for three cases we did not find evidence that the IRS 

conformed to the new policy in making those seizures for structuring violations.

ACHIEVING PROGRAM EFFICIENCIES AND COST SAVINGS

Continuing to identify and achieve greater program efficiencies and cost savings is imperative for the IRS as it strives to 

successfully accomplish its mission in a period of shrinking budgets and declining resources. Implementing cost saving 

strategies is particularly critical as the IRS is tasked with additional responsibilities, often without additional budgetary 

funding. 

In its most recent strategic plan, which guides program and budget decisions, the IRS noted that it must meet the 

challenge of declining resources by working to achieve the optimal scale and scope for its programs and activities. While 

the IRS has taken steps to reduce costs and improve program effectiveness, TIGTA has identified a number of areas in 

which the IRS can more efficiently use its limited resources and make more informed business decisions.

 

50 15 U.S.C. §§ 1601 note, 1692-1692p (2006). 51 Pub. L. No. 105-206, 112 Stat. 685. 52 TIGTA, Ref. No. 2017-30-070, Fiscal Year 2017 Statutory Review of Compliance With Notice of Federal Tax Lien Due Process 

Procedures (Sept. 2017). 53 TIGTA, Ref. No. 2017-10-055, Review of the Office of Appeals Collection Due Process Program (Sept. 2017). 54 Pub. L. No. 91-508, 84 Stat. 1114-4 (1970) (codified as amended in scattered sections of 12 U.S.C., 18 U.S.C., and 31 U.S.C.). 

Regulations for the Bank Secrecy Act and other related statutes are 31 C.F.R. §§ 103.11-103.77. 55 TIGTA, Ref. No. 2017-30-025, Criminal Investigation Enforced Structuring Laws Primarily Against Legal Source Funds and 

Compromised the Rights of Some Individuals and Businesses (Mar. 2017).
162 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

For example, TIGTA completed an audit to assess the IRS’s processes to ensure that employee salary overpayments or 

underpayments are prevented and detected when employees move into, within, and out of IRS pay bands.56 Based on a 

statistical sample of employees who received salary increases of greater than 10 percent for promotions into management 

positions between FYs 2006 and 2015, 31 percent of sampled employees were not paid correctly. TIGTA estimates that the 

IRS overpaid more than 600 employees by approximately $4.2 million and underpaid more than 900 employees by 

approximately $2.7 million. 

In another example of improving program efficiency, we also reported that the IRS has not effectively updated or 

implemented hiring policies to fully consider past IRS conduct and performance issues prior to making a tentative decision 

to hire former employees, including those who were terminated or separated during an investigation of a substantiated 

conduct or performance issue.57 While most employees who are rehired do not have prior conduct or performance issues, 

TIGTA found that more than 200 (approximately 10 percent) of the more than 2,000 former employees who were rehired 

between January 2015 and March 2016 had previously been terminated from the IRS or had separated while under 

investigation for a substantiated conduct or performance issue. More than 150 (approximately 75 percent) of these 

employees were seasonal. Although the IRS may have had a valid basis to rehire some of the more than 200 former 

employees with prior conduct and/or performance issues, TIGTA has serious concerns about the IRS’s decision to rehire 

certain employees, such as those who willfully failed to meet their Federal tax responsibilities.

In addition, we identified inefficiencies related to the IRS’s records retention processes. Specifically, we determined that

the IRS’s policies do not comply with certain Federal requirements that agencies must ensure that all records are 

retrievable and usable for as long as needed.58 For example, IRS e-mail retention policies are not adequate because emails are not automatically archived for all IRS employees. Instead, the IRS’s current policy instructs employees to take 

manual actions to archive e-mails by saving them permanently on computer hard drives or network shared drives. This 

policy has resulted in lost records when computer hard drives are destroyed or damaged. 

TIGTA also found that a more effective tax compliance strategy for ASFR casework would result in more efficient use of 

IRS resources.59 The IRS prioritized ASFR cases involving Refund Holds60 over cases with potential high net tax due 

($100,000 or more), even though the average dollars collected per case in cases with potential high net tax due is five times 

higher than all other cases. TIGTA estimates that the IRS could collect $843 million over the next five years if it replaced

9 percent of Refund Hold inventory with high net tax due cases.

Similarly, we also reported that discrepancy case selection processes do not ensure that priority is given to working 

discrepancy cases with the highest potential tax assessment.61 The Combined Annual Wage Reporting (CAWR) Program 

compares the employee wage and withholding information reported to the IRS on employment tax forms to withholding 

documents filed with the Social Security Administration. The purpose of the IRS-CAWR Program is to ensure that 

employers report the proper amount of employment taxes and Federal income tax withholding on their employment tax 

returns. TIGTA’s analysis of the 114,088 TY 2013 unworked IRS-CAWR Program discrepancy cases showed that if the 

IRS had selected the 23,184 auto-generated cases with a higher average assessment potential to work, it would have 

selected cases with more than $128 million in assessment potential. In addition to changing its selection methodology to 

work case types with the highest potential tax assessment, the IRS could further increase its return on investment by

including prior year discrepancy cases when working current year discrepancy cases for the same employer. TIGTA’s 

analysis found that 3,137 of the discrepancy cases identified in TY 2013 also had discrepancy cases in TY 2012, with 

potential underreported tax totaling more than $448 million for TY 2012.

TIGTA also reported that the IRS has not maintained standard pricing and terms and conditions for its software 

acquisitions, compiled a reliable baseline inventory of software licenses, or documented cost savings and cost avoidance 

attributable to improved software license management, as required by recent laws and regulations.62 Efficient and cost 

 

56 TIGTA, Ref. No. 2017-10-023, Some Managerial Salaries Were Calculated Incorrectly Due to Complex Pay-Setting Rules (Mar. 2017). 57 TIGTA, Ref. No. 2017-10-035, The Internal Revenue Service Continues to Rehire Former Employees With Conduct and Performance 

Issues (July 2017). 58 TIGTA, Ref. No. 2017-10-034, Electronic Record Retention Policies Do Not Consistently Ensure That Records Are Retained and 

Produced When Requested (July 2017). 59 TIGTA, Ref. No. 2017-30-078, A Significantly Reduced Automated Substitute for Return Program Negatively Affected Collection and 

Filing Compliance (Sept. 2017). 60 If a taxpayer files a tax return requesting an income tax refund, the IRS delays issuing the refund for up to six months while it 

investigates any delinquent returns filed within five years prior to the current filing year.

61 TIGTA, Ref. No. 2017-40-038, Case Selection Processes Result in Billions of Dollars in Potential Employer Underreported Tax Not 

Being Addressed (July 2017). 62 TIGTA, Ref. No. 2017-20-062, The Internal Revenue Service Is Not in Compliance With Federal Requirements for Software Asset 

Management (Sept. 2017).
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 163 

effective management of the IRS’s software assets is crucial to ensure that information technology services continue to 

support the IRS’s business operations and to help provide services to taxpayers efficiently. 

CONCLUSION 

This memorandum is provided as our annual summary of the most serious major management and performance 

challenges confronting the IRS in FY 2018. TIGTA’s Fiscal Year 2018 Annual Audit Plan contains our proposed reviews, 

which are organized in accordance with these challenges. If you have any questions or wish to discuss our views on the 

challenges in greater detail, please contact me at (202) 622-6500.

cc: Assistant Secretary for Management 

Deputy Chief Financial Officer

Commissioner of Internal Revenue
164 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

MANAGEMENT RESPONSE TO OIG AND TIGTA REPORTED CHALLENGES

We concur with the reported challenges from the Treasury Inspector General (IG) and TIGTA. We continue to make 

progress on these challenges, but overcoming them will require long-term strategies for ensuring stable operations, as well 

as sustained management attention and resources. We have provided our responses to the identified management 

challenges in the following section. 

Summary of Challenges Facing Treasury

OIG Reported Challenge Management’s Response

Operating in an Uncertain Environment Treasury’s reform plan proposals submitted to OMB in September 2017 included crossOMB’s government–wide Reform Plan may agency initiatives and Treasury-specific reforms that reflect the significant breadth and 

significantly impact the administration of depth of the Department’s mission. While we assess the feasibility and potential impact of 

the Department’s programs and operations. these targeted efficiency efforts with OMB, we are also actively planning for prospective 

Additional uncertainty facing the near and long-term budget constraints, focusing our limited resources on critical programs 

Department are the recurring cycle of and Departmental priorities. Our reform efforts and budget planning processes foster 

budget and debt ceiling stopgaps. collaboration across the Department to effectively manage possible operational changes 

while mitigating uncertainly about future funding and workforce levels.

Cyber Threats Treasury employs a risk-based approach to cybersecurity, which includes: (a) assessing the 

As cyber threats continue to evolve and likelihood of exploitation; (b) examining the number of dependencies required to exploit a 

become more sophisticated and subtle, they given vulnerability; and (c) calculating the impact to the public if a system or data is

pose an ongoing challenge for Treasury to compromised. In FY 2017, as a result of our system patching practices, we were not at risk 

fortify and safeguard its internal systems of being affected by the large ransomware campaigns that immobilized numerous 

and operations and the financial sector it organizations. Additionally, our asset inventories and established data sharing channels 

oversees. Additionally, ensuring the allowed us to quickly identify and remediate any at-risk assets. 

government has a sufficient number of 

cybersecurity professionals is also an In FY 2017, we continued our efforts to recruit and retain cybersecurity expertise and 

ongoing challenge. further develop our cyber workforce strategies and Human Capital plan. We reduced the 

vacancy rate from 21 percent in FY 2016 to 14 percent in FY 2017.

Anti-Money Laundering and Terrorist 

Financing/Bank Secrecy Act Enforcement

Identifying, disrupting, and dismantling the 

financial networks that support terrorists, 

organized transnational crime, weapons of 

mass destruction proliferators, and other 

threats to international security, continue to 

be challenging. 

The Office of Terrorism and Financial Intelligence (TFI) remains dedicated to countering the 

ability of these networks, organizations, and countries to fund such activities through 

intelligence analysis, sanctions, and international private-sector cooperation. The global 

dominance of the U.S. dollar, along with the unique inclusiveness and reach of U.S. 

financial institutions, creates inherent exposure to risk of money laundering and attempts 

at exploitation for terrorist finance. Despite these risks and the increasingly complicated 

environment in which TFI operates, the Financial Action Task Force 2016 Mutual Evaluation 

of the U.S. found the U.S. Anti-Money Laundering and Combating the Financing of 

Terrorism (AML/CFT) framework to be robust and effective. As a result of the work of TFI 

and its myriad of law enforcement, national security, and private sector partners, the U.S.

continues to be one of the world’s most secure financial systems, able to effectively root 

out illicit activity and protect U.S. national security interests.

To combat terrorism and other criminal networks, TFI successfully applied its diverse 

authorities and tools, including sanctions, to major national security issues such as North 

Korea, Iran, Venezuela, the Islamic State in Iraq and Syria (ISIS)/Syria, and Russia, in an 

effort to identify, disrupt, and dismantle these threats. By doing so, TFI was able to deny 

revenue sources to illicit actors, such as terrorist organizations, rogue regimes, drug 

kingpins, transnational criminal organizations, and others who threaten the national 

security of the U.S. and our allies.

In 2017, TFI components have helped advance U.S. national security and law enforcement 

objectives in a range of ways. The Office of Foreign Assets Control (OFAC) has played a 

lead role in pressuring terrorist groups and rogue regimes through its use of powerful U.S. 

sanctions authorities. In particular on Iran, OFAC has ramped up the pressure on Iran and 

the Islamic Revolutionary Guard Corps (IRGC) for its malign activities. Since this 

Administration took office, OFAC has issued seven tranches of sanctions, designating 72 

targets in China, Iran, Lebanon and Ukraine in connection with the IRGC, Iran’s ballistic 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 165 

missile program, support for terrorism, and human rights abuses. Following the 

President’s speech announcing the Administration’s Iran strategy in October 2017, OFAC 

designated the IRGC under Executive Order 13224, consistent with section 105 of the 

Countering America’s Adversaries Through Sanctions Act passed in August. 

To further the fight against terrorist financing, all of the components of TFI have come 

together with our partners to establish the Terrorist Financing Targeting Center (TFTC), as 

announced by President Trump during his May 2017 visit to Saudi Arabia. The TFTC, cochaired by the U.S. and Saudi Arabia, is a new initiative that brings together every country 

under the Gulf Cooperation Council, deepening our existing multilateral cooperation by 

coordinating disruptive action, enhancing information sharing, and institutionalizing 

capacity-building to target terrorist financing networks that pose national security threats 

to the U.S. and the Gulf. Our financial authorities in and of themselves are powerful, but 

are even more effective when coupled with complementary measures and corollary 

actions by partner countries in the region.

Driving the campaign against financial crime, Financial Crimes Enforcement Network 

(FinCEN) continues to promote transparency and accountability in the U.S. and 

international financial systems by focusing on preventing money laundering and illicit 

financing in new sectors and through new pathways. For example, FinCEN has taken steps 

to address the threat posed by money laundering and other illicit finance through certain 

real estate transactions, developing a strategy that incorporates Geographic Targeting 

Orders and industry outreach to establish a regulatory framework focused on mitigating 

threats while limiting compliance costs.

FinCEN is also focused on emerging technologies and trends such as cryptocurrency, 

ensuring that those operating in this space will be subject to enforcement actions if they 

violate U.S. laws. For example, in July 2017, FinCEN assessed a $110 million fine against 

BTC-e, a virtual currency exchange, for willfully violating U.S. anti-money laundering laws 

by facilitating transactions involving ransomware, computer hacking, identity theft, tax 

refund fraud schemes, public corruption, and drug trafficking. In addition, FinCEN is 

continuing to help safeguard the U.S. and international financial systems. In October 2017, 

FinCEN finalized the Uniting and Strengthening America by Providing Appropriate Tools 

Required to Intercept and Obstruct Terrorism Act (USA PATRIOT Act) Section 311 

designation of Bank of Dandong, a Chinese bank facilitating North Korean money 

laundering and sanctions evasion.

The Office of Internal Affairs (OIA) is likewise playing a key role informing the formulation 

of Treasury policy and the execution of our regulatory and enforcement authorities. OIA 

includes a cadre of intelligence analysts whose all-source intelligence analysis has 

supported our actions taken under the International Emergency Economic Powers Act, the 

USA PATRIOT Act, and other authorities. In addition, OIA has published analytic products 

that inform policymakers at Treasury and throughout the government on North Korea, 

Iran, counterterrorism finance, sanctions, cyber, and other issues affecting the integrity of 

the international financial system.

In addition to playing a leading role in the TFTC, the Office of Terrorist Financing and 

Financial Crimes (TFFC) has actively engaged with international partners on a wide range of 

issues. While sanctions and related authorities are some of our most visible tools, a major 

part of what we do is quiet financial diplomacy. TFFC, working with foreign partners in 

Central Banks and Finance Ministries, has orchestrated scores of disruptions of hostile 

financial networks, ranging from the de-flagging of North Korean-affiliated vessels to 

closures of money exchange houses and bank accounts used by terrorists. This outreach 

and engagement includes serving as the lead U.S. participant in the Financial Action Task 

Force, working with the Group of 7 (G-7) on a range of national security issues, including 

the Democratic People’s Republic of Korea, and working with our counterparts to 

strengthen their AML/CFT regimes, among many other proactive efforts.

We appreciate that the OIG recognizes the importance of TFI’s human capital. We would 

note that with regard to the OIG’s comments on long standing vacancies, progress has 
166 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

been made. We recently announced a new Director of FinCEN, ensuring that this 

important national security position is now filled. As for the Assistant Secretary for OIA, 

the President nominated a career intelligence community professional to fill this post in 

the summer of 2017, and that vacancy will be filled as soon as Congress acts. We would 

also note that all TFI Deputy Assistant Secretary and Deputy Director positions are filled. In 

addition, we are focused on filling other relevant positions but, as is true with many 

national security positions, the clearance process can delay onboarding.

Efforts to Promote Spending Transparency 

and to Prevent and Detect Improper 

Payments 

OMB and Treasury must continue to ensure 

that the data standards established are 

applied to the data made available on 

USAspending.gov by May 2018. Also, the 

effectiveness of the Do Not Pay Business 

Center as a tool to prevent and detect 

improper payments is hindered by 

challenges in acquiring access to certain 

data sources, such as Social Security 

Administration’s (SSA’s) death record 

database. 

Digital Accountability and Transparency Act (DATA Act) Implementation. 

The DATA Act government-wide implementation was a complex undertaking requiring a 

significant level of interagency coordination and cooperation to develop new financial data 

standards and an infrastructure to collect and validate the data within a short timeframe. 

We have taken steps to strengthen data quality by implementing refinements to the DATA 

Act Information Model Schema in September 2017, proposing a set of improvements to be 

implemented later this year, and collecting feedback from agencies about ways to improve 

the standards. Additionally, we continue to follow a fast-paced cadence to refining the 

software tools that ingest agency data (i.e., the Broker), implementing improvements 

every two weeks based on user feedback, further ensuring data standards are applied to 

government data made available on USAspending.gov.

In FY 2017, we also successfully certified Treasury’s first DATA Act submission. We 

established and aligned our systems and created a comprehensive governance framework 

to meet the submission and certification requirements. We continue to refine our 

processes to address implementation challenges through corrective actions to improve 

data quality for federal spending transparency.

Do Not Pay Business Center

In response to the Federal Improper Payments Coordination Act of 2015, the Do Not Pay 

(DNP) Business Center signed agreements with the Department of Defense and 

Department of State to incorporate death data collected by these agencies into the 

Treasury DNP Working System (Working System). DNP began receiving this data in 

September. Additionally, DNP resubmitted legislative proposals to obtain the authority to 

use both the SSA’s full death file as well as the National Directory of New Hires. DNP also 

actively engaged with OMB to review and approve a data designation that would add 

several new data sources to the Working System to help agencies address a broader range 

of improper payments beyond what can be detected through DNP’s current data sources. 

The data designation was published to the Federal Register for public comment in 

September 2017 and closed with no comments. OMB plans to publish the final designation 

in the Federal Register.
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DEPARTMENT OF THE TREASURY 167 

Summary of Challenges Facing IRS

TIGTA Reported Challenge Management’s Response

Security Over Taxpayer Data and Protection 

of IRS Resources

Protecting the confidentiality of taxpayer 

information from internal and external 

threats continues to be a top concern for the 

IRS.

In FY 2017, the IRS established the Identity Assurance Executive Steering Committee 

(Identity Assurance) to provide a forum for building awareness and collaboration across 

the IRS, along with providing overall guidance and direction to the offices with Identity 

Assurance implementation responsibilities. The IRS implemented software to require a 

multi-factor authentication process for online tools and applications. The IRS also 

developed a tool to block emails with unencrypted Personally Identifiable Information (PII) 

(e.g., SSN’s) from being sent outside the IRS infrastructure.

To further protect its employees, the IRS launched program initiatives to identify public 

trust and employee safety issues and develop recommendations to address or mitigate 

these risks through strategic deployment of new procedures, practices, and/or educational 

materials for the public, law enforcement, and IRS employees.

Identity Theft and Impersonation Fraud

Because new identity theft patterns are 

constantly evolving, the IRS needs to 

continuously adapt its detection and 

prevention processes.

The IRS consistently monitors information from various sources to identify new patterns 

and trends, update filters, and improve detection processes. Adjustments to filters, 

models, or processes are made when new patterns or challenges emerge. The IRS 

established several mailboxes to receive information related to W-2 phishing schemes, 

compromised business emails, and potential identity theft leads. Additionally, the IRS 

developed common identity theft communication script for employees, States, and the 

financial industry, and conducted outreach with institutions potentially affected by stolen 

refund fraud. The IRS also developed communications for software developers and tax 

professionals to educate stakeholders on authentication initiatives and requirements.

Providing Quality Taxpayer Service and 

Expanding Online Services

Ensuring that taxpayers understand and 

meet their tax responsibilities is crucial for 

the IRS in its effort to encourage voluntary 

compliance with the tax laws.

To further improve and expand its customer service process, the IRS partnered with the 

SSA to place IRS employees in SSA facilities to assist taxpayers requiring face-to-face 

service. This approach provides a one-stop service and creates potential real estate 

savings. Additionally, the IRS continued offering services to taxpayers through virtual 

delivery by increasing technology-based services and expanding the number of locations 

utilizing external partnerships to educate taxpayers on alternative ways for needed 

services. In addition to utilizing external partnerships and establishing new self-service 

tools for taxpayers, the IRS expanded the use of appointments to more Taxpayer 

Assistance Center (TAC) locations. By early FY 2017, all face-to-face locations were 

accepting appointments for service.

To enhance customer service for Identity Theft (IDT) victims, the IRS implemented a new 

toll-free number which enables victims to directly contact the IRS employee assigned to 

their case. In TIGTA’s audit of the Identity Theft Victims Assistance organization, published 

in June 2017, TIGTA acknowledged that on average, accounts were taking 112 fewer days 

to resolve than reported in March 2015. Beginning in filing season 2017, the IRS also 

began notifying victims of employment-related IDT that someone was using their social 

security number for employment purposes. 

Upgrading Tax Systems

The IRS’s reliance on legacy systems and its 

use of outdated programming languages 

pose significant risks to the IRS’s ability to 

deliver its mission. Additional concern 

regarding IRS systems modernization is 

ensuring that systems and data remain 

secure and reliable. 

The FY 2018 President’s Budget reallocates $179 million from the Business Systems 

Modernization appropriation and will be supplemented with approximately $20 million in 

user fees to reduce aged infrastructure. The IRS focuses its limited capacity for aged

hardware and software replacement on critical filing season platforms and high value 

assets. This strategy has enabled the IRS to reduce instances of service outages. 

The IRS developed an enterprise-wide cloud strategy. It is currently undergoing an 

internal review, which is scheduled to be completed by the end of calendar year 2017. 

The IRS cloud strategy plan defines a path to: 

• A “cloud first” policy at the IRS; 

• Cloud adoption driven by cloud strategy and following managed processes for 

selection, management and inventory of cloud based services; 

• A risk framework to ensure safe cloud adoption; and

• An approach to assess and migrate legacy IRS IT functions to the cloud to reduce 

operational cost, increase operational efficiencies and help address the aging IRS 

hardware inventory.
168 DEPARTMENT OF THE TREASURY

FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

Additionally, the IRS completed a full review and update to the Security Change 

Management Standard Operating Procedures to ensure that the procedures clearly 

stipulate that the security change management process must be followed prior to new 

information systems being introduced to the IRS infrastructure and for changes to existing 

information systems.

Implementing Tax Law Changes

The IRS faces continuing challenges each 

year in processing tax returns due to 

implementation of new tax laws as well as 

changes resulting from expired tax 

provisions.

The IRS implemented all required actions outlined in the Trade Preference Extension Act of 

2015 (P.L. 114-27). Implementation of the advance monthly payment program included 

two phases: interim Health Coverage Tax Credit (HCTC) Advance Monthly Premium, 

implemented July 2016; and the HCTC monthly program, implemented in January 2017. 

To ensure that individuals meet HCTC eligibility qualifications before adding eligibility 

indicators to their tax accounts, the IRS developed programming changes that will perform 

the requisite automated checks. The IRS is on track to implement these changes for the TY

2017 filing season using Pension Benefit Guaranty Corporation and Department of Labor

eligibility records.

To remind taxpayers of their requirement to reconcile payments received from the 

Exchange, the IRS mailed ACA notices and letters relating to unreconciled Advance 

Payments of the Premium Tax Credit (APTC). The notices were sent to taxpayers who 

failed to address health coverage on their tax return. 

In FY 2017, the IRS participated in numerous external events to communicate the effect of 

the PATH Act on Individual Taxpayer Identification Number (ITIN) holders, and to recruit 

participation of tax professionals in the Certifying Acceptance Agent (CAA) Program to 

assist new and renewal applicants. To promote the CAA Program among partners, a 

robust strategic plan was developed to increase the number of CAAs and to ensure 

optimum coverage at Volunteer Income Tax Assistance/Tax Counseling for the Elderly 

sites.

Improving Tax Compliance

Despite IRS efforts to reduce it, the Tax Gap 

remains a serious and persistent challenge.

As part of ongoing efforts to reduce the tax gap, the IRS continues to evaluate and 

improve its processes and compliance programs. A cross-functional team conducted a 

study of the backup withholding program to identify improvement opportunities to 

current processes, including education and outreach needs. Enforcing payer backup 

withholding requirements will enhance the IRS’s ability to collect taxes on all appropriate 

income, particularly income that is not usually subject to withholding. 

In the spring of 2017, the IRS initiated a review of the non-filer program and is seeking to 

improve efficiencies by developing new models and allocating resources effectively to 

ensure the non-filer program is an integral part of overall compliance efforts. The IRS also 

reviewed the processes for creating the individual master file non-filer inventory and 

identified strategic break points. A checklist was developed to show the break points as 

well as fields to record the process results and to indicate whether the results met 

expected outcomes. 

Reducing Fraudulent Claims and Improper 

Payments 

Refundable credits can result in the issuance 

of tax refunds even if no income tax is 

withheld or paid and can be the targets of 

unscrupulous individuals who file erroneous 

claims.

Since the IRS does not have authority to systemically correct erroneous claims caused by 

taxpayer error or resulting from fraud, they must conduct audits to address potential 

erroneous claims. For the EITC, the IRS mailed educational and compliance letters and 

conducted pre-filing season EITC due diligence contacts and visits. Additionally, the IRS 

developed a Refundable Credit Operational Strategy which was incorporated into the 

development of the FY 2018 exam plan. Exam treatments were aligned with filing 

percentages by refundable tax credit type, ensuring that exam treatments were reflective 

of the filing population. Return on Investment data was used to select the most costeffective treatments and those that had the most significant effect on reducing improper 

payments. 

The IRS also performed a process analysis on returns to prevent improper premature 

release of potentially fraudulent returns. Based on the results of the process analysis, the 

IRS implemented several programming updates. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 169 

Impact of Global Economy on Tax 

Administration

The globalization of financial markets and 

the increased importance of multinational 

corporations are making it increasingly 

difficult for the IRS to administer and 

enforce tax compliance.

The IRS has implemented a compliance campaign that will risk assess all taxpayers who 

were denied access to, or withdrew from, the Offshore Voluntary Disclosure Program, and 

apply one of two treatment streams to "high risk" and "medium risk" taxpayers. The IRS 

has started audits for some high risk taxpayers identified. A letter and response form will 

be sent to medium risk taxpayers. The IRS also focused on identification, measurement, 

and monitoring of transfer pricing risk to improve selection of issues for examination and 

better allocate limited resources. These efforts include review of the Transfer Pricing 

Audit Roadmap, as well as implementation of new country-by-country reporting 

requirements. 

In FY 2017, the IRS introduced an automated registration system to electronically process 

applications from foreign intermediary (or foreign branch of a U.S. intermediary) that has 

entered a qualified intermediary withholding agreement with the IRS. This electronic 

system facilitated and expedited the communication between the IRS and the foreign 

entities involved. Additionally, Foreign Financial Institutions (FFIs) had to renew their 

registration to continue their exemption from withholding. FFIs that are not registered 

face a penalty of a 30 percent withholding tax on certain payments (primarily interest and 

dividends).

Protecting Taxpayer Rights

The IRS must balance its tax compliance 

activities against the rights of taxpayers to 

receive fair and equitable treatment.

To enhance protection of taxpayer rights, the IRS implemented procedures that require 

the requestor of a Notice of Federal Tax Lien (NFTL) to ensure that the Centralized Lien 

Processing Operation is notified of all powers of attorney. The IRS revised Form 12636, 

Request for Filing or Refiling Notice of Federal Tax Lien, to include a checkbox indicating 

whether a valid power of attorney is required to be sent a copy of the lien notice. The IRS 

also revised procedures to require the lien unit to verify all NFTL requests for which the 

checkbox on Form 12636 was blank. Programming updates were completed for the use of 

the revised Form 12636.

To address errors related to the determination of the Collection Statute Expiration Date, 

clarifying examples and additional emphasis were placed in the IRS manual for technical 

employees to review the accuracy of statute start dates as part of their initial review of a 

case. 

Achieving Program Efficiencies and Cost 

Savings

Continuing to identify and achieve greater 

program efficiencies and cost savings is 

imperative for the IRS as it strives to 

successfully accomplish its mission in a 

period of shrinking budgets and declining 

resources.

The IRS continues to take steps to reduce costs and improve program effectiveness by:

• Implementing tools to improve and automate Software Asset Management 

inventory, including its utilization and reporting functions;

• Creating a baseline inventory of software licenses to achieve savings due to 

improved license management;

• Deploying a new Enterprise Exchange e-mail solution to meet National Archives 

and Records Administration requirements and the requirements of OMB’s M-12-

18, Managing Government Records Directive; and

• Reviewing the non-filer program (including Automated Substitute for Return) to 

improve efficiencies, develop new models, and allocate resources 

effectively. The IRS is focused on identifying productive non-filer work that 

maximizes cases worked while minimizing staff resources and promoting 

continued filing compliance through programs built to encourage voluntary 

taxpayer filing and payment.

The IRS continues to support the web first strategy and encourage taxpayers to view, 

download, and print tax products from IRS.gov, where finalized tax products are usually 

available six to eight weeks before paper products are distributed. Taxpayers may still 

order a paper copy of any current-year form, instruction, or publication on IRS.gov or by 

calling a toll-free number. 

The IRS has also utilized alternative delivery methods such as teleconferencing, videoconferencing, or other virtual delivery options whenever possible to deliver training. 

Alternative delivery methods help the IRS meet sustainable goals and reduce overall event 

costs.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

170 DEPARTMENT OF THE TREASURY

SECTION D: SUMMARY OF FINANCIAL STATEMENT AUDIT AND 

MANAGEMENT ASSURANCES

The following tables present information pertaining to Treasury’s reported material weaknesses, as well as information 

related to our conformance with FMFIA and compliance with FFMIA. 

SUMMARY OF FINANCIAL STATEMENT AUDIT

Audit Opinion: Unmodified

Restatement: No

Material Weakness 

Beginning 

Balance New Resolved Consolidated

Ending 

Balance 

Material Weakness in Internal Control 

Over Financial Reporting at the IRS 1 0 0 0 1

Total Material Weaknesses 1 0 0 0 1

SUMMARY OF MANAGEMENT ASSURANCES

EFFECTIVENESS OF INTERNAL CONTROL OVER FINANCIAL REPORTING (FMFIA SECTION 2) 

Statement of Assurance: Modified

Material Weakness

Beginning 

Balance New Resolved Consolidated Reassessed

Ending 

Balance 

IRS – Unpaid Tax Assessments 1 1 0 0 0 0 1

Total Material Weaknesses 1 0 0 0 0 1

EFFECTIVENESS OF INTERNAL CONTROL OVER OPERATIONS (FMFIA SECTION 2)

Statement of Assurance: Modified

Material Weaknesses

Beginning 

Balance New Resolved Consolidated Reassessed

Ending 

Balance 

Fiscal Service – Control Deficiencies in the 

Processes used to Prepare the Consolidated 

Government-wide Financial Statements 2 1 0 0 0 0 1

Total Material Weaknesses 1 0 0 0 0 1

CONFORMANCE WITH FMFIA SECTION 4 

Statement of Assurance: Federal Systems conform to financial management system requirements

Non-Conformances

Beginning 

Balance New Resolved Consolidated Reassessed

Ending 

Balance 

Total non-conformances 0 0 0 0 0 0

COMPLIANCE WITH FFMIA SECTION 803(a) 

Agency Auditor

1. Federal Financial Management System Requirements Lack of compliance noted

2. Applicable Federal Accounting Standards Lack of compliance noted

3. U.S. Standard General Ledger (USSGL) at Transaction Level No lack of compliance noted

 

1 GAO, Management Report: Improvements Needed in IRS’s Internal Controls, GAO-08-368R; GAO, Management Report, Improvements are Needed in IRS’s 

Internal Controls and Compliance with Laws and Regulations, GAO-10-565R; GAO, Management Report: Improvements Are Needed to Enhance the Internal 

Revenue Service’s Internal Control over Financial Reporting, GAO-15-480R and GAO-17-454R

2 GAO, Management Report: Improvements Needed in Controls over the Processes Used to Prepare the U.S. Consolidated Financial Statements, GAO-17-524
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DEPARTMENT OF THE TREASURY 171 

TREASURY’S MATERIAL WEAKNESSES

FMFIA AND FFMIA REQUIREMENTS

The Federal Managers Financial Integrity Act of 1982 (FMFIA) requires agencies to establish and maintain internal 

control to ensure that federal programs operate efficiently, effectively, and in compliance with laws and regulations. The 

Secretary must evaluate and report annually on (a) whether there is reasonable assurance that the Agency’s controls are 

achieving their intended objectives, and (b) material weaknesses in the Agency’s controls (FMFIA Section 2). Additionally, 

the Secretary must evaluate and report separately on whether the Agency’s financial management systems comply with 

government-wide requirements (FMFIA Section 4). The Federal Financial Management Improvement Act of 1996

(FFMIA) requires agencies to implement and maintain management systems that substantially comply with federal 

financial management systems requirements. The requirements of the FMFIA of 1982 serve as an umbrella under which 

other reviews, evaluations, and audits should be coordinated and considered to support management’s assertion about the 

effectiveness of internal control over operations, financial reporting, and compliance with laws and regulations.

As of September 30, 2017, we had two material weaknesses under Section 2 of the FMFIA, summarized as follows:

Summary of FMFIA Material Weaknesses Section 2 Section 4 Total 

Balance at the Beginning of FY 2017 2 0 2

Closures/Downgrades during FY 2017 0 0 0

Reassessed during FY 2017 0 0 0

New Material Weakness Declared during FY 2017 0 0 0

Balance at the End of FY 2017 2 0 2
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172 DEPARTMENT OF THE TREASURY

Below are highlights of Treasury’s material weaknesses:

Material Weakness Description

INTERNAL REVENUE SERVICE – Improvements needed in internal control over unpaid tax assessments.

SUMMARY: GAO identified control deficiencies that affected IRS’s management and reporting of unpaid tax assessments. GAO reported 

that:

• The IRS’s reported balances for taxes receivable and other unpaid tax assessments were not supported by its core general ledger 

system for tax transactions; 

• System deficiencies in IRS’s subsidiary ledger and supporting financial systems for unpaid tax assessments did not allow it to 

produce reliable and useful information with which to manage and report; and

• Various other control deficiencies that led to errors in taxpayer accounts. 

GAO RECOMMENDATION: The IRS Commissioner should direct the appropriate IRS officials to do the following:

1. Take appropriate action to correct the programs that control penalty assessments so that they function in accordance with the

Internal Revenue Manual (IRM) (GAO-08-368R); 

2. Implement control procedures to routinely prevent, or to detect and correct, the control weaknesses that result in inaccuracies 

or errors that affect the financial reporting of unpaid tax assessments (GAO-10-565R); 

3. Develop and implement agency-wide procedures to routinely monitor the accuracy of penalties recorded in taxpayer accounts to 

timely detect and correct errors (GAO-15-480R); 

4. Develop and implement a process to reasonably assure that programming changes affecting financial reporting are effectively 

coordinated with the Chief Financial Officer (CFO) organization (GAO-17-454R); and 

5. Establish a process to better ensure compliance with existing policies for testing programming changes, including the use and

review of the Applications Development transmittal checklist when developing program changes and retention of test results 

(GAO-17-454R).

Actions Completed in FY 2017 What Remains to be Done











The CFO issued additional guidance to the IRS Executives 

establishing communication requirements for any 

program initiatives that may affect the IRS custodial 

financial systems, including unpaid assessments. 

The IRS continuously updated a series of long-term 

actions intended to address all issues impacting the 

material weakness which, based on funding, will be 

integrated into the unpaid assessments material 

weakness action plan. 

Completed the following six actions from the FFMIA 

remediation plan: 

o Reviewed Unified Work Request 155806 for 

accuracy and resolution to address prior 

delinquency penalty errors; 

o Conducted an analysis of the implementation of

IRC 6404(c) to write-off specific uncollectable 

modules prior to the statute expiring, and made a 

business decision not to implement; 

o Submitted a Unified Work Request to address 

significant movements out of financial class writeoffs to improve the accuracy of the IRS’s financial 

classifications; 

o Documented the current status of all open issues 

related to penalties; 

o Complete additional testing to confirm resolution 

of three open issues related to penalties; and

o Publish IRM 20.3.1, Civil Penalty Accuracy Review 

Process. 

Established a Financial Systems Enhancement Tiger Team 

that developed three unpaid assessments improvement 

recommendations.

Established a Data Quality Task Force to improve the data 

within the taxpayer accounts.











IT organization will review and update the affected 

current policies and implement any related process and 

policy changes as needed. 

Implement action items from the long-term action plan to 

close the material weakness. 

Implement the three Financial Systems Enhancement 

Tiger Team improvement recommendations; namely, 

Pending Payments II, Financial Status Notice History, and 

Revenue Data Mart once funding is identified. 

The Unpaid Assessments Data Quality Task Force will 

identify, document, and enhance existing data quality 

efforts, conduct pre-posting data quality review, review 

data posted to taxpayer accounts, expand large dollar 

review, and address legislative requests and emerging 

issues. 

Implement Customer Account Data Engine (CADE2) 

Transition State 2 (TS2) financial material weakness 

functionality. 
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DEPARTMENT OF THE TREASURY 173 

Material Weakness Description

BUREAU OF FISCAL SERVICE – Improvements needed in controls over the processes used to prepare the U.S. Consolidated Financial 

Statements (CFS).3

SUMMARY: GAO identified control deficiencies in Treasury’s and OMB’s processes used to prepare the CFS. These control deficiencies 

contributed to material weaknesses in internal control that involve the federal government’s inability to: 

• Adequately account for and reconcile intragovernmental activity and balances between federal entities;

• Reasonably assure that the consolidated financial statements are: (1) consistent with the underlying audited entities’ financial 

statements, (2) properly balanced, and (3) in accordance with U.S. Generally Accepted Accounting Principles; and

• Reasonably assure that the information in the (1) Reconciliations of Net Operating Cost and Unified Budget Deficit and (2) 

Statements of Changes in Cash Balance from Unified Budget and Other Activities is complete and consistent with the underlying 

information in the audited entities’ financial statements and other financial data.

GAO RECOMMENDATION: The Secretary of the Treasury should direct the Fiscal Assistant Secretary, in coordination with the Controller of 

OMB’s Office of Federal Financial Management, to do the following:

1. Ensure that federal agencies provide adequate information in their legal representation letters regarding the expected outcomes 

of the cases;

2. Establish written policies and procedures to help ensure that major treaty and other international agreement information is 

properly identified and reported in the CFS;

3. Ensure that these federal agencies report or disclose relevant criminal debt information in conformity with U.S. Generally 

Accepted Accounting Principles in their financial statements;

4. Establish effective processes and procedures to ensure that appropriate information regarding litigation and claims is included in 

the government-wide legal representation letter;

5. Develop and implement effective processes for monitoring and assessing the effectiveness of internal control over the processes 

used to prepare the CFS;

6. Establish and implement effective procedures for reporting amounts in the CFS budget statements that are fully consistent with 

the underlying information in significant federal entities’ audited financial statements and other financial data;

7. Establish and implement effective procedures for identifying and reporting all items needed to prepare the CFS budget 

statements;

8. Establish and implement policies and procedures for accounting for and reporting all significant General Fund activity and 

balances, obtaining assurance on the reliability of the amounts, and reconciling the activity and balances between the General

Fund and federal entities; and

9. Develop and implement procedures to determine whether user accounts already exist before establishing or recertifying user 

accounts in the Government-wide Treasury Account Symbol Adjusted Trial Balance System (GTAS) or the Government-wide 

Financial Reporting System (GFRS). 

Actions Completed in FY 2017 What Remains to be Done

 Documented the controlled process that federal entities 

follow in using the “unable to determine” expected 

outcome of legal cases. 

 Documented the process to be followed by federal 

entities to report and disclose relevant criminal debt 

information. 

 Leveraged the existing legal representation letter 

schedules to perform analytics on the items below the 

threshold to determine the materiality at the aggregate 

level. 

 Implemented effective processes to monitor and assess 

the effectiveness of internal controls over the CFS. 

 Implemented processes to validate new users who do not 

already have an existing account in GTAS or GFRS, and to 

ensure that users do not have conflicting roles or 

privileges.

 Document the process of reporting the three categories of 

treaties and international agreements in the U.S. 

government. 

 Incorporate the new reporting requirement of the federal 

entities’ Reconciliation of Net Cost of Operations to 

Budget footnote into the preparation of the governmentwide financial statement, Reconciliation of Net Operating 

Cost and Unified Budget Deficit. 

 Obtain independent audit assurance on the General Fund 

of the U.S. Government. 

 

3 Based on the findings reported in the GAO-17-283R, Financial Audit: FY 2016 and 2015 Consolidated Financial Statements of the U.S. Government. The 

status of this material weakness may change as a result of the FY 2017 audit of the CFS to be published in January 2018.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

174 DEPARTMENT OF THE TREASURY

SECTION E: PAYMENT INTEGRITY

Our FY 2017 Payment Integrity reporting includes information required by the Improper Payments Information Act of 

2002 (IPIA), as amended by IPERA of 2010 and Improper Payments Elimination and Recovery Improvement Act of 201

(IPERIA), Executive Order 13520, Reducing Improper Payments and Eliminating Waste in the Federal Government, 

Appendix C to OMB Circular A-123, Requirements for Effective Estimation and Remediation of Improper Payments and

OMB Circular A-136. Additional information on current and prior year reported improper payments can be found at 

2

https://paymentaccuracy.gov/. 

I. SAMPLING AND ESTIMATION 

EITC Program

Each year, bureaus and offices (hereafter referred to as “components”) are required to conduct risk assessments on all 

material programs to identify the risk of susceptibility to improper payments. Programs identified as susceptible (i.e., 

programs with gross annual improper payments exceeding both 1.5 percent and $10 million in total program outlays, or 

$100 million at any rate), are required to perform (1) statistical sampling to determine an improper payment rate, and (2) 

develop and submit a corrective action plan to OMB. In FY 2017, risk assessments were performed on 75 programs that 

resulted in either low or medium risk levels of susceptibility to improper payments. The required actions for low and 

medium risk programs include annual monitoring through risk assessments, and review of payment controls for 

improvement opportunities, respectively. 

The EITC is a refundable federal tax credit that offsets income taxes owed by low-income workers who qualify and 

provides a refund if the credit exceeds the amount of taxes owed. Since EITC is deemed a high risk and high priority 

program by the Department and OMB, a risk assessment is not required or performed. 

As described below, the IRS engages in a number of activities to encourage voluntary compliance and prevent improper 

payments. The IRS performs certain automatic checks of all claims and audits some claims before tax refunds are paid. 

In addition, as with all tax provisions, the IRS performs some examinations after refunds are paid, and subsequently 

recovers some improper payments. The improper payment amounts reported below include improper overclaims plus the 

absolute value of underpayments, less certain erroneous payments that are prevented or recovered. The error rate is the 

net improper payment amount divided by the total amount of EITC claimed. 

In accordance with the requirements of IPERIA, we update the improper payment estimates annually. The EITC 

improper payment rate is estimated using a statistically valid sample of about 2,700 returns audited through the IRS’s

NRP. This sample is sufficient to estimate the improper payment rate with plus or minus 2.5 percentage point precision 

and 90 percent confidence. For TY 2013 (the most recent study completed), the estimated gross amount of improper 

payments was $18.0 billion and the total amount of EITC claimed was $66.8 billion. The amount of erroneous EITC 

payments prevented or recovered on TY 2013 returns was $2.1 billion. This results in a net improper payment amount of 

$15.9 billion, or 23.9 percent of the total EITC claimed (or between 21.9 percent and 25.8 percent, accounting for sampling 

error). 

The current estimated error rate of 23.9 percent is consistent with the five-year average error rate of about 24 percent. 

Applying this rate, estimated from TY 2013 data, to the estimated FY 2017 level of EITC claims ($68.0 billion) yields an 

estimated amount of improper payments for FY 2017 of $16.2 billion (or between $14.9 and $17.6 billion).
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 175 

II. PAYMENT REPORTING 

Improper Payment Estimate 

While high priority programs are generally required to report reduction targets, setting improper payment reduction 

targets for the EITC program does not create meaningful goals for the IRS. This is due to the complexity of the tax law 

around EITC, lack of independent data regarding EITC eligibility, and the significant annual turnover within the 

participating population. The following table provides the EITC improper payment amounts for FY 2017 and the 

estimated improper payment rate for FY 2018:

IMPROPER PAYMENT REDUCTION OUTLOOK ($ IN MILLIONS)

Program

FY 2017 Outlays ($)

(1)

FY 2017 Proper 

Payment Amount ($)

FY 2017 Proper 

Payment Rate (%)

FY 2017 Improper 

Payment Amount ($)

(2)

FY 2017 Improper 

(3) Payment Rate (%)

FY 2017 

Overpayments ($)

FY 2017 

Underpayments ($)

FY 2018 Estimated 

Improper Payment 

(4) Rate (%)

EITC $67,992.50 $51,760.92 76.13% $16,231.58 23.87% $16,231.58 (5) 23.87%

Total $67,992.50 $51,760.92 76.13% $16,231.58 23.87% $16,231.58 (5) 23.87% (1)

EITC Outlays: FY 2017 Outlays are actually based on EITC outlays plus tax expenditures reported in the FY 2018 President's Budget, adjusted to account 

for the difference between EITC claims and the amounts actually received by taxpayers due to return processing and enforcement activities. EITC claims 

are the amounts that taxpayers report on their income tax return, without regard to whether IRS pays the claim. 

(2) Improper Payment Amount: The estimated amount of improper payments (IP $) equals the estimated improper payment rate multiplied by the 

estimated outlays. 

(3) Improper Payment Rate: The EITC improper payment rate is estimated from the latest data available from the IRS National Research Program (NRP) 

Individual Income Tax Reporting Compliance Study. The FY 2017 estimated improper payment rate was estimated using a statistically valid random sample

of returns selected for the TY 2013 NRP study. 

(4) FY 2018 Estimated Improper Payment Rate is assumed to be the same as the FY 2017 estimated net improper payment rate.

(5) None identified in the statistically valid random sample used to estimate the improper payment rate.

As an alternative to providing reduction targets for EITC, we have collaborated with OMB on the development of a series 

of supplemental measures. These measures should provide a more refined assessment of the EITC program and of our

efforts to limit improper payments than would be provided by standard reduction targets. 

The table below shows estimated values for these supplemental measures. 

FY 2017 EITC IMPROPER PAYMENT SUPPLEMENTAL MEASURES

Measure FY 2017 Value FY 2016 Value FY 2015 Value

Annual Error Rate Total Claims $68 Billion $69.8 Billion $65.6 Billion

Improper Payments $16.2 Billion $16.8 Billion $15.6 Billion

Revenue Protected Dollars $4.5 Billion $5.7 Billion $7.3 Billion

Returns 1.5 Million (1) 1.9 Million 2.9 Million

Revenue Protected from Dollars $415 Million $384 Million $399 Million

Paid Preparer Treatments Preparers 25,473 26,253 20,598

Preparer Due Diligence Penalties 

Proposed

Dollars

Preparers

$22 Million

1,038

$32.8 Million

1,137

$34.3 Million

1,042 (1)

Value updated. Amount reported in Treasury’s FY 2016 Agency Financial Report of 1.8 Million was based on preliminary data.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

176 DEPARTMENT OF THE TREASURY

These measures are tracked and updated annually based on Tax Filing Season results. The supplemental measures 

include:

• The Annual Error Rate, which identifies the percentage of total EITC payments that are improper; 

• The amount of Revenue Protected, which shows the total value of erroneous payments prevented, or recovered 

through compliance activities; 

• The amount of Revenue Protected from Paid Preparer Treatments, which shows dollars erroneously or fraudulently 

claimed by paid tax preparers, but not paid out by Treasury; and

• The number of Preparer Due Diligence Penalties Proposed, reflecting the effectiveness of Treasury efforts to ensure 

paid tax preparers are submitting accurate, non-fraudulent EITC claims on behalf of taxpayers. 

Improper Payment Classification

Improper payments do not always result in a monetary loss to the government. For example, underpayments, payments 

made to the wrong recipient, or payments with insufficient documentation may not cause an actual monetary loss to the 

government. The following table identifies the actual monetary loss and the estimated total monetary loss to the 

government. 

IMPROPER PAYMENT CLASSIFICATION ($ IN MILLIONS)

Program

Actual Monetary loss to the Government 

(1) identified in Sample 

Estimated Total Monetary loss to the 

(2) Government 

EITC $2.28 $17,459.45

Total $2.28 $17,459.45 (1)

The actual monetary loss to the government identified in the sample is from a statistically valid random sample of TY 2013 individual income tax returns 

that claimed the EITC. The amount reported here reflects the unweighted results of the audits that had closed at the time of the development of the 

improper payment estimate. 

(2) Of the reported $17.459.45 million estimated total monetary loss to the government, $1,227.87 million will be recovered through the IRS enforcement 

activities. Subtracting the recovered amount from the estimated total monetary loss to the government yields the FY 2017 total improper payment 

amount of $16,231.58 million reported on the Improper Payment Reduction Outlook table on the previous page. The Estimated Total Monetary Loss to 

the Government equals the EITC Overclaims Paid. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 177 

Improper Payment Root Cause(s)

Since FY 2015, our components are required to categorize improper payments using one or more of the following root 

causes: program design or structural issues, inability to authenticate eligibility, failure to verify, administrative or 

process errors, medical necessity, insufficient documentation to determine, and other. Based on the OMB updated 

improper payment root cause categories, the IRS identified the root causes for EITC improper payments as (1) inability to 

authenticate eligibility and (2) program design or structural issues. The chart below illustrates the distribution of EITC 

improper payments by root causes.

IMPROPER OVERPAYMENT ROOT CAUSE CATEGORY ($ IN MILLIONS)

EITC Overpayments, 

Program Design or 

Structural Issue, 

$973.89 

EITC Overpayments, 

Inability to Authenticate 

Eligibility, $15,257.69

Program Design or Structural Issue Inability to Authenticate Eligibility

Inability to Authenticate Eligibility

Approximately $15.3 billion, or 94 percent, of EITC improper payments are from the inability to authenticate eligibility. 

This root cause includes errors associated with the inability to authenticate qualifying child eligibility requirements, due 

to relationship and residency requirements and the exceptions to the age requirement (full-time student and disability). 

Authentication is difficult because there is a lack of internal or external databases available with information that would 

help the IRS to make a determination of eligibility. 

Another major cause of error in this category is taxpayer income misreporting due to self-employment income, where the 

income is not reported to the IRS by a third party. This category of errors also includes filing status errors, when married

couples incorrectly file as single or head of household, and data on marital status and living arrangements are not

available. Finally, this category includes a small amount of error related to rules for all taxpayers claiming EITC related 

to valid SSNs, residency of non-citizens, and when the taxpayer qualifies as a qualifying child of another taxpayer, none of 

which can be authenticated by the IRS at time of filing.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

178 DEPARTMENT OF THE TREASURY

Program Design or Structural Issues

Approximately $1.0 billion, or six percent, of improper payments are from program design limitations. Errors caused by 

program design occur when information needed to confirm payment accuracy is not available at the time the return is 

processed. These errors relate to certain income misreporting, tiebreaker errors, and joint return errors of qualifying 

children. For income misreporting, payer information, such as Form W-2, is typically not available to the IRS until after 

the filing season. Thus, the IRS is unable to fully match wages and other income sources against the return at time of 

filing. 

A very small portion of errors are attributable to tiebreaker errors, where more than one taxpayer claims the same 

qualifying child. The IRS processes returns as they are filed and are unaware of duplicate situations when the first return 

is filed or who is actually qualified in a tiebreaker situation. Situations where a qualifying child files a joint return also 

make up a small portion of this category. A child cannot be a qualifying child if he or she files a joint return for a reason 

other than claiming a refund. Since all returns are not filed at the same time, the IRS cannot identify this situation until 

both returns are filed. 

Corrective Actions

The IRS’s strategy with respect to improper payments is to intervene early to ensure compliance with the law. In 

FY 2017, the IRS addressed improper payments through its compliance programs, as well as through expansive outreach 

and education efforts to taxpayers and preparers. The table below illustrates the corrective actions implemented by the 

IRS to address the root causes identified. 

CORRECTIVE ACTION CATEGORIES 

Reason for Improper Payment

Examination Closures

Math Error Notices

Document Matching

Amended Returns

Two and 10 Year Bans

Identity Theft and Fraud

Criminal Investigations

Soft Notices

Return Preparer Initiatives

Return Preparer Outreach 

and Education

Software Developer 

Working Group

Program Design or Structural Issue X X X X X X X X X 

Inability to Authenticate Eligibility X X X X X X X X X X 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 179 

The IRS’s EITC enforcement programs protected approximately $3.1 billion. The revenue includes EITC and other credits 

and taxes recovered or prevented from being paid in error in FY 2017, on returns filed in calendar year 2017 or earlier 

years. The chart below shows that the IRS conducted 327,878 EITC program examinations, issued 154,000 math error 

notices, and performed 666,334 document matching reviews.

COMPLIANCE ACTIVITIES

FY12 FY13 FY14 FY15 FY16 (1) FY17 (2) FY18 (3) FY12-FY18 

Total

Audit Closures 487,408 483,070 435,638 445,594 380,260 327,878 296,800 2,856,648 

Math Error Notices 270,492 241,975 194,127 166,611 159,906 154,000 142,000 1,329,111 

Document Matching 985,172 906,994 1,053,304 1,710,904 852,733 666,334 513,000 6,688,441 

Amended Returns (4) 13,284 8,130 17,723 24,282 9,895 10,297 10,000 93,611 

(1) Restated actual. 

(2) Preliminary data. 

(3) Estimate based on FY 2017 preliminary data and FY 2018 plans. 

(4) Amended returns are a subset of audit closures.

These compliance activities have a significant effect, protecting $3.1 billion of revenue in FY 2017. Treasury projects that 

continued enforcement efforts will protect a total of nearly $25.6 billion in revenue through FY 2018, as shown below.

PROTECTED REVENUE FROM COMPLIANCE ACTIVITIES ($ IN MILLIONS) 

FY12 FY13 FY14 FY15 FY16 (1) FY17 (2) FY18 (3) FY12-FY18 

Total

Audit Closures $ 2,049.23 $ 2,113.73 $ 1,751.32 $ 1,991.06 $ 1,826.30 $ 1,599.00 $ 1,455.09 $ 12,785.73 

Math Error Notices 314.34 299.03 243.34 226.82 237.24 242.00 252.00 1,814.77 

Document Matching 1,554.75 1,422.60 1,385.06 2,313.96 1,570.54 1,248.26 1,248.00 10,743.17 

Amended Returns (4) 38.45 26.18 52.42 76.63 34.56 33.38 33.00 294.62 

Total $ 3,956.77 $ 3,861.54 $ 3,432.14 $ 4,608.47 $ 3,668.64 $ 3,122.64 $ 2,988.09 $25,638.29 

(1) Restated actual. 

(2) Preliminary data. 

(3) Estimate based on FY 2017 preliminary data and preliminary FY 2018 plans. 

(4) Amended returns are a subset of audit closures.

In addition to the base compliance program efforts described above, the following efforts contributed to the IRS’s strategy 

of identifying and reducing improper EITC refund claims in FY 2017:

• EITC IPERA Methodology and Estimate: Completed a new error rate estimate based on the EITC portion of the TY

2013 NRP study that meets IPIA standards for measuring and reporting on improper payments. 

• FY 2018 Action Plan: Completed the FY 2018 action plan to reduce improper payments. 

• Compliance Studies: Continued analysis of the most recent compliance study and the NRP data to influence our 

compliance strategy and amend EITC administration, where feasible.

• Base Enforcement Efforts: Delivered key compliance activities including 327,878 audits, 666,334 misreported income 

cases, and an estimated 154,000 math error adjustments, protecting revenue of over $3.1 billion.

• Two and 10 Year Bans: Imposed 2,443 two-year bans and 215 10-year bans for cases where the IRS determined 

during an EITC audit that the taxpayer intentionally disregarded the rules and regulations or committed fraud. 
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

180 DEPARTMENT OF THE TREASURY

• Identity Theft and Fraud: Through our fraud detection filters, the IRS detected and stopped over 341,000 fraudulent 

returns. Thus, preventing nearly $1.6 billion in improper EITC payments.

• Criminal Investigations: Continued to stop fraudulent EITC refund claims through our Criminal Investigation (CI) 

division indictments. CI issued 204 EITC Questionable Refund Program scheme indictments with 196 convictions as 

well as 83 EITC Return Preparer indictments with 92 convictions.

• Soft Notices: Sent approximately 85,000 letters to alert taxpayers that a qualifying child for the EITC claimed on their 

returns had also been claimed by another person.

• Return Preparer Initiatives: As a part of the FY 2017 Refundable Credits Return Preparer Strategy, IRS completed 

activities associated with a suite of progressive EITC preparer treatments, addressing nearly 25,500 preparers 

selected through our risk-based scoring model, before and during the filing season. Approximately 22,000 were EITC 

preparers. 

o The IRS completed 744 pre-filing season Due Diligence Visits (DDVs) with a penalty rate of 85 percent 

and nearly $20 million in proposed penalties. Criminal investigation and revenue agents completed 64 

EITC educational Knock-and-Talk Visits (KTV). The IRS also mailed over 14,100 EITC educational 

notices and successfully made nearly 500 calls to EITC preparers before the FY 2017 filing season. 

o The IRS proposed penalties of over $346,000 on 17 of 20 DDVs completed as a follow-up for those 

preparers who received pre-filing season KTVs but did not improve their due diligence. The IRS also 

mailed over 8,500 educational notices and successfully made nearly 1,600 calls to preparers during the 

2017 filing season. 

o The analysis of the FY 2017 Refundable Credits Return Preparer Strategy revealed that, in addition to 

the penalties protected above, the preparer treatments protected over $505 million ($415 million EITC 

and $90 million Child Tax Credit).

• Return Preparer Penalties: Proposed almost $4.8 million in penalties to 300 TY 2016 EITC, AOTC and ACTC return 

preparers for failure to exercise due diligence by attaching Form 8867, Paid Preparer's Due Diligence Checklist, to 

taxpayer returns, in accordance with IRC Section 6695(g) and Treasury Regulation Section 1.6695–2. The IRS also 

sent over 6,500 warning letters and over 1,600 electronic alerts to warn preparers that did not attach Form 8867 to 

TY 2016 taxpayer returns.

• Return Preparer Outreach and Education: Focused outreach and education efforts on EITC return preparers to 

educate them on EITC and due diligence requirements. Over 21,800 preparers received a certificate of completion for 

the English and Spanish interactive EITC Due Diligence Training module. Delivered webinars to nearly 3,200 tax 

professionals on due diligence requirements. Additionally, 4,774 preparers attended the ‘One Year Down, but Wait! 

There's More on Refundable Credits’ Due Diligence seminar at the 2017 National Tax Forums. 

• Service-wide EITC Strategy: Continued activities to evaluate potential new solutions identified to address improper 

payments.

• Supplemental Measures: Continued to report supplemental measures that capture key components of revenue 

protected through compliance activities and paid return preparer treatments, as well as paid return preparer due 

diligence penalties proposed.

• Software Developer Working Group: Continued our partnership with members of key tax software associations to 

reduce EITC errors and assist preparers in meeting their EITC due diligence requirements.
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 181 

• Taxpayer Outreach and Education: IRS conducted its EITC outreach campaign, including the eleventh annual EITC 

Awareness Day, which centered on EITC underserved populations and included focused compliance messages. 

Through collaboration with IRS national, state, and local partners as well as Congressional and government officials, 

the IRS held 183 nationwide events, resulting in media coverage that helped disseminate information about the EITC 

tax credit. The IRS also issued over 327,000 and 43,000 news releases in English and Spanish, respectively. Social 

media outreach continued to expand with Twitter EITC messages reaching over 9.6 million people and Thunderclap 

reaching over 926,000 people. Additionally, over 496,000 taxpayers visited the EITC Assistant on IRS.gov, a tool that 

allows taxpayers to determine whether they qualify for the credit.

• Implemented Legislation: The IRS took the following actions in implementing the PATH Act of 2015:

o Held taxpayers’ refunds until February 15, 2017 on returns claiming EITC and/or ACTC as directed in 

Section 201(b);

o Rejected the amended or late filed original returns by taxpayers retroactively claiming EITC for any 

prior year in which he or she did not have a valid social security number as directed in Section 204; and

o Submitted to Congress a study of the effectiveness of tax return preparer due diligence requirements for 

claiming EITC as directed in Section 207.

• Legislative Proposals: The following legislative proposals were included in the FY 2018 budget request:

o Provide greater flexibility to address correctable errors to help IRS deny certain erroneous EITC claims 

before refunds are paid; and

o Increase oversight of paid tax return preparers to help promote high quality services and improve 

voluntary compliance. 

• Enterprise Research: Assessed the results of the FY 2017 enterprise research strategy and developed the FY 2018 

strategy in partnership with internal organizations to better focus EITC compliance and outreach activities using 

research data. 

• EITC Summit: The IRS hosted a second EITC Summit that was attended by numerous EITC stakeholders, including 

tax industry professionals, representatives of federal agencies, consumer advocates, and representatives from nongovernment organizations. The objective was to share progress on implementing PATH Act provisions, to provide 

information on both current program activities and plans for the 2018 filing season, and to solicit input on ways to 

improve EITC compliance.

Refundable Tax Credits 

In the risk assessments for material programs, ACTC, AOTC, and PTC were identified as medium risk. The ACTC and 

AOTC include large dollar amounts claimed annually for the credits that provide tax benefits to millions of taxpayers—

many of whom are low-income—working, raising children, or pursuing higher education. These credits are refundable in 

that, in addition to offsetting tax liability, any excess credit over the tax liability is refunded to the taxpayer. Estimating 

improper payments does not take into consideration all aspects of administering tax provisions in a system that relies 

heavily on voluntary reporting. Additionally, statutory requirements mandate the IRS to process tax returns and pay any 

related tax refunds within 45 days of receipt of the tax return or the tax return due date, whichever is later. If payment to 

the taxpayer is not timely, interest is accrued on the refund amount beyond this 45-day period.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

182 DEPARTMENT OF THE TREASURY

Since the largest portion of the tax gap falls outside of traditional refundable tax credit payments, reporting refundable 

tax credits under the tax gap section of the AFR allows for the appropriate discussion of misreporting errors in the context 

of overall tax compliance, and the appropriate consideration of how best to allocate the IRS’s finite compliance resources. 

As fully integrated components of the tax administration system, refundable credits are paid as part of the taxpayer’s 

refund, rather than existing as a separate payment program. Eligibility rules for claiming refundable credits can be 

complex due to the lack of third party data making pre-refund validation challenging. Additionally, the volume of claims 

and the need to allocate finite compliance resources makes post-refund adjudication of all potentially erroneous returns 

impossible. These challenges, coupled with high turnover in the claimant population and the difficulty of measuring and 

reporting on taxpayer adherence to refundable credit requirements, necessitate that the IRS estimate compliance as part 

of the tax gap in order to assess the effect of the credits on the tax administration system. The tax gap estimates provide a 

more accurate picture of overall taxpayer behavior than would be achieved by narrowly focusing on internal control 

weaknesses that may or may not exist to influence how funds are distributed to taxpayers. 

To maintain accountability for all refundable credit programs, the IRS will continue to perform risk assessments on all 

IPERA implicated refundable tax credit programs, and will describe the outcome of this determination in the AFR. The 

IRS will also develop estimates for any program that exceed the thresholds delineated in IPERA as part of the overall tax 

gap estimation process. The IRS has summarized estimates from a compliance analysis of both the refundable and nonrefundable portions of the CTC in Part 3, Section A, of this report titled “Tax Gap and Tax Burden.” The IRS is currently 

analyzing compliance with the education credits, including the AOTC, and expects to complete a report on the analysis in 

FY 2018. The IRS has made a commitment to OMB to complete a quantitative risk assessment for PTC when the NRP 

data becomes available next year.

III. BARRIERS

A number of factors continue to serve as barriers to reducing overclaims in the EITC program. These include:

• Complexity of the tax law: The EITC eligibility requirements are numerous and complex. Child-related rules are not 

consistent with other child-related tax benefits. Confusion among taxpayers about their eligibility contributes to the 

reported improper payment overclaims and underclaims. 

• Lack of eligibility information for taxpayers: Statutory eligibility requirements cannot be independently confirmed 

using third party corroborating data.

• Lack of correctible error authority: The IRS has limited ability to make automatic changes (which would require 

Congressional authorization) and must use lengthy deficiency procedures. 

• High turnover of eligible claimants: The IRS estimates that approximately one-third of the applicants change each 

year, meaning that each year a new population must learn about the complex EITC eligibility requirements. 

• Unscrupulous and/or incompetent return preparers: About 52 percent of EITC returns are prepared by paid 

preparers, and most are unenrolled preparers who are not subject to professional oversight. Compliance studies show 

that EITC returns prepared by these unenrolled preparers have significant errors.

• Fraud: In FY 2017, the IRS reported a total of approximately $1.1 million in confirmed EITC fraud cases where civil 

actions were proposed and asserted. This amount does not include the nearly $1.6 billion in fraudulently claimed 

EITC that was prevented from being processed by the IRS’s EITC fraud and identity theft programs.
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 183 

None of these factors, on their own, can be considered the primary driver of program error. However, these barriers 

severely impede the IRS’s dual mission of issuing refunds to those who are entitled, while ensuring refunds are paid only 

to those who truly qualify for the credit. Additionally, statutory requirements further constrain the IRS’s ability to ensure 

that EITC claims are valid before they are processed and paid. 

Since the EITC is administered through the IRC, it is claimed by taxpayers during the filing and processing of their tax 

returns. The IRC requires the IRS to process tax returns and pay any related tax refunds within 45 days of receipt of the 

tax return or the tax return due date, whichever is later. Beyond this 45 day period, interest begins accruing on the 

refund amount, which must be paid along with the refund to the taxpayer. This interest period was unaffected by the 

PATH Act provision that required IRS to hold EITC refunds until February 15 of the filing season.

In FY 2017, the changes enacted under the PATH Act to accelerate the filing of wage and non-employee compensation 

information, allowed the IRS to use the data to address refund fraud and improper payments. However, delays and 

extensions given for the forms limited IRS’s ability to use the information at the time of filing or within a reasonable 

period thereafter in which a taxpayer would expect their refund. The IRS continues to face challenges when attempting to 

validate the EITC claims of filers with non-wage income that may not have a reporting requirement by third parties. The 

requirements, expectations, and data accessibility relative to the timely payment of refunds constrain the IRS’s ability to 

conduct up-front verification of claims. These conditions distinguish EITC and its administration through the tax system 

from the extensive validity checks conducted by agencies administering other federal programs that typically establish 

eligibility prior to the issuance of payments or benefits. 

We submitted legislative proposals in the FY 2018 budget proposal to help address EITC improper payments.

IV. ACCOUNTABILITY

The Secretary has delegated responsibility for addressing improper payments to the ASM. Improper payments fall under 

the Department’s management and internal control program. A major component of the internal control program is risk 

assessments, which are an extension of each Treasury component’s annual improper payment elimination and recovery 

review process, as required under OMB Circular A-123, Appendix C. Under Treasury Directive 40-04, Treasury Internal 

Control Program, executives and managers are required to take all necessary steps to create an environment within their 

respective organizations or programs to ensure operational efficiency and adherence to all applicable statutory and 

regulatory standards related to internal controls. Managerial responsibility and accountability in all internal control 

areas are visible and well documented with our oversight mechanisms, such as the Treasury CFO Council and the 

Management Controls Executive Steering Committee. We have identified executives who are responsible and accountable 

for reducing the level of EITC overclaims, while other senior and mid-level officials have responsibility for monitoring 

progress in this area as bureau and program internal control officers.

V. AGENCY INFORMATION SYSTEMS AND OTHER INFRASTRUCTURE

Overall, we have the internal controls, human capital, and information systems and other infrastructure needed to reduce 

improper payments to the targeted levels.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

184 DEPARTMENT OF THE TREASURY

VI. RECAPTURE OF IMPROPER PAYMENTS REPORTING

In accordance with IPERA and OMB Circular A-123, Appendix C, we perform and report annually on our payment 

recapture program. During FY 2017, we issued approximately $16.9 billion in payments subject to the payment recapture 

audit. The IPERA, as amended, expanded the payment types reviewed beyond just contracts to include grants, benefits, 

loans, and miscellaneous payments.

Our annual risk assessment process includes a review of pre-payment controls that minimize the likelihood and 

occurrence of improper payments. We require each Treasury component to conduct post-award audits and report on 

payment recapture activities, improper payments made, and recoveries achieved. Our components perform their payment 

recapture audit and identify candidates for payment recapture action in accordance with the Treasury-wide guidance. 

We consider both pre- and post-reviews to identify payment errors a sound management practice that should be included 

among basic payment controls. All of our components have a process in place to identify improper payments during preand post-reviews. When applicable, our components may use the results of the Treasury Inspectors General and GAO 

reviews to help identify payment anomalies and target areas for improvement. However, we apply extensive payment 

controls at the time each payment is processed to minimize recapture activity. The table below illustrates the results from 

our payment recapture audit process.
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 185 

RECAPTURED OVERPAYMENTS WITH AND WITHOUT RECAPTURE AUDIT PROGRAMS ($ IN MILLIONS)

Program

Total 

Improper 

Payment 

Amount 

Identified 

for 

Recapture

Total 

Amount 

Recovered 

via Payment 

Recapture (1)

% 

Recovered 

via Payment 

Recapture

Total 

Amount 

Recovered 

via Outside 

Source

% Recovered 

via Outside 

Source

Total 

Amount 

Outstanding

(1)

Amount 

Determined 

to be not 

Collectable

(2)

BEP $ 0.0000 $ 0.0000 0% $ 0.0000 0% $ 0.0845 $ 0.0000

CDFI 0.0002 0.0002 100% 0.0000 0% 0.0000 0.0000

DCP 1.3318 1.1552 87% 0.0000 0% 0.5463 0.6319

DO 0.2942 0.3331 113% 0.0000 0% 0.0276 0.0051

FinCEN 0.0036 0.0034 94% 0.0000 0% 0.0001 0.0001

DFF (ARC) 0.1000 0.0994 99% 0.0000 0% 0.0006 0.0008

FSA 0.1227 0.1908 156% 0.0000 0% 0.0137 0.0233

Mint 0.0609 0.0758 124% 0.0000 0% 0.0276 0.0116

OCC 0.0511 0.0509 100% 0.0000 0% 0.0003 0.0000

OFS 0.3633 0.2699 74% 0.0000 0% 0.0935 0.3157

OIG 0.0031 0.0044 142% 0.0000 0% 0.0009 0.0000

SIGTARP 0.0026 0.0024 92% 0.0000 0% 0.0005 0.0016

TIGTA 0.0192 0.0071 37% 0.0000 0% 0.0140 0.0034

TTB 0.0020 0.0026 130% 0.0000 0% 0.0002 0.0004

Prior Year bureau 

combined balances (3)

- - - - - - 0.0751

Total $ 2.3547 $ 2.1952 93% $ 0.0000 0% $ 0.8097 $ 1.0690 (4)

(1) Cumulative total of FY 2017 amount and prior year amount. 

(2) Cumulative balances from FY 2012 to FY 2017. 

(3) Combined bureau cumulative balances prior to FY 2012. 

(4) Of this amount, approximately $0.13 million is from payments made in FY 2017 (or approximately six percent of total improper payments made in FY 

2017).

Of our components reporting an Amount Determined to be not Collectable in the table above, we determined all of the 

write-off amounts to be immaterial, with the exception of the Office of D.C. Pensions (DCP). The amount determined not 

to be collectable is based on individual debt cases. After thorough reviews, active collection was ceased when cases were 

either waived as part of due process, or deemed uncollectable.

In FY 2017, we determined that conducting a Payment Recapture Audit on the following six low risk components was not

cost-effective: 

• Fiscal Service’s Fiscal Service Debt (FSD) Programs; 

• Fiscal Service’s Fiscal Service Umbrella (FSU) Programs; 

• Fiscal Service’s Funds Management Branch (FSM) Programs; 

• IRS’s Administrative Fund Programs; 

• Treasury International Programs; and

• Treasury Executive Office for Asset Forfeiture / Treasury Forfeiture Fund (TEOAF/TFF). 
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

186 DEPARTMENT OF THE TREASURY

CDFI DCP DO FinCEN DFF

(ARC) FSA MINT OCC OFS OIG SIGTARP TIGTA TTB

Other - Expired Account 0.0000 0.3187 0.0005 0.1885 0.0007 0.0037 0.0004 0.0044 0.0013

Original Purpose 0.0002 1.1552 0.0144 0.0030 0.0994 0.0023 0.0758 0.0509 0.2692 0.0007 0.0021 0.0026 0.0013

0.0

0.1

0.2

0.3

0.4

0.5

0.6

0.7

0.8

0.9

1.0

1.1

1.2

Original Purpose Other - Expired Account

The Fiscal Service’s FSD, FSU, and FSM programs continued to reflect a low risk level in nearly every group and payment 

type category assessed. 

The IRS’s Administrative Fund Programs are low risk level programs, with no GAO or TIGTA identified deficiencies and 

no prior payment recapture audit identified improper payments. 

The Treasury International Programs disburse non-federal payments to the Multilateral Development Banks. Payments 

are made via payment vouchers on a letter of credit administered by the Federal Reserve Bank of New York, or direct cash 

payments through the Secure Payment System. The International Programs also disburse federal payments for Debt 

Restructuring via Intra-Governmental Payment and Collection (IPAC) or Standard Form (SF) 1081. Internal reviews are 

performed before all payments are issued. 

The TEOAF/TFF program is a low risk level program, with no identified prior improper payment issues. In addition, 

program payments are made to state and local law enforcement agencies, reducing the risk of improper payments. 

Based on the above justifications, payment recapture audits for these programs were not deemed cost effective. We sent 

notifications of these justifications to OMB and the Treasury OIG in October 2017. 

Through the payment recapture audit, we recaptured approximately $2.2 million, of which approximately $1.7 million was 

used for original purposes, and the remaining $0.5 million was credited back to the expired account from which the 

overpayment was made. The following table represents the disposition of the recaptured improper payments by our 

components:

DISPOSITION OF FUNDS RECAPTURED THROUGH PAYMENT RECAPTURE AUDIT PROGRAMS ($ IN MILLIONS)
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 187 

As of September 30, 2017, there were approximately $0.8 million identified improper overpayments outstanding, with 

approximately $0.3 million identified in FY 2017 and $0.5 million identified in prior fiscal years. The table below shows 

the aging of the improper overpayments outstanding.

AGING OF OUTSTANDING OVERPAYMENTS IDENTIFIED IN THE PAYMENT RECAPTURE AUDITS 

($ IN MILLIONS)

0 to 6 months 6 months to 1 year Over 1 year

Program or 

Activity

Amount 

Outstanding

Percent 

Outstanding

Amount 

Outstanding

Percent 

Outstanding

Amount 

Outstanding

Percent 

Outstanding

BEP N/A N/A N/A N/A $0.0845 10%

DCP $0.0588 7% $0.0323 4% $0.4551 56%

DO $0.0225 3% $0.0003 <1% $0.0048 1%

FINCEN $0.0001 <1% N/A N/A N/A N/A

DFF (ARC) $0.0006 <1% N/A N/A N/A N/A

FSA $0.0112 1% $0.0004 <1% $0.0021 <1%

MINT $0.0225 3% $0.0003 <1% $0.0048 1%

OCC N/A N/A $0.0003 <1% N/A N/A

OFS $0.0935 12% N/A N/A N/A N/A

OIG $0.0008 <1% N/A N/A $0.0001 <1%

SIGTARP N/A N/A $0.0005 <1% N/A N/A

TIGTA $0.0140 2% N/A N/A N/A N/A

TTB $0.0002 <1% N/A N/A N/A N/A

Total $0.2242 28% (1) $0.0341 4% (1) $0.5514 68% (1)

(1) Percentages may not foot due to rounding.

VII. AGENCY REDUCTION OF IMPROPER PAYMENTS WITH THE DO NOT PAY INITIATIVE

The IPERIA requires pre-payment and pre-award reviews to determine program or award eligibility and to prevent 

improper payments before the release of any federal funds. This review must include the relevant databases as prescribed 

by IPERIA, including:

• The publicly available Death Master File (DMF) of the Social Security Administration; 

• General Services Administration’s Excluded Parties List System (or the updated System for Award Management 

[SAM]); 

• Debt Check Database (Debt Check);

• Credit Alert System or Credit Alert Interactive Voice Response System of the Department of Housing and Urban 

Development; 

• List of Excluded Individuals/Entities of the Office of Inspector General of the Department of Health and Human 

Services (HHS); and

• Information regarding incarcerated individuals maintained by the commissioner of Social Security, as added to

IPERIA by the Bipartisan Budget Act of 2013, P.L. 113–67, which is provided to the IRS. 
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

188 DEPARTMENT OF THE TREASURY

All of our components have incorporated pre-payment and pre-award reviews, as mandated by IPERIA, through 

established internal control processes and procedures that require reviews against the databases consolidated within the 

DNP Business Center (hereafter referred to as “DNP”), or through their own established databases. All Treasury non-tax 

payments are then compared against the DMF and SAM Exclusion Records at the time of payment via the DNP’s online 

Portal. Matches that occur are then reviewed by staff at the appropriate bureau to determine if the payment was proper 

or improper. In FY 2017, no bureau identified incorrect information within their own established databases or after 

comparing the payments against the DNP. 
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 189 

SECTION F: FRAUD REDUCTION REPORT

BACKGROUND

The Fraud Reduction and Data Analytics Act (FRDA) of 2015, mandates agencies to take steps to improve financial and 

administrative controls and procedures to assess and mitigate fraud risks, and to improve federal agencies’ development 

and use of data analytics for identifying, preventing, and responding to fraud, including those arising from improper 

payments. Each agency is required to report its progress in implementing: (1) the financial and administrative controls; 

(2) the fraud risk principle in the GAO Standards for Internal Control in the Federal Government (Green Book); and (3) 

management of fraud risk in accordance with OMB Circular A-123. 

In response to FRDA, GAO issued the Framework for Managing Fraud Risks in Federal Programs in July 2015, based on 

leading practices for mitigating fraud risks and enhancing program integrity. The objective of fraud risk management is 

to proactively facilitate a program’s mission by continuously and strategically mitigating the likelihood and impact of 

fraud. Whether an act is in fact fraud is a determination made through the judicial or other adjudicative system, and is 

beyond management’s professional responsibility for assessing risk.4

FRAUD RISK MANAGEMENT

All of our components have a shared responsibility in preventing, detecting, and responding to potential fraud, including 

improper payments. Our components have ownership and responsibility for managing fraud risk. The Office of Risk 

Management (ORM) is responsible for providing expertise and guiding principles to assist our components in the 

management of fraud risk. The Risk and Control Group within the Office of Deputy Chief Financial Officer, establishes 

Treasury-wide guidance designed to ensure that financial, programmatic, and administrative internal controls provide an 

appropriate level of assurance towards operational and fiscal effectiveness and efficiency. The OIG Office of Investigation 

(OI) is responsible for receiving and assessing complaints, and investigating potential fraud cases. 

First Line of Defense

Our components are the first line of defense to prevent, detect, and respond to potential fraud. They are the risk owners 

for their programs, and have responsibility for mitigating fraud risk and enhancing program integrity, by designing and 

implementing processes and controls that effectively prevent and detect potential fraud, both internal and external to 

Treasury. Components must establish policies, procedures, techniques, and mechanisms to comply with risk 

management, and internal control requirements to manage and respond to fraud risk. 

While the Treasury DNP focuses on identifying, preventing and detecting improper payments, many of the tools and data 

analytics implemented through DNP can also serve as a first line of defense against potential fraud. The DNP’s primary 

methodology for detecting improper payments (some of which could be due to fraud) is matching payment data to 

eligibility data. For example, Treasury disbursed payments are automatically matched to death data. If DNP’s tools 

detect a payment to a deceased individual, DNP can help agencies stop future payments or quickly move to reclaim 

payments. Data matching is used both in the DNP’s online Portal as well as in its analytics reports, and the data 

matching can be performed at different phases of the payment life cycle. For instance, DNP can continuously monitor a 

list of payees against lists of vendors excluded from working with the federal government so that an agency can take 

appropriate steps if a contractor has been debarred. In FY 2017, and in the final quarter of FY 2016, no Treasury program 

disbursements were identified as improper as a result of the DNP data matching.

 

4 GAO-14-704, Standards for Internal Control in the Federal Government, September 2014.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

190 DEPARTMENT OF THE TREASURY

The DNP analytics team has also been working on payment integrity checks for agencies to detect anomalies through its 

Agency Insight Reports, which are an analysis of all of an agency’s Treasury-disbursed Payment Automation Manager 

(PAM) data. The results of the analysis are provided to the agency for review. The agency must then make a 

determination regarding whether the high risk payments or trends identified by DNP correspond to actual improper 

payments. The agency is also responsible for following up on any payments or trends that they believe are due to 

potential fraud. 

Internal Controls

Through our OMB Circular A-123 assessments, controls are monitored and evaluated to provide assurances that our 

components are effectively preventing, detecting, and responding to potential fraud. We incorporated GAO’s Green Book 

Principle 8, Assess Fraud Risk, into our Treasury Implementation Guide for OMB Circular A-123, Appendix A. Our 

guidance conforms to the requirements of the GAO Green Book (revised in September 2014) and addresses internal control 

elements of the FRDA. 

All of our components are required to integrate the GAO definitions for fraud, and consider risks for fraudulent financial 

reporting, misappropriation of assets, or corruption during their risk assessment process. Additionally, leading practices 

for mitigating fraud risk are required to be incorporated into our component’s internal control system design to prevent, 

detect, and respond to fraud. In FY 2017, our components identified and implemented several fraud risk management 

practices, including, but not limited to, the development of fraud policies and indicators, the inclusion of fraud activities in 

the development of business processes, and the continued assessment of security policies.

In addition to assessing fraud risk as part of Appendix A to OMB Circular A-123, we also assess fraud risk during our 

improper payment reporting and recovery activities as part of Appendix C to OMB Circular A-123, Requirements for 

Effective Estimation and Remediation of Improper Payment. Through our improper payment reporting efforts, our 

components identify the programs deemed most susceptible to improper payments, based on total program disbursements 

and inherent risks to the integrity of the program. Additional assessments are performed on those susceptible programs 

to identify improper payments and determine potential fraud cases.

Additional information on Payment Integrity can be found in Part 3, Section E, of this report.

Enterprise Risk Management

Fraud risk is addressed in the course of the ORM’s general risk advisory work. Our leadership team has the opportunity 

to discuss potential fraud and other types of risks during regular Risk Committee meetings led by the Deputy Secretary 

and the Chief Risk Officer. The ORM conducts regular Enterprise Risk Management Council meetings with the bureaulevel risk management contacts to discuss various risk topics, including fraud risk. Fraud risk is considered when our 

components are developing and updating their annual risk profiles, or top risk lists, to be shared with the ORM. The 

ORM is also in the process of developing a Treasury-wide enterprise risk management playbook that will include 

discussion of the types of risk that should be considered when developing risk profiles, including fraud risk.

Investigations

Complaints come to the OIG’s OI from our components, the public, and other government agencies by telephone, facsimile, 

U.S. mail, electronic mail, online complaint forms, referrals from other law enforcement agencies, and referrals from 

prosecutorial offices (U.S. Attorney’s Offices and District or State Attorney’s Offices). The following factors are used to 

determine if a complaint is investigated:
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 191 

• The impact on Treasury’s programs and operations;

• Alleged participation in the fraud, waste, or abuse by Treasury employees or contract employees; 

• Financial loss to Treasury or the government; and

• Criminal allegations or activity that would be accepted for prosecution by the U.S. Attorney’s Offices or State 

Attorney’s Offices. 

o OI will investigate if there is a loss to Treasury that is prosecutable by subjects that are not employees of 

Treasury.

o OI will also investigate all criminal activity alleged against Treasury employees, particularly senior 

Treasury employees.
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

DEPARTMENT OF THE TREASURY 192

SECTION G: CIVIL MONETARY PENALTIES INFLATION ADJUSTMENT

The Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015 (the 2015 Act) amended the Federal Civil 

Penalties Inflation Adjustment Act of 1990 (Inflation Adjustment Act), to improve the effectiveness of civil monetary 

penalties (CMPs) and to maintain their deterrent effect. The 2015 Act requires agencies to: 1) use an interim final 

rulemaking (IFR) to adjust the level of civil monetary penalties in 2016 with an initial “catch-up” adjustment, 2) make 

subsequent annual adjustments for inflation, beginning in 2017; and 3) report annually in AFRs on these inflation 

adjustments. The 2015 Act requires that agencies make annual inflation adjustments based on annual OMB guidance 

and publish the latest penalty levels in the Federal Register no later than January 15 each year. The Inflation 

Adjustment Act and the 2015 Act exclude penalties under the IRC and the Tariff Act of 1930. The table below depicts the 

covered civil monetary penalties that are under our purview.

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

50 USC App. 16(b)(1) 

Trading with the Enemy Act 

(TWEA), Section 16(b)

Sanctions violation 1917 2017 $85,236 DO (OFAC)

82 Federal Register 

10434 (February 10, 

2017)

https://www.treasury.

gov/resourcecenter/sanctions/Docu

ments/fr82_10434.pdf

50 USC 1705 

International Emergency 

Economic Powers Act 

(IEEPA), Section 206

Sanctions violation 1977 2017

The greater of 

$289,238 or 

twice the value 

of the 

underlying 

transaction

DO (OFAC) Same as above

18 USC 2339B(b) 

Antiterrorism and Effective 

Death Penalty Act (AEDPA) of 

1996 

Sanctions violation 1996 2017

The greater of 

$76,351 or twice 

the amount of 

which a financial 

institution was 

required to 

retain 

possession or 

control

DO (OFAC) Same as above

21 USC 1906(b) 

Foreign Narcotics Kingpin 

Designation Act (FNKDA), 

Section 807

Sanctions violation 1999 2017 $1,437,153 DO (OFAC) Same as above

19 USC 3901-3913 

Clean Diamond Trade Act 

(CDTA)

Sanctions violation 2003 2017 $13,066 DO (OFAC) Same as above

15 USC 6701 note 

Terrorism Risk Insurance Act 

(TRIA), as amended

Civil Penalty 2002 2017 $1,333,312

DO (Federal 

Insurance 

Office)

82 Federal Register

10434 (February 10, 

2017) 

https://www.treasury.

gov/resourcecenter/sanctions/Docu

ments/fr82_10434.pdf
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

193 DEPARTMENT OF THE TREASURY

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

12 USC 1829b(j) 

Bank Secrecy Act, as 

amended

Recordkeeping Violations 

for Funds Transfers 1988 2017 $20,111 FinCEN

82 Federal Register 

10440 (February 10, 

2017)

https://www.treasury.

gov/resourcecenter/sanctions/Docu

ments/fr82_10434.pdf

12 USC 1955 

Bank Secrecy Act, as 

amended

Willful/Grossly Negligent 

Recordkeeping Violations 1988 2017 $20,111 FinCEN Same as above

31 USC 5318(k)(3)(C) 

Bank Secrecy Act, as 

amended

Failure to Terminate 

Correspondent 

Relationship with Foreign 

Bank

2001 2017 $13,603 FinCEN Same as above

31 USC 5321(a)(1) 

Bank Secrecy Act, as 

amended

General Civil Penalty 

Provision for Willful 

Violations of Bank 

Secrecy Act 

requirements 

1986 2017 $54,789 to 

$219,156 FinCEN Same as above

31 USC 5321(a)(5)(B)(i) 

Bank Secrecy Act, as 

amended

Foreign Financial Agency 

Transaction - Non-willful 

Violation 

2004 2017 $12,663 FinCEN Same as above

31 USC 5321(a)(5)(C) 

Bank Secrecy Act, as 

amended

Foreign Financial Agency 

Transaction - Willful 

Violation 

2004 2017 $126,626 FinCEN Same as above

31 USC 5321(a)(6)(A) 

Bank Secrecy Act, as 

amended

Negligent Violation by 

Financial Institution or 

Non-Financial Trade or 

Business

1986 2017 $1,096 FinCEN Same as above

31 USC 5321(a)(6)(B) 

Bank Secrecy Act, as 

amended

Pattern of Negligent 

Activity by Financial 

Institution or NonFinancial Trade or 

Business 

1992 2017 $85,236 FinCEN Same as above

31 USC 5321(a)(7) 

Bank Secrecy Act, as 

amended

Violation of Due 

Diligence Requirements 

for Correspondent Bank 

Accounts Involving 

Foreign Persons/Private 

Banking Accounts 

2001 2017 $1,360,317 FinCEN Same as above

31 USC 5330(e) 

Bank Secrecy Act, as 

amended

Civil Penalty for Failure 

to Register as Money 

Transmitting Business 

1994 2017 $8,084 FinCEN Same as above
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

DEPARTMENT OF THE TREASURY 194

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

12 USC 93(b) 

Section 5239(b) of the 

Revised Statutes

Tier 1 Violation of 

Various Provisions of the 

National Bank Act

1978 2017 $9,623 OCC

82 Federal Register 

8584 (January 27, 

2017) 

https://www.gpo.gov/

fdsys/pkg/FR-2017-01-

27/pdf/2017-

00592.pdf

12 USC 93(b) 

Section 5239(b) of the 

Revised Statutes

Tier 2 Violation of 

Various Provisions of the 

National Bank Act

1978 2017 $48,114 OCC Same as above

12 USC 93(b) 

Section 5239(b) of the 

Revised Statutes

Tier 3 Violation of 

Various Provisions of the 

National Bank Act

1978 2017 $1,924,589 OCC Same as above

12 USC 164 

Section 5213 of the Revised 

Statutes

Tier 1 Violation of 

Reporting Requirements 1869(2) 2017 $3,849 OCC Same as above

12 USC 164 

Section 5213 of the Revised 

Statutes

Tier 2 Violation of 

Reporting Requirements 1869(2) 2017 $38,492 OCC Same as above

12 USC 164 

Section 5213 of the Revised 

Statutes

Tier 3 Violation of 

Reporting Requirements 1869(2) 2017 $1,924,589 OCC Same as above

12 USC 481 

Section 5240 of the Revised 

Statutes

Refusal of Affiliate to 

Cooperate in 

Examination (NB)

1864(2) 2017 $9,623 OCC Same as above

12 USC 504 

Section 29 of the Revised 

Statutes

Tier 1 Violation of 

Various Provisions of the 

Federal Reserve Act

1978 2017 $9,623 OCC Same as above

12 USC 504 

Section 29 of the Revised 

Statutes

Tier 2 Violation of 

Various Provisions of the 

Federal Reserve Act

1978 2017 $48,114 OCC Same as above

12 USC 504 

Section 29 of the Revised 

Statutes

Tier 3 Violation of 

Various Provisions of the 

Federal Reserve Act

1978 2017 $1,924,589 OCC Same as above

12 USC 1817(j)(16) 

Section 7(j)(16) of the 

Federal Deposit Insurance 

Act

Tier 1 Violation of 

Change in Bank Control 

Act

1978 2017 $9,623 OCC Same as above

12 USC 1817(j)(16) 

Section 7(j)(16) of the 

Federal Deposit Insurance 

Act

Tier 2 Violation of 

Change in Bank Control 

Act

1978 2017 $48,114 OCC Same as above

12 USC 1817(j)(16) 

Section 7(j)(16) of the 

Federal Deposit Insurance 

Act

Tier 3 Violation of 

Change in Bank Control 

Act

1978 2017 $1,924,589 OCC Same as above

12 USC 1818(i)(2) 

Section 8(i)(2) of the Federal 

Deposit Insurance Act

Tier 1 Violation of Law, 

Unsafe or Unsound 1978 2017 $9,623 OCC Same as above
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

195 DEPARTMENT OF THE TREASURY

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

Practice, or Breach of 

Fiduciary Duty

12 USC 1818(i)(2) 

Section 8(i)(2) of the Federal 

Deposit Insurance Act

Tier 2 Violation of Law, 

Unsafe or Unsound 

Practice, or Breach of 

Fiduciary Duty

1978 2017 $48,114 OCC Same as above

12 USC 1818(i)(2) 

Section 8(i)(2) of the Federal 

Deposit Insurance Act

Tier 3 Violation of Law, 

Unsafe or Unsound 

Practice, or Breach of 

Fiduciary Duty

1978 2017 $1,924,589 OCC Same as above

12 USC 1820(k)(6)(A)(ii) 

Section 10(k)(6)(A)(ii) of the 

Federal Deposit Insurance 

Act

Violation of PostEmployment Restrictions 2004 2017 $316,566 OCC Same as above

12 USC 1832(c ) 

Section 2 of Public Law 93-

100

Violation of Withdrawals 

by Negotiable or 

Transferable Instrument 

for transfers to Third 

Parties (National Bank)

1973 2017 $2,795 OCC Same as above

12 USC 1832(c ) 

Section 2 of Public Law 93-

100

Violation of Withdrawals 

by Negotiable or 

Transferable Instrument 

for transfers to Third 

Parties (Federal Savings 

Associations)

1973 2017 $2,541 OCC Same as above

12 USC 1884 

Section 5 of the Bank 

Protection Act of 1968

Violation of the Bank 

Protection Act 1968 2017 $279 OCC Same as above

12 USC 1972(2)(F) 

Section 106(b)(2)(F) of the 

Bank Holding Company Act 

Amendments of 1970

Tier 1 Violation of AntiTying Provisions 

Regarding 

Correspondent Accounts, 

Unsafe or Unsound 

Practices, or Breach of 

Fiduciary Duty

1978 2017 $9,623 OCC Same as above

12 USC 1972(2)(F) 

Section 106(b)(2)(F) of the 

Bank Holding Company Act 

Amendments of 1970

Tier 2 Violation of AntiTying Provisions 

Regarding 

Correspondent Accounts, 

Unsafe or Unsound 

Practices, or Breach of 

Fiduciary Duty

1978 2017 $48,114 OCC Same as above

12 USC 1972(2)(F) 

Section 106(b)(2)(F) of the 

Bank Holding Company Act 

Amendments of 1970

Tier 3 Violation of AntiTying Provisions 

Regarding 

Correspondent Accounts, 

Unsafe or Unsound 

Practices, or Breach of 

Fiduciary Duty

1978 2017 $1,924,589 OCC Same as above
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

DEPARTMENT OF THE TREASURY 196

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

12 USC 3110(a) 

Section 16(a) of the 

International Banking Act of 

1978

Violation of Various 

Provisions of the 

International Banking Act 

(Federal Branches and 

Agencies)

1991 2017 $43,983 OCC Same as above

12 USC 3110(c) 

Section 16(c) of the 

International Banking Act of 

1978

Tier 1 Violation of 

Reporting Requirements 

of the International 

Banking Act (Federal 

Branches and Agencies)

1991 2017 $3,519 OCC Same as above

12 USC 3110(c) 

Section 16(c) of the 

International Banking Act of 

1978

Tier 2 Violation of 

Reporting Requirements 

of the International 

Banking Act (Federal 

Branches and Agencies)

1991 2017 $35,186 OCC Same as above

12 USC 3110(c) 

Section 16(c) of the 

International Banking Act of 

1978

Tier 3 Violation of 

Reporting Requirements 

of the International 

Banking Act (Federal 

Branches and Agencies)

1991 2017 $1,759,309 OCC Same as above

12 USC 3909(d)(1) 

Section 910(d)(1) of the 

International Lending 

Supervision Act of 1983

Violation of International 

Lending Supervision Act 1983 2017 $2,394 OCC Same as above

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 1 (natural person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $9,054 OCC Same as above

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 1 (other person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $90,535 OCC Same as above

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 2 (natural person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $90,535 OCC Same as above
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

197 DEPARTMENT OF THE TREASURY

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 2 (other person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $452,677 OCC Same as above

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 3 (natural person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $181,071 OCC Same as above

15 USC 78u-2(b) 

Section 21B(b) of the 

Securities Exchange Act of 

1934

Tier 3 (other person) 

Violation of Various 

Provisions of the 

Securities Act, the 

Securities Exchange Act, 

the Investment Company 

Act or the Investment 

Advisers Act

1990 2017 $905,353 OCC Same as above

15 USC 1639e(k) 

Section 129E(k) of the Truth 

in Lending Act

First Violation - Violation 

of Appraisal 

Independence 

Requirements

2010 2017 $11,053 OCC Same as above

15 USC 1639e(k) 

Section 129E(k) of the Truth 

in Lending Act

Subsequent Violations -

Violation of Appraisal 

Independence 

Requirements

2010 2017 $22,105 OCC Same as above

42 USC 4012a(f)(5) 

Section 102(f)(5) of the Flood 

Disaster Protection Act of 

1973

Flood Insurance 1994 2017 $2,090 OCC Same as above

12 USC 1464(v) 

Section 5(v) of the Home 

Owners' Loan Act

Tier 1 Reports of 

Condition - Savings 

Associations

1989 2017 $3,849 OCC Same as above

12 USC 1464(v) 

Section 5(v) of the Home 

Owners' Loan Act

Tier 2 Reports of 

Condition - Savings 

Associations

1989 2017 $38,492 OCC Same as above

12 USC 1464(v) 

Section 5(v) of the Home 

Owners' Loan Act

Tier 3 Reports of 

Condition - Savings 

Associations

1989 2017 $1,924,589 OCC Same as above

12 USC 1467(d) 

Section 9(d) of the Home 

Owners' Loan Act

Refusal of Affiliate to 

Cooperate in 

Examination

1989 2017 $9,623 OCC Same as above

12 USC 1467a(r) 

Section 10(r) of the Home 

Owners' Loan Act

Tier 1 Late/Inaccurate 

Reports (Savings and 

Loans)

1989 2017 $3,849 OCC Same as above
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

DEPARTMENT OF THE TREASURY 198

Statutory Authority Penalty (Name or 

Description)

Year 

Enacted

Latest Year of 

Adjustment (via 

Statute or 

Regulation)

Current Penalty 

Level ($ 

Amount or 

Range)(1)

Sub-Agency 

Bureau/ 

Entity

Location for Penalty 

Update Details

12 USC 1467a(r) 

Section 10(r) of the Home 

Owners' Loan Act

Tier 2 Late/Inaccurate 

Reports (Savings and 

Loans)

1989 2017 $38,492 OCC Same as above

12 USC 1467a(r) 

Section 10(r) of the Home 

Owners' Loan Act

Tier 3 Late/Inaccurate 

Reports (Savings and 

Loans)

1989 2017 $1,924,589 OCC Same as above

27 USC 218 

Federal Alcohol 

Administration Act, as 

amended; Section 207 of the 

Alcohol Beverage Labeling 

Act of 1988, P.L. 100-690 

Violation 1988 2017 $20,111 TTB

Federal Register 82 (10

January 2017)

2892 – 2893

https://www.ttb.gov/r

egulation_guidance/ab

lapenalty.shtml

31 USC 333 

Prohibition of Misuse of 

Department of the Treasury 

Names, Symbols, etc.

Misuse of Treasury name 

or symbol 1994 None $5,000 Department Wide None

31 USC 333 

Prohibition of Misuse of 

Department of the Treasury 

Names, Symbols, etc.

Misuse of Treasury name 

or symbol in broadcast or 

telecast

1994 None $25,000 Department 

Wide None

31 USC 3729 

False Claims Act False Claims Act 1986 2017

$10,957 to 

$21,916 plus 3 

times the 

amount of 

damages which 

the Government 

sustains because 

of the act

Department 

Wide

Department of Justice 

(DOJ) issued 

regulations at Federal 

Register 82 (3 

February 2017)

9131 - 9136

31 USC 3802 

Program Fraud Civil 

Remedies Act

Program Fraud Civil 

Remedies Act 1986 2017

Up to $10,957

for each claim 

plus 2 times the 

amount of the 

claim

Department 

Wide

DOJ issued regulations 

at Federal Register 82

(3 February 2017)

9131 - 9136

(1) Current penalty level amounts represent the maximum penalty amounts.

(2) For purposes of calculating the appropriate inflation factor, OMB’s guidance issued February 24, 2016 uses the calendar year 1914 

CMP Catch-Up Adjustment Multiplier for all penalties enacted prior to 1914.
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 199 

SECTION H: GRANTS OVERSIGHT AND NEW EFFICIENCY ACT 

REQUIREMENTS

The Grants Oversight and New Efficiency Act of 2016 (GONE Act) requires the head of each agency to submit to Congress, 

in coordination with the Secretary of HHS, a report on federal grant and cooperative agreement awards for which close out 

has not yet occurred and the period of performance, including any extensions, has been expired for more than two years. 

Other types of financial assistance, including loans, are excluded from the reporting requirements. With the goal of 

improving the timely closeout of federal grant awards, and thereby improving the accountability and oversight in grants 

management under the GONE Act, OMB also set forth follow-on reporting and analysis requirements for subsequent 

years. The summary table below shows the total number and balances of federal grants and cooperative agreements that 

we awarded for which closeout has not yet occurred and the period of performance has elapsed by more than two years.

CATEGORY 2-3 Years >3-5 Years >5 Years

Number of Grants/Cooperative Agreements with Zero Dollar Balances 68 1 -

Number of Grants/Cooperative Agreements with Undisbursed Balances 16 - -

Total Amount of Undisbursed Balances $ 93,816 $ - $ -

The majority of these awards are with the Low Income Taxpayer Clinic (LITC) program. LITC started using a new grants 

management system in FY 2014. Unfamiliarity with the new system, coupled with the need to manually reconcile 

differences between the new system and the Payment Management System (PMS) administered by HHS caused delays in 

grant closeouts. LITC recently finished identifying the tools needed to conform the data between the two systems and all 

the closeout steps required in the new grants management system. We anticipate having these awards closed out by the 

end of 2017. Delay in closeout of the few awards remaining are either a result of pending audit or PMS updates for the 

grant funds that grant recipients are required to return. 
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

200 DEPARTMENT OF THE TREASURY

APPENDIX: GLOSSARY OF ACRONYMS

Abbreviation Description 

2015 Act Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015 

ACA Patient Protection and Affordable Care Act

ACH Automated Clearinghouse

ACTC Additional Child Tax Credit 

AEDPA Antiterrorism and Effective Death Penalty Act

AFR Agency Financial Report

AGI Adjusted Gross Income

AIG American International Group, Inc.

AML/CFT Anti-Money Laundering and Combating the Financing of Terrorism

AMP Advance Monthly Premium 

AMT Alternative Minimum Tax 

AOTC American Opportunity Tax Credit

APR Annual Performance Report

APTC Advance Payments of the Premium Tax Credit

ARC Administrative Resource Center

ARRA American Recovery and Reinvestment Tax Act of 2009

ASAP Automated Standard Application for Payments

ASFR Automated Substitute for Return 

ASM Assistant Secretary for Management

BDP Banknote Development Process

BEP Bureau of Engraving and Printing

BSA Bank Secrecy Act

CAA Certifying Acceptance Agent 

CADE 2 Customer Account Data Engine

CAWR Combined Annual Wage Reporting

CDFI Community Development Financial Institutions

CFIUS Committee on Foreign Investment in the United States

CFO Chief Financial Officer

CFS U.S. Consolidated Financial Statement 

CI Criminal Investigation

Civil Service Fund Civil Service Retirement and Disability Trust Fund

CMP Civil Monetary Penalties

COO Chief Operating Officer

CPI Consumer Price Index

CRO Chief Risk Officer 

CSED Collection Statute Expiration Date

CSR Cost Sharing Reduction 

CSRS Civil Service Retirement System

CTC Child Tax Credit

D.C. District of Columbia

DATA Act Digital Accountability and Transparency Act
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 201 

Abbreviation Description 

DCP Office of D.C. Pensions

DDV Due Diligence Visits 

DFF Departmental Franchise Fund

DHS Department of Homeland Security

DMF Death Master File 

DNP Do Not Pay 

DO Departmental Offices

Dodd-Frank Act Dodd-Frank Wall Street Reform and Consumer Protection Act of 2010

DOJ Department of Justice

DOL Department of Labor

EESA Emergency Economic Stabilization Act of 2008

EIN Employer Identification Number 

EITC Earned Income Tax Credit

EOAF Executive Office for Asset Forfeiture 

EPLS Excluded Parties List System

ERM Enterprise Risk Management 

ESA Exchange Stabilization Agreement

ESF Exchange Stabilization Fund

Fannie Mae Federal National Mortgage Association

FARS Financial Analysis and Reporting System

FASAB Federal Accounting Standards Advisory Board

FAST Fixing America’s Surface Transportation

FCDA Foreign Currency Denominated Assets

FCRA Federal Credit Reform Act

FDC Funds from Dedicated Collections

FDIC Federal Deposit Insurance Corporation

FECA Federal Employees’ Compensation Act

FEGLI Federal Employees Group Life Insurance

FEHBP Federal Employees Health Benefits Program

FERS Federal Employees’ Retirement System

FEVS Federal Employee Viewpoint Survey

FFB Federal Financing Bank

FFI Foreign Financial Institutions 

FFMIA Federal Financial Management Improvement Act of 1996

FHFA Federal Housing Finance Agency

FinCEN Financial Crimes Enforcement Network

Fiscal Service Bureau of the Fiscal Service

FISMA Federal Information Security Management Act

FMB Funds Management Branch 

FMFIA Federal Managers’ Financial Integrity Act

FOMC Federal Open Market Committee

FR System Federal Reserve System

FRB Federal Reserve Bank
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

202 DEPARTMENT OF THE TREASURY

Abbreviation Description 

FRBNY Federal Reserve Bank of New York

FRDA Fraud Reduction and Data Analytics Act of 2015 

Freddie Mac Federal Home Loan Mortgage Corporation

FRN Floating Rate Note

FSA Fiscal Service Administration

FSD Fiscal Service Debt 

FSU Fiscal Service Umbrella 

FTO Fine Troy Ounce

FY Fiscal Year

G-7 Group of Seven 

G-20 Group of 20

GAAP Generally Accepted Accounting Principles

GAB General Arrangements to Borrow

GAO U.S. Government Accountability Office

General Fund General Fund of the U.S. Government

GFRS Government-wide Financial Reporting System 

GONE Act Grants Oversight and New Efficiency Act of 2016

GPRA Government Performance and Results Act of 1993

GPRAMA GPRA Modernization Act of 2010 

GSA General Services Administration

GSE Government Sponsored Enterprise

GTAS Government-wide Treasury Account Symbol Adjusted Trial Balance System 

HCTC Health Coverage Tax Credit 

HERA Housing and Economic Recovery Act

HFA Housing Finance Agency

HHS Department of Health and Human Services

HUD Department of Housing and Urban Development

IAP International Assistance Programs

IDT Identify Theft

IDTVA Identity Theft Victims Assistance 

IEEPA International Emergency Economic Powers Act

IFR Interim Final Rulemaking

IG Inspector General

IMF International Monetary Fund

IMF Individual Master File (IRS Use Only)

Inflation Adjustment Act Federal Civil Penalties Inflation Adjustment Act of 1990 

IP Improper Payment

IP PIN Identity Protection Personal Identification Number

IPAC Intra-Governmental Payment and Collection

IPERA Improper Payments Elimination and Recovery Act 

IPERIA Improper Payments Elimination and Recovery Act Improvement Act of 2012

IPIA Improper Payments Information Act of 2002

IPM Integrated Production Model
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 203 

Abbreviation Description 

IRC Internal Revenue Code

IRGC Islamic Revolutionary Guard Corps

IRM Internal Revenue Manual 

IRS Internal Revenue Service

ISIL Islamic State of Iraq and the Levant

ISIS Islamic State of Iraq and Syria

IT Information Technology

ITIN Individual Taxpayer Identification Number 

JOBS Act 2012 Jumpstart Our Business Startups Act 

KTV Knock-and-Talk Visits 

LEIE List of Excluded Individuals/Entities

LITC Low Income Taxpayer Clinic

MADR Market Adjusted Discount Rate

MCAR Mutual Collection Assistance Request

MDB Multilateral Development Bank

Mint United States Mint

NAB New Arrangements to Borrow

NAFA North American Framework Agreement

NFTL Notice of Federal Tax Lien 

NIBP New Issue Bond Program

NRP National Research Program

OAS International Assistance Programs

OCC Office of the Comptroller of the Currency

ODCP Office of D.C. Pensions

OFAC Office of Foreign Assets Control

OFR Office of Financial Research

OFS Office of Financial Stability

OI Office of Investigation

OIA Office of Internal Affairs

OIG Office of the Inspector General

OMB Office of Management and Budget

OPEB Other Post-Employment Benefits

OPM Office of Personnel Management

ORB Other Retirement Benefits

ORM Office of Risk Management 

OTA Office of Technical Assistance

OTC Over-the-Counter

OVDP Offshore Voluntary Disclosure Program 

P.L. Public Law

PAM Payment Automation Manager 

PATH Act Protecting Americans from Tax Hikes Act

PB President’s Budget
FY 2017 AGENCY FINANCIAL REPORT | OTHER INFORMATION

204 DEPARTMENT OF THE TREASURY

Abbreviation Description 

PII Personally Identifiable Information

PIO Performance Improvement Officer

Postal Benefits Fund Postal Service Retiree Health Benefits Fund

PP&E Property, Plant, and Equipment

PTC Premium Tax Credit

PTIN Preparer Tax Identification Number

QPR Quarterly Performance Review

QRP Questionable Refund Program 

RCG Risk and Control Group 

RTC Resolution Trust Corporation

SAM Software Asset Management

SAR Suspicious Activity Report

SBLF Small Business Lending Fund

SBR Statement of Budgetary Resources

SDR Special Drawing Rights

SEC Securities and Exchange Commission

Secretary Secretary of the Treasury

SFFAC Statement of Federal Financial Accounting Concepts

SFFAS Statement of Federal Financial Accounting Standards

SIGTARP Special Inspector General for the Troubled Asset Relief Program

SLGS State and Local Government Series

SOAR Strategic Objective Annual Review

SOMA System Open Market Account

SPSPA Senior Preferred Stock Purchase Agreements

SSA Social Security Administration

SSI Supplemental Security Income 

SSN Social Security Number

TAC Taxpayer Assistance Centers 

TANF Temporary Assistance for Needy Families 

TARP Troubled Asset Relief Program

TFF Treasury Forfeiture Fund

TFFC Office of Terrorist Financing and Financial Crimes

TFI Terrorism and Financial Intelligence

TFRP Trust Fund Recovery Penalty

TFS TIER Financial Statements

TFTC Terrorist Financing Targeting Center

TGA Treasury General Account

TIER Treasury Information Executive Repository

TIGTA Treasury Inspector General for Tax Administration

TIN Taxpayer Identification Number 

TIPS Treasury Inflation-Protected Securities

Trade Act Trade Preferences Extension Act of 2015

TRIA Terrorism Risk Insurance Act
OTHER INFORMATION | FY 2017 AGENCY FINANCIAL REPORT

DEPARTMENT OF THE TREASURY 205 

Abbreviation Description 

TRIP Terrorism Risk Insurance Program

TS2 Transition State 2

TSP Thrift Savings Plan

TTB Alcohol and Tobacco Tax and Trade Bureau

TWEA Trading with the Enemy Act

TY Tax Year

U.S. United States

USC United States Code

USPS United States Postal Service

USSGL United States Standard General Ledger
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