Source: https://id.scribd.com/document/423238811/OIG-findings-of-noncompliance-by-BCFS-HEALTH-AND-HUMAN-SERVICES-caring-for-UACs
Timestamp: 2020-02-29 01:45:28
Document Index: 631245289

Matched Legal Cases: ['art 74', 'art 230', '§ 74', 'art 75', 'art 74', 'art 75', 'art 74', 'art 75', 'art 230', 'art 230', '§ 43', 'art 230', '§ 43', 'art 230', '§ 11', 'art 230', '§ 11', 'art 230', 'art 75', 'art 74', 'art 230', 'art 75', 'art 230', 'art 74', 'art 75', 'art 74', 'art 75', 'art 74', 'art 75', 'art 230', '§ 43', 'art 230', '§ 11', 'art 230', '§ 15', 'art 74', 'art 75', 'art 74', 'art 75', 'art 75', 'art 75', 'art 74', 'art 75', 'art 75', 'art 75', 'art; 9']

OIG findings of noncompliance by BCFS HEALTH AND HUMAN SERVICES caring for UACs | Depreciation | United States Department Of Health And Human Services
OIG findings of noncompliance by BCFS HEALTH AND HUMAN SERVICES caring for UACs
The Office of Inspector General finds that BCFS HEALTH AND HUMAN SERVICES, an Administration for Children and Families Grantee did not always comply with applicable Federal requirements related to less-than-arm's-length leases while contracted to care for persons ORR consigned to them as Unaccompanied Alien Children. Document Date: February 2018 Document Number: A-06-16-07007
simpanSimpan OIG findings of noncompliance by BCFS HEALTH AND H... Untuk Nanti
OIG findings of noncompliance by HEARTLAND HUMAN CARE SERVICES caring for UACs
OIG findings of noncompliance by LINCOLN HALL BOYS’ HAVEN caring for UACs
USAO - 100629 - Phillips
BCFS HEALTH AND HUMAN
SERVICES DID NOT ALWAYS
A-06-16-07007
Report No. A-06-16-07007
Why OIG Did This Review BCFS Health and Human Services Did Not Always
Human Services (HHS), Office of Comply With Federal Requirements Related to Less-
Refugee Resettlement (ORR), Than-Arm’s-Length Leases
manages the Unaccompanied Alien
Children (UAC) program. The UAC
program served between 7,000 and
While BCFS HHS generally claimed only allowable expenditures, it did not
8,000 children annually from fiscal
comply with Federal regulations related to less-than-arm’s-length leases. Of
year (FY) 2005 through FY 2011. In
the 140 randomly selected transactions we reviewed, we determined that
FY 2012, however, the number of
138 were allowable, but 2 rental cost transactions for 1 less-than-arm’s-
children entering the program began
length lease were unallowable. We also identified additional rental costs on
to increase, and in FY 2015, ORR
two less-than-arm’s-length leases that exceeded the amount allowable for
served more than 33,000 children.
such leases. These unallowable rental costs on three less-than-arm’s-length
As the number of children increased,
leases totaled $658,248. According to BCFS HHS officials, they were unaware
so did the funding for the program.
of the limitations on rental costs related to less-than-arm’s-length lease
Because of the rapid increase of
vulnerable children entering ORR
care, and the significant increases in
program funding, we are conducting What OIG Recommends
a series of reviews of ORR care We recommend that BCFS HHS refund $658,248 to ORR for unallowable rental
providers across the Nation. costs incurred under the less-than-arm’s-length lease agreements and limit
future rental costs to the amount that would be allowed under 45 CFR part
The objective of this review was to 75.465(c).
determine whether BCFS Health and
Human Services (BCFS HHS) claimed In written comments on our draft report, BCFS HHS did not concur with our
only allowable expenditures in recommendation. BCFS HHS stated that it did not concur because (1) we
accordance with applicable laws, failed to apply the correct Federal regulations, (2) we did not understand the
regulations, and departmental intent of the cooperative agreement’s purpose, (3) we based our analysis on a
guidance. narrow reading of Federal regulations, (4) we did not consider prior
agreements and approvals of rental costs, (5) we incorrectly calculated
How OIG Did This Review depreciation, and (6) our finding threatens the purpose of the UAC program as
To verify that BCFS HHS claimed only it relates to the cooperative agreement.
allowable expenditures, we
(1) reviewed a statistical sample of After reviewing BCFS HHS’s comments, we maintain that our recommendation
financial transactions and is valid. We applied the correct Federal regulation regarding less-than-arm’s-
(2) reviewed BCFS HHS accounting length leases. We did not take issue with the need for facilities or the
policies, procedures, and allowability of the rental costs per se. We took issue with how the rental costs
organizational structure for the were calculated, and we calculated the allowable rental costs to comply with
period October 1, 2014, through Federal regulations, which the cooperative agreement clearly states are to be
September 30, 2015. followed. From the documentation submitted by BCFS HHS, we cannot
determine which, if any, of the costs on the asset listing should be factored
into the computation of depreciation for the relevant building costs. We thus
decline to make any changes to our calculation and defer to ACF to determine
The final report can be found at https://oig.hhs.gov/oas/reports/region6/61607007.asp.
WHY WE DID THIS REVIEW ......................................................................................... 1
OBJECTIVE ................................................................................................................... 2
BACKGROUND............................................................................................................. 2
Application of Federal Regulations................................................................. 2
BCFS Health and Human Services ................................................................... 3
HOW WE CONDUCTED THIS REVIEW ......................................................................... 3
FINDINGS ................................................................................................................................ 3
BCFS HHS Claimed Unallowable Rental Costs Related to Less-Than-Arm’s-Length
Leases With Three Facilities .................................................................................... 4
RECOMMENDATION ............................................................................................................... 5
BCFS HHS COMMENTS AND OFFICE OF INSPECTOR GENERAL RESPONSE ............................ 5
BCFS HHS Comments .................................................................................................. 5
Office of Inspector General Response ........................................................................ 5
A: Audit Scope and Methodology............................................................................... 9
B: Statistical Sampling Methodologies ..................................................................... 11
C: BCFS HHS Comments ............................................................................................ 13
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007)
The Department of Health and Human Services (HHS), Office of Refugee Resettlement (ORR),
manages the Unaccompanied Alien Children (UAC) program. The UAC program served between
7,000 and 8,000 children annually from fiscal year (FY) 2005 through FY 2011. In FY 2012,
however, the number of children entering the program began to increase, and by the end of
FY 2012, the UAC program served approximately 13,625 children. In FY 2013, the program
served 24,668 children; in FY 2014, the program served 57,496 children; and in FY 2015, ORR
served 33,726 children.
As the number of children increased, so did the funding for the program. From FY 2009
through FY 2014, ORR’s funding for its UAC program totaled more than $2 billion, with about
$912 million (45 percent) of the funding occurring during FY 2014 alone (Figure 1). During
FY 2015, funding levels increased to $948 million.
Figure 1: UAC Program Funding FY 2009–FY 2015
1B 948M
300M 267M
200M 149M 149M
Because of the rapid increase of vulnerable children entering ORR care, the significant increases
in program funding, and the changes ORR made to its policies related to the UAC program
during FY 2014, we are conducting a series of reviews of ORR care providers across the Nation.
We selected BCFS Health and Human Services (BCFS HHS), a nonprofit shelter and foster care
provider in San Antonio, Texas, for review because it received the most funding from ORR for
the UAC program during FY 2015.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 1
The objective of this review was to determine whether BCFS HHS claimed only allowable
expenditures in accordance with applicable laws, regulations, and departmental guidance.
The UAC program funds temporary shelter care, 1 transitional 2 and long-term 3 foster care, and
other related services for unaccompanied alien children in ORR custody. For project periods4
with services beginning in FYs 2014 and 2015, ORR awarded grants totaling $2.1 billion to
providers for the care and placement of children. The UAC program is separate from the State-
administered child welfare and traditional foster care systems.
For grant awards made prior to December 26, 2014, 45 CFR part 74 establishes uniform
administrative requirements governing HHS grants and agreements awarded to nonprofit
entities. The allowability of costs incurred by nonprofit organizations is determined in
accordance with the provisions of 2 CFR part 230 (formerly OMB Circular A-122) (made
applicable by 45 CFR § 74.27(a)). For grant awards made on or after December 26, 2014,
45 CFR part 75 establishes uniform administrative requirements, cost principles, and audit
requirements for Federal awards to non-Federal entities. Our audit period encompasses three
awards for incremental funding for cooperative agreement 90ZU0102-02: one made on
December 23, 2014, to which 45 CFR part 74 applies; and two made on March 27 and
August 6, 2015, to which 45 CFR part 75 applies. For the purposes of this report, there were
only minor, non-substantive differences in the language between the relevant provisions of
the rules that applied to a finding; thus, for simplicity’s sake, we cite to the provisions of
Shelter care is a residential care provider facility in which all of the programmatic components (such as the
shelter, food, education, and medical services provided as part of the UAC program) are administered onsite in the
least restrictive environment. When making placement determinations, ORR’s goal is to provide the least
restrictive setting that is in the best interests of the child, taking into consideration certain factors such as potential
flight risk and danger to the child and others.
Transitional foster care is an ORR-funded placement option for UAC under 13 years of age, sibling groups with
one sibling under 13 years of age, pregnant or parenting teens, or UAC with special needs. UAC are placed with
foster families in the ORR network of care, attend school, and receive services from the ORR care provider.
Long-term foster care is ORR-funded community based foster care placements and services to which eligible UAC
are transferred after a determination is made that the child will be in ORR custody for an extended period. UAC in
ORR long-term foster care typically reside in licensed foster homes, attend public school, and receive community-
A project period for the UAC program is a 36-month project with three 12-month budget periods.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 2
45 CFR part 74 as it applied during the beginning of our audit period. We have included the
relevant cites to 45 CFR part 75 in footnotes.
BCFS HHS is a nonprofit shelter and foster care provider in San Antonio, Texas. In FY 2015, BCFS
HHS spent approximately $250 million in Federal funds for the care and placement of
approximately 4,340 UAC. BCFS HHS is affiliated with BCFS, a global network of nonprofit
organizations operating health and human services programs throughout the United States,
Eastern Europe, Latin America, Southeast Asia, and Africa.
To verify that BCFS HHS claimed only allowable expenditures, we reviewed (1) a statistical
sample of financial transactions and (2) BCFS HHS accounting policies, procedures, and
Our review covered $71 million in general ledger financial transactions from October 1, 2014,
through September 30, 2015 (audit period). We selected a stratified random sample of 140
financial transactions totaling $6,681,894 for review. We also reviewed the lease agreements
Appendix A contains the details of our audit scope and methodology; Appendix B contains the
details of our sampling methodology and estimate.
While BCFS HHS generally claimed only allowable expenditures, it did not comply with Federal
regulations related to less-than-arm’s-length leases. 5 Of the 140 randomly selected
transactions we reviewed, we determined that 138 were allowable, but 2 rental cost
transactions for 1 less-than-arm’s-length lease were unallowable. We also identified additional
rental costs on two less-than-arm’s-length leases that exceeded the amount allowable for such
leases. These unallowable rental costs on three less-than-arm’s-length leases totaled $658,248.
As defined in 2 CFR part 230, App. B, section 43.c, “a less-than-arms-length lease is one under which one party to
the lease agreement is able to control or substantially influence the actions of the other.” See also 45 CFR
section 75.465(c).
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 3
According to BCFS HHS officials, they were unaware of the limitations on rental costs related to
less-than-arm’s-length lease agreements.
BCFS HHS Claimed Unallowable Rental Costs Related to Less-Than-Arm’s-Length Leases With
Rental costs under “less-than-arms-length” leases are allowable only up to the amount (as
explained in subparagraph 43.b regarding rental costs under “sale and lease back”
arrangements) that would be allowed had the title to the property vested in the nonprofit
organization (2 CFR part 230, App. B, § 43.c). 6
Rental costs under “sale and lease back” arrangements are allowable only up to the amount
that would be allowed had the nonprofit organization continued to own the property. This
amount would include expenses such as depreciation or use allowance, maintenance, taxes,
and insurance (2 CFR part 230, App. B, § 43.b). 7 The computation of use allowances or
depreciation must be based on the acquisition cost of the assets involved and must exclude the
cost of land (2 CFR part 230, App. B, §§ 11.b and 11.c(1)). 8 When the depreciation method is
used, no depreciation is allowed on an asset that would be viewed as fully depreciated (2 CFR
part 230, App. B, § 11.f). 9
We identified less-than-arm’s-length leases for three facilities (Baytown, Raymondville, and San
Antonio) and determined that BCFS HHS charged $658,248 in unallowable rental costs related
to these leases. BCFS HHS leases these facilities from BCFS. Based upon the totality of their
relationship, BCFS has the ability to control or substantially influence the actions of BCFS HHS.
Therefore, the leases between BCFS and BCFS HHS are less-than-arm’s-length leases subject to
the limits on rental costs specified in 2 CFR part 230, App. B, section 43.c.
For the Baytown and Raymondville facilities, we reviewed documentation that BCFS HHS
provided to support the acquisition costs of the buildings and were able to determine the
allowable rental costs on the basis of the criteria. For these two facilities, we are questioning
the difference between the amount claimed by BCFS HHS and the allowable amount using the
aforementioned criteria. For the San Antonio facility, BCFS HHS officials stated that the
buildings were fully depreciated, and the officials were not able to provide supporting
documentation for their acquisition costs. For this facility, we are questioning the entire
amount of rental costs claimed by BCFS HHS.
45 CFR section 75.465(c).
45 CFR section 75.465(b).
45 CFR section 75.436(c).
45 CFR section 75.436(d)(4).
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 4
Table 1: Difference Between BCFS HHS Claims and Allowable Amount
Facility Claimed Amount Allowable Finding (Difference)
Baytown $228,000 $34,978 $193,022
Raymondville 78,000 20,663 57,337
San Antonio 407,889 0 407,889
Total $713,889 $55,641 $658,248
We recommend that BCFS HHS refund $658,248 to ORR for unallowable rental costs incurred
under the less-than-arm’s-length lease agreements and limit future rental costs under less-
than-arm’s-length lease agreements to the amount that would be allowed under 45 CFR
part 75.465(c).
BCFS HHS COMMENTS AND
BCFS HHS COMMENTS
In its written comments on our draft report, BCFS HHS did not concur with our
recommendation. BCFS HHS stated that it did not concur because (1) we failed to apply the
correct Federal regulations, (2) we did not understand the intent of the cooperative
agreement’s purpose, (3) we based our analysis on a narrow reading of Federal regulations,
(4) we did not consider prior agreements and approvals of rental costs, (5) we incorrectly
calculated depreciation, and (6) our finding threatens the purpose of the UAC program as it
relates to the cooperative agreement.
BCFS HHS’s comments are included in their entirety as Appendix C. We excluded 32 pages of
attachments because they contained proprietary information.
After reviewing BCFS HHS’s comments, we maintain that our recommendation is valid. We
applied the correct version of the Federal regulation regarding less-than-arm’s-length leases
based upon the award date. However, for the sake of simplicity, we chose to cite to 45 CFR
part 74 and the incorporated cost principles at 2 CFR part 230 in the body of the report and to
cite to 45 CFR part 75 in footnotes. We revised the report to clarify this point. Prior to
calculating the allowable rental costs, we compared the cost principles at 2 CFR part 230 (as
incorporated by 45 CFR part 74) and the cost principles laid out in 45 CFR part 75 as they
The allowable rental cost was calculated on the basis of depreciation of the acquisition cost of the facility,
excluding the cost of land.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 5
pertain to less-than-arm’s-length leases. We found minor language differences between the
two provisions, which we determined were not substantive in nature. 11 We note that 45 CFR
part 74 allowed less-than-arm’s-length rental costs to include either use allowance or
depreciation but did not allow a combination of the two methods to be used in connection with
a single class of fixed assets; whereas, 45 CFR part 75 only allowed for a calculation of
depreciation and provided guidance for situations where depreciation was being introduced to
replace the use allowance method. Specifically, 45 CFR 75.436(d)(5) requires that where “the
depreciation method is introduced to replace the use allowance method, depreciation must be
computed as if the asset had been depreciated over its entire life . . . .” In addition, the “total
amount of use allowance and depreciation for an asset (including imputed depreciation
applicable to periods prior to the conversion from the use allowance method as well as
depreciation after the conversion) may not exceed the total acquisition cost of the asset.”
BCFS HHS could have selected the use allowance method for all three less-than-arm’s-length
leases only for the one award that was subject to 45 CFR part 74. For the other two awards
that were subject to 45 CFR part 75, BCFS HHS was required to use the depreciation method for
all three leases and to ensure that the total amount of use allowance and depreciation for each
building did not exceed its total acquisition cost. Because depreciation was permitted for all
three awards and because depreciation resulted in a higher allowable amount for the Baytown
and Raymondville facilities than would have been permitted under the use allowance method,
we used the depreciation method when calculating the allowable rental costs.
We understand the intent of the cooperative agreement is to provide residential services, and
we do not take issue with the need for facilities or the allowability of the rental costs per se.
We also did not conclude that the rental costs were unallowable because they were for less-
than-arm’s-length leases. Instead, we took issue with how the rental costs were calculated, and
we calculated the allowable rental costs to comply with Federal regulations, which the
cooperative agreement clearly states are to be followed.
We also understand the responsibilities of ORR and its approval of BCFS HHS’s budget.
However, budgets do not always contain sufficient detail to show how costs are actually
calculated. Additionally, the terms and conditions of the Notices of Award incorporate the
relevant grants administration regulation and HHS Grants Policy Statement (GPS), with which
For example, 45 CFR 75.465(c) states that “[r]ental costs under ‘less-than-arm’s-length’ leases are allowable only
up to the amount (as explained in paragraph (b) of this section.)” Paragraph (b) (45 CFR 75.465(b)) states that
“[r]ental costs under ‘sale and lease back’ arrangements are allowable only up to the amount that would be
allowed had the non-Federal entity continued to own the property.” 2 CFR 230, App. B, 43.c states that “[r]ental
costs under ‘less-than-arms-length’ leases are allowable only up to the amount (as explained in subparagraph 43.b.
of this appendix) that would be allowed had title to the property vested in the non-profit organization.”
Subparagraph 43.b states that “[r]ental costs under ‘sale and lease back’ arrangements are allowable only up to
the amount that would be allowed had the non-profit organization continued to own the property.” We also note
that 45 CFR 75.436(d)(4) states that “[n]o depreciation may be allowed on any assets that have outlived their
depreciable lives,” while 2 CFR 230, App. B., 11.f, states that “no depreciation may be allowed on any such assets
that, under subparagraph 11.d of this appendix, would be viewed as fully depreciated.”
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 6
the grantee must comply. The GPS provides that “[a]ny waivers of or deviations from these
terms and conditions must be requested and approved in writing by the GMO [i.e., the grants
management officer].” However, BCFS HHS did not provide written documentation showing
that the GMO approved a deviation from the Federal regulations requirements applicable to
less-than-arm’s-length leases.
BCFS HHS stated that our depreciation calculations were incorrect but provided no argument in
support of its position. Instead, BCFS HHS provided asset listings and associated depreciation
costs for BCFS. The assets listed include a broad range of items, such as signage, landscaping,
roof repairs, statue and statue delivery, and street lighting, dating as far back as 1994. BCFS
HHS provides no explanation of how it calculated depreciation based on these listings, instead
simply providing an amount that it claims is accurate.
To summarize our finding, we determined that BCFS HHS claimed unallowable rental costs.
BCFS HHS and BCFS were in a less-than-arm’s-length lease arrangement. Rental costs in less-
than-arm’s-length leases are allowed up to the amount that would be allowed if the tenant
owned the building. This includes expenses such as depreciation or use allowance,
maintenance, taxes, and insurance (2 CFR part 230, App. B, § 43.c). 12
The computation of depreciation is based on the acquisition cost of the asset involved and
excludes the cost of land. No depreciation is allowed for any asset that is fully depreciated.
Additionally, any portion of the cost of buildings and equipment borne by or donated by the
Federal Government shall be excluded from a depreciation calculation (2 CFR part 230, App. B,
§§ 11.b, c, and f). 13
From the documentation of depreciation provided by BCFS HHS, we are unable to determine
the nature of the expense and whether or not it should be included in the depreciation
calculation. Moreover, some of the items listed are fully depreciated (have a book value of
zero) and thus would not be part of a depreciation calculation for a building. We also note at
least one listing for land, which is specifically excluded from the calculation of depreciation.
Lastly, we cannot tell from the documentation whether any of the costs associated with the
asset listings were borne by or donated by the Federal Government.
In addition, we acknowledge that some of the costs on the asset listing may include capital
expenditures, including equipment, for which the grantee may calculate depreciation (2 CFR
part 230, App. B, § 15.b(5)). 14 We are unable to determine from the documentation which, if
any, costs qualify as allowable capital expenditures. Moreover, we would need to ensure that
the depreciation of any capital expenditure had not been calculated and claimed separately and
thus should not be calculated into building depreciation.
45 CFR section 75.465(b)
45 CFR section 75.436(c) and (d)(4)
45 CFR section 75.439(b)
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 7
In summary, based on the documentation submitted by BCFS HHS, we cannot determine which,
if any, of the costs on the asset listing should be factored into the computation of depreciation
for the relevant building costs. We thus decline to make any changes to our calculation and
defer to ACF to determine any necessary adjustments.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 8
We reviewed BCFS HHS’s documentation related to grant expenditures claimed for
reimbursement and BCFS HHS accounting policies, procedures, and organizational structure to
ensure BCFS HHS met applicable Federal and State grant requirements in administering its UAC
grant. Our audit covered $71 million in general ledger financial transactions from October 1,
2014, through September 30, 2015 (audit period). We selected a stratified random sample of
140 financial transactions totaling $6,681,894 for review.
We performed our fieldwork at BCFS HHS in San Antonio, Texas, from June 2016 through
Our objective did not require an understanding of all of BCFS HHS’s internal controls. We
limited our assessment to BCFS HHS controls related to its financial management system.
• reviewed applicable Federal laws, regulations, and guidance;
• reviewed grant documents and policies and procedures maintained at BCFS HHS;
• interviewed BCFS HHS and BCFS officials;
• reconciled the Federal Financial Reports (FFRs) with BCFS HHS general ledgers;
• reconciled the drawdown amounts with the FFRs;
• selected a stratified random sample of financial transactions that BCFS HHS charged to
the grant during FY 2015 (Appendix B);
• reviewed supporting documentation for each sampled transaction (including payments
to subcontractors, if applicable);
• reviewed lease agreements for all facilities;
• reviewed BCFS HHS’s Federal grant reports—financial and programmatic—for the audit
• discussed our findings with BCFS HHS officials.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 9
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 10
APPENDIX B: STATISTICAL SAMPLING METHODOLOGIES
The population consisted of all expenditure transactions on BCFS HHS’s general ledgers for its
residential and foster care 15 grants during FY 2015.
We received an Excel file from BCFS HHS for each of its facilities. There were 97,923
transactions totaling $249,574,824 that BCFS HHS had recorded as expenditures during FY 2015
for both its residential and foster care grants. We manually matched expenditure transactions
in the general ledger by verifying accounting system identifiers to remove all transactions that
netted to zero. We also removed all prior-period transactions, transactions not charged to the
grant, and transactions valued between ($100) and $100 (both debits and credits). As a result,
our sample frame contained 15,591 transactions totaling $71,499,380.
The sample unit was a general ledger expenditure transaction.
We used a stratified random sample. The sampling frame was divided into five strata. Strata 1
through 4 are based on monetary thresholds, and stratum 5 consists of salary and wage
Table 2: Sample Strata
Stratum # Frame Count Frame Total Strata Values Strata Values To
1 12,924 $5,458,312.30 ($15,850.56) $1,839.43
2 1,893 7,838,879.69 1,840.12 11,451.56
3 391 9,045,152.27 11,537.98 55,560.98
4 107 10,465,310.78 56,103.86 223,923.51
5 276 38,691,725.06 120.00 510,065.66
Totals 15,591 $71,499,380.10
ORR provides temporary shelter care and other related services to UAC in its custody through residential and
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 11
We selected 140 transactions.
We used the Office of Inspector General, Office of Audit Services, statistical software to
generate the random numbers.
METHOD OF SELECTING SAMPLE ITEMS
We consecutively numbered the transactions in the sample frame. After generating the
random numbers, we selected the corresponding frame items.
We identified two unallowable lease transactions during our review of the statistical sample
items. However, we did not estimate the total amount of expenditures that were unallowable.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 12
APPENDIX C: BCFS HHS COMMENTS
.,;"{,:- FS
Sonya L. Thompson, LCSW
Executive Director, Residential Services Division
BC if .~; ... -·.·.~~·:.
4406 Vicdras Drive West
Repo1t Number: A-06-16-07007
San Antonio, lexas 78228
(2 10) 233-5898 Patricia Wheeler
Regional h1spector General for Audit Services
Fax: (210) 368-9929 Office of Audit Services, Region VI
llOO Commerce Street, Room 632
www.bcfs.net Dallas, TX 75242
sthompsonl@.bcfs.net
Re: BCFS Health and Hmnan Services (BCFS HHS) Response to Office
oflnspector General's Draft Report of October 10, 2017 from Patricia
Wheeler, Regional Inspector General for Audit Services
As stated in your original OIG draft of October 10, 2017, a response from
BCFS Health and Human Se1vices (BCFS HHS) was originally due on
November 10, 2017, which is Veterans Day, a Federal holiday, via email to
Ms. TI1ompson which allowed BCFS HHS to submit their response the ne>..1
business day on Monday, November 13, 2017.
TI1is is BCFS HHS ' official response to the Department of Health and Human
Services Officer of Inspector General's Draft report titled "BCFS Health and
Human Services did not always comply with Federal requirements related to
less-than-ann's-length leases" submitted to BCFS HHS on October 10, 2017
by Ms. Patricia Wheeler, Regional Inspector General for Audit Se1vices.
With all due respect to the OIG office efforts, BCFS HHS, does not concur
with any of the OIG 's fmdings, BCFS HHS is not required to refund the
$658,248 for unallowable rental costs inc111rnd for the following reasons;
1. OIG failed to apply the correct Federal regulations to the OIG's
2. TI1e failure of the OIG to understand the intent of the cooperative
agreement"s purpose and the meeting of the minds between ll1e
Department of Health and Human Services - Administration for
Children Families, Office of Refugee Resettlement (ORR) and BCFS
HHS as is stated in th e tem1s an.cl conditions of the cooperative
3. OIG's overall analysis is based on a narrow reading of cited Federal
regulations, but OIG is required to apply th e regulations by reading all
the documents a5 a whole.
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 13
4. OIG did not consider the prior agreements and approvals regarding
rental costs lhat have been ncgoliated yearly between DHHS and
BCFS HHS since 2013.
5. OIG's calculations of depreciation are not correct.
6. OIG's findings, if not reconsidered and overlumed, threaten the
purpose of the unaccompanied alien children program as it relates to
cooperative agreement 90ZUOl02-02.
BCFS HHS requests that the OIG reconsider their analysis regarding the audit
of BCFS HHS' rental costs for the reasons that this response will discusses in
Throllghout BCFS' below di.scussions in this response BCFS considers
some of the fadual information discussed is proprietary to BCFS HHS.
BCFS HHS requests that OJ'G give BCFS HHS an opport1111ily t<J exc111de
their proprietary informatum prior to OJG's public release ofthis report.
Facilities Brief History
BCFS, parent entity of BCFS HHS, owns the properties known as the San
Antonio Campus, Baytown and Raymondville facilities.
TI1e San Antonio shelter property was purchased in 1944. TI1e purchase
included an old fam1house and other farm stmctures not used as a part of the
residential program. BCFS (Not BCFS HHS) made structural building
renovations and improvements to the prope1ty that have not been fully
depreciated. BCFS HHS and BCFS entered into a lease for the property on
September 15, 2013 for the purpose of providing residential se1vices and other
programs to unaccompanied children at the monthly rate of $33,990.75,
$407,889 annually. TI1e leased property includes 105.205 acres and all
structures which include 11 buildings.
A comparable facility would be , San Antonio, Texas
. .. with an annual rent at $226,800 an
1lle Baytown facil ity was purchased on June 20, 2014, for the land, buildings
and faci lities. BCFS and BCPS HHS entered into a lease for Baytown on June
1, 2014, for the 18.49 acres and nine buildings of approximately 57,399
rentable square feet and includes all fixtures and fumiture on the premises for
the rent of $19,000 per month, $228,000 annually.
A comparable faci lity would be , Harlingen TX . ., with
an annual rent of$ l,248,000 and J.09,133 rentable square feet.
'[11e Raymondville faci lity was purchased on April 2, 2013, which included
the land and five buildings. BCFS and BCFS HHS entered into a lease for
this prope1ty on June 1, 2013, for the building and improvements. The rent on
this property is $6, 500 per month, $78,000 annually.
Page 12 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 14
A comparable facility would be , Harlingen TX. .. with
an ann ual rent of$J ,248,000 and 109,133 rent:able squ are feet.
All related party lease rates are set at below market rates comparable to the
Stm ounding area. All rental lease amounts are described in the budget
narrative which is reviewed and approved by the Project Officer, Division of
Unaccompanied Children's Operations, Office of Refogee Resettlement.
Copies of aJI lease schedules have been reviewed in detail by the Pr~ject
Officer before a project fonding is approved.
'I11e following is a review of compa. rable ind~rd party leases with
BCFS HHS that are not related parties. - - is 2.9 acres and
approximately 20,386 square feet of rentable space which is leased at $18,900
per month or $226,800 annually and increased to $19,845 per month in 2017,
$20,837.00 per month in 2018 and $21,878 per mouth is 2019.
111e - lease is also with an independent third party for the lea~e of
land, area and includes approximately 19 buildings and approximately
109,133 square feet of rentable space. 111e lease is from October 2016 tJu·ough
September of 2019 at a monthly rent of $104,000 per month, $1,248,000
allllually.
OIG failed to apply the con ect Fed eral regulations to the OIG's analysis.
OIG audit repott stated the following:
"Our audil period encompasses 1hree awardsfor incremenlalfimding
for cooperative agreement 90LU0102-02: one made on December 23,
2014 to which 45 CFR part 74 applies; and two made onJ\!farch 27,
2015 cmd Augus1 6, 2015, to which 45 CFR part 75 applies For the
pwposes ofthis report, there were only mino1~ non-substantive
differences between the provisions ofthe rules that applied to a
finding; thus; for simplicity's sake, we applied the provisions <!! 45
CFR part 74, as it applied during the beginning ofour audit period
We have included the relevant cites to 45 CFRpart 75 in footnotes. ··
In accordance with the Federal regulations the OIG should have applied 45
CFR prui 74 to funding issued on December 23, 2014 analysis and 45 CFR
part 75 lo the March 27, 2015 and August 6, 2015 funding as stated on the
bottom of the fonding instrument(s) which state the following:
1. Paid by DHHS Payment Management System (Plv!S), see attached
for payment information. This award is subject to the requirements of
the HHS Grants Policy Statement (HHS GPS) that are applicable to
you based on your receipt type and
the purpose ofthis award. This includes requirements in Parts I and II
(available at http://www.hhs.govlgrantslgrantslpolicies­
regulations/index.html ofthe HHS GPS. Although consistent with the
HHS GPS, any applicable statut01y or regulatory requirements,
Page I 3 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 15
including 45 CFR Part 75, directly apply to this award apartfi·om any
coverage in the HHSGPS.
This grant is subject to the requirements as setforth in 45 CFR Part
DGCM­
111e wording of 45 CFR part 74 and 45 CFR 75 are different as read in
accordance with the Department of Health and Human Services Grants Policy
Statement (DHHS GPS), the OIG must redo their analysis based on the
correct regulations as they relate t<> each fonding period.
It is BCFS HHS' position that based on the reading of both 45 CFR patt 74
and the additional and different wording 45 CFR part 75, BCFS HHS is not
required to refond the $658,248 to ORR for unallowable rental costs incurred,
because rental costs are allowable in an accordance with the Federal
regulations and the tenns of the cooperative agreement between BCFS HHS
and the Department of Health and Human Services (DHHS).
OIG Analysis Failed to Review the Intent and Temis of the Coope1·ative
OIG's analysis did not review the intent or tenns of the Cooperative
agreement, a material element of the agreement is for "residential services"
for unaccompanied alien children which cannot be completed without the
Baytown, Raymondville and San Antonio Campus,facilities. l11e lease rental
prices are reviewed by the govenunent's project officer for each budget
period and are approved and finalized by DHHS.
l11e DHHS GPS, which is incorporated by reference to the cooperative
agreement, allows for the costs of "Services Provided by Affiliated
Organizations" which BCFS is an affiliated organization to BCFS HHS.
BCFS' lease agreement allows BCFS HHS to incur reduced rental costs at
below market rate to BCFS HHS which passes on the lower costs to the
1l1e material part of the cooperative agreement is to provide faci lities. l11e
facilities are a basic assumption of the cooperative agreement, the cooperative
agreement states the following;
"The program's main purpose is to provide a safe and appropriate
environment for UAC during the interim period between the child's transfer
into a UAC program and the child's release fro m l11stody by ORR or removal
from the United States by the Department ofHomeland Security (DHS)."
In addition, the cooperative agreement goes on to state:
"Pursuant to Secti(>n 462 ofthe Homeland Security Act (Jf 2002, the D irector
ofthe ORR. hereinafter called the Director. approved mvards fo r residential
services to Unaccompanied Children. Jn accordance with this announcement
Page I 4 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 16
and pursuant to the aforementioned laws, BCFS Health and Human Services
hereinafter called BCFS has been approved forfimding to provide residential
services for unaccompanied alien children, which meets the requirements in
the previous paragraph"
"This Cooperative Agreement and the attached Terms and Conditions
establish the concepts and responsibilities for implementing B CFS 's
residential services for UAC. Continued .fimding is contingent upon
satisfact01y performance, availability of fimds, and determination that
continuation is in the best interests ofthe United States Government"
All of the above se.ctions of the cooperative agreement refer to "residential
services''. BCFS Health and Human Services provides shelter1·n operations
for which Baylown provides . beds, San Antonio provides beds, and
Raymondville provides I beds along with other shelter services. All ofthese
direct costs are approved by the project officer prior to a budget being
approved. The OTG draft report is written as if the "rental costs" are costs that
have not been addressed by the project officer (Department of Health and
TI1e temis of the contract allow BCFS HHS, to be paid for their se1vices, the
DHHS GPS states,
Services Provided by Affiliatetl Organizations
A number ofuniversities and other organizations have
established closely affiliated. but separately incorporated,
organizations to.facilitate the administration o.fresearch and
other programs supported by Federal.funds. Such legally
independent entities are often referred to as "foundations, "
although this term does not necessarily appear in the name o.f
the organization. Typically, the parent organization provides
considerable support services, in the form ofadministration,
facilities, equipment, accounting, and other services, to its
foundation, and the latte1~ acting in its own right as a recipient.
includes the cost ofthese se111ices in its indirect cost proposal.
Costs incurred by an affiliated, but separate, legal entity in
support ofa recipientfoundation (foundation) are allowable for
reimbursement under HHS grants only ifat least one ofthe
The.foundation is chmgedfor. and is legally obligated
to pay.for, the services provided by the parent
The affiliated organization is subject to State or local
law that prescribes how Federal reimbursement for the
costs ofthe parent mganization 's services will be
expended and requires that a State or local official
Page I 5 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 17
acting in his or her official capacity approves such
affiliated organizations whereby the parent
organization agrees that the foundation may retain
Federal reimbursement ofparent organization cos Ls.
The parent organization may either direct how lhe
fimds will be used or permit the foundation that
discrelion.
Ifnone ofthe above conditions is met, the costs ofthe services
provided by the parent organization to the foundation are not
allowable for reimbul'sement under an HHS grant. However,
the services may be acceptable for cost-sharing (matching)
Under this term, BCFS is considered the "foundation" thus costs inctmed by
an affiliated, but separate, legal entity in support of a recipient foundation
(foundation) are allowable for reimbursement under DHHS grants. The rental
costs for the services of the lease between BCFS and BCFS HHS are
allowable based on BCFS providing these services to the affiliated
organization BCFS HHS.
BCFS' "Article II Purpose" states, "TI1e Corporation is organized and shall be
operated exclusively for charitable, religious and educational purposes within
the meaning of Section 501(c)(3) of the Intemal Revenue Code. Within the
scope of the foregoing purposes, and not by way of limitation thereof, the
Corporation shall provide general administrative support and se1vices to
organizations which are exempt from federal income taxation and described in
Intemal Revenue Code Section 50l(c)(3) and/or govenunental entities
described in hltemal Revenue Code Section 0170(c)(l) and instrumentalities
thereof (hereafter "exempt entities"), including, but not limited to, its
controlled entities, BCFS Property Management Company, Baptist Care
Facilities for Persons with Mental Disabilities, Inc. d/b/a Breckenridge
Village of Tyler, Children's Emergency Relief hltemational, Baptist Child &
Family Se1vices Foundation, and BCFS Health and Human Services.
111e lease agreement allows BCFS HHS to charge less for their services to the
Federnl Government. TI1e Department of Health and Human Services had
complete knowledge of the leases and they approved them in each budget. If
BCFS was not providing these leases at below market value prices both BCFS
HHS and thus the govennnent would be paying much more for these
facilities. The reduced costs can be seen when you compare the rental costs
of the - facility which is $1,248,000 per year which is two hundred
percent (200%) higher than the San Antonio facility which has less rentable
TI1e intent of the agreement and the tenns of cooperative agreement supports
BCFS HHS position that the rental costs as presented in the budgets and
Page I 6 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 18
charged are allowable costs that do not violate Federal regulations and comply
with the tenns and conditions of the cooperative agreement.
OIG's Analysis is based on a Na1Tow Rea1ling of Cited Federal
OIG's analysis is based on a nan-ow reading of cited Federal regulations that
does apply to BCFS HHS when reading the regulations together with the
intent of the cooperative agreement and its tenns and conditions. In reading
the analysis of the OIG in their report, OIG failed to fully read and apply the
tenns and conditions of the cooperative agreement. The OIG draft report
stated that they reviewed the following:
" To accomplish our objective, we:
reviewed applicable.Federal laws, regulations, andguidtmce;
reviewed grant documents and policies and procedures maintained
atBCFSHHS;
interviewedBCFSHHSandBCFS officials;
reconciled the Federal Financial Reports (FFRs) with BCFSHHS
reconciled the drmvdown amounls with the FFRs;
selected a stratified random sample offinancial transactions that
BCFS HHS charged to the grant during FY 2015 (Appendix .8);
reviewed supporting documentation for each sampled
transaction (including payments to subcontractors, if
reviewedlease agreements for allfacilities;
reviewed.BCFS Hl:/S's Federal grant reports-fincmcial and
programmatic-for the audit period; and
discussed our.findings with BCFSHHSofficials.
OIG states that they "reviewed applicable Federal laws, regulations, and
guidance" and "reviewed grant documents and policies and procedures
maintained at BCFS HHS" along with the other items listed above. The
OIG's entire analysis is based on simply the control issue regarding what is an
"anns-length-transaction" and that BCFS has "control" over BCFS HHS .
lfOIG did their analysis based on the intent ofthe cooperati ve agreement, the
approved budgets, the regulations aod cooperative agreements tenns, the
OIG's analysis must conclude that the rental costs are allowable.
Page I 7 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 19
TI1e following regulations ru1d the tem1s and conditions must be considered in
the OIG's analysis. 'Tne cooperati ve agreement lem1 "Services Provided by
Affiliated Organizations" allows the cost ofthe affiliated organization's costs
to be allowable.
Other federal Regulations that must be considered in making this rurnlysis of
cost allowability ofthe rental costs, such as 45 CFR Part 75.308 states "(a)
The approved budget.for the Federal award summarizes the financial aspects
ofthe project or program as approved during the Federal award process."
Part 75.420 "In case ofa discrepancy between the pro visions ofa specific
Federal award and the provisions below, the Federal award governs. " TI1e
Federal award is the award ofthis cooperative agreement number 90ZU0102­
OIG analysis is too narrow. It s imply focused on rums-length transactions
and the issue ofcontrol then concludes that the rental costs are not allowable.
Reading the cooperative agreement as a whole along with the regulations and
the intent ofboth parties established that the rental costs are allowable and
have been preapproved by the Department of Health and Human Services.
Department of Health and Human Services had complete knowledge of
th e leases and rent.al <'-Osts and had pre-approved these costs.
TI1e project budgets have been submitted and approved by the Department of
Health and Human Services. 111e project budgets have been negotiated yearly
between DHHS and BCFS HHS since 2013. Federal regulation 45 CFR
Section 75.308 states {a) the approved budget for the Federal award
summarizes the financial aspects of the project or program as approved
during the Federal award process.
TI1e following sections from the cooperative agreement was signed on
September 30, 2013, stating the requirements for the prior approvals of the
project budgets and the responsibilities ofthe parties regarding the budgets:
Under Section I Background
This Cooperative Agreement and the atlached Terms and Conditions establish
the concepts and responsibilities for implementing BCFS's residential
services for UAC. (Under section !)
Under section IV, Description ofActivities, Responsibilities of BCFS,
To submit and/or review the program budget with ORR Project Officer to be
sure it accurately reflects proposed activities as described in the project plan;
To amend the approved pro.feel plan as needed lo comply with standards,
goals and priorities established by the ORR Director:
Page I 8 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 20
TI1e Responsibilities of ORR;
To confirm project plan (which includes approach, activities, timelines, and
results expected) and budget. and discuss minor modifications BCFS;
To submit and/or review project expenditures with BCFS to be sure it
accurately reflects proposed activities;
To promptly review written requests for prior approval ofdeviations ji"om the
project plan or approved budget. Any changes that affect the terms and
conditions of the grant award or revisions/amendments to the cooperative
agreement or to the approved scope ofactivities will require prior approval
by the ORR Project Officer and the Grants Management Specialist in the
Office ofGrants Management (OGM).
Under SECTION V: Budget and Financial Atrnngement
The approved budget is attached to this agreement and reflected in the Notice
ofAward (NOA).
The Government shall not be obligated to reimburse the recipient for costs
incurred in excess of the total amount allotted to this project, and the
recipient shall not be obligated to continue performance under the Agreement
(including actions under the termination clause) or otherwise to incur costs in
excess of the amount allotted to this Agreement unless and until the ORR
Project Officer and the Grants Management Specialist have notified the
recipient in writing that additional funds have been awarded. No notice,
communication, or representation from any person other than the Grants
Management Specialist shall authorize the expenditure of additional jimds.
The United States Government will not be obligated for any excess costs in
the absence ofa written notice ofauthorization from the Grants Management
Specialist. Changes issued pursuant to this Agreement shall not be
considered an authorization to the recipient to exceed the allotted amount of
this Agreement unless specifically stated by the Grants Management
The award will be based on the budget that is approved by ORR.
Under SECTION VJ[: Continuation Applications
BCFS must submit a continuation application by June 1. For continuation
applications, BCFS will provide the following information: 1) Standard
Forms: SF 424 Application for Federal Assistance, SF 424A Budget
Information - Non-Construction Program; and SF 424B Assurances-Non­
Constmction Program, and required compliance, and certifications; 2.)
Budget worksheets and narrative; 3) Program Description and Work plan; 4)
Current State residential care license; 5) Proof of Insurance; 6) Facility
lease or bank mortgage note on property (as applicable); 7) indirect Cost
Rate approval; 8) Current Program Organizational Chart; 9) Staffing and
Volunteer Roster; JO) Copy of all Child Protective Services reports,
Page I 9 of l l
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 21
allegations and CPS investigations; 11) Property/Jnvent01y List; 12) Current
program progress report; and, J 3) Standard Financial Reporting Form: SF
Under SECTION Vll: Continuation Applications, BCFS HHS was required
and did submit the following for the first and all prior budgets, "budget
worksheets and narratives" and "facility lease or bank mortgage note on
property". BCFS HHS submitted all budget and narratives and the facil ity
leases, as can be seen in the email exchange of September 24ui and 25th 2015
(Attachment #1) between BCFS and DHHS showing the submission of the
leases between BCFS HHS and BCFS. DHHS later approved the budget as
reasonable rental costs for the budget period, which are below fair market
value for similar prope1ties.
O IG's cal.cu lat.ions ofd epreciati<m a re not correct.
While reviewing the depreciation tables of the OIG draft report, OIG's
depreciation calculations are not correct based on the tables below. BCFS is
attaching depreciation tables in support of the corrected calculations
(Attachment #2, #3, and #4).
OIU REPORT: C'.\LCl L\TIOI'\S
Facility Claimed Amount Allowable Amount
Differenc.e
Baytown $ 228,000.00 $ 34,978.00 $ 193,022.00
Raymondville $ 78,000.00 $ 20,663.00 $ 57,337.00
San Antonio $ 407,889.00 $ $ 407,889.00
Total $ 7 13,889.00 $ 55,641.00 $ 658,248.00
BASED O>J :'1.ClTAL DEPRECIATION SCIIEDl' LES
Facilit y Claimed Amount Allowable Amount
Baytown $ 228,000.00 $ 53,036.71 $ 174,963.29
San Antonio $ 407,889.00 $ 145,775.95 $ 262,113.05
Total $ 713,889.00 $ 219,475.66 $ 494,413.34
Page I l 0 of 11
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 22
TI1e rental costs are allowable as approved in the budgets, as they are below
market value and have been determined to be reasonable, direct project costs
to support the programs goals, and have been preapproved in writing by the
project manager. TI1e costs comply with the DHHS tenns and conditions of
the cooperative agreement that allows support costs of "Services Provided by
Affiliated Organizations" and comply with Federal regulations.
OIG's findings if not reconsidered and overtumed potentially threatens the
on-going operations of unaccompanied alien children programs as it relates lo
cooperative agreement 90Zt:Ol02-02.
BCFS HHS is open and willing to have any additional discussions regarding
the issues discussed in BCFS HHS ' response or submit any additional
documentation to farther suppott BCFS HHS position that the rental costs are
/Sonya Thompson/
Page I 11 of 11
Review of Unaccompanied Alien Children Program Expenditures at BCFS HHS (A-06-16-07007) 23
Departemen Kesehatan dan Layanan Kemanusiaan Amerika Serikat
Dokumen Serupa dengan OIG findings of noncompliance by BCFS HEALTH AND HUMAN SERVICES caring for UACs
Lainnya Dari Stephen Boyle
Revised Facial Recognition Directive Transmitted to Board 9-12-2019
1. Roldan vs. Barrios, G.R. No. 214803, April 23, 2018
66 Republic vs Bank of the Philippine Islands
Velasquez v. SOlidbank