Agency Financial Report 2016

Agency

Financial Report

2016

Creating prosperity for self-sustaining, repopulating

and economically thriving communities.

United States

Department of

Agriculture

NON- DISCRIMINATION STATEMENT

Non-Discrimination Statement

The U.S. Department of Agriculture (USDA) prohibits discrimination against its customers,

employees, and applicants for employment on the basis of race, color, national origin, age,

disability, sex, gender identity, religion, protected genetic information, reprisals for whistle

blowing or filing grievances, and where applicable, political beliefs, marital status, familial or

parental status, sexual orientation; or whether all or part of an individual’s income is derived

from any public assistance program or any program or activity conducted or funded by the

Department. (Not all prohibited discrimination will apply to all programs and/or employment

activities.)

To File an Employment Complaint

If you wish to file an employment complaint, you must contact your agency’s Equal

Employment Opportunity (EEO) Counselor within 45 days of the date of the alleged

discriminatory act, event, or personnel action. Additional information can be found on the

USDA Office of the Assistant Secretary of Civil Rights web site.

To File a Program Complaint

To file a program discrimination complaint, please complete the USDA Program

Discrimination Complaint Form. You or your authorized representative must sign the

complaint form. You are not required to use the complaint form; you may write a letter instead.

If you write a letter, it must contain all of the information requested in the form and be signed

by you or your authorized representative. Incomplete information will delay the processing of

your complaint. Employment civil rights complaints will not be accepted through the email

address below.

Persons with disabilities who require alternative means for communication of program

information (Braille, large print, audiotape, etc.) should contact USDA’s TARGET Center at

(202) 720-2600 (voice and TDD).

Send your completed complaint form or letter to us by mail, fax, or email:

Mail

U.S. Department of Agriculture

Director, Office of Adjudication

1400 Independence Avenue, SW

Washington, DC 20250-9410

Fax: (202) 690-7442

E-mail: [email protected]ov

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

About the Report

The purpose of the U.S. Department of Agriculture (USDA) fiscal year (FY) 2016 Agency

Financial Report (AFR) is to inform Congress, the President, and the American people on how

USDA has used Federal resources entrusted to the Department in FY 2016 in order to do the

following: expand economic opportunity through innovation; help rural America to thrive

while promoting agriculture production sustainability that better nourishes the population; and

preserve and conserve the Nation’s natural resources. USDA has demonstrated good

stewardship of financial resources by putting in place well controlled and managed business

lines and financial management systems and processes. USDA has chosen to produce both an

AFR and an Annual Performance Report (APR) for FY 2016. USDA will include its FY 2016

APR with its Congressional Budget Justification and will post this AFR on the following

Department Web Page.

This AFR provides high-level financial and highlighted performance results with assessments

of controls, a summary of challenges, and USDA stewardship information. The AFR enables

the President, Congress, and the public to assess USDA accomplishments and understand its

financial position. USDA’s end-of-fiscal-year financial position includes, but is not limited to,

financial statements, notes to the financial statements, and a report of the independent auditors.

The report satisfies the reporting requirements contained in the following laws and regulations:

• Improper Payments Elimination and Recovery Act of 2010;

• Improper Payments Elimination and Recovery Improvement Act of 2012 (IPERIA);

• Government Performance and Results Modernization Act of 2010;

• Improper Payments Information Act of 2002;

• Reports Consolidation Act of 2000;

• Government Management Reform Act of 1994;

• Chief Financial Officers Act of 1990;

• Federal Managers’ Financial Integrity Act of 1982;

• Federal Financial Management Improvement Act of 1996;

• Office of Management and Budget Circular A-123, Management’s Responsibility for

Internal Controls; and

• Office of Management and Budget Circular A-136, Financial Reporting Requirements.

ABOUT THIS REPORT

The APR is a detailed report on USDA’s progress toward achieving the goals and objectives

described in the Agency’s Strategic Plan and Annual Performance Plan, including progress on

the strategic objectives, performance goals, and Agency Priority Goals. The report will be

delivered to Congress with the annual budget submission.

This report is to be posted on these Web sites: Performance.gov and the USDA Performance

Improvement and Accountability at USDA Web page. Previous reports are posted as well.

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table of Contents

Message from Secretary Vilsack ................................................................................................. i

Section I: Management’s Discussion and Analysis ..................................................................... 1

About USDA ................................................................................................................................ 1

Mission Statement ..................................................................................................................... 1

Strategic Plan and Program Performance ................................................................................. 7

Future Demands, Risks, Uncertainties, Events, Conditions, and Trends ............................... 18

Analysis of Financial Information and Highlights .................................................................... 19

Statement of Assurance ........................................................................................................... 22

Federal Managers’ Financial Integrity Act Report on Management Control ........................ 25

Federal Financial Management Improvement Act Report on Financial

Management Systems ......................................................................................................... 38

Financial Management Systems Strategy ............................................................................... 41

Other Management Information, Initiatives, and Issues ....................................................... 46

Limitations of Financial Statement .......................................................................................... 47

Section II: Financial Information .............................................................................................. 48

Message from Chief Financial Officer ..................................................................................... 48

Independent Auditors Report .................................................................................................. 50

Agency Response to Auditors Report ...................................................................................... 72

Consolidated Balance Sheet .................................................................................................... 75

Notes to the Consolidated Balance Sheet............................................................................... 76

Required Supplementary Stewardship Information .............................................................120

Required Supplementary Information ..................................................................................132

Section III: Other Information ................................................................................................ 138

Unaudited Financial Statements ...........................................................................................138

Unaudited Notes to Financial Statements ............................................................................141

Schedule of Spending .............................................................................................................161

Response to Management Challenges ..................................................................................163

Summary of Financial Statement Audit and Management Assurances ..............................184

Improper Payments ................................................................................................................186

Inspector General Act Amendments of 1988: Management’s Report on

Audit Follow Up .................................................................................................................264

Freeze the Footprint ..............................................................................................................279

Civil Monetary Penalties ........................................................................................................280

Abbreviations—Acronyms ..................................................................................................... 300

MESSAGE FROM THE SECRETARY i

Message from Secretary Vilsack

In fulfillment of our duty to the people, the President, and Congress,

the U.S. Department of Agriculture (USDA) respectfully submits the

Fiscal Year 2016 Agency Financial Report.

For more than 7 years, I have had the honor and privilege of serving

as Secretary of Agriculture. I have traveled to all 50 states and heard

rural Americans—from local businesses, community leaders, farmers, ranchers and other

Americans far and wide, from all walks of life talk about the impact that USDA’s staff,

programs and services have on their lives. I could not be more proud of the work the men and

women of USDA do each and every day.

In fiscal year (FY) 2016, the final full year of this Administration, these men and women

continued to press on in their work and celebrate the many successes of programs they have

helped to implement. While 2016 was not without its challenges, these were outshined by

achievements in every one of USDA’s mission areas on behalf of the American people. We

saw record amounts of credit and support delivered to America’s farmers and ranchers, the

lowest child food insecurity rates on record, and booming local and regional and organic sales,

to name several.

Our efforts not only supported the most productive agricultural sector in the world, but also

helped rural communities become places where businesses, farm and non-farm alike, prosper

and create jobs. Even as commodity prices have weakened and farm incomes have decreased,

the rural economy remains strong. Our work to increase trade, grow the bioeconomy,

strengthen local and regional food systems, and expand conservation have resulted in a more

resilient rural economy.

Like urban areas, rural America is continuing to recover from the Great Recession. Median

income for farm households remains near the historic high of 2014—35 percent higher than

median U.S. household income in 2015. Nationally, the real median household income for

middle class Americans saw a record 5.2 percent increase in 2015. While the nonmetro rates of

unemployment still lag behind the metro areas, nonmetro rates have been recovering at about

the same pace, and we know that both are approaching pre-recessional levels of around

5 percent, providing increasing opportunities for farm families. While the population of rural

areas has been flat or declining lately, we also see that the proportion of adults living in rural

ii USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

areas with some college training now exceeds metro areas. Those bode well for rural America,

and we have seen poverty in nonmetro areas falling in 2015 to its lowest point since 2008.

A major component of USDA’s mission is to provide food assistance to America’s most

vulnerable citizens, including children. A September 2016 report by USDA’s Economic

Research Service shows that since President Obama took office, 7.9 million fewer people are

struggling to provide adequate food for themselves or household members. The report also

shows that in 2015, household food insecurity fell 1.3 percentage points from 2014 and

2.2 points from 2011—the peak of the recession. At the same time, very low food security has

dropped to 5 percent from a peak of 5.7 percent. The report showed the lowest figures on

record for food insecurity among children—a major achievement in our country’s efforts to

ensure every child has a safer, healthier future filled with unlimited opportunity.

In 2016, this Administration continued its strong support for the Supplemental Nutrition

Assistance Program (SNAP). SNAP kept at least 4.7 million people, including nearly

2.1 million children, out of poverty in 2014. During the 2014-2015 school year, over 97 percent

of schools successfully met the nutrition standards of the Healthy, Hunger-Free Kids Act by

serving meals with more whole grains, fruits, vegetables, lean protein, and low-fat dairy, and

less sodium and fat. In the first year of nationwide implementation of the Community

Eligibility Provision (CEP), we have also seen progress in reducing the administrative burden

on schools and improving program integrity while increasing the number of low-income

children certified for school meals. About 60 percent of eligible schools in nearly 3,000 school

districts are participating in CEP, reaching more than 8.5 million students.

Over 22 million students participate in free and reduced-price meals during the school year, but

only a fraction are participating in summer meals. Because hunger does not take a vacation

during the summer months when school meals are unavailable, we have expanded the Summer

EBT for Children demonstration pilots over the last 2 years. Rigorous evaluations of Summer

EBT pilots demonstrate how the program effectively reduces food insecurity and improves

nutrition. In tandem, we have expanded summer food programs—serving nearly 4 million

children in the summer of 2015.

Records were also set last year in terms of agricultural trade. In FY 2015, American

agricultural producers achieved $139.7 billion in exports, the third highest year on record and

up 45 percent from FY 2009. Agricultural exports totaled over $911 billion for the period

FY 2009 through FY 2015, the best 7-year stretch in history. The volume and value of

agricultural exports support more than one million American jobs both on and off the farm each

year, a significant part of the estimated 11.5 million jobs supported by exports all across the

country. Agricultural exports support farm income, which translates into more economic

MESSAGE FROM THE SECRETARY iii

activity in rural areas. Each dollar of agricultural exports is estimated to stimulate another

$1.27 in business activity.

USDA’s efforts knocked down trade barriers to U.S. exports in more than 18 countries,

reopening markets to U.S. agricultural exports. In 2015 alone, USDA resolved foreign access

market issues involving U.S. agricultural exports valued at $3.6 billion. In 2016, Saudi Arabian

and Peruvian markets reopened for U.S. beef; the South Korean market reopened for U.S.

poultry; and the South African market reopened for U.S. poultry, pork, and beef.

U.S. agricultural exports to Panama, Colombia, and South Korea grew by nearly 28 percent,

from $7.6 billion in FY 2012, when the trade agreements with those countries first went into

effect, to $9.7 billion in FY 2015, supporting approximately 73,000 American jobs. Following

years of USDA-led technical exchange, the United States and China signed an agreement in

2015 to expand market access for U.S. apples from just two varieties to all U.S.-grown

varieties. The Chinese apple market could be worth nearly $100 million per year to

U.S. producers. U.S. agricultural exports to all U.S. Free Trade Agreement partners grew from

$15.5 billion in 1994 to $57 billion in 2015, a nearly four-fold increase in 20 years.

Closer to home, USDA has established an in-country presence in Cuba to cultivate key

relationships, gain firsthand knowledge of the country’s agricultural challenges and

opportunities, and begin to explore fruitful information exchanges and research collaboration.

To strengthen our bond, USDA also will allow the 22 industry-funded Research and Promotion

Programs and 18 Marketing Order organizations to conduct authorized research and

information exchange activities in Cuba.

USDA has also made significant strides in expanding our domestic markets for agricultural

goods. The growing consumer interest in buying locally produced products has created major

new market opportunities for American farmers, ranchers, and food-related businesses while

opening the doors of USDA to new stakeholders. USDA resources to strengthen local and

regional food systems extend throughout the supply chain, starting with producers, including

new insurance offerings to help diversified operations better manage risk, right-sized loans for

farms of all sizes, financial support for season-extending tools like high tunnels, and innovative

programs to make food safety verification more affordable.

The value of local food sales has grown from $5 billion in 2008, and some industry sources

estimate that sales could hit $20 billion by 2019. Between 2009 and 2015, USDA invested over

$1 billion in more than 40,000 local and regional food businesses and infrastructure projects.

Today, more than 160,000 farmers and ranchers nationwide are tapping into growing consumer

demand by selling their products locally. USDA support has helped to nearly double the

number of food hubs since 2009; and there are now over 8,500 farmers markets nationwide,

an increase of almost 98 percent since 2006.

iv USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

USDA is also helping producers tap into the market for local and regional foods in schools,

which are now serving healthier breakfasts, lunches, and snacks. In the 2013-14 school year

alone, which is the most recent data available, school districts spent nearly $800 million on

locally and regionally sourced food.

Between 2008 and 2015, the number of farmers markets and direct marketing farmers that

accepted SNAP rose from about 750 to almost 6,500. Over $19 million in SNAP dollars was

spent at farmers markets in 2015, up from less than $3 million in 2008. This is a win-win for

both farmers and SNAP participants, and it shows how our investments are simultaneously

improving the health of low-income shoppers and bolstering the incomes of local farmers.

We have also taken significant steps to grow the emerging bioeconomy, which creates new

uses for agricultural products and is bringing manufacturing jobs back to rural America.

Environmentally, the increased use of biobased products currently displaces about 300 million

gallons of petroleum per year—equivalent to taking 200,000 cars off the road. Since 2009,

Rural Development has supported almost 400 biofuel producers with the production of

advanced biofuels through the Bioenergy for Advanced Biofuel Program. Further, the

Department has helped roughly 15,000 rural small businesses, farmers, and ranchers improve

their bottom lines by installing renewable energy systems and energy efficiency solutions.

This focus on renewable energy has resulted in support for the construction of six advanced

biofuels production facilities, over 4,000 wind and solar renewable electricity generation

facilities, and more than 100 anaerobic digesters to help farm operations capture methane to

produce electricity.

In 2015, we made available $100 million in grants under the Biofuel Infrastructure Partnership

(BIP), estimated to nearly double the number of fueling pumps nationwide that supply

renewable fuels, such as E15 and E85, to American motorists. As of 2016, 21 states are

participating in the BIP, with matching funds from state and private partners, providing

$210 million to build nearly 5,000 pumps at over 1,400 fueling stations to strengthen the rural

economy and increase the demand for agricultural commodities used in the production of

biofuels. We are also proud of our effort to partner with the U.S. Department of Energy (DOE)

and the U.S. Department of the Navy to create advanced drop-in biofuels that will power both

the U.S. Department of Defense and private-sector transportation throughout America—which

to date has led to the procurement of 77.7 million gallons of blended drop in biofuel—and with

the Federal Aviation Administration, DOE, and the commercial aviation sector to sustainably

increase the production and use of alternative jet fuel.

Under this Administration, we have added 70 new categories of qualified biobased products to

our catalog for Federal procurement, which includes over 14,000 products. Currently, more

than 2,700 products have received certification to display the USDA Certified Biobased

MESSAGE FROM THE SECRETARY v

Product label, creating and increasing consumer and commercial awareness about a material’s

biobased (new carbon) content as one measure of its environmental footprint. We awarded

funds through the Forest Service’s Wood Innovations Grants Program and the U.S. Tall Wood

Building Prize Competition to support pioneering demonstration projects, business planning,

and research that can advance new markets for mass timber construction that can support the

health and resilience of our forests and our forested communities alike.

Another way that USDA is strengthening the rural economy is by expanding natural resources

conservation. During this Administration, we have enrolled a record number of private working

lands in conservation programs and implemented strategies to restore our forests and clean our

water supply. This has also created significant economic opportunities in the forms of

recreation and improved resilience to withstand major weather events.

A new model for conservation investment established by the 2014 Farm Bill for the Regional

Conservation Partnership Program (RCPP) has allowed USDA to leverage $800 million to

support 115 high-impact conservation projects across the Nation that will improve the nation’s

water quality, support wildlife habitat, and enhance the environment. In addition to RCPP,

NRCS addresses water quality conservation concerns through other landscape-scale water

quality conservation initiatives, such as the Great Lakes Restoration Initiative (GLRI). From

2009-2015, over $22 million in GLRI funds were used to install conservation practices on

103,000 acres in the Western Lake Erie Basin.

USDA is experiencing record demand from producers interested in participating in the

Conservation Reserve Program (CRP), which improves water quality, prevents soil erosion,

and strengthens wildlife habitat. The recent general and CRP Grassland sign-ups were the most

selective enrollment periods in CRP’s 30-year history with a record high Environmental

Benefits Index cut-off, ensuring that conservation benefits are being maximized. USDA

accepted 101,000 acres in the first-ever CRP Grasslands enrollment, providing participants

with financial assistance for establishing approved grasses, trees and shrubs on pasture and

rangeland that can continue to be grazed. More than 70 percent of these acres are diverse native

grasslands under threat of conversion, and more than 97 percent of the acres have a new,

military veteran, or underserved farmer or rancher as a primary producer.

Using the authorities provided in the 2014 Farm Bill, we have developed “The Building Blocks

for Climate Smart Agriculture and Forestry” strategy to reduce net emissions and enhance

carbon sequestration by over 120 million metric tons of CO2 equivalent (MMTCO2e) per year

by 2025, while also boosting productivity and resilience in the face of a changing climate.

Conservation programs on private working lands have reduced net greenhouse gas emissions

by over 360 million metric tons since 2009, and through this initiative we will give producers

the tools and resources to continue their global leadership in meeting our climate and food

vi USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

security challenges moving forward. Since the announcement of these building blocks, USDA

and its partners have taken actions to reduce Greenhouse Gas (GHG) emissions and increase

carbon sequestration from agriculture, forests, and rural areas.

Finally, any discussion of conservation and adapting to a changing climate would be

incomplete without USDA’s expressing the need to fix fire budget funding. The frequency and

intensity of wildfire is increasing while the cost of controlling the spread of wildfire is rising,

and the way we pay for fire suppression constrains the agency’s capacity to realize additional

gains through efficiencies and partnerships alone. Planned wildland firefighting (suppression)

activities are currently funded entirely within the U.S. Forest Service budget based on a 10-year

rolling average. Today, the agency spends over half of its budget on fire management activities

and has seen a corresponding 39-percent decline in non-fire staffing since 1998. Left

unchecked, two out of every three dollars appropriated to the Forest Service will be spent on

fire programs in the next 10 years. In addition to the rising costs of fire, when appropriated

resources fall short, as they did in 2015 by $700 million dollars, the Forest Service is forced to

transfer funds from non-fire programs to cover the costs of suppression. These mid to late

season transfers stop projects, cause uncertainty and instability in planning, and impact the

agency’s ability to implement projects. Congress must provide a comprehensive solution that

will address both the growth of fire programs as a percent of the agency’s budget and the

compounding problem of fire transfers.

To create a strong resilient farm economy built around trade, the bioeconomy, local and

regional food systems, and conservation, it was clear that we must have basic investments to set

the stage for growth. To accomplish this, we have made historic investments in rural

communities, making them more attractive to non-farm businesses and talented hard-working

individuals looking for opportunities. In FY 2015 alone, we helped 141,000 rural Americans

become homeowners.

USDA also supports innovation to keep U.S. agriculture competitive. Long-term agricultural

productivity growth relies on innovation through research funded by both the public and private

sectors. Innovations in animal/crop genetics, chemicals, equipment, and farm organization all

result in American farmers producing more with less. I am proud that during my service as

Secretary, we have increased investments in peer-reviewed competitive grants through the

Agriculture and Food Research Initiative (AFRI) from $201.5 million in FY 2009 to

$350 million in FY 2016, while still achieving growth in formula funding to our partner

institutions of higher education.

However, over the past 2 years, the combination of a strengthening dollar and relatively high

global production leading to lower prices for commodities has resulted in large drops in 2015

and 2016 net farm income, relative to the 2011 through 2014 period. USDA expects real net

MESSAGE FROM THE SECRETARY vii

farm income this year to be the lowest since 2009. Demand for farm loans has been increasing,

driven in part by the need to cover operating expenses as commodity prices have fallen more

quickly than costs. As a result, the debt-to-asset ratio for U.S. producers has increased over the

past 2 years, but in aggregate is still near historic lows. While the data suggest that net farm

income remains relatively high by historical standards—for example, the 5-year average of net

farm income since 2014 has ranged between $85 billion (for 2012–2016) to $96 billion (for

2010–2014), the highest levels since the mid-1970’s—and that most farms have a strong

balance sheet and delinquency rates remain lower than the 2005 to 2014 average, it is clear that

financial stress is increasing and that some producers are more exposed to financial risk.

The current conditions are leading to increased uncertainty and concern in rural America, but

the current farm safety net that was created during the last Farm Bill is providing support for

producers. In 2015, government farm program payments totaled about $10.8 billion and are

expected to increase to nearly $13.8 billion in 2016. In addition the crop insurance program

offset more than $6 billion in farm losses in 2015 and is expected to cover more than $9 billion

in 2016.

Last year, USDA enrolled 1.76 million farmers in the new Agriculture Risk Coverage (ARC)

and Price Loss Coverage (PLC) programs by conducting an unprecedented education

campaign. ARC and PLC are a part of the farm-safety net, providing assistance only when

there are year-to-year crop revenue or commodity price downturns. ARC and PLC will provide

more than $7 billion to farmers this year, roughly 10 percent of net farm income as projected by

USDA. In addition, more than half of all dairy farms in the U.S.—over 23,000—have enrolled

in the Margin Protection Program for Dairy (MPP-Dairy). This voluntary program provides

financial assistance to participating farmers when the margin—the difference between the price

of milk and feed costs—falls below the coverage level selected by the producer. In 2015, over

$11 million in payments were made to over 4,600 dairy operations for the May/June payment

period. This is the largest payment for any 2-month period since MPP-Dairy was enacted in

2014.

The 2014 Farm Bill indefinitely extended the Farm Service Agency’s livestock disaster

programs and the Tree Assistance Program. Since the passage of the Farm Bill, these programs

have paid producers over $6 billion dollars to recover from natural disasters, including drought

and wildfires.

USDA has continued to strengthen crop insurance to ensure the program works for all farmers

and ranchers. The Risk Management Agency (RMA) has expanded access to crop insurance

options for organic and specialty crop producers through new and innovative programs,

including the Whole-Farm Revenue Protection policy, and coverage options that allow organic

farmers to protect their products at the market value. The number of crops eligible for organic

viii USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

premium pricing went from four in 2011 to 57 for the 2016 crop year. The number of acres

insured by organic producers grew from 576,700 in 2009 to 1.1 million in 2016. The new

Whole-Farm Revenue plan is being offered in all counties in the United States in 2016. In

addition, RMA has worked to ensure that new crop insurance programs from the 2014 Farm

Bill are available for as many crops as possible. The Supplemental Coverage Option (SCO) is

now available for 58 crops, and the Actual Production History Yield Exclusion is available for

50 crops. The Stacked Income Protection Plan for Producers of Upland Cotton (STAX) is

currently available for every county that has a crop insurance policy for cotton. Peanut Revenue

Protection is available in every county with peanut coverage, and Margin Protection Insurance

is available for wheat, corn, rice, and soybeans in select counties. Finally, the new and

beginning farmers and ranchers incentives authorized in the 2014 Farm Bill make crop

insurance more affordable for beginning farmers and ranchers by providing a 10-percent

premium discount, on top of the premium subsidy all producers receive, as well as a waiver of

the catastrophic and additional coverage of administrative fees. Over 13,500 producers have

taken advantage of these incentives and saved around $14.5 million annually in premiums and

administrative fees because of the incentives.

USDA worked with crop insurance companies to educate farmers and ranchers about the new

conservation compliance requirements in the 2014 Farm Bill, and as a result, over 98 percent of

Federal crop insurance participants provided the documentation necessary to comply with those

requirements and maintain their benefits.

Access to credit remains a critical issue for producers, in particular for small and beginning

farmers and ranchers. Since 2009, USDA has provided approximately 276,000 loans totaling

over $39.5 billion to farmers and ranchers. In 2016 alone, FSA has made over 28,000 direct

loans and nearly 10,000 guaranteed loans for a record loan volume of nearly $6.2 billion.

While the Farm Bill has resulted in a strong safety net for producers, the Department has also

utilized other existing authorities to provide assistance to producers when possible. We have

used the Commodity Credit Corporation’s (CCC’s) statutory authority to implement the Cotton

Ginning Cost-Share (CGCS) program, which is providing needed assistance to financially

stressed cotton producers. Through the CGCS program, eligible producers receive a one-time

cost share payment to expand and maintain the domestic marketing of cotton. The program has

provided about $328 million to assist cotton producers. We approved more than $320 million in

section 32 purchases that have the dual benefits of helping producers and providing nutritious

foods to those in need, including a $20 million cheese buy to assist the dairy industry.

The Department’s management team continues to oversee USDA’s assessment of internal

control over its programs, operations, financial systems, and financial reporting. The

Department’s work is consistent with the provisions of the Federal Managers’ Financial

MESSAGE FROM THE SECRETARY ix

Integrity Act (FMFIA) and the Federal Financial Management Improvement Act (FFMIA).

USDA’s continuous monitoring and remediation efforts allow us to provide taxpayers with

reasonable assurance that this report is based on sound, accurate data.

Despite USDA's many successes, continued improvement is needed to remediate the

Department existing material weakness and financial system noncompliance. To accomplish

this goal, management continues to implement corrective action plan activities. Therefore, I

provide a modified statement of assurance that, except for the areas in need of improvement as

described in the Management Assurances section of this report, USDA’s internal control over

operations, financial systems, and financial reporting meets the objectives of FMFIA and

FFMIA. The financial and performance information presented herein is complete and accurate,

and is in accordance with law and Office of Management and Budget guidance.

USDA is often referred to as “the People’s Department,” and this past year the men and women

who are employed here have delivered record service that has impacted every single American

in some way. While my time as Secretary is coming to a close, I am confident that all

Americans, especially those in rural communities, will continue to see results from this

dedicated team for years to come.

Thomas J. Vilsack

Secretary of Agriculture

December 5, 2016

SECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 1

Section I

Management’s Discussion

and Analysis

About USDA

President Abraham Lincoln founded the U.S. Department of Agriculture (USDA) in 1862 with

the goal of providing effective leadership to the Nation on food, agriculture, natural resources,

and related issues. Since 1862, the dedicated public servants at USDA help millions of

Americans every day. As Americans, you are part of the USDA story that has had a tradition of

excellence in public service for over 150 years.

We would like you to learn more about USDA and the Agencies and Offices that touch every

American, every day. More information about the Department, our history, and our leaders can

be found at www.usda.gov.

Mission Statement

We provide leadership on food, agriculture, natural resources, rural development, nutrition, and

related issues based on sound public policy, the best available science, and efficient

management.

Vision Statement

To expand economic opportunity through innovation, helping rural America to thrive; to

promote agriculture production sustainability that better nourishes Americans while also

helping feed others throughout the world; and to preserve and conserve our Nation’s natural

resources through restored forests, improved watersheds, and healthy private working lands.

2 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Core Values

Our success depends on the following:

• Transparency—Making the Department’s management processes more open so that the

public can learn how USDA supports Americans every day.

• Participation—Providing opportunities for USDA constituents to shape and improve

services provided by the Department.

• Collaboration—Working cooperatively at all governmental levels domestically and

internationally on policy matters affecting a broad audience.

• Accountability—Ensuring that the performance of all employees is measured against the

achievement of the Department’s strategic goals.

• Customer Focus—Serving USDA’s constituents by delivering programs that address

their diverse needs.

• Professionalism—Building and maintaining a highly skilled, diverse, and compassionate

workforce.

• Results Oriented—Measuring performance and making management decisions in order

to direct resources to where they are used most effectively.

SECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 3

USDA Organization Chart

Level 1:

Secretary

Level 2:

Deputy Secretary

Level 3:

Chief

Economist

Director,

National

Appeals

Division

Office of Small

and

Disadvantaged

Business

Utilization

Director of

Communications

Inspector

General

Office of

Tr

ibal

Relations

Gene

ral

Counsel

Office

of the

Chief

Financial

Officer

Office of

Budget

and

Program

Analysis

Assistant

Secretary for

Congressional

Relation

s

Assistant

Secretary for

Administration

Assistant

Secretary for

Civil Rights

Sub-level 3, under the Assistant Secretary for Administration:

Chief

Information

Officer

Level 4

Under Secretary for

Natural Resources and

Environment

• Forest Service

• Natural Resources

Conservation S

ervice

Under Secretary for

Farm and Foreign

Agricultural Services

• Fa

rm Service Agency

• Foreign Agricultural

Service

• Risk Ma

nagement

Agency

Under Secretary for

Rural Development

• Rural Utilities

Service

• Rural Housing Service

• Rural Busi

ness

Cooperative Service

Under Secretary for

Food, Nutrition, and

Consumer Serv

ices

• Food and Nutrition

Service

• Center for Nutrition

Policy an

d Promotion

Under Secretary for

Food Safety

• Food Safety and

Inspection Servi

ce

Under Secretary for

R

esearch, Education, and

Economics

• Agricul

tural Research

Service

• National Institute of

Foo

d and Agriculture

• Economic Research

Service

• National Agricultural

Statistics Service

Under Secretary for

Marketing and

Regulatory Programs

• Agricult

ural

Marketing Service

• Animal and Plant

Health Ins

pection

Service

• Grain Inspection

Packers and

Stockyards

Administration

4 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

USDA Mission Areas

The U.S. Department of Agriculture’s (USDA) work is organized by mission areas, which are

collections of agencies that work together to achieve USDA’s strategic goals. A brief

description of USDA’s seven mission areas follows and may be found at: USDA Mission

Areas.

Farm and Foreign Agricultural Services (FFAS)

Farm and Foreign Agricultural Services helps to keep America’s farmers and ranchers in

business as they face the uncertainties of weather and markets. FFAS delivers commodity,

credit, conservation, disaster, and emergency assistance programs that help improve the

stability and strength of the agricultural economy. The agencies under FFAS are as follows:

• Farm Service Agency (FSA)

o Commodity Credit Corporation (CCC)

• Foreign Agricultural Service (FAS)

• Risk Management Agency (RMA)

o Federal Crop Insurance Corporation (FCIC)

Food, Nutrition and Consumer Services (FNCS)

Food, Nutrition and Consumer Services works to harness the Nation’s agricultural abundance

to end hunger and improve health in the United States. It administers Federal domestic nutrition

assistance programs. The Center for Nutrition Policy and Promotion, which links scientific

research to the nutritional needs of consumers through science-based dietary guidance, nutrition

policy coordination, and nutrition education.

• Center for Nutrition Policy and Promotion (CNPP)

• Food and Nutrition Service (FNS)

Food Safety

The Office of Food Safety ensures that the Nation’s commercial supply of meat, poultry, and

egg products is safe, wholesome, and properly labeled and packaged. This mission area also

plays a key role in the President’s Council on Food Safety and has been instrumental in

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 5

coordinating a national food safety strategic plan among various partner agencies including the

Department of Health and Human Services and the Environmental Protection Agency.

• Food Safety and Inspection Service (FSIS)

Marketing and Regulatory Programs (MRP)

Marketing and Regulatory Programs facilitates domestic and international marketing of

U.S. agricultural products and ensures the health and care of animals and plants. MRP agencies

are active participants in setting national and international standards, and include as follows:

• Agricultural Marketing Service (AMS)

• Animal and Plant Health Inspection Service (APHIS)

• Grain Inspection, Packers, and Stockyards Administration (GIPSA)

Natural Resources and Environment (NRE)

Natural Resources and Environment ensures the health of the land through sustainable

management. Its agencies work to prevent damage to natural resources and the environment,

restore the resource base, and promote good land management.

• Forest Service (FS)

• Natural Resources Conservation Service (NRCS)

Research, Education, and Economics (REE)

Research, Education, and Economics is dedicated to the creation of a safe, sustainable,

competitive U.S. food and fiber system, as well as strong communities, families, and youth

through integrated research, analysis, and education. These agencies include as follows:

• Agricultural Research Service (ARS)

• Economic Research Service (ERS)

• National Agricultural Statistics Service (NASS)

• National Institute of Food and Agriculture (NIFA)

• National Agricultural Library (NAL)

6 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Rural Development (RD)

Rural Development is committed to helping improve the economy and quality of life in all of

rural America by providing financial programs to support essential public facilities and services

such as water and sewer systems, housing, health clinics, emergency service facilities, and

electric and telephone service. Rural Development promotes economic development by

providing loans to businesses through banks and community-managed lending pools, while also

assisting communities to participate in community empowerment programs.

• Rural Housing Service

• Rural Utilities Service

• Rural Business Cooperative Service

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 7

Strategic Plan and Program Performance

USDA Performance, Goals, and Results FY 2016

The U.S. Department of Agriculture’s (USDA) mission is to provide leadership on food,

agriculture, natural resources, rural development, nutrition, and related issues based on sound

public policy, the best available science, and efficient management. Through implementing our

mission, the Department aspires to achieve five strategic goals as reflected in USDA’s

2014–2018 Strategic Plan:

• Assist rural communities to create prosperity so they are self-sustaining, re-populating,

and economically thriving;

• Ensure our national forests and private working lands are conserved, restored, and made

more resilient to climate change, while enhancing our water resources;

• Help America promote agricultural production and biotechnology exports as America

works to increase food security;

• Ensure that all of America’s children have access to safe, nutritious, and balanced meals;

and

• Create a USDA for the 21st century that is high-performing, efficient, and adaptable.

USDA has also established five Agency Priority Goals (APGs) for fiscal years (FY) 2016 and

2017 that identify near-term goals to help USDA progress toward meeting our longer term

strategic goals and objectives. USDA’s APGs are as follows:

• Access and Opportunity for Beginning Farmers and Ranchers;

• Soil Health and Sustainability;

• Increasing assistance for rural, persistent poverty communities;

• Pollinator Habitat Health; and

• Increased food security and diet quality.

More information and reports on the APGs and quarterly progress can be found at

https://www.performance.gov/agency/department-agriculture?view=public#apg.

For purposes of the AFR, a performance summary is provided using the Department’s key

performance indicators as a mechanism to gauge progress in achieving priorities, goals, and

8 USD A F I SC AL Y E AR 2 0 1 6 AGENC Y F INANC I AL R EPORT

strategic objectives. In FY 2016, USDA had 38 key performance indicators, as reflected in the

Department’s FY 2016 Annual Performance Plan

(https://www.obpa.usda.gov/budsum/fy16budsum.pdf).

The following tables and discussion provide a high-level description of key focus areas for the

Department that are being tracked and managed through USDA’s performance management

process, in alignment with the Department’s strategic goals and objectives. The tables provide

key performance indicator historical results, and includes FY2016 preliminary results

indicating anticipation in meeting/not meeting performance targets.

Final performance information and a detailed discussion of results for the Department’s

FY 2016 performance goals, assessment methodologies, metrics, external reviews, and

documentation of performance data will be presented in the FY 2016 USDA Annual

Performance Report. The report is planned to be released with the President’s 2018 budget in

February and will be available on the USDA Performance Improvement and Accountability

website.

The data used by the Department to measure performance is collected using standardized

methodology. This methodology has been vetted by federally employed scientists and

policymakers, and, ultimately, the leadership and Under Secretaries of each respective mission

area. All attest to the completeness, reliability, and quality of the data.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 9

GOAL #1: RURAL PROSPERITY

A vibrant American economy depends on a prosperous rural America. Our four primary pillars

of economic opportunity in agriculture are: 1) exports, 2) local food systems, 3) conservation

and outdoor recreation, and 4) enhancing the bio-based economy. USDA is making an impact

on persistent poverty, out-migration, and rural income through increases in the number of

homeownership opportunities provided in rural communities and the percentage of direct and

guaranteed lending to beginning farmers.

Exhibit 1: USDA Strategic Plan Goal #1 – Rural Prosperity Key Performance Indicators

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Number of jobs created

or saved through USDA

financing of businesses

52,468 44,419 41,202 52,697 40,877 Met

Homeownership

opportunities provided

153,027 170,055 146,388 141,314 173,150 Unmet

1

Health Facilities:

Percentage of customers

who are provided access

to new and/or improved

essential community

facilities

7.3% 5.4% 6.8% 12.0% 4.5% Met

1

Direct Program obligations exceeded FY 2016 early year expectations. In response to strong

program demand, the agency utilized the Secretary’s 7-percent interchange authority to

increase program funding and provide homeownership opportunities for an additional 430 low-

and very low- income rural borrowers. Guaranteed program obligations fell short of projections

due to multiple market and program factors including: continuing weakness in the refinance

market; lenders’ adjustment to new Truth in Lending Act and Real Estate Settlement

Procedures Act Integrated Disclosure (TRID) rules; the reduction in program-eligible areas

caused by the recent Farm Bill adjustment to the rural definition population limit; and most

importantly, limited inventory in the lower-priced end of the housing market. As a result of the

Guaranteed program shortfall, Rural Development did not provide 129,862 new single family

housing homeownership opportunities, which was the lower bound of its target range, and

therefore, did not meet target expectations. The program is projecting demand to increase in

FY 2017, with the introduction of lower origination fees, a new construction loan product, and

increased outreach to underserved areas.

10 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Safety Facilities:

Percentage of customers

who are provided access

to new and/or improved

essential community

facilities

3.7% 3.4% 3.7% 7.2% 2.7% Met

Educational Facilities:

Percentage of customers

who are provided access

to new and/or improved

essential community

facilities

6.4% 9.3% 6.2% 7.9% 4.5% Met

Number of

borrowers/subscribers

receiving new and/or

improved electric

facilities (millions)

8.3 8.7 4.6 5.5 5.1 Met

Number of

borrowers/subscribers

receiving new or

improved

telecommunications

services (millions)

.06 .12 .084 .095 .120 Unmet

2

Number of population

receiving new or

improved service from

agency funded water

facilities (millions)

2.5 1.8 2.2 2.4 2.2 Met

2

In March 2016, The Federal Communications Commission released a Report and Order, Order

and Order on Reconsideration, and Further Notice of Proposed Rulemaking, reforming the

universal service program for rate-of-return carriers. The order made a number of changes to

the mechanisms that provide substantial revenue to rate-of-return carriers. All existing loan

applications had to be held until applicants provided information that took into consideration

the impact of the Order on the feasibility of the loan request. This added about 2 to 3 months

to the loan processing time, thereby having to carry over some loans to complete in FY 2017.

Of the 22 loans processed, 8 applications were not feasible thereby reducing the number of

new subscribers. Loan demand is trending higher, however since as many as 15 applications

were received towards the end of the fiscal year the processing will be completed in FY 2017

and if approved the associated subscribers will be counted in FY 2017.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 11

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Value of agricultural

exports resulting from

participation in foreign

food and agricultural

trade shows ($ In Billions)

$1.46 $1.48 $1.50 $1.52

3

$1.55 Met

Percentage of Direct and

Guaranteed lending to

Socially Disadvantaged

Farmers (SDA)

13.30% 13.60% 14.20% 15.00% 14.00% Met

Percentage of Direct and

Guaranteed lending to

Beginning Farmers (BF)

68.80% 70% 79.2% 85.6% 76.5% Met

Normalized value of risk

protection provided to

agricultural producers

through the Federal Crop

Insurance Program

($ In Billions)

$62.10 $66.00 $67.90 $68.7 $63.3 Met

Value of trade preserved

annually through USDA

staff intervention leading

to resolution of foreign

market access issues such

as U.S. export

detainment, restrictive

Sanitary/ Phytosanitary or

Technical Barrier to Trade

issues and trade

regulations ($ In Billions)

$3.70 $3.80 $6.40 $3.6 $4.1 Met

3

The 2015 actual result shown on the FY 2015 Agency Financial Report was reported

incorrectly, this report reflects the corrected 2015 actual results.

12 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

GOAL #2: RESOURCE CONSERVATION, RESTORATION, AND RESILIENCY

A healthy and prosperous America relies on the health of our natural resources, and particularly

our forests and agricultural working lands. Forests and other lands absorb approximately

14 percent of U.S. carbon dioxide emissions. To help improve the health of our natural

resources, USDA has worked to increase the annual acres of public and private forest lands

which are being restored or enhanced and to increase the percentage of national forests and

grasslands in compliance with a climate change adaption and mitigation strategy.

Exhibit 2: USDA Strategic Plan Goal #2 – Resource Conservations, Restoration, and Resiliency

Key Performance Indicators

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Conservation Reserve Program

(CRP) restored wetland acreage

(millions of acres)

2.29 2.09 2.00 1.93 1.9 Met

Conservation Technical

Assistance (CTA) land with

conservation applied to

improve water quality (millions

of acres)

N/A N/A 18.2 18.1 17.9 Unmet

4

CTA cropland with conservation

applied to improve soil quality

(millions of acres)

N/A N/A 6.2 6.0 5.9 Met

CTA grazing and forest land

with conservation applied to

protect and improve the

resource base (millions of

acres)

N/A N/A 13.1 13.1 13.0 Unmet

5

4

The minor shortfall was due primarily to the fact that new hiring has only recently caught up

with attrition. New hires take some time to be productive. Only in FY2016 did hiring finally

exceed attrition.

5

The minor shortfall was due primarily to the fact that new hiring has only recently caught up

with attrition. New hires take some time to be productive. Only in FY2016 did hiring finally

exceed attrition.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 13

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Environmental Quality

Incentives Program (EQIP) land

with conservation applied to

improve water quality (millions

of acres)

N/A N/A 12.3 12.7 12.0 Unmet

6

EQIP cropland with

conservation applied to

improve soil quality (millions of

acres)

N/A N/A 3.1 3.0 3.0 Met

EQIP grazing land and forest

land with conservation applied

to protect and improve the

resource base (millions of

acres)

N/A N/A 14.8 13.9 13.9 Met

EQIP non-Federal land with

conservation applied to

improve fish and wildlife

habitat quality (millions of

acres)

N/A N/A 1.4 1.4 1.1 Met

Annual acres of public and

private forest lands restored or

enhanced (millions of acres)

2.57 2.533 2.91 3.10 2.9 Met

Volume of timber sold (billion

board feet)

2.644 2.610 2.831 2.867 3.2 Met

Percentage of National Forests

and Grasslands in compliance

with a climate change

adaptation and mitigation

strategy

36% 49% 64% 89% 100% Met

Percentage of National Forests

and Grassland watersheds in

properly (class 1 watersheds)

functioning condition

52% 52% 52% 52% 52% Met

6

The minor shortfall was due primarily to various factors that contributed to a delay in

conservation implementation of some very large tracts of land initially planned for application

in FY 2016. These acres are now scheduled for FY 2017 and FY 2018.

14 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Acres of Wildland Urban

Interface hazardous fuels

treated to reduce the risk of

catastrophic wildfire (millions of

acres)

1.867 1.737 1.725 1.577 1.800 Met

GOAL #3: INCREASED EXPORTS AND GLOBAL FOOD SECURITY

Working with other Federal partners, USDA is working toward reducing global food insecurity

and increasing agriculture-led economic growth in developing countries. The Department

continues to seek new trade opportunities for American agricultural producers and is also

striving to bring products with new and emerging technologies to the worldwide marketplace.

In addition, USDA is focused on improving efforts to reduce food insecurity across the world

by providing technical assistance to people in food-insecure countries.

Exhibit 3: USDA Strategic Plan Goal #3 – Increased Exports and Global Food Security

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Cumulative number of

biotechnology products

deregulated by USDA

based on scientific

determinations that they

do not pose a plant pest

risk to agriculture

93 102 109 117 122 Met

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 15

GOAL #4: SAFE AND NUTRITIOUS FOOD

A plentiful supply of safe and nutritious food is essential to the healthy development of every

child in America and to the well-being and productivity of every family. Over the past 4 years,

USDA’s food assistance programs have contributed to a steady decrease in the prevalence of

food insecurity in households with children. Regarding USDA’s Food Safety and Inspection

Service (FSIS)-regulated meat, poultry, and processed egg products, USDA also saw that the

estimated illnesses attributed to the FSIS regulated products decreased by 12 percent from

FY 2009 to FY 2015.

Exhibit 4: USDA Strategic Plan Goal #4 – Safe and Nutritious Food

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Prevalence of food

insecurity in households

with children

20% 19.5% 19.2% 16.6% 18.8% Deferred

7

Annual percentage of

eligible people

participating in SNAP

83% 85% 85% N/A 85.0% Deferred

8

SNAP payment accuracy

rate

96.6% 96.8% 96.3% N/A 96.3% Deferred

9

SNAP benefits redeemed

at farmers markets and

direct marketing farmers

annually (millions)

$16.60 $ 17.5 $ 18.8 $19.4 $ 20.00 Deferred

10

Annual percentage of

eligible people

participating in the

National School Lunch

Program

57.6% 55.7% 54.8% 55.4% 56.8% Met

11

7

The actual measure for 2016 will be released in September 2017.

8

FY 2016 data will be available in 2018.

9

FY 2016 data will be available in 2018.

10

FY 2016 data will be available in 2017.

11

Rationale for Met Range: Thresholds for 4.1.2 reflect the margin of error in forecasts of

future participation, estimated at 5 percent for school meals programs. This reflects the

pattern of variance between actual and target performance for both programs during the past

5 years. For FY 2016, this percentage range allows for actual performance that meets the

targets in the range of 54.0-59.6 percent.

16 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Annual percentage of

children participating in

the free/reduced price

school lunch program

that participate in

summer feeding

programs

15.5% 16.3% 17.5% 17.1% 17.2% Deferred

12

Increase percentage of

broiler plants passing the

carcass Salmonella

Verification Testing

Standard

90% 90% 92% 96% 95% Unmet

13

Percentage of

establishments with a

functional food defense

plan (annual measure)

77% 83% 84% 85% 90% Unmet

14

Total illnesses from all

FSIS products

479,621 427,171 386,265 382,123 363,547 Unmet

15

12

Initial reports for 2016 will be available in December 2016.

13

While FSIS did not meet the FY2016 target for the percent of broiler establishments passing

the carcass Salmonella verification testing standard, the overall percent of establishments’

passing the standard has risen consistently over the past 5 years, and in Q4, FSIS failed to meet

the target as a result of just 2 establishments not meeting the target.

14

While FSIS did not meet the FY2016 target for voluntary adoption of food defense plans, it

has seen a 34% increase since 2006. FSIS will continue to focus on small and very small

establishments, which represent a majority of those that have not adopted a plan, and will also

focus on assessing to what extent all establishments have good practices in place.

15

FSIS set illness reduction targets for FY2020 with the goal of achieving ambitious Healthy

People 2020 targets. FSIS did not achieve the FY2016 All Illness target; however, FSIS did meet

its E. coli O157:H7 and Lm targets. FSIS did not meet these targets in FY16 because the data

used to determine illnesses attributable to FSIS regulated products—CDC outbreak data from

2011-2013—excluded a very large outbreak in FDA-regulated shell eggs, and included a large

outbreak in FSIS regulated chicken products. As our current methodology includes only 3 years

of data, large outbreaks coming into or falling out of the dataset highly influences the

attribution estimates.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 17

GOAL #5: DEPARTMENTAL MODERNIZATION

Through its Blueprint for Stronger Service, USDA is building and implementing a modern

workforce, and exercising good stewardship of the resources entrusted to the Department.

During FY 2016, USDA implemented policies to achieve a more efficient use of funds through

decreases in the amount of leased office and warehouse space controlled by USDA and to build

a more effective workforce through process improvements and increased use of telework.

Exhibit 5: USDA Strategic Plan Goal #5 – Departmental Modernization

Fiscal Year

2012

Actual

2013

Actual

2014

Actual

2015

Actual

2016

Target

2016

Preliminary

Number of employees

participating in core

telework

7,926 9,723 10,455 11,798 12,000 Met

Amount of leased

office and warehouse

space controlled by

USDA (millions of

square feet)

26 25.6 24.9 23.9 23.7 Met

18 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Future Demands, Risks, Uncertainties,

Events, Conditions, and Trends

Farmers and ranchers operate in highly competitive markets, both domestically and

internationally. Rapid shifts in consumer demands associated with quality, convenience, taste,

and nutrition dictate that farming, ranching, and marketing infrastructures become more fluid

and responsive. National security is a significant, ongoing priority for the U.S. Department of

Agriculture (USDA). USDA science research, education, and extension will continue to be the

foundation for understanding developments and making advances in solving agricultural and

societal challenges. USDA is working with the U.S. Department of Homeland Security to help

protect agriculture from intentional and accidental acts that might impact America’s food

supply or natural resources.

External factors that challenge USDA’s ability to achieve its

goals include the following:

• Weather-related hardships, including disasters related to the increasing intensity and

duration of extreme weather and climate change, both domestically and internationally;

• The risk of catastrophic fire, depending on weather, drought conditions, and the expanding

number of communities in the wildland-urban interface;

• Non weather-related hardships and other uncontrollable events, both domestically and

internationally;

• Domestic and international macroeconomic factors, including consumer purchasing

power, the strength of the U.S. dollar, and political changes abroad that could impact

domestic and global markets greatly at any time;

• Sharp fluctuations in farm prices, interest rates, and unemployment that could impact the

ability of farmers, other rural residents, communities, and businesses to qualify for credit

and manage debt;

• The impact of future economic conditions and actions by a variety of Federal, State, and

local Governments that could influence the sustainability of rural infrastructure;

• The increased movement of people and goods, which provides the opportunity for crop

and animal pests and diseases to move quickly across domestic and international

boundaries; and

•

Potential exposure to hazardous substances, which may threaten human health as well as

the environment, and the ability of the public and private sectors to collaborate effectively

on food safety, security, and related emergency preparedness efforts.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 19

Analysis of Financial Information and

Highlights

Balance Sheet

TOTAL ASSETS

Total assets for FY 2016 were $228 billion. The following exhibit presents FY 2016 total

assets.

Exhibit 6: Total Assets ($ In Billions)

55%

43%

1% 1%

Fund Balance with Treasury - $125

Direct Loan and Loan Guarantees,

Net - $99

General Property, Plant and Equipment,

Net - $3

Accounts Receivable, Net - $1

Direct Loan and Loan Guarantees, Net, is one of the largest assets on the USDA Balance Sheet.

RD offers both direct and guaranteed loan products for rural housing and rural business

infrastructure. These products represent 87 percent of the total Department loan programs.

Loan programs administered by FSA represent 10 percent of the total. FSA supports farmers

who are temporarily unable to obtain private, commercial credit. The remaining 3 percent

represents commodity loans and credit programs administered by the CCC. These loans are

used to improve economic stability and provide an adequate supply of agricultural

commodities. CCC credit programs provide international food assistance, expand international

markets, and provide domestic low cost financing to protect farm income and prices.

20 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

The following exhibit presents significant changes in total assets.

Exhibit 7: Significant Changes in Assets ($ In Billions)

0

2

4

6

8

10

12

Fund Balance with Treasury

$11

The increase in Fund Balance with Treasury was primarily due to a $5 billion increase at FNS

for SNAP and a $5 billion increase at RD for the Guaranteed Single Family Housing program.

TOTAL LIABILITIES

Total liabilities for FY 2016 were $174 billion. The following exhibit presents FY 2016 total

liabilities.

Exhibit 8: Total Liabilities ($ In Billions)

70%

25%

2%

1%

Debt $122

Other $44

Benefits Due and Payable $4

Accounts Payable $2

Loan Guarantee Liability $1

Federal Employee and $1

Veteran Benefits

Debt is the single largest liability on USDA’s balance sheet. It represents amounts owed

primarily to Treasury by CCC, FSA and RD. For CCC, the debt primarily represents financing

for price support, export credit guarantees, disaster programs and loans related to farm storage

facilities. For FSA, the debt primarily represents financing to support direct and guaranteed

loan programs, with the majority supporting operating, ownership, and emergency loans. For

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 21

RD, the debt primarily represents financing to support electric and housing loan programs.

The following exhibit presents significant changes in total liabilities.

Exhibit 9: Significant Changes in Total Liabilities ($ In Billions)

-4

-2

0

2

4

6

8

10

Loan Guarantee

Liability Debt Other Liabilities

-$4

$7

$10

Loan Guarantee Liability decreased primarily due to Guaranteed Rural Housing at RD. Debt

increased $7 billion at CCC primarily due to ARC and PLC. Other Liabilities increased

$6 billion primarily due to Guaranteed Rural Housing at RD and $4 billion at CCC due to

ARC, PLC and the Conservation Reserve Program.

Stewardship Investments (Unaudited)

Stewardship investments are substantial investments made by the Federal Government for the

benefit of the Nation but are not physical assets owned by the Federal Government. When

incurred, they are treated as expenses in determining the net cost of operations. However, these

items merit special treatment so that users of Federal financial reports know the extent of

investments that are made for long-term benefit. Such investments are measured in terms of

expenses incurred for non-Federal physical property, human capital, and research and

development. The following exhibit presents stewardship investments.

Exhibit 10: Stewardship Investments ($ In Millions)

$0

$500

$1,000

$1,500

$2,000

$2,500

Non-Federal Physical

Proper ty Human Capital

Researc h and

Development

$45

$694

$2,257

FY2016

22 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Statement of Assurance

The U.S. Department of Agriculture (USDA) is providing modified

assurance that USDA’s systems of internal control comply with the

Federal Managers’ Financial Integrity Act (FMFIA) objectives.

USDA’s systems of internal control meet the objectives of the FMFIA

and the Federal Financial Management Improvement Act (FFMIA),

with the exception of two material weaknesses in internal control, one

financial system non-conformance, and two instances of non-

compliance with laws and regulations. Management is providing

reasonable assurance that the internal controls over operations are

effective. The details of the exceptions are provided in the FMFIA, FFMIA, and Summary of

Financial Statement Audit and Management Assurances sections of this report.

USDA assessed its financial management systems and internal controls over the effectiveness

and efficiency of operations and compliance with applicable laws and regulations as of

September 30, 2016, and financial reporting as of June 30, 2016. The assessment included the

safeguarding of assets and compliance with applicable laws and regulations in accordance with

the requirements of Office of Management and Budget (OMB) Circular No. A-123,

Management’s Responsibility for Enterprise Risk Management and Internal Control.

In fiscal year (FY) 2015, the Forest Service identified an Antideficiency Act (ADA) violation

for FY 1990 through FY 2009 under 31 United States Code (U.S.C.) § 1341(a)(1). The

violation related to the agency’s employment in California of two citizens of Palau. This use of

Federal appropriations violated a general provision of appropriations acts from FY 1990–2009,

which prohibited the use of appropriations to employ non-U.S. citizens. This ADA violation is

in the process of being reported to Congress and the President.

The Farm Service Agency (FSA) identified an ADA violation under 31 U.S.C. § 1517(a).

In September 2013, OMB approved an apportionment request for $1 million from FSA for the

purchase of guaranteed loans in FY 2014. On February 25, 2014, FSA made several loan

purchases, obligating $1,302,823.57, thus exceeding the apportionment for such purchases.

On March 7, 2014, FSA requested another apportionment to cover the deficiency. OMB

approved the request and apportioned funds on March 31, 2014. FSA’s Farm Loan Operations

Office completed corrective actions to ensure future payments are obligated only within

approved apportionment limits. The ADA violation is in the process of being reported to

Congress and the President.

The Office of Advocacy and Outreach (OAO) identified an ADA violation for FY 2011 under

31 U.S.C. § 1517(a). The Food, Conservation, and Energy Act of 2008, Public Law 110-234

(Farm Bill of 2008) permitted OAO to award up to $19 million in FY 2011 for Outreach and

Assistance for Socially Disadvantaged and Veteran Farmers and Ranchers (Section 2501)

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 23

Grants. OAO exceeded the amount available. The ADA violation is in the process of being

reported to Congress and the President.

In FY 2015, an erroneous transaction was identified associated with the StrikeForce Initiative

funded through transfers from USDA agencies for FY 2010 and 2011. No ADA violation

occurred and all transactions have been corrected.

In FY 2015, The Foreign Agricultural Service (FAS) identified a potential violation of the

ADA that may have occurred in its FY 2009 appropriation. FAS has completed its analyses and

identified the causes of this potential violation. A corrective transaction was processed to clear

the negative cash balances and the U.S. Department of the Treasury (Treasury) and the OMB

approved the transaction on June 30, 2016. Therefore, the FY 2009 appropriation no longer has

a negative cash balance. FAS has requested a final determination on the status of the potential

ADA violation from the Office of the General Counsel.

USDA’s Office of Inspector General determined that improper bank reconciliations were

completed for two ratifications totaling $17,709 on behalf of the Office of the Assistant

Secretary for Civil Rights (OASCR). As a result of the improper reconciliations, two USDA

offices each paid for a procurement contract that should have been charged to OASCR. This

ultimately resulted in OASCR’s FY 2012 appropriation potentially being augmented, which

was considered a possible ADA violation. A review determined that the temporary

augmentation of OASCR’s account, which was corrected with available (unobligated) FY 2012

funds, did not result in an ADA violation. All that was necessary was for the OASCR to correct

the improper charges using the FY 2012 appropriation.

In FY 2016, the Office of the Chief Financial Officer (OCFO) received a determination on four

ADA violations. General Provision (GP) 706 of the Agriculture, Rural Development, Food and

Drug Administration, and Related Agencies Appropriations Act, 2016, Pub. L. 114-113, Div. A

(Dec. 18, 2015), prohibits the USDA from making certain obligations for information

technology (IT) projects without the prior written approval of the Chief Information Officer

(CIO). Specifically, GP 706 states, “none of the funds available to the Department of

Agriculture for information technology shall be obligated for projects, contracts, or other

agreements over $25,000 prior to receipt of written approval by the Chief Information Officer.”

OCFO obligated funds in excess of the $25,000 on four occasions prior to an approved

Acquisition Approval Request (AAR) from the CIO. These violations are in the process of

being reported to Congress and the President.

In FY 2016, Commodity Credit Corporation (CCC) identified a potential ADA violation that

may have occurred in CCC expenditures. Expenditures for CCC interest to Treasury appear to

have exceeded amounts initially apportioned by OMB. CCC expended approximately

$37 million in interest to Treasury, more than the apparently apportioned amount of

$29.9 million; however, there is some question about the apportionment requirements for

interest to Treasury. FSA will seek further review of the legal authority of CCC with respect to

the apportionment requirements with the Office of the General Counsel in conjunction with the

Office of Management and Budget.

24 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

No other material weaknesses were found in the design or operation of the internal control over

(1) the effectiveness and efficiency of operations and compliance with applicable laws and

regulations as of September 30, 2016, and (2) financial reporting as of June 30, 2016.

Thomas J. Vilsack

Secretary of Agriculture

December 5, 2016

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 25

Federal Managers’ Financial Integrity Act

Report on Management Control

Background

The Federal Managers’ Financial Integrity Act (FMFIA) requires ongoing evaluations of

internal controls and financial management systems. These evaluations lead to an annual

statement of assurance that:

• Obligations and costs comply with applicable laws and regulations;

• Federal assets are safeguarded against fraud, waste, abuse, and mismanagement;

• Transactions are accounted for and properly recorded; and

• Financial management systems conform to standards, principles, and other requirements

to ensure that Federal managers have timely, relevant, and consistent financial information

for decision-making purposes.

The U.S. Department of Agriculture (USDA) evaluated its internal controls in accordance with

Office of Management and Budget (OMB) Circular No. A-123, Management’s Responsibility

for Enterprise Risk Management and Internal Control.

The Department operates a comprehensive internal control program. This program ensures

compliance with the requirements of FMFIA and other laws, and OMB Circular No. A-123,

Appendices A through D. All USDA managers must ensure that their programs operate

efficiently and effectively, and comply with relevant laws. They must also ensure that financial

management systems conform to applicable laws, standards, principles, and related

requirements. In conjunction with the Office of Inspector General and the Government

Accountability Office, USDA’s management works decisively to determine the root causes of

its material weaknesses so that it can direct resources to focus on their remediation.

USDA remains committed to reducing and eliminating the risks associated with its

deficiencies. It also strives to efficiently and effectively operate its programs in compliance

with FMFIA and other applicable laws and regulations.

26 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Fiscal Year 2016 Results

The Department has two existing material weaknesses in internal controls over financial

reporting: information technology and financial management. The material weakness for

financial management is due to improvements needed in accounting and internal controls

related to the Natural Resources Conservation Service (NRCS) and the Commodity Credit

Corporation (CCC). USDA also has one existing system non-conformance related to Funds

Control Management within the CCC, which will be resolved by the end of FY 2019.

The fiscal year 2015 results disclosed that the Federal Crop Insurance Corporation (FCIC) did

not have adequate controls over estimating losses on insurance claims. Similar deficiencies

were not identified during the current year audit. The FY 2015 report also disclosed

improvements were needed in the credit reform subsidy model and the process to assess the

results of the re-estimates for Rural Development's Guaranteed Single Family Housing

program. Again, similar deficiencies were not identified in the current year audit. The FY 2015

material weakness for the credit reform subsidy model has been reassessed as a significant

deficiency for FY 2016.

The Food and Nutrition Service and the Farm Service Agency (FSA) are noncompliant with

laws and regulations related to the Improper Payments Information Act of 2002, as amended by

the Improper Payments Elimination and Recovery Act of 2010 and the Improper Payments

Elimination and Recovery Improvement Act of 2012.

The Secretary’s Statement of Assurance provides modified assurance that USDA’s system of

internal control complies with FMFIA objectives. For additional details on the results reported

in USDA’s Consolidated Financial Statements Audit Report, see the Summary of Financial

Statement Audit and Management Assurances section of this report.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 27

Summary of Outstanding Material Weaknesses

The following exhibit provides FY 2016 accomplishments and FY 2017 planned actions toward

resolving the outstanding material weaknesses.

Exhibit 11: Summary of Outstanding Material Weaknesses

1. USDA Information Technology (IT)

Material Weaknesses

Existing

Pervasive internal control design and operating effectiveness

deficiencies occurred in two areas: logical access control/personnel

security and configuration management. These deficiencies represent

an overall IT material weakness. (Department)

Overall Estimated

Completion Date

FY 2017

FY 2016 Accomplishments: FY 2017 Planned Actions:

 Monitored Plan of Actions and Milestones

(POA&Ms) identified as part of the IT

Material Weakness. Tracked and reported

on progress weekly to USDA leadership,

and ensured proper and full remediation of

weaknesses across the USDA enterprise;

 Performed security assessments to analyze

component agencies’ information

architecture and related processes to

develop a threat profile;

 Performed penetration testing: OCIO

expects the U.S. Department of Homeland

Security (DHS) to continue their scans

under the Binding Operational Directive,

and the Agricultural Security Operation

Center plans to continue integration with

the DHS Continuous Diagnostics Mitigation

program;

 Enhanced centralized configuration

management monitoring tools (Tivoli

Endpoint Manager/BigFix) to monitor

agency assets running specific operating

systems;

 Formalized its internal monitoring

processes into a Standard Operating

Procedure;

The Office of the Chief Information Officer

(OCIO) will:

 Continue to monitor and close outdated

POA&Ms identified as part of the IT Material

Weakness. Track and report on progress

weekly to USDA leadership, and ensure

proper and full remediation of weaknesses

across the USDA enterprise;

 Continue to perform security assessments to

analyze component agencies’

information

architecture and related processes to

develop a threat profile;

 Continue to perform penetration testing:

OCIO expects the U.S. Department of

Homeland Security (DHS) to continue their

scans under the Binding Operational

Directive, and the Agricultural Security

Operation Center plans to continue

integration with the DHS Continuous

Diagnostics Mitigation program;

 Continue to enhance centralized

configuration management monitoring tools

(currently IBM BigFix, formerly known as

Tivoli Endpoint Manager) to monitor agency

assets running specific operating systems;

28 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

1. USDA Information Technology (IT)

Material Weaknesses

Existing

Pervasive internal control design and operating effectiveness

deficiencies occurred in two areas: logical access control/personnel

security and configuration management. These deficiencies represent

an overall IT material weakness. (Department)

Overall Estimated

Completion Date

FY 2017

FY 2016 Accomplishments: FY 2017 Planned Actions:

 Waited on the finalization of the DHS’s

Continuous Diagnostics and Monitoring

(CDM), which will further enhance OCIO’s

configuration management oversight

function and timely coordination with

subcomponents to ensure policy

compliance;

 Enforced Personal Identity Verification

(PIV) / Homeland Security Presidential

Directive (HSPD) 12 mandatory compliance

for privileged and non-privileged users to

meet published FY 2016 Conservation

Activity Plan (CAP) and Federal Information

Security Management (FISMA) goals; and

 Developed additional implementation

guidance for multi-factor authentication

for network and application access.

 Continue to formalize its internal monitoring

processes into a Standard Operating Procedure;

 USDA is waiting on the finalization of the

DHS’s Continuous Diagnostics and

Monitoring (CDM), which will further

enhance OCIO’s configuration management

oversight function and timely coordination

with subcomponents to ensure policy

compliance;

 Continue to further enforce PIV/HSPD12

mandatory compliance for privileged and

non-privileged users to meet published

FY 2017 CAP and FISMA goals; and

 Continue to develop additional

implementation guidance for multi-factor

authentication for network and application

access, as needed.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 29

2. Financial Management — Natural Resources Conservation Service

Material Weakness

Existing

The Natural Resources Conservation Service (NRCS) was unable to

provide sufficient evidential matter in support of certain transactions

and account balances.

In addition, improved accounting and controls are needed over

expenses.

Overall Estimated

Completion Date

FY 2017

FY 2016 Accomplishments: FY 2017 Planned Actions:

NRCS:

 Reviewed the results of supporting

obligation balances that include referenced

accruals;

 Developed and issued formal instruction for

entering accruals that reference an

obligation;

 Reconciled feeder systems (financial

assistance, contracts, travel, etc.) with the

financial system; and

 Engaged with an external firm to perform

100% review of all direct entry documents

and any feeder system documents where

reconciliation is not practical.

NRCS will:

 Monitor the activity of upward and

downward adjustments to ensure balances

are appropriate.

 Monitor open obligations to ensure they are

recorded and liquidated timely.

 Enhance policy and control procedures for

period end accruals.

30 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

2. Financial Management – Commodity Credit Corporation

Material Weaknesses

Existing

The Commodity Credit Corporation (CCC) needs to address material

weaknesses identified in the following areas: Financial Reporting,

Accounting for Parent/ Child Transactions of the United States

Agency for International Development (USAID), Accounting for

Commodity Certificate Exchange (CCE), Accounting for Budgetary

Transactions and Fund Balance with Treasury (FBWT).

Overall Estimated

Completion Date

FY 2017

FY 2016 Accomplishments: FY 2017 Planned Actions:

During FY 2016, CCC:

 Designed and implemented Business

Portfolio Manual to document business

procedures including program accounting

flow and key internal controls;

 Designed and implemented policies,

procedures, and controls to accept, track,

and monitor agreements entered into with

other agencies (customers);

 Reconciled budgetary and proprietary

balances with trading partners;

 Conducted training for the Financial

Management Division staff and managers to

provide an in-depth look at the U.S.

Standard General Ledger and its practical

uses in performing key activities that

ultimately support data integrity and the

agency’s ability to compile complete,

accurate and reliable financial statements;

 Implemented reconciliation processes to

ensure FBWT transactions are timely and

accurately recorded in the general ledger

system;

 Implemented a reconciliation process to

assess and review CCC-related transactions

and balances reported in the USAID general

ledger for FBWT, Accounts Receivable, and

Accounts Payable;

During FY 2017, CCC will:

 Update Standard Operating Procedures

(SOPs), policies, checklists, etc., to

incorporate the requirements for

identifying the need for, preparing,

supporting, validating, reviewing and

recording, and performing look-backs of

accounting estimates;

 Develop effective information and

communication processes to ensure that

policies and procedures related to

programs or events that may give rise to

the recognition of accounting transactions

are consistently communicated and applied

throughout the agency and that technical

accounting issues are identified, analyzed,

and resolved in a timely manner;

 Implement processes, procedures, and

effective controls to enable the timely

preparation of financial statements and

sufficient evidential matter to support

accounting transactions;

 Continue with the execution of the existing

OMB A-123, Appendix A Corrective Action

Plan, Maintaining, Controlling, and

Monitoring the CORE General Ledger by

further improving and enhancing CCC

reconciliations and account analysis;

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 31

2. Financial Management – Commodity Credit Corporation

Material Weaknesses

Existing

The Commodity Credit Corporation (CCC) needs to address material

weaknesses identified in the following areas: Financial Reporting,

Accounting for Parent/ Child Transactions of the United States

Agency for International Development (USAID), Accounting for

Commodity Certificate Exchange (CCE), Accounting for Budgetary

Transactions and Fund Balance with Treasury (FBWT).

Overall Estimated

Completion Date

FY 2017

FY 2016 Accomplishments: FY 2017 Planned Actions:

 Implemented a process to calculate

accruals and advances for CCC funded

USAID grants funded; and

 USAID and CCC revised and signed a

Memorandum of Understanding.

 Expand tie-point analysis process to include

additional training and workshops to

provide expert assistance with

reconciliations, trial balance analytics,

clean-up projects, abnormal balances, and

variances;

 Develop and implement software

modifications to the Commodity Loan

Processing System and Automated Cotton

Reporting System to incorporate CCE

functionality, including providing the

correct accounting entries to CCC’s General

Ledger - CORE which will remediate the

condition;

 Continually refine the accrual and advance

calculation process for USAID grants funded

by CCC; and

 Implement reconciliation process for

unexpended appropriations, cumulative

results of operations, allocation transfers,

unapportioned authority, allotments,

undelivered orders, delivered orders,

expended appropriations, and operating

expenses.

32 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Summary of Outstanding System Non-conformance

Funds Control Management non-conformance is also reported as a system non-compliance, and

is included in the FFMIA Report on Financial Management Systems (Exhibit 12). The

weakness involves component agency-specific deficiencies for CCC.

The following exhibit provides FY 2016 accomplishments and FY 2017 planned actions toward

resolving the Department’s outstanding system non-conformances.

Exhibit 12: Summary of Outstanding System Non-conformance

1. Funds Control Management

System Non-conformance

Existing

System improvements needed in recording obligations at the

transactional level. (CCC)

Non-compliance with Federal Financial Management

Improvement Act of 1996. (CCC)

Overall Estimated

Completion Date

2019

FY 2016 Accomplishments: FY 2017 Planned Actions:

During FY 2016, CCC:

 Continued to modernize program and

financial systems to eliminate the

standing material weakness (MW) and

become substantially compliant with the

Funds Control/Obligation requirements

related to obligations at the transactional

level;

 Implemented standardized

apportionment processes for program

divisions;

 Evaluated and documented all CCC

program’s obligation life cycle;

 Implemented functionality to

automatically de-obligate unliquidated

obligations at time of payment; and

During FY 2017, CCC will:

 Establish Funds Control Levels by Program;

 Develop policy, procedures and systems

functionality to support the budget

execution process for CCC programs;

 Work with Deputy Administrator Farm

Programs and Information Technology

Services Division towards completing

software modifications to ensure all program

applications are in full compliance with the

Funds Control/Obligation Requirements (i.e.,

business events, establishments,

liquidations, adjustments {downward and

upward}, etc.) related to obligations at the

transaction level; and

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 33

1. Funds Control Management

System Non-conformance

Existing

System improvements needed in recording obligations at the

transactional level. (CCC)

Non-compliance with Federal Financial Management

Improvement Act of 1996. (CCC)

Overall Estimated

Completion Date

2019

FY 2016 Accomplishments: FY 2017 Planned Actions:

 Completed the following deployments:

o The new Agriculture Risk Coverage

/Price Loss Coverage software was

integrated with the Common

Obligation Framework to obligate

contracts at a transactional level and

properly sequester funds;

o The Commodity Loan Processing

System to obligate loan Crop Year

2015 and future applications at the

transactional level.

o The Direct Loan System/Farm Storage

Facility Loans Phase 2 that replaces

the CORE Accounting System budget

tables as a funds control mechanism.

 Complete the integration of two "material"

CCC programs (the Non-Insured Crop

Disaster Assistance Program and the

Livestock Indemnity Program) with the

electronic Funds Management System

(eFMS)/County Office (COF) to achieve full

funds control at a transaction level

34 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Compliance with Laws and Regulations

In fiscal year (FY) 2015 the Forest Service identified an Antideficiency Act (ADA), 31 United

States Code (U.S.C.) § 1341 (a) (1), and Government-wide General Provisions § 603 violation

for FY 1990 through FY 2009. The violation related to the agency’s employment in California

of two citizens of Palau. The two Palauan employees did not, in 1990, fall within any of the

categories that would have permitted payment of their salaries using Forest Service

appropriations. In FY 2010, Congress added the following language to the general provision:

“Provided further, That this section shall not apply to any person who is an officer or employee

of the Government of the United States on the date of enactment of this Act.” This proviso

applies to the Palauan Forest Service employees. It has been included in all subsequent

appropriations acts, including the current act for FY 2016. Therefore, payment of the

employees with appropriated funds has not violated the general provision since FY 2010. In

addition, since FY 2010, the general provision has allowed for the Federal employment of

“a person who is lawfully admitted for permanent residence and is seeking citizenship as

outlined in 8 U.S.C. § 1324b(a)(3)(B).” The ADA violation is in the process of being reported

to Congress and the President.

The Farm Service Agency (FSA) identified an ADA violation under 31 U.S.C. § 1517(a). In

September 2013, the Office of Management and Budget (OMB) approved an apportionment

request for $1 million from FSA for the purchase of guaranteed loans in FY 2014. On

February 25, 2014, FSA made several loan purchases, obligating $1,302,823.57, thus exceeding

the apportionment for such purchases. On March 7, 2014, FSA requested another

apportionment to cover the deficiency. OMB approved the request and apportioned funds on

March 31, 2014. FSA’s Farm Loan Operations Office completed corrective action to ensure

future payments are obligated only within approved apportionment limits. This ADA violation

is in the process of being reported to Congress and the President.

The Office of Advocacy and Outreach (OAO) identified an ADA violation for FY 2011 under

31 U.S.C. § 1517(a). The Food, Conservation, and Energy Act of 2008, Public Law 110-234

(Farm Bill of 2008) permitted OAO to award up to $19 million in FY 2011 for Outreach and

Assistance for Socially Disadvantaged and Veteran Farmers and Ranchers (Section 2501)

Grants. OAO exceeded the amount available. The ADA violation is in the process of being

reported to Congress and the President. Also, an erroneous transaction occurred with the

StrikeForce Initiative; however, there was no violation of an ADA.

The Foreign Agricultural Service (FAS) identified a potential violation of the ADA that may

have occurred in its FY 2009 appropriation. FAS has completed its analyses and identified the

causes of this potential violation. The Office of the General Counsel has been requested for a

determination on the status of this potential ADA violation.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 35

USDA’s Office of Inspector General investigated the Office of the Assistant Secretary for Civil

Rights (OASCR) to determine whether (1) expenditures were properly supported by

documentation, (2) unauthorized commitments were properly ratified by the Office of

Procurement and Property Management, and (3) whether there was adherence to Federal legal

authorities and Departmental regulations. The appropriate accounting adjustments have been

completed, and no ADA violation occurred. The OASCR had sufficient FY 2012 funds to

cover the improper payments.

In FY 2016, the Office of the Chief Financial Officer (OCFO) received a determination on four

ADA violations. General Provision (GP) 706 of the Agriculture, Rural Development, Food and

Drug Administration, and Related Agencies Appropriations Act, 2016, Pub. L. 114-113, Div. A

(Dec. 18, 2015), prohibits USDA from making certain obligations for IT projects without the

prior written approval of the Chief Information Officer (CIO). Specifically, GP 706 states

“none of the funds available to the Department of Agriculture for information technology shall

be obligated for projects, contracts, or other agreements over $25,000 prior to receipt of written

approval by the Chief Information Officer.” OCFO obligated funds in excess of the $25,000 on

four occasions prior to an approved Acquisition Approval Request (AAR) from CIO. These

violations are in the process of being reported to the Congress and President.

Lastly, in FY 2016, Commodity Credit Corporation (CCC) identified a potential ADA violation

that may have occurred in CCC expenditures. Expenditures for CCC interest to Treasury appear

to have exceeded amounts initially apportioned by OMB. CCC expended approximately

$37 million in interest to Treasury, more than the apparently apportioned amount of

$29.9 million; however, there is some question about the apportionment requirements for

interest to Treasury. FSA will seek further review of the legal authority of CCC with respect to

the apportionment requirements with the Office of the General Counsel in conjunction with the

Office of Management and Budget.

36 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

The following exhibit provides a summary of agency programs not compliant with the

Improper Payment Act.

Exhibit 13: Outstanding Initiative to Achieve Compliance

Initiative

Improper Payments Elimination and Recovery Act of 2010

Section of Non-compliance Agency/Program

Target Completion

Date

Publish improper payment

estimates for all high-risk

programs and activities

Food and Nutrition Service

(FNS) Supplemental Nutrition

Assistance Program (SNAP)

12/31/2017

FNS Child and Adult Care Food

Program

12/31/2020

Publish and meet annual

reduction targets for each

program assessed to be at

risk and measured for

improper payments

Farm Service Agency (FSA) Loan

Deficiency Program

11/15/2017

FSA Livestock Indemnity

Program

11/15/2017

FSA Livestock Forage Disaster

Program (LFP)

11/15/2017

FSA Supplemental Revenue

Assistance Payments

11/15/2017

FNS National School Lunch

Program

11/15/2017

FNS School Breakfast Program 11/15/2017

Special Supplemental Nutrition

Program; Women, Infants, and

Children (WIC)

11/15/2017

Report a gross improper

payment rate of less than

10 percent for each

program and activity for

which an improper payment

estimate was obtained and

published in the

Performance and

Accountability Report (PAR)

or Agency Financial Report

(AFR)

FSA Livestock Indemnity

Program

11/15/2017

FSA Supplemental Revenue

Assistance Payments

10/01/2016

FNS National School Lunch

Program

11/15/2017

FNS School Breakfast Program 11/15/2017

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 37

Exhibit 14: Summary of Corrective Actions/Non-compliance with Laws and Regulations

Summary of Corrective Actions/Non-compliance with Laws and Regulations

Improper Payments

Elimination and Recovery

Act of 2010 (IPERA)

IPERA non-compliance issues (Food and Nutrition Service

[FNS] and Farm Service Agency [FSA]).

Overall Estimated

Completion Date

FY 2021

FY 2016 Accomplishments FY 2017 Planned Actions

FNS has:

 Published a proposed rule on March 29,

2016, which strengthened program

compliance by prohibiting any school,

institution, or individual that is

terminated from one of the Child

Nutrition Programs and is on a list of

disqualified institutions and individuals

from participating in, or administering

any of the Child Nutrition Programs

 In March 2016, FNS provided an overview

of the Child Nutrition Integrity Proposed

Rule to State agency personnel through

Webinar training.

FNS will:

 Publish SNAP improper payment rates for

both FY 2016 and FY 2017 reporting.

 Issue Certification Guidance by

December 31, 2016 that will provide

clarification of policy related to income,

identity and residency requirements in a

single document. This will provide easy

reference for State and local agency use.

FSA has:

 A notice was issued in September 2016 to

field offices to reinforce and outline

program policies and procedures for LFP.

 An LFP checklist form was developed for

the District Director (DD) review of LFP

applications to ensure payment eligibility

and payment documentation are

correctly reviewed and documented

FSA will:

N/A

38 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Federal Financial Management

Improvement Act Report on Financial

Management Systems

Background

The Federal Financial Management Improvement Act (FFMIA) is designed to improve

financial and program managers’ accountability, provide better information for decision-

making, and improve the efficiency and effectiveness of Federal programs. FFMIA requires

that financial management systems provide reliable, consistent disclosure of financial data in

accordance with generally accepted accounting principles and standards. These systems must

also comply with (1) Federal Financial Management System (FFMS) requirements;

(2) applicable Federal accounting standards; and (3) the U.S. Standard General Ledger

(USSGL) at the transaction level.

Additionally, the Federal Information Security Management Act (FISMA) requires that there

be no significant weaknesses in information security policies, procedures, or practices to be

substantially compliant with FFMIA. The IT non-compliance is also reported as a material

weakness and is included in the Federal Managers’ Financial Integrity Act (FMFIA), Report on

Management Control (Exhibit 11). This weakness is comprised of two major issues: 1) logical

access controls/personnel security, and 2) configuration management. More detailed

information on the status of corrective actions planned and to be completed to comply with

FISMA is also provided in the Response to Management Challenges section of this report,

Challenge 2: Information Technology Security Needs Continuing Improvement.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 39

The following exhibit contains the outstanding initiatives to achieve compliance.

Exhibit 15: Initiatives to Be Completed

Outstanding Initiatives to Achieve FFMIA Compliance

Initiative Section of Non-compliance Agency

Target

Completion Date

Information

Technology

Federal Financial Management System

(FFMS) requirements, and information

security policies, procedures, and/or

practices.

Multiple 9/30/2017

Financial

Management

Federal accounting standards, and U.S.

Standard General Ledger (USSGL) at the

transaction level.

NRCS 9/30/2017

Federal accounting standards, and

USSGL at the transaction level.

CCC 9/30/2017

Fiscal Year 2016 Results

During fiscal year (FY) 2016, the U.S. Department of Agriculture (USDA) evaluated its

financial management systems to assess compliance with FFMIA. In assessing FFMIA

compliance, USDA considered auditors’ opinions on component agencies’ financial statements,

and progress made in addressing the material weaknesses identified in the FY 2015 Agency

Financial Report. USDA is not compliant with Federal accounting standards and the USSGL at

the transaction level due to Commodity Credit Corporation and Natural Resources

Conservation Service. Additionally, as reported in the FMFIA section of this report, USDA

continues to have weaknesses in IT controls and Federal Financial Management Systems

requirements that result in non-compliance with the FISMA requirement. As part of its

financial systems strategy, USDA agencies continue working to meet FFMIA and FISMA

objectives.

COMMODITY CREDIT CORPORATION (CCC)

Noncompliance with Federal accounting standards was noted for weaknesses in the accounting

for Pre-Credit and Credit Reform receivables, accrued liabilities, parent-child transactions,

allowance for uncollectible accounts receivable, and environmental and disposal liabilities.

During FY 2016, CCC continued their efforts to modernize their systems to become compliant

with the Funds Control/Obligation Requirements related to recording obligations at the

transactional level.

40 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

CCC deployed the following software releases during FY 2016: 1) the Agriculture Risk

Coverage (ARC)/Price Loss Coverage (PLC); 2) the Commodity Loan Processing System

(CLPS) transitioning from the Automated Price Support System (APSS); 3) the Margin Dairy

Protection Program (MPP); and 4) Phase II of the Direct Loan System (DLS) for the Farm

Storage Facility Loans (FSFL), which replaced the CORE Budget Tables with the real-time

obligations functionality and proper obligation liquidations for FSFL loan closings.

In addition, the Farm Service Agency (FSA)/CCC has successfully moved off the IBM

AS400/S36 platform that hosts some of its County Office (CO) applications, addressing CCC’s

deficiencies of having antiquated hardware and expired system maintenance plans. The former

platform lacked the ability to fix system issues due to the vendors no longer being able to

support the operating systems.

NATURAL RESOURCES CONSERVATION SERVICE (NRCS)

Deficiencies in applicable Federal accounting standards, including the USSGL at the

transaction level, were noted for obligations incurred, including accrued expenses and

undelivered orders; recoveries of prior year unpaid obligations and unexpended appropriations

as it relates to accrued expenses.

NRCS continues working to mitigate auditor-identified deficiencies and substantially comply

with FFMIA.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 41

Financial Management Systems Strategy

On May 2, 2014, the Office of Management and Budget (OMB) and the U.S. Department of the

Treasury (Treasury) designated the U.S. Department of Agriculture (USDA) a Federal

Financial Shared Service Provider (FSSP).

USDA is supporting OMB Memorandum M-13-08, Improving Financials through Shared

Services, which directs agencies to do the following:

• Move from agency-specific financial systems to a shared service provider;

• Consolidate financial management systems; and

• Use existing FSSP operations and maintenance teams to support systems and

infrastructures.

The designation allows USDA to provide financial management services to Federal agencies.

In 2015, the USDA Office of the Chief Financial Officer (OCFO) joined financial operations

with financial systems and added the General Services Administration’s (GSA) financial

operations and systems to provide an integrated solution and better customer service.

Financial Management Lines of Business

USDA has two separate lines of business to support existing and future customers. The

Systems, Applications, and Products (SAP) offering is housed in the Financial Management

Services (FMS) Division. This is the standard USDA solution that has been developed over the

last 8 years and now covers almost all USDA accounting activity. Momentum is part of the

Pegasys Financial Systems (PFS) Division, and provides financial operations and systems for

GSA and 38 Boards and Commissions.

USDA has recently expanded its portfolio of services to include ezFedGrants (EFG), a

SAP-based grants management tool that is fully integrated with the USDA core accounting

system. It helps grants managers run their grants programs efficiently and improve the accuracy

of their accounting.

Mission

USDA’s mission as an FSSP is to provide reliable, cost-effective, employee-centric systems

and services to Federal organizations, thus allowing our customers to focus on serving this

great Nation through their mission delivery. FMS’ goal is to provide the necessary activities for

executing the Financial Management Line of Business vision. The three key components of this

42 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

vision are communication, governance, and operations. By executing these components, USDA

will deliver a successful shared service offering.

USDA’s activities are focused on financial management services. The list of financial

management services includes:

• Budget execution;

• General ledger accounting;

• Financial reporting;

• Audit support;

• Payroll accounting;

• Investment accounting;

• Commercial vendor payments;

• Temporary duty travel payments;

• Permanent change of station employee relocation payments;

• Grant payments;

• Purchase card payments;

• Lease accounting;

• Intragovernmental payments;

• Intragovernmental collections;

• Receivable management;

• Property accounting; and

• Grants management.

By offering a solution that is proven and operating, and which meets all compliance

requirements, a customer is jump-started in coming online with a state-of-the-art, fully

financially configured Enterprise Resource Planning (ERP) solution. USDA’s primary

objectives for this shared services effort are to provide the following:

• An enterprise financial management service that allows customers to reap the benefits in

increased service quality, including faster, less expensive, and less risky as compared to

starting with a new Enterprise Resource Planning or financial management

implementation;

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 43

• Integration with the National Finance Center (NFC) payroll processing services;

• Budget Status Forecasting;

• An enterprise grants management service that allows customers to utilize a full life-cycle

management tool for grants administration that provides visibility to both the government

and the grant recipient;

• A complete audit-compliant financial solution with full documentation meeting financial

requirements;

• Continuous process, operational, and organizational improvements for those shared

services retained in the future state portfolio;

• More powerful and flexible financial management and reporting;

• Administrative payments, collections, and certifications;

• Editing/auditing capabilities that are 100 percent computerized; and

• The best possible customer-focused service and support.

Provider Status

As an FSSP, USDA continues to work with the Unified Shared Services Management (USSM)

at GSA and the Office of Financial Innovation and Transformation (OFIT) at Treasury to

ensure our FMS-based services adhere to the required guidelines with respect to services,

pricing, governance and service level metrics. In September, 2016, OMB and Treasury certified

USDA’s CGI-Momentum product, making USDA is the only organization that offers Federal

customers a choice of SAP or Momentum. These products have certain strengths that may

make one a better match for a particular customer. USDA PFS currently services GSA and

38 boards and commissions using the Momentum product. Most of USDA uses the SAP

product. Our experience with both sets us apart from any other shared service provider.

Successes

During fiscal year (FY) 2016, USDA succeeded in the following ways:

• Streamlined Automated Standard Application for Payments (ASAP) processing in

anticipation of making it part of the enterprise solution, and, in due course, make it part of

the enterprise solution. ASAP is a Treasury-developed tool that helps agencies manage

payment processing at very low cost. Several USDA agencies use it for grants payments;

44 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

• Built a data extraction methodology and harmonized data model that allows future grants

customers to develop reports using data from Estimated Construction Cost (ECC),

Certified Reference Material (CRM), Pega, and agency repositories. This enhances the

attractiveness of our grants management solution for USDA customers, as well as

customers in other organizations;

• Completed high-level requirements gathering to enable the Forest Service to fully deploy

EFG by 2018;

• Opened discussions with Rural Development about bringing loans into the USDA SAP

corporate solution;

• Opened discussions with the U.S. Department of Homeland Security (DHS), the Federal

Emergency Management Agency (FEMA), and Treasury to explore partnering to use

EFG;

• Completed requirements and began testing an interface between EFG and Grants.gov for

implementation in the first quarter of FY 2017. Grants.gov is a clearinghouse that allows

federal agencies to get grant opportunities out to the public and receive applications from

the public. The interface with EFG will streamline the process with a paperless flow;

• Conducted pre-discovery sessions with the U.S. Department of Veterans Affairs on both

Momentum and SAP; and

• Began preparations to move USDA’s SAP-based financial management system to the

cloud in FY 2017. This will improve performance, reduce risks and costs, increase

flexibility, and improve testing and training. By working in the cloud, we will be able to

offer shared service customers a robust and reliable platform that allows them to focus on

their core mission.

Future Roadmap: SAP

USDA goals for the future include as follows:

• Providing Financial Systems and Services to Federal agencies outside USDA, using both

the SAP and Momentum products;

• Rolling the SAP Grants solution out to all USDA agencies and to agencies outside USDA;

and

• Beginning the integration of loan programs into the SAP solution within USDA.

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 45

Projected FY 2016 and FY 2017 planned releases and upgrades include the following:

• SAP software release;

• General Financial Management Modernization Initiative enhancements;

• High-Performance Analytic Appliance (HANA) business warehouse; and

• Financial Statement Data Warehouse (FSDW) migration.

Future Roadmap: Momentum

Momentum 7.1.2 incorporates more than 160 new features and enhancements designed to meet

current legislative and Government-mandated Federal financial management requirements and

recommendations, including the Government-wide Treasury Account Symbol Adjusted Trial

Balance System (GTAS), Do Not Pay (DNP), the System for Award Management (SAM), and

Payment Application Modernization (PAM).

In FY 2017, we plan to upgrade to Momentum 7.5, which includes the latest features available

in the Momentum product line.

46 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Other Management Information, Initiatives,

and Issues:

Digital Accountability and Transparency Act (DATA Act)

The Digital Accountability and Transparency Act (DATA Act) was enacted on May 9, 2014.

This Act amends the Federal Financial Accountability and Transparency Act of 2006 (FFATA)

and requires reporting of all Federal Funds, as well as Financial Assistance and Procurement

transactions, to a public web site by May 2017. FFATA requires reporting of obligations and

award-related information for all Federal financial assistance and procurement awards. The

DATA Act expands upon FFATA by adding U.S. Department of the Treasury (Treasury)

account-level reporting; this includes reporting all Treasury Account Symbols that fund each

award and contract transaction, budget authority, program activity, outlays, and budget object

classes, among other data elements. The DATA Act also requires the Federal Government to

collectively standardize the data elements that will be reportable under the Act. The Office of

Management and Budget (OMB) and the Treasury are conducting a pilot to reduce reporting

burdens on recipients of awards and contracts.

OMB and Treasury developed phased guidance for implementation of the DATA Act.

Guidance to date includes OMB Memorandum 15-12,

16

and Management Procedures

Memorandum (MPM) 2016-03.

17

OMB plans to issue another MPM with additional guidance

for DATA Act Implementation in September 2016. A Treasury version 1.0 of the Requirements

Submission Specifications (RSS) and Interface Design Document (IDD) were provided on

April 29, 2016. USDA is a government leader in the workgroups charged with the

government-wide DATA Act implementation and in developing the guidance listed above.

The Office of the Chief Financial Officer (OCFO) leads the DATA Act implementation for

USDA. OCFO Financial Management Services (FMS) is developing technical and functional

requirements for the data elements that will need to be reported and is establishing the

account-level reports needed to be compliant. OCFO FMS is developing a data repository for

the Department to collect all DATA Act elements. The repository will connect to

USAspending.gov and will report the data using Treasury’s data broker.

16

https://www.whitehouse.gov/sites/default/files/omb/memoranda/2015/m-15-12.pdf

17

https://www.whitehouse.gov/sites/default/files/omb/financial/memos/management-

procedures-memorandum-no-2016-03-additional-guidance-for-data-act-implementation.pdf

S ECTION I MANAGEMENT’S DISCUSSION AND ANALYSIS 47

USDA’s Senior Accountable Official, the Chief Financial Officer, established a USDA DATA

Act implementation team, led by OCFO. This group inventoried DATA Act elements in the

USDA agency source systems and is preparing for any needed system changes to become

compliant. USDA has four main general ledgers and multiple awards systems where data

resides. USDA expects to be DATA Act compliant by the May 2017 deadline.

By May 2017, at least four USDA agencies will be using the Department’s grants system,

which will improve reporting capabilities and will provide standardization for many grants

programs. More agencies are exploring migration to the Department’s grants solution, which

may potentially yield even more efficiencies and standardization.

OCFO also works with the Office of Procurement and Property Management (OPPM) to ensure

that procurement reporting will adhere to DATA Act requirements. Together, OCFO and

OPPM are reviewing procurement reporting policies and procedures to ensure that data is

reported and certified by the agencies to be both timely and accurate in the Department’s

Integrated Acquisition System (IAS), as well as other procurement systems used by the Forest

Service and the Farm Service Agency.

Limitations of Financial Statement

The Consolidated Balance Sheet has been prepared to report the financial position of the entity,

pursuant to the requirements of 31 U.S.C. 3515(b). While the balance sheet has been prepared

from the books and records of the entity in accordance with generally accepted accounting

principles for Federal entities and the formats prescribed by OMB, the statement is in addition

to the financial reports used to monitor and control budgetary resources, which are prepared

from the same books and records. The statement should be read with the realization that it is for

a component of the U.S. Government, a sovereign entity.

48 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Section II:

Financial Information

Message from Chief Financial Officer

The U.S. Department of Agriculture (USDA) is leading the charge in providing a safe,

nutritious and efficient food supply with a concentrated investment in the economic growth of

rural America. With over $200 billion in assets, $143 billion in annual spending, and over

$100 billion in loans to America’s farmers and ranchers, responsible financial controls are a

necessity that we embrace. Our mission includes feeding upwards of 46 million families a day

and would not be possible without reliable controls. USDA’s focus on responsible financial

stewardship is a vital component in supporting program delivery of the very tangible work of

the Department.

As Chief Financial Officer for the U.S. Department of Agriculture (USDA), I am pleased to

present our Agency Financial Report (AFR) for fiscal year (FY) 2016. This report shows the

progress made to provide fiscally sound, cost-effective program delivery. Because we are

accountable to the American taxpayer, we strive for peak performance in all facets of our work.

Through the collaborative efforts of USDA managers, employees, business partners, and

stakeholders, we have made significant strides in advancing the Department’s record of

excellence in financial management. Highlights of this progress include:

• NRCS made significant progress with improper payments making them compliant with

the Improper Payments Elimination and Recovery Improvement Act of 2012 (IPERIA) for

the first time in four years;

• NRCS partnered with FSA to remediate the material weakness on the Grassland Reserve

Program. Their combined records were reconciled, which allowed detailed samples to be

pulled to support the outstanding balances of the program; and

• RMA/FCIC remediated their material weakness related to Estimated Losses on Insurance

Claims

Though we are continually making progress in financial management, we cannot yet give

unmodified assurance of compliance with the Federal Managers’ Financial Integrity Act, or

SECTION I I FINANCIAL INFORMATION 49

with the financial systems requirements of the Federal Financial Management Improvement

Act. We will continue to focus on these efforts in the coming year.

We are proud of the accomplishments of our hard-working employees at USDA. All of us are

committed to the sound management of resources under our stewardship. We remain steadfast

and committed to making greater financial management improvements in FY 2017. At every

level, we are committed to being a proactive, cost-effective organization that is transparent and

accountable for the programs we deliver. Ultimately our efforts will result in setting the highest

achievable standard of excellence in managing taxpayers’ dollars.

Jon M. Holladay

Chief Financial Officer

December 5, 2016

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

50

Independent Auditors Report

United States Department of Agriculture

Office of Inspector General

Washington, D.C. 20250

DATE: December 6, 2016

AUDIT

NUMBER: 50401-0011-11

TO: Jon M. Holladay

Chief Financial Officer

Office of the Chief Financial Officer

ATTN: Annie Walker

Director

Internal Control Division

FROM: Gil H. Harden

Assistant Inspector General for Audit

SUBJECT: Department of Agriculture’s Consolidated Balance Sheet for

Fiscal Year 2016

This report presents the results of our audit of the Department of Agriculture’s consolidated

balance sheet for the fiscal year ending September 30, 2016. The report contains an unmodified

opinion on the financial statement, as well as the results of our assessment of the Department’s

internal control over financial reporting and compliance with laws and regulations. Your

response is included in its entirety in Exhibit D.

In accordance with Departmental Regulation 1720-1, please furnish a reply within 60 days

describing the corrective actions taken or planned, and timeframes for implementing the

recommendations for which management decisions have not been reached. Please note that the

regulation requires management decision to be reached on all recommendations within 6 months

from report issuance, and final action to be taken within 1 year of each management decision to

prevent being listed in the Department’s annual Agency Financial Report.

We appreciate the courtesies and cooperation extended to us by members of your staff during our

audit. This report contains publicly available information and will be posted in its entirety to

our website https://www.usda.gov/oig in the near future.

SECTION II FINANCIAL INFORMATION

51

Table of Contents

Independent Auditor’s Report .............................................................................. 1

Report on the Financial Statements ............................................................. 1

Opinion on the Consolidated Financial Statement..................................... 2

Other Matters ................................................................................................. 2

Report on Internal Control Over Financial Reporting.............................. 3

Report on Compliance and Other Matters ................................................. 4

Purpose of the Report on Internal Control Over Financial Reporting

and the Report on Compliance and Other Matters ................................... 6

Section 1: Material Weaknesses in Internal Control Over Financial

Reporting............................................................................................................... 7

Finding 1: Improvements are Needed in Overall Financial

Management................................................................................................... 7

Finding 2: Improvements are Needed in Overall Information

Technology Security Program...................................................................... 8

Section 2: Significant Deficiency in Internal Control Over Financial

Reporting............................................................................................................... 9

Finding 3: Controls Over Financial Reporting Can Be Strengthened.... 9

Recommendation 1 ................................................................................10

Recommendation 2 ................................................................................10

Section 3: Noncompliance with Laws and Regulations .................................11

Finding 4: Lack of Substantial Compliance with FFMIA Requirements

.......................................................................................................................11

Finding 5: Anti-deficiency Act Violations ................................................12

Abbreviations ........................................................................................................14

Exhibit A: Summary of Open Recommendations from Prior Years .............15

Exhibit B: Status of Prior Year Material Weaknesses and Significant

Deficiencies ............................................................................................................19

Exhibit C: Status of Prior Year Noncompliance Findings ..............................

20

Exhibit D: Agency’s Response............................................................................21

Exhibit E: Agency’s Financial Report ...............................................................22

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

52

Independent Auditor’s Report

Jon M. Holladay

Chief Financial Officer

Office of the Chief Financial Officer

The United States Department of Agriculture’s (USDA) Office of Inspector General (OIG) has

audited the consolidated balance sheet of the Department for fiscal year 2016. We also

considered USDA’s internal control over financial reporting and tested USDA’s compliance with

certain provisions of applicable laws, regulations, contracts, and grant agreements that could

have a direct effect on the determination of material financial statement amounts and disclosures

related to the balance sheet.

The “Findings and Recommendations” section presents the material weaknesses and significant

deficiencies in internal control and instances of noncompliance with laws and regulations, as of

and for the fiscal year ended September 30, 2016. Exhibit A summarizes the current year status

of prior years’ open audit recommendations. Exhibit B shows the status of prior year internal

control weaknesses. Exhibit C provides an update to previously reported instances of

noncompliance with laws and regulations. USDA’s response is presented in its entirety in

Exhibit D.

Report on the Financial Statements

We have audited the accompanying consolidated balance sheet of USDA as of

September 30, 2016, and the related notes (hereinafter referred to as “consolidated financial

statement”).

Management’s Responsibility for the Consolidated Financial Statement

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

statement in accordance with accounting principles generally accepted in the United States of

America (U.S.); and the design, implementation, and maintenance of internal control relevant to

the preparation and fair presentation of the consolidated financial statement that is free from

material misstatement, whether due to fraud or error.

Auditor’s Responsibility

Our responsibility is to express an opinion on this consolidated financial statement based on

conducting our audit in accordance with auditing standards generally accepted in the U.S.; the

standards applicable to financial audits contained in Government Auditing Standards issued by

the Comptroller General of the U.S.; and the Office of Management and Budget (OMB)

Bulletin 15-02, Audit Requirements for Federal Financial Statements. Those standards and

OMB Bulletin 15-02 require that we plan and perform the audit to obtain reasonable assurance

about whether the consolidated financial statement is free from material misstatement.

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

disclosures in the consolidated financial statement. The procedures selected depend on the

AUDIT REPORT 50401-0011-11

1

SECTION II FINANCIAL INFORMATION

53

auditors’ judgement, including the assessment of the risks of material misstatement of the

consolidated financial statement, 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 statement 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 the accounting policies used and the

reasonableness of significant accounting estimates made by management, as well as evaluating

the overall presentation of the consolidated financial statement.

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

basis for our audit opinion.

Opinion on the Consolidated Financial Statement

In our opinion, the consolidated financial statement referred to above presents fairly, in all

material respects, the financial position of USDA as of September 30, 2016, in accordance with

U.S. generally accepted accounting principles.

Other Matters

Required Supplementary Information

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

Discussion and Analysis (MD&A), Required Supplementary Information (RSI), and Required

Supplementary Stewardship Information sections be presented to supplement the basic

consolidated financial statement. Such information, although not part of the basic consolidated

financial statement, is required by the Federal Accounting Standards Advisory Board, which

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 have

applied certain limited procedures to the required supplementary information in accordance with

auditing standards generally accepted in the U.S., 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 consolidated financial statement, and

other knowledge we obtained during our audit of the basic consolidated financial statement. 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 audit was conducted for the purpose of forming an opinion on the basic consolidated

financial statement as a whole. The “Message from the Secretary” and the “Other Information”

sections are presented for purposes of additional analysis, and are not a required part of the

financial statement or the RSI. Additionally, the accompanying consolidated statement of net

cost, consolidated statement of changes in net position, combined statement of budgetary

2 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

54

resources, and the related notes for the fiscal year ended September 30, 2016, are included. This

information has not been subjected to the auditing procedures applied in our audit of the basic

consolidated balance sheet, and, accordingly, we express no opinion and provide no assurance on

it.

Other Reporting Required by Government Auditing Standards

Report on Internal Control Over Financial Reporting

In planning and performing our audit of the consolidated financial statement, we considered

USDA’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 statement, but not for the purpose of expressing an opinion on the

effectiveness of USDA’s internal control or on management’s assertion on internal control

included in the MD&A. Accordingly, we do not express an opinion on the effectiveness of

USDA’s internal control or on management’s assertion on internal control included in the

MD&A. We did not test all internal controls relevant to operating objectives as broadly defined

by the Federal Managers’ Financial Integrity Act of 1982 (FMFIA).

Our consideration of the internal control was for the limited purposes described in the preceding

paragraph and was not designed to identify all deficiencies in the internal control over financial

reporting that might be significant deficiencies or material weaknesses and, therefore, material

weaknesses or significant deficiencies may exist that were not identified.

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 USDA’s consolidated financial statement will not be

prevented, or detected and corrected, on a timely basis.

A significant deficiency is a deficiency, or 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.

In our fiscal year 2016 engagement, we noted certain matters involving internal control that we

consider to be significant deficiencies. Specifically, we identified weaknesses in USDA’s:

•

overall financial management,

•

information technology (IT) security program, and

•

controls over financial reporting.

We determined that the first two deficiencies are also material weaknesses. These deficiencies

are discussed in this report in the “Findings and Recommendations,” Sections 1 and 2.

AUDIT REPORT 50401-0011-11

3

SECTION II FINANCIAL INFORMATION

55

Also, as required by OMB Bulletin 15-02, we compared the material weaknesses identified in the

audit with those material weaknesses included in USDA’s FMFIA Report on Management

Control that relate to financial reporting. We noted no exceptions.

Report on Compliance and Other Matters

As part of obtaining reasonable assurance about whether USDA’s consolidated financial

statement is free from material misstatement, we performed tests of its compliance with certain

provisions of laws, regulations, contracts, grant agreements, and Governmentwide policy

requirements, noncompliance with which could have a direct and material effect on the

determination of consolidated financial statement amounts and disclosures. 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.

We also performed tests of USDA’s compliance with certain provisions referred to in

Section 803(a) of the Federal Financial Management Improvement Act of 1996 (FFMIA).

Providing an opinion on FFMIA was not an objective of our audit and, accordingly, we do not

express such an opinion. The results of our tests disclosed instances, described in more detail in

Finding 4 in the “Findings and Recommendations,” Section 3, of this report, where USDA was

not substantially compliant with Federal Financial Management System Requirements (FFMSR),

applicable Federal Accounting Standards, and the U.S. Standard General Ledger (USSGL) at the

transaction level.

Also, as discussed in Finding 5 of the “Findings and Recommendations,” Section 3, of this

report, our tests disclosed instances of noncompliance with the Anti-Deficiency Act (ADA);

some of these ADA violations are still in the process of being reported to Congress and the

President.

Additionally, during fiscal year 2016, we identified instances of noncompliance with the

requirements of the Improper Payments Elimination and Recovery Act of 2010 (IPERA),

regarding the design of program internal controls related to reporting improper payments. A

separate report will be issued with further details on the Department’s compliance with improper

payment requirements.

1

Management’s Responsibility for Internal Control and Compliance

USDA’s management is responsible for (1) evaluating the effectiveness of internal control over

financial reporting based on criteria established under FMFIA, (2) providing a statement of

assurance on the overall effectiveness of internal control over financial reporting, (3) ensuring

USDA’s financial management systems are in substantial compliance with FFMIA requirements,

and (4) ensuring compliance with other applicable laws, regulations, contracts, and grant

agreements.

1

IPERA amended the Improper Payments Information Act of 2002, Public Law 107-300. These two laws address

improper payment requirements.

4

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USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

56

Auditor’s Responsibilities

We are responsible for: (1) obtaining a sufficient understanding of internal control over financial

reporting and compliance to plan the audit, (2) testing whether USDA’s financial management

systems substantially comply with FFMIA requirements referred to above, and (3) testing

compliance with certain provisions of laws, regulations, contracts, and grant agreements that

have a direct and material effect on the financial statement and applicable laws.

We did not evaluate all internal controls relevant to operating objectives as broadly established

by FMFIA, such as those controls relevant to preparing statistical reports and ensuring efficient

operations. We limited our internal control testing to controls over financial reporting and

compliance. Because of inherent limitations in internal control, misstatements due to error or

fraud, losses, or noncompliance may nevertheless occur and not be detected. We also caution

that projecting our audit results to future periods is subject to risk that controls may become

inadequate because of changes in conditions or that the degree of compliance with controls may

deteriorate. In addition, we caution that our internal control testing may not be sufficient for

other purposes.

We did not test compliance with all laws, regulations, contracts, and grant agreements applicable

to USDA. We limited our tests of compliance to certain provisions of laws, regulations,

contracts, and grant agreements that have a direct effect on the determination of material

financial statement amounts and disclosures that we deemed applicable to USDA’s consolidated

financial statement for the fiscal year ended September 30, 2016. We caution that

noncompliance may occur and not be detected by these tests and that such testing may not be

sufficient for other purposes. Also, our work on FFMIA would not necessarily disclose all

instances of noncompliance with FFMIA requirements.

Management’s Response

Management’s response to the report is presented in Exhibit D. We did not audit USDA’s

response and, accordingly, we express no opinion on it.

Status of Prior Year’s Findings and Recommendations

We reviewed the status of open recommendations from prior years; prior year internal control

deficiencies, and prior year noncompliance issues. The status of these items is presented in

Exhibits A, B, and C.

AUDIT REPORT 50401-0011-11

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SECTION II FINANCIAL INFORMATION

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Purpose of the Report on Internal Control Over Financial Reporting and the

Report on Compliance and Other Matters

The purpose of the “Report on Internal Control Over Financial Reporting” and the “Report on

Compliance and Other Matters” sections of this report 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 USDA’s internal control or on compliance. Accordingly, these

reports are not suitable for any other purpose.

Gil H. Harden

Assistant Inspector General for Audit

Washington, D.C.

December 5, 2016

6

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58

Findings and Recommendations

Section 1: Material Weaknesses in Internal Control Over Financial

Reporting

Finding 1: Improvements are Needed in Overall Financial Management

The material weakness for financial management is due to improvements needed in accounting

and internal controls related to the Commodity Credit Corporation (CCC) and the Natural

Resources Conservation Service (NRCS). USDA also has one existing non-conformance related

to Funds Control Management within CCC, which is expected to be resolved by the end of fiscal

year 2019. In conducting our review, we noted the following areas where improvements are

needed in overall financial management. Specifically:

•

One component of USDA’s financial reporting, CCC disclosed material weaknesses

related to accounting estimates and maintenance of accounting records. The Department

also continued to report improvements needed in recording obligations at the transaction

level for CCC.

•

One component of USDA’s financial reporting, NRCS disclosed material weaknesses

related to controls over obligations and undelivered orders; and accounting and controls

over expenses.

In its FMFIA Report on Management Control for fiscal year 2016, the Department reported the

above material weakness for overall financial management with the following corrective action

plans:

•

For CCC, in fiscal year 2017, the Department plans to implement corrective actions to

address weaknesses identified in financial reporting, accounting for parent/child

transactions of U.S. Agency for International Development, accounting for Commodity

Certificate Exchange, accounting for budgetary transactions and fund balance with

Treasury. Some of these actions include updating procedures, developing effective

communication processes, and improve timeliness of financial statement preparationand

the applicable support. In 2019, CCC plans to complete the improvements needed to

record obligations at the transaction level.

•

NRCS, in fiscal year 2017, plans to monitor adjustments and open obligations and

enhance policy and control procedures for period end accruals.

Because USDA has actions planned and in progress, we are making no further recommendations

herein.

AUDIT REPORT 50401-0011-11

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SECTION II FINANCIAL INFORMATION

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Finding 2: Improvements are Needed in Overall Information Technology

Security Program

As required by the Federal Information Security Modernization Act of 2014 (FISMA), OIG

reviewed USDA’s ongoing efforts to improve its IT security program and practices as of fiscal

year 2016.

2

USDA is working to improve its IT security posture, but many longstanding weaknesses remain.

We continue to find that the Office of the Chief Information Officer (OCIO) has not

implemented corrective actions that the Department has committed to in response to prior

recommendations from OIG. In fiscal years 2009 through 2015, OIG made 61 recommendations

for improving the overall security of USDA’s systems, 39 have been closed (i.e., the agreed-

upon corrective action has been implemented), 4 are current and have not yet reached the

estimated completion date; however, 18 are overdue for completion. Our testing identified that

security weaknesses still exist in 3 of the 39 closed recommendations.

Our testing also identified weaknesses in eight subject areas as defined for review by FISMA:

risk management, contractor systems, configuration management, identity and access

management, security and privacy training, Information Security Continuous Monitoring

program maturity level, incident response program maturity level, and contingency planning.

We noted that OCIO continues to take positive steps towards improving the Department’s

security posture. OCIO released two critical policies this year that, once implemented, should

improve IT security within USDA, and also began implementation of the Continuous Diagnostic

and Mitigation project.

OCIO concurred with the findings in the report and generally agreed with the recommendations

made in our FISMA audit; therefore, we are making no further recommendations in this report.

2

Audit Report 50501-0012-12, U.S. Department of Agriculture, Office of the Chief Information Officer, Fiscal Year

2016 Federal Information Security Modernization Act, issued November 2016.

8 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

60

Section 2: Significant Deficiency in Internal Control Over Financial

Reporting

Finding 3: Controls Over Financial Reporting Can Be Strengthened

During our audit, we noted that controls relating to certain financial management practices could

be strengthened to operate more effectively throughout the fiscal year. Details follow.

•

Last year, our report identified deficiencies with controls over inactive Unliquidated

Obligations (ULO).

3

This year, our review disclosed that additional improvements are

needed for selected agencies.

We statistically selected 100 ULOs from 14 agencies and offices for which no activity had

occurred for over 1 year, as of March 31, 2016. We found that eight ULOs from five

agencies

4

were invalid because no future expenditures were expected or because there were

adjustments that lacked support. We also found one ULO which was valid, but should have

been de-obligated in a prior fiscal year had it been properly monitored.

We nonstatistically selected three agencies and reviewed their obligation certifications

submitted to the Department for the third quarter of fiscal year 2016. To assess the

appropriateness of the ULO certifications, we then selected 10 obligation balances

nonstatistically from each of the three certifications. We found that two agencies did not

deobligate ULOs deemed invalid within the required time frame and inappropriately certified

to the validity of the ULO balances.

5

The U.S. Department of the Treasury’s (Treasury) annual closing guidance (Treasury

Bulletin 2016-06, 2016 Yearend Closing, dated July 31, 2016), requires an annual review of

ULOs. Departmental Regulation 2230-1, Reviews of Unliquidated Obligations, dated

October 15, 2014, further requires quarterly reviews and certifications as to the validity of

ULO balances from agency Chief Financial Officers (CFO).

Ineffective monitoring and reviewing, as well as inappropriate certifying to the validity of

obligation balances, resulted in invalid obligations remaining open. Invalid obligations

improperly restrict the availability of funding authority. This also increases the risk of

misstating obligations as of yearend.

3

An obligation is a binding agreement that will result in outlays, immediately or in the future. Budgetary resources

must be available before obligations can be incurred legally.

4

Economic Research Service, National Appeals Division, Animal and Plant Health Inspection Service (APHIS),

Foreign Agriculture Service (FAS) and Agricultural Research Service.

5

Eight ULOs from FAS and one ULO from the Farm Service Agency (FSA) should have been deobligated shortly

after being deemed invalid.

AUDIT REPORT 50401-0011-11

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SECTION II FINANCIAL INFORMATION

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•

Our review again disclosed abnormal balances

6

in USDA’s fiscal yearend trial balance

that were not fully researched and corrected. For fiscal year 2016, we noted 31 abnormal

balances with an absolute value of approximately $337 million. According to the

Department, the existence of an abnormal balance indicates that transactions or

adjustments may have been posted in error. In addition, abnormal balances increase the

risk of material misstatement on the financial statements. The Department closed the

recommendation in fiscal year 2016, however we continue to identify similar deficiencies

in our review and have modified the repeat recommendation.

•

Last year, our review of real property balances and transactions disclosed that

depreciation expenses were not always properly recorded and real property costs werenot

always properly classified. This year we found that leases and Work-in-Progress (WIP)

were not always classified properly or in the correct amount. Detailsfollow:

•

We found that APHIS incorrectly classified 2 of the 10 leases sampled as cancellable

leases causing an understatement of future operating lease payments by at least $60

million. We also found a lease for APHIS that reported an annual rent of over $100

million when the correct amount was only $120,000.

•

In Forest Service (FS) we found that a change in a lease agreement was not timely

recorded, causing an understatement of $31 million in future operating lease

payments.

•

We found real and personal property that was classified as WIP that should havebeen

moved to general Property, Plant and Equipment (PP&E) and depreciated or

amortized accordingly. Specifically, in FS 53 percent or $70 million of the WIP

balance reported to the Office of the Chief Financial Officer (OCFO) should have

been moved to general PP&E. Additionally, FSA reported as WIP in fiscal year

2016, $69 million in Internal Use Software in development projects for fiscal year

2011 that had been identified as completed.

Management generally agreed with our findings and is working to correct the errors.

Recommendation 1:

Provide additional oversight to ensure that controls over financial reporting are strengthened and

maintained, including those over ULOs and transactions resulting in negative (abnormal) fund

balances.

Recommendation 2:

Provide oversight to ensure that property is classified properly, including WIP and lease

agreements.

6

A balance that deviates from the standard balance as defined by the Treasury’s USSGL.

10 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

62

Section 3: Noncompliance with Laws and Regulations

Finding 4: Lack of Substantial Compliance with FFMIA Requirements

FFMIA requires agencies to annually assess whether their financial management systems comply

substantially with (1) FFMSR, (2) applicable Federal accounting standards, and (3) the USSGL

at the transaction level. In addition, FISMA requires each agency to report significant

information security deficiencies, relating to financial management systems, as a lack of

substantial compliance under FFMIA. FFMIA also requires auditors to report in their CFO Act

financial statement audit reports whether financial management systems substantially comply

with FFMIA’s system requirements.

During fiscal year 2016, USDA evaluated its financial management systems to assess

compliance with FFMIA. The Department reported that it was not compliant with FFMSR,

applicable accounting standards, USSGL at the transaction level, and FISMA requirements. As

noted in its MD&A, USDA continues its work to meet FFMIA and FISMA objectives.

Specifically, in its FFMIA and FMFIA reports, the Department reported internal control design

and operating effectiveness, deficiencies with logical access controls/personnel security and

configuration management. See Finding 2 for more details.

Additionally, in its FFMIA report, the Department noted noncompliances for two of its

component agencies relating to financial management, described below.

1. CCC was not compliant with applicable Federal accounting standards and USSGL at the

transaction level. Noncompliance with Federal accounting standards was noted for

weaknesses in the accounting for Pre-Credit and Credit Reform receivables, accrued

liabilities, parent-child transactions, allowance for uncollectible accounts receivable,

environmental and disposal liabilities. During fiscal year 2016, CCC continued their

efforts to modernize their systems to become compliant with the Funds

Control/Obligation Requirements related to recording obligations at the transaction level.

2. Deficiencies in NRCS’ applicable Federal accounting standards, including the USSGL at

the transaction level, were noted for obligations incurred, including accrued expenses and

undelivered orders; recoveries of prior year unpaid obligations and unexpended

appropriations as it relates to accrued expenses. NRCS continues working to mitigate

auditor-identified deficiencies and substantially comply with FFMIA.

See Finding 1 for more details on NRCS and CCC issues.

Because of planned actions, we are making no further recommendations in this report.

AUDIT REPORT 50401-0011-11 11

SECTION II FINANCIAL INFORMATION

63

Finding 5: Anti-deficiency Act Violations

In fiscal year 2016, the Department reported several actual and potential ADA violations in its

Agency Financial Report. These violations are discussed in detail below.

In fiscal year 2015, FS identified an ADA violation for fiscal years 1990 through 2009, under

31 U.S. Code (U.S.C.) § 1341(a)(1). The violation related to the agency’s employment in

California of two citizens of Palau. This use of Federal appropriations violated a general

provision of appropriations acts from fiscal years 1990 through 2009, which prohibited the use of

appropriations to employ non-U.S. citizens. This ADA violation is in the process of being

reported to Congress and the President.

FSA identified an ADA violation under 31 U.S.C. § 1517(a). In September 2013, OMB

approved an apportionment request for $1 million from FSA for the purchase of guaranteed loans

in fiscal year 2014. On February 25, 2014, FSA made several loan purchases, obligating

$1,302,823.57, thus exceeding the apportionment for such purchases. On March 7, 2014, FSA

requested another apportionment to cover the deficiency. OMB approved the request and

apportioned funds on March 31, 2014. FSA’s Farm Loan Operations Office completed

corrective actions to ensure future payments are obligated only within approved apportionment

limits. The ADA violation is in the process of being reported to Congress and the President.

The Office of Advocacy and Outreach (OAO) identified an ADA violation for fiscal year 2011,

under 31 U.S.C. § 1517(a). The Food, Conservation, and Energy Act of 2008, Public Law

110-234 (Farm Bill of 2008) permitted OAO to award up to $19 million in fiscal year 2011 for

“Outreach and Assistance for Socially Disadvantaged and Veteran Farmers and Ranchers”

(Section 2501) Grants. OAO exceeded the amount available. The ADA violation is in the

process of being reported to Congress and the President.

In fiscal year 2015, an erroneous transaction was identified associated with the StrikeForce

Initiative funded through transfers from USDA agencies for fiscal years 2010 and 2011. No

ADA violation occurred and all transactions have been corrected.

In fiscal year 2015, FAS identified a potential violation of the ADA that may have occurred in its

fiscal year 2009 appropriation. FAS has completed its analyses and identified the causes of this

potential violation. A corrective transaction was processed to clear the negative cash balances

and the Treasury and OMB approved the transaction on June 30, 2016. Therefore, the fiscal year

2009 appropriation no longer has a negative cash balance. FAS has requested a final

determination on the status of the potential ADA violation from the Office of the General

Counsel.

USDA’s OIG determined that improper bank reconciliations were completed for two

ratifications totaling $17,709 on behalf of the Office of the Assistant Secretary for Civil Rights

(OASCR). As a result of the improper reconciliations, two USDA offices each paid for a

procurement contract that should have been charged to OASCR. This ultimately resulted in

OASCR’s fiscal year 2012 appropriation potentially being augmented, which was considered a

possible ADA violation. A review determined that the temporary augmentation of OASCR’s

12

AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

64

account, which was corrected with available (unobligated) fiscal year 2012 funds, did not result

in an ADA violation. OASCR only needed to correct the improper charges using the fiscal year

2012 appropriation.

In fiscal year 2016, OCFO received a determination on four ADA violations. General Provision

(GP) 706 of Agriculture, Rural Development, Food and Drug Administration, and Related

Agencies Appropriations Act of 2016, Public Law 114-113, Div. A (Dec. 18, 2015), prohibits

USDA from making certain obligations for IT projects without prior written approval of OCIO.

Specifically, GP 706 states, “none of the funds available to USDA for IT shall be obligated for

projects, contracts, or other agreements over $25,000 prior to receipt of written approval by the

Chief Information Officer (CIO).” OCFO obligated funds in excess of the $25,000 on four

occasions prior to an approved Acquisition Approval Request from the CIO. These violations

are in the process of being reported to Congress and the President.

In fiscal year 2016, CCC identified a potential ADA violation that may have occurred in CCC

expenditures. Expenditures for CCC interest to Treasury appear to have exceeded amounts

initially apportioned by OMB. CCC expended approximately $37 million in interest to Treasury,

more than the apparently apportioned amount of $29.9 million; however, there is some question

about the apportionment requirements for interest to Treasury. FSA will seek further review of

the legal authority of CCC with respect to the apportionment requirements with the Office of the

General Counsel in conjunction with OMB.

AUDIT REPORT 50401-0011-11

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SECTION II FINANCIAL INFORMATION

65

Abbreviations

ADA...........................Anti-Deficiency Act

APHIS ........................Animal and Plant Health Inspection Service

CCC............................Commodity Credit Corporation

CFO............................Chief Financial Officer

CIO.............................Chief Information Officer

FAS ............................Foreign Agriculture Service

FFMIA .......................Federal Financial Management Improvement Act of 1996

FFMSR.......................Federal Financial Management System Requirements

FISMA .......................Federal Information Security Modernization Act of 2014

FMFIA .......................Federal Managers’ Financial Integrity Act of 1982

FMMI.........................Financial Management Modernization Initiative

FS ...............................Forest Service

FSA ............................Farm Service Agency

GP ..............................General Provisions

IPERA ........................Improper Payments Elimination and Recovery Act of 2010

IT................................information technology

LAA ...........................logged access authority

MD&A .......................Management’s Discussion and Analysis

NRCS .........................Natural Resources Conservation Service

OAO...........................Office of Advocacy and Outreach

OASCR ......................Office of the Assistant Secretary for Civil Rights

OCFO.........................Office of the Chief Financial Officer

OCIO..........................Office of the Chief Information Officer

OIG ............................Office of Inspector General

OMB ..........................Office of Management and Budget

PP&E..........................Property, Plant and Equipment

RSI .............................Required Supplementary Information

USSGL.......................U.S. Standard General Ledger

Treasury .....................U.S. Department of the Treasury

U.S. ............................United States of America

U.S.C..........................United States Code

ULO ...........................Unliquidated Obligations

USDA.........................United States Department of Agriculture

WIP ............................Work-in-Progress

14

AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

66

Exhibit A: Summary of Open Recommendations from Prior Years

Report 50401-0009-11,

Department of Agriculture’s Consolidated Financial Statements for

Fiscal Years 2015 and 2014, dated February 12, 2016.

Finding 3: Controls Over Financial Reporting Can be Strengthened

Recommendation 1

Provide oversight to ensure that real property is accounted for appropriately, including its

classification and depreciation expenses.

Departmental Status

OCFO stated that final action was complete on this recommendation and the recommendation is

closed.

OIG Results

OIG continued to find similar deficiencies in our review of the fiscal year 2016 financial

statement audit and has issued a repeat of Finding 3 and a modified recommendation.

Finding 4: IT Controls Can Be Strengthened in One Financial System

Recommendation 2

Revise logged access authority (LAA) procedures to address approvals for permanent LAA and

to include timeframes and enforcement actions requiring the monitoring activities to be

completed within a defined number of days.

Recommendation 3

Update system specific procedures to reflect current National Institute of Standards and

Technology and USDA requirements for password settings.

Recommendation 4

Revise and/or develop mitigating controls that fully reflect applicability of the risks in the

Financial Management Modernization Initiative (FMMI) environment, preventative mitigations

associated with system and change management controls, and detective manual controls

performed.

AUDIT REPORT 50401-0011-11

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SECTION II FINANCIAL INFORMATION

67

Exhibit A: Summary of Open Recommendations from Prior Years

Recommendation 5:

Revise the System Security Plans and Cyber Security Assessment and Management

interconnections tables to accurately reflect current system interconnections and interfaces.

Departmental Status

OCFO stated that final action was complete on these recommendations and the recommendations

are closed.

OIG Results

OIG did not identify similar deficiencies during our review of the fiscal year 2016 financial

statements.

16 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

68

Exhibit A: Summary of Open Recommendations from Prior Years

Report 50401-0007-11,

Department of Agriculture’s Consolidated Financial Statements for

Fiscal Years 2014 and 2013, dated December 18, 2014.

Finding 3: Controls Over Financial Reporting Can be Strengthened

Recommendation 1

Provide additional oversight to FAS to ensure that controls over financial reporting are

strengthened and maintained, including those over ULOs and transactions resulting in negative

(abnormal) fund balances.

Departmental Status

OCFO stated that final action was complete on this recommendation and the recommendation is

closed.

OIG Results

OIG continued to find similar deficiencies in our review of the FAS ULOs and abnormal

balances in the fiscal year 2016 financial statement audit and has issued a repeat of Finding 3 and

a modified recommendation.

AUDIT REPORT 50401-0011-11

17

SECTION II FINANCIAL INFORMATION

69

Exhibit A: Summary of Open Recommendations from Prior Years

Report 50401-0003-11,

Department of Agriculture’s Consolidated Financial Statements for

Fiscal Years 2012 and 2011, dated November 14, 2012.

Finding 3: Controls Over Financial Reporting Can be Strengthened

Recommendation 1

Continue to analyze the abnormal balances to identify and implement the actions needed to

correct those balances, to include providing oversight to ensure reimbursable activities are timely

billed for collection.

Departmental Status

OCFO stated that final action was complete on this recommendation and the recommendation is

closed.

OIG Results

OIG continued to find similar deficiencies in our review of abnormal balances in the fiscal year

2016 financial statement audit and has issued a repeat of Finding 3 and a modified

recommendation.

18 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

70

Exhibit B: Status of Prior Year Material Weaknesses and

Significant Deficiencies

Control Deficiency 2015 Status 2016 Status

Overall Financial

Management

Material Weakness Material Weakness

Overall Information

Technology Security Program

Material Weakness Material Weakness

Financial Reporting Controls Significant Deficiency Significant Deficiency

Information Technology

Controls

Significant Deficiency Closed

7

In fiscal year 2015, Audit Report 50401-0009-11, Department of Agriculture’s Consolidated Financial Statements

for Fiscal Years 2015 and 2014, issued February 12, 2016, disclosed weaknesses in the FMMI system. OIG did not

identify similar deficiencies in our fiscal year 2016 review of FMMI.

AUDIT REPORT 50401-0011-11

19

SECTION II FINANCIAL INFORMATION

71

Exhibit C: Status of Prior Year Noncompliance Findings

Report 50401-0009-11, U.S. Department of Agriculture’s Consolidated Financial

Statements for Fiscal Years 2015 and 2014, dated February 12, 2016.

Finding 5: Lack of Substantial Compliance with FFMIA Requirements

Reported Noncompliance

The Department reported a lack of substantial compliance with the FFMIA requirements. The

Department reported that it was not compliant with FFMSR, applicable accounting standards,

USSGL at the transaction level, and FISMA requirements.

Status

In fiscal year 2016, the Department continued to report substantial noncompliance with FFMSR,

applicable accounting standards, USSGL at the transaction level, and FISMA requirements, as

discussed in Finding 4.

Finding 6: ADA Violation

Reported Noncompliance

In fiscal year 2015, the Department reported four actual and one potential ADA violation in its

Agency Financial Report. Specifically, FS identified and resolved as of April 1, 2015, an ADA

of $6,781.90 in excess of $72,000 carried over from fiscal year 2012. FS identified an ADA

related to the agency’s employment of non-U.S. citizens, FSA reported an ADA exceeding

OMB approved apportionment request by $302,823.57, and OAO identified an ADA exceeding

the amount available for “Outreach and Assistance for Socially Disadvantaged and Veteran

Farmers and Ranchers” grants. These ADA’s are in the process of being reported to Congress

and the President. Also, FAS identified a potential ADA with its fiscal year 2009 appropriation,

and is in the process of researching to make a determination.

Also in fiscal year 2015, the Department reported a potential ADA by OAO associated with the

Strikeforce Initiative and a potential ADA by OASCR, however after further research; both

agencies determined these were not ADA violations.

Status

As discussed in Finding 5, this weakness continues to exist.

20 AUDIT REPORT 50401-0011-11

USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

72

AUDIT RE

PORT 50401-0011-11

21

Agency Response to Auditors Report

Exhibit D: Agency’s Response

USDA’S RESPONSE TO AUDIT REPORT

SECTION II FINANCIAL INFORMATION

73

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USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

74

Exhibit E: Agency’s Financial Report

AGENCY’S FINANCIAL REPORT

FISCAL YEARS 2016 AND 2015

FINANCIAL STATEMENTS

PREPARED BY USDA

ONLY CONOLIDATED BALANCE SHEET AND

RELATED FOOTNOTES ARE AUDITED

22

AUDIT REPORT 50401-0011-11

SECTION I I FINANCIAL INFORMATION 75

Consolidated Balance Sheet

As of September 30, 2016 ($ In Millions)

2016

Assets (Note 2):

Intragovernmental:

Fund Balance with Treasury (Note 3) 124,725$

Investments (Note 5) 201

Accounts Receivable, Net (Note 6) 82

Other (Note 11) 3

Total Intragovernmental 125,011

Cash and Other Monetary Assets (Note 4) 200

Investments (Note 5) 3

Accounts Receivable, Net (Note 6) 1,111

Direct Loan and Loan Guarantees, Net (Note 7) 98,813

Inventory and Related Property, Net (Note 8) 24

General Property, Plant, and Equipment, Net (Note 9) 2,605

Other (Note 11) 207

Total Assets 227,974

Stewardship PP&E (Note 10)

Liabilities (Note 12):

Intragovernmental:

Accounts Payable -

Debt (Note 13) 121,603

Other (Note 15) 18,383

Total Intragovernmental 139,986

Accounts Payable 1,851

Loan Guarantee Liability (Note 7) 1,529

Federal Employee and Veteran Benefits 905

Environmental and Disposal Liabilities (Note 14) 196

Benefits Due and Payable 4,541

Other (Notes 15 & 16) 25,042

Total Liabilities 174,050

Commitments and Contingencies (Note 17)

Net Position:

Unexpended Appropriations - Funds From Dedicated Collections (Note 18) 144

Unexpended Appropriations - All Other Funds 53,788

Cumulative Results of Operations - Funds From Dedicated Collections(Note 18) 2,715

Cumulative Results of Operations - All Other Funds (2,723)

Total Net Position - Funds From Dedicated Collections 2,859

Total Net Position - All Other Funds 51,065

Total Net Position 53,924

Total Liabilities and Net Position 227,974

The accompanying notes are an integral part of these statements.

76 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Notes to the Consolidated Balance Sheet

As of September 30, 2016 ($ In Millions)

Note 1: Significant Accounting Policies

ORGANIZATION

USDA provides a wide variety of services in the United States and around the world. USDA is

organized into seven distinct mission areas and their agencies that execute these missions.

Listed below are the missions and the agencies within each mission including three

Government corporations:

FARM AND FOREIGN AGRICULTURAL SERVICES (FFAS)

• Farm Service Agency (FSA)

o Commodity Credit Corporation (CCC)

• Foreign Agricultural Service (FAS)

• Risk Management Agency (RMA)

o Federal Crop Insurance Corporation (FCIC)

FOOD, NUTRITION, AND CONSUMER SERVICES (FNCS)

Food and Nutrition Service (FNS)

FOOD SAFETY

Food Safety and Inspection Service (FSIS)

MARKETING AND REGULATORY PROGRAMS (MRP)

• Agricultural Marketing Service (AMS)

• Animal and Plant Health Inspection Service (APHIS)

• Grain Inspection, Packers and Stockyards Administration (GIPSA)

NATURAL RESOURCES AND ENVIRONMENT (NRE)

• Forest Service (FS)

• Natural Resources Conservation Service (NRCS)

SECTION I I FINANCIAL INFORMATION 77

RESEARCH, EDUCATION, AND ECONOMICS (REE)

• Agricultural Research Service (ARS)

• National Institute of Food and Agriculture (NIFA)

• Economic Research Service (ERS)

• National Agricultural Statistics Service (NASS)

RURAL DEVELOPMENT

• Rural Development (RD)

o Alternative Agricultural Research and Commercialization Corporation (AARC)

PRESENTATION

The Consolidated Balance Sheet for FY 2016 is presented for audit, in lieu of the basic

statements on a comparative basis as required by OMB Circular A-136, to demonstrate

incremental improvement from the prior year. The Consolidated Statement of Net Cost,

Consolidated Statement of Changes in Net Position and the Combined Statement of Budgetary

Resources and related notes are presented in the Other Information section as unaudited. The

financial statements consolidate all of the agencies' results. The effects of intradepartmental

activity and balances are eliminated, except for the Statement of Budgetary Resources that is

presented on a combined basis. The financial statements are prepared in accordance with

generally accepted accounting principles for the Federal Government.

RECLASSIFICATIONS

Note 7 was reclassified to add Community Facility and Intermediary Relending programs.

USE OF ESTIMATES

The preparation of financial statements requires management to make estimates and

assumptions that affect the amounts reported in the financial statements and accompanying

notes. Actual results could differ from those estimates.

REVENUE AND OTHER FINANCING SOURCES

Revenue from exchange transactions is recognized when persuasive evidence of an

arrangement exists, delivery has occurred or services have been rendered, sales price is fixed or

determinable, and collection is reasonably assured. In certain cases, the prices charged by the

Department are set by law or regulation, which for program and other reasons may not

represent full cost. Prices set for products and services offered through the Department’s

78 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

working capital funds are intended to recover the full costs incurred by these activities.

Revenue from non-exchange transactions is recognized when a specifically identifiable, legally

enforceable claim to resources arises, to the extent that collection is probable and the amount is

reasonably estimable. Appropriations are recognized as a financing source when used. An

imputed financing source is recognized for costs subsidized by other Government entities.

INVESTMENTS

The Department is authorized to invest certain funds in excess of its immediate needs in

Treasury securities. Investments in non-marketable par value Treasury securities are classified

as held to maturity and are carried at cost. Investments in market-based Treasury securities are

classified as held to maturity and are carried at amortized cost. The amortized cost of securities

is based on the purchase price adjusted for amortization of premiums and accretion of discounts

using the straight-line method over the term of the securities.

ACCOUNTS RECEIVABLE

Accounts receivable are reduced to net realizable value by an allowance for uncollectible

accounts. The adequacy of the allowance is determined based on past experience and age of

outstanding balances.

DIRECT LOANS AND LOAN GUARANTEES

Direct loans obligated and loan guarantees committed after fiscal 1991 are reported based on

the present value of the net cash-flows estimated over the life of the loan or guarantee. The

difference between the outstanding principal of the loans and the present value of their net cash

inflows is recognized as a subsidy cost allowance; the present value of estimated net cash

outflows of the loan guarantees is recognized as a liability for loan guarantees. The subsidy

expense for direct or guaranteed loans disbursed during the year is the present value of

estimated net cash outflows for those loans or guarantees. A subsidy expense also is recognized

for modifications made during the year to loans and guarantees outstanding and for reestimates

made as of the end of the year to the subsidy allowances or loan guarantee liability for loans

and guarantees outstanding.

Direct loans obligated and loan guarantees committed before fiscal 1992 are valued using either

the present-value or net realizable methods. Under the present-value method, the outstanding

principal of direct loans is reduced by an allowance equal to the difference between the

outstanding principal and the present value of the expected net cash flows. The liability for loan

guarantees is the present value of expected net cash outflows due to the loan guarantees. Under

the net realizable value method, the average rate of the last five years of write-offs is used.

SECTION I I FINANCIAL INFORMATION 79

INVENTORIES AND RELATED PROPERTY

Inventories to be consumed in the production of goods for sale or in the provision of services

for a fee are valued on the basis of historical cost using a first-in, first-out method.

Commodities are valued at the lower of cost or net realizable value using a weighted average

method. Barter Delivery Obligations (BDO) are valued at the net sales proceeds. BDO are

exchanged for food products to be utilized in domestic and export food programs.

PROPERTY, PLANT AND EQUIPMENT

Property, Plant and Equipment (PP&E) are stated at cost less accumulated depreciation.

Depreciation is determined using the straight-line method over the estimated useful lives of the

assets. Useful lives for PP&E are disclosed in Note 9. Capitalization thresholds for personal

property and real property are $25,000 and $100,000 for internal use software. There are no

restrictions on the use or convertibility of PP&E.

PENSION AND OTHER RETIREMENT BENEFITS

Pension and other retirement benefits (primarily retirement health care benefits) expense is

recognized at the time the employees’ services are rendered. The expense is equal to the

actuarial present value of benefits attributed by the pension plan’s benefit formula, less the

amount contributed by the employees. An imputed cost is recognized for the difference

between the expense and contributions made by and for employees.

OTHER POST-EMPLOYMENT BENEFITS

Other post-employment benefits expense for former or inactive (but not retired) employees is

recognized when a future outflow or other sacrifice of resources is probable and measurable on

the basis of events occurring on or before the reporting date. The liability for long-term other

post-employment benefits is the present value of future payments.

FUNDS FROM DEDICATED COLLECTIONS

In accordance with Statement of Federal Financial Accounting Standards (SFFAS) 43, Funds

from Dedicated Collections, USDA has reported the funds from dedicated collections for which

it has program management responsibility when the following three criteria are met: 1) a

statute committing the Federal Government to use specifically identified revenues and/or other

financing sources that are originally provided to the Federal Government by a non-Federal

source only for designated activities, benefits or purposes; 2) 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; and 3) a requirement to account for and

80 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

report on the receipt, use, and retention of the revenues and/or other financing sources that

distinguishes the fund from the Federal Government’s general revenues.

CONTINGENCIES

Contingent liabilities are recognized when a past event or exchange transaction has occurred, a

future outflow or other sacrifice of resources is probable, and the future outflow or sacrifice of

resources is measurable.

ALLOCATION TRANSFERS

USDA is 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 the U.S. 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 entity.

USDA allocates funds, as the parent, to a number of U.S. Government agencies, including:

Department of the Interior, Department of Defense, Department of Housing and Urban

Development, Agency for International Development and the Small Business Administration.

USDA receives allocation transfers, as the child, from the Department of Labor, Department of

Transportation, Department of the Interior, Agency for International Development, Economic

Development Administration, Appalachian Regional Commission and the Delta Regional

Authority.

INTER-ENTITY COSTS

Each entity’s full cost should incorporate the full cost of goods and services that it receives

from other entities. The entity providing the goods or services has the responsibility to provide

the receiving entity with information on the full cost of such goods or services either through

billing or other advice.

Recognition of inter-entity costs that are not fully reimbursed is limited to material items that:

1) are significant to the receiving entity, 2) form an integral or necessary part of the receiving

entity’s output, and 3) can be identified or matched to the receiving entity with reasonable

precision. Broad and general support services provided by an entity to all or most other entities

should not be recognized unless such services form a vital and integral part of the operations or

output of the receiving entity.

SECTION I I FINANCIAL INFORMATION 81

FIDUCIARY ACTIVITIES

Fiduciary activities are the collection or receipt, and the management, protection, accounting,

investment, and disposition by the Federal Government of cash or other assets in which

non Federal individuals or entities have an ownership interest that the Federal Government

must uphold. Fiduciary assets are not assets of the Federal Government and are not recognized

on the balance sheet.

ASBESTOS-RELATED CLEANUP COSTS

Effective October 1, 2012, Technical Bulletin (TB) 2006-1, Recognition and Measurement of

Asbestos-Related Cleanup Costs, as amended, requires an estimate of both friable and

non-friable asbestos-related cleanup costs; recognition of a liability and related expense for

those costs that are both probable and reasonably estimable; and disclosure of information

related to friable and non-friable asbestos-related cleanup costs that are probable but not

reasonably estimable in a note to the financial statements.

DEFERRED MAINTENANCE AND REPAIRS

Deferred maintenance and repairs are such that were not performed when they should have

been or were scheduled to be and which are put off or delayed for a future period. Maintenance

and repairs are activities directed toward keeping fixed assets in an acceptable condition.

Activities include preventive maintenance; replacement of parts, systems, or components; and

other activities needed to preserve or maintain the asset. Maintenance and repairs, as

distinguished from capital improvements, exclude activities directed towards expanding the

capacity of an asset or otherwise upgrading it to serve needs different from, or significantly

greater than, its current use. SFFAS 42, Deferred Maintenance and Repairs: Amending

Statements of Federal Financial Accounting Standards 6, 14, 29 and 32, became effective

October 1, 2014. Estimates for deferred maintenance and repairs are disclosed in required

supplementary information.

82 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 2: Non-Entity Assets

Non-entity assets include proceeds from the sale of timber payable to the U.S. Treasury, timber

contract performance bonds, employer contributions and payroll taxes withheld for agencies

serviced by the National Finance Center, rural housing escrow, interest, fines, and penalties.

FY 2016

Intragovernmental:

Fund balance with Treasury 221$

Accounts Receivable 378

Subtotal Intragovernmental 599

With the Public:

Cash and other monetary assets 44

Accounts receivable 136

Subtotal With the Public 180

Total non-entity assets 779

Total entity assets 227,195

Total Assets 227,974$

SECTION I I FINANCIAL INFORMATION 83

Note 3: Fund Balance with Treasury

Other Fund Types include deposit and clearing accounts. Borrowing Authority not yet

Converted to Fund Balance represents unobligated and obligated amounts recorded at year-end

that will be funded by future borrowings. Non-Budgetary Fund Balance with Treasury includes

special fund receipt accounts, and clearing and suspense account balances awaiting disposition

or reclassification.

FY 2016

Fund Balances:

Trust Funds 585$

Special Funds 23,209

Revolving Funds 28,674

General Funds 72,039

Other Fund Types 218

Total 124,725

Status of Fund Balance with Treasury:

Unobligated Balance:

Available 29,613

Unavailable 42,305

Obligated Balance not yet Disbursed 72,102

Borrowing Authority not yet Converted to Fund Balance (41,349)

Non-Budgetary Fund Balance with Treasury 22,054

Total 124,725$

Note 4: Cash and Other Monetary Assets

For FY 2016, cash mostly consists of Federal crop insurance escrow amounts of $108 million

and deposits in transit of $49 million. In FY 2016, cash includes Single Family Housing

borrowers escrow amounts of $44 million.

FY 2016

Cash 200$

84 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 5: Investments

FY 2016 Amortized Market

Amortization (Premium) Interest Investments, Value

Method Cost Discount Receivable Net Disclosure

Intragovernmental:

Non-marketable

Par value -$ -$ -$ -$ -$

Market-based Straight Line 200 - 1 201 201

Total 200$ -$ 1$ 201$ 201$

With the Public:

AARC 3$ -$ -$ 3$ 3$

Total 3$ -$ -$ 3$ 3$

Note 6: Accounts Receivable, Net

FY 2016

Accounts

Receivable,

Gross

Allowance for

Uncollectible

Accounts

Receivable,

Net

Intragovernmental 82$ -$ 82$

With the Public 1,267 (156) 1,111

Total 1,349$ (156)$ 1,193$

SECTION I I FINANCIAL INFORMATION 85

Note 7: Direct Loans and Guarantees, Non-Federal Borrowers

DIRECT LOANS

Direct loan obligations or loan guarantee commitments made pre-1992 and the resulting direct

loans or loan guarantees are reported at either net present-value or net realizable value.

Direct loan obligations or loan guarantee commitments made post-1991 and the Federal Credit

Reform Act of 1990 as amended govern the resulting direct loan or loan guarantees. The Act

requires agencies to estimate the cost of direct loans and loan guarantees at present value for

the budget. Additionally, the present value of the subsidy costs (i.e., interest rate differentials,

interest subsidies, delinquencies and defaults, fee offsets, and other cash flows) associated with

direct loans and loan guarantees are recognized as a cost in the year the loan or loan guarantee

is disbursed. The net present value of loans or defaulted guaranteed loans receivable at any

point in time is the amount of the gross loan or defaulted guaranteed loans receivable less the

present value of the subsidy at that time.

The net present value of Direct Loan and Loan Guarantees, Net is not necessarily

representative of the proceeds that might be expected if these loans were sold on the open

market.

Direct Loan and Loan Guarantees, Net at the end of FY 2016 was $98,813 million. Loans

exempt from the Federal Credit Reform Act of 1990 represent $564 million of the total. Table 1

illustrates the overall composition of the Department’s credit program balance sheet portfolio

by mission area and credit program for FY 2016.

Beginning in FY 2012, advance payments surpassed the loans receivable balance in the Rural

Utilities Liquidating Fund. This was due to an increased volume in advance payments and a

normal reduction to the Liquidating Portfolio. The Omnibus Budget Act of 1987, section 313,

authorized the accumulation of Cushion of Credit (CoC) in the Revolving Fund. Borrowers

may make advance payments up to their liquidating and financing total Rural Utilities Service

debt. To accurately represent the value of Electric and Telecommunication assets, RD reports

the CoC amounts as a separate line item in Table 1.

During the fiscal year, the gross outstanding balance of the direct loans obligated post-1991 is

adjusted by the value of the subsidy cost allowance held against those loans. Current year

subsidy expense, modifications and reestimates all contribute to the change of the subsidy cost

allowance throughout the year. The subsidy cost allowance was $4,824 million during

FY 2016. Table 2 shows the subsidy cost allowance balances for FY 2016.

86 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Total direct loan subsidy expense is a combination of subsidy expense for new direct loans

disbursed in the current year, modifications to existing loans, and interest rate and technical

reestimates to existing loans. Total direct loan subsidy expense in FY 2016 was negative

$71 million. Table 3 illustrates the breakdown of total subsidy expense for FY 2016 by

program.

Direct loan volume was $9,499 million in FY 2016. Volume distribution between mission area

and program is shown in Table 4.

GUARANTEED LOANS

Guaranteed loans are administered in coordination with conventional agricultural lenders for up

to 95 percent of the principal loan amount. Under the guaranteed loan programs, the lender is

responsible for servicing the borrower’s account for the life of the loan. The Department,

however, is responsible for ensuring borrowers meet certain qualifying criteria to be eligible

and monitoring the lender’s servicing activities. Borrowers interested in guaranteed loans must

apply to a conventional lender, which then arranges for the guarantee with a Department

agency. Estimated losses on loan and foreign credit guarantees are reported at net present value

as Loan Guarantee Liability. Defaulted guaranteed loans are reported at net present value as

Loans Receivable and Related Foreclosed Property, Net.

Guaranteed loans outstanding at the end of FY 2016 were $139,656 million in outstanding

principal and $124,871 million in outstanding principal guaranteed. Table 5 shows the

outstanding balances by credit program.

During the fiscal year, the value of the guaranteed loans is adjusted by the value of the loan

guarantee liability held against those loans. Current year subsidy expense, modification, and

reestimates all contribute to the change of the loan guarantee liability through the year. The

loan guarantee liability is a combination of the liability for losses on pre-1992 guarantees and

post-1991 guarantees. Table 6 shows that total liability was $1,529 million during FY 2016.

Table 7 shows the total loan guarantee liability.

Total guaranteed loan subsidy expense is a combination of subsidy expense for new guaranteed

loans disbursed in the current year, modifications to existing loans, and interest rate and

technical reestimates to existing loans. Total guaranteed loan subsidy expense in FY 2016 was

negative $4,215 million. Table 8 illustrates the breakdown of total subsidy expense for

FY 2016 by program.

Guaranteed loan volume was $23,903 million in FY 2016. Volume distribution between

mission area and program is shown in Table 9.

SECTION I I FINANCIAL INFORMATION 87

ADMINISTRATIVE EXPENSES

Consistent with the Federal Credit Reform Act of 1990, as amended, subsidy cash flows

exclude direct Federal administrative expenses. Administrative expenses for FY 2016 are

shown in Table 10.

SUBSIDY RATES

Subsidy rates are used to compute each year’s subsidy expenses. The subsidy rates disclosed in

Table 11 and Table 12 pertain only to the FY 2016 cohorts. These rates cannot be applied to the

direct and guaranteed loans disbursed during the current reporting year to yield the subsidy

expense. The subsidy expense for new loans reported in the current year could result from

disbursements of loans from both current year cohorts and prior-year cohorts. The subsidy

expense reported in the current year also includes reestimates.

CREDIT PROGRAM DISCUSSION AND DESCRIPTIONS

The Department offers direct and guaranteed loans through credit programs in the FFAS

mission area through the FSA and the CCC, and in the RD mission area.

FARM AND FOREIGN AGRICULTURAL SERVICES (FFAS) MISSION AREA

The FFAS mission area helps keep America’s farmers and ranchers in business as they face the

uncertainties of weather and markets. FFAS delivers commodity, credit, conservation, disaster,

and emergency assistance programs that help strengthen and stabilize the agricultural economy.

FFAS contributes to the vitality of the farm sector with programs that encourage the expansion

of export markets for U.S. agriculture.

FSA offers direct and guaranteed loans to farmers who are temporarily unable to obtain private,

commercial credit, and nonprofit entities that are engaged in the improvement of the nation’s

agricultural community. Often, FSA borrowers are beginning farmers who cannot qualify for

conventional loans due to insufficient financial resources. Additionally, the agency helps

established farmers who have suffered financial setbacks from natural disasters or have limited

resources to maintain profitable farming operations. FSA officials also provide borrowers with

supervision and credit counseling.

FSA’s mission is to provide supervised credit. FSA works with each borrower to identify

specific strengths and weaknesses in farm production and management, and provides

alternatives to address weaknesses. FSA is able to provide certain loan servicing options to

assist borrowers whose accounts are distressed or delinquent. These options include

reamortization, restructuring, loan deferral, lowering interest rates, acceptance of easements,

and debt write-downs. The eventual goal of FSA’s farm credit programs is to graduate its

borrowers to commercial credit.

88 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

CCC’s foreign programs provide economic stimulus to both the U.S. and foreign markets,

while giving humanitarian assistance to the most needy people throughout the world. CCC

offers both credit guarantee and direct credit programs for buyers of U.S. exports, suppliers,

and sovereign countries in need of food assistance.

CCC permits debtor nations to reschedule debt under the aegis of the Paris Club. The Paris

Club is an informal group of official creditors whose role is to facilitate debt treatments based

on an internationally recognized set of rules and principles, facilitated by the senior officials of

the French Treasury. Its sole purpose is to assess, on a case-by-case basis, liquidity problems

faced by economically disadvantaged countries. The general premise of Paris Club is to provide

disadvantaged nations short-term liquidity relief to enable them to reestablish their credit

worthiness. The U.S. Departments of State and Treasury lead the U.S. Delegation and

negotiations for all U.S. Agencies.

CCC also provides loans for Farm and Sugar Storage Facilities (FSFL). FSFL provides low

interest financing for producers to build or upgrade farm storage and handling facilities. FSFL

program regulations were amended during FY 2016 to add eligibility for portable storage

structures, portable equipment, and storage and handling trucks, and to reduce the down

payment and documentation requirements for a new “microloan” category of FSFLs up to

$50,000.

FARM AND FOREIGN AGRICULTURAL SERVICE LIST OF PROGRAMS

Farm Service Agency Commodity Credit Corporation

Direct Farm Ownership

Direct Farm Operating

Direct Emergency Loans

Direct Indian Land Acquisition

Direct Boll Weevil Eradication

Direct Seed Loans to Producers

Direct Conservation

Guaranteed Farm Operating

Subsidized/Unsubsidized

Guaranteed Farm Ownership Unsubsidized

Guaranteed Conservation

American Recovery and Reinvestment Fund

General Sales Manager Export Credit Guarantee

Program

Facility Program Guarantee

P.L. 480 Title 1 Program

Direct Farm Storage Facility

Direct Sugar Storage Facilities

SECTION I I FINANCIAL INFORMATION 89

RURAL DEVELOPMENT (RD) MISSION AREA

Each year, RD programs create or preserve tens of thousands of rural jobs and provide or

improve the quality of rural housing. To leverage the impact of its programs, RD works with

State, local and Indian Tribal governments, as well as private and not-for-profit organizations

and user-owned cooperatives.

Through its rural housing loan and grant programs, RD provides affordable housing and

essential community facilities to rural communities. Rural housing programs help finance new

or improved housing for moderate, low, and very low-income families each year. The programs

also help rural communities finance, construct, enlarge, or improve fire stations, libraries,

hospitals and medical clinics, industrial parks, and other community facilities.

The Rural Business Program goal is to promote a dynamic business environment in rural

America. RD partners with the private sector and community-based organizations to provide

financial assistance and business planning. It also provides technical assistance to rural

businesses and cooperatives, conducts research into rural economic issues, and provides

cooperative educational materials to the public.

The Rural Utilities Program helps to improve the quality of life in rural America through a

variety of loan programs for electric energy, telecommunications, and water and environmental

projects. This program leverages scarce Federal funds with private capital for investing in rural

infrastructure, technology, and development of human resources.

RD programs provide certain loan servicing options to borrowers whose accounts are distressed

or delinquent. These options include reamortization, restructuring, loan deferral, lowering

interest rate, acceptance of easements, and debt write-downs. The choice of servicing options

depends on the loan program and the individual borrower.

90 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

RURAL DEVELOPMENT LIST OF PROGRAMS

Rural Housing Program Rural Business Program Rural Utilities Program

Single Family Housing Direct

Loans

Single Family Housing

Guaranteed Loans

Self Help Housing Direct

Loans

Single Family Housing Credit

Sales

Farm Labor Housing Direct

Loans

Multi-Family Housing Direct

Loans

Multi-Family Housing

Guaranteed Loans

Multi-Family Housing-Credit

Sales

Multi-Family Housing

Relending Program

Multi-Family Housing

Revitalization Program

Community Facilities Direct

Loans

Community Facilities

Guaranteed Loans

Business and Industry Direct

Loans

Business and Industry

Guaranteed Loans

Intermediary Relending

Program Direct Loans

Rural Economic Development

Direct Loans

Biorefinery Guaranteed Loans

Rural Energy for America

Guaranteed Loans

Rural Microenterprise

Investment Direct Loans

Water and Environmental

Direct Loans

Water and Environmental

Guaranteed Loans

Electric Direct Loans

Electric Guaranteed Loans

Telecommunications Direct

Loans

Federal Financing Bank-

Electric

Federal Financing Bank-

Telephone

Distance Learning and

Telemedicine Direct

Broadband

Telecommunications Services

EVENTS AND CHANGES HAVING A SIGNIFICANT AND MEASURABLE EFFECT ON

SUBSIDY RATES, SUBSIDY EXPENSE, AND SUBSIDY RE-ESTIMATES

The Federal Credit Reform Act of 1990, as amended, governs the proprietary and budgetary

accounting treatment of direct and guaranteed loans. The long-term cost to the Government for

direct loans or loan guarantees is referred to as “subsidy cost.” Under the Act, subsidy costs for

loans obligated beginning in FY 1992 are recognized at the net present value of projected

lifetime costs in the year the loan is disbursed. Subsidy costs are revalued annually.

Components of subsidy include interest subsidies, defaults, fee offsets, and other cash flows.

The annual reestimate process updates the budget assumptions with actual portfolio

performance, interest rates, and updated estimates for future loan performance. The FY 2016

SECTION I I FINANCIAL INFORMATION 91

reestimate process resulted in a $37 million decrease in the post-1991 estimated cost of the

direct loan portfolio and a $4,264 million decrease in the post-1991 estimated cost of the

guaranteed loan portfolio, primarily comprised of the following programs.

Direct Loans

The Community Facilities Program had an overall upward reestimate of $176 million. The

projected future interest from borrowers declined due to higher projected prepayments for the

2012 through 2016 cohorts, which was partially offset by a $54 million downward reestimate in

the 2011 cohort caused by a decrease in projected borrowing costs as a result of the cohort’s

interest rate reestimate.

The Direct Electric Programs had an overall upward reestimate of $103 million comprised

primarily of a $137 million upward reestimate in the FFB Underwriting Program, a $91 million

downward reestimate in the Electric Municipal Program, and a $43 million upward reestimate

in the Electric Note Extension Program. The upward reestimate in the FFB Underwriting

Program is attributed to more current interest rate projections being used in the economic

assumptions. Lower projected future interest rates occurred as a result of the updated

assumptions, and caused a decrease in total scheduled interest payments. The downward

reestimate within the Electric Municipal Program is attributed to higher actual and higher

projected loan prepayments. The upward reestimate in the Electric Note Extension Program is

do to an update of actual interest received. The update decreased the amount of interest

received for 2015 thus increasing the Agency’s cost of administering the program.

The Housing Program had an overall downward reestimate of $82 million comprised primarily

of a $76 million downward reestimate in the Section 502-Single Family Housing. The

reestimate was mostly due to an increase in prepayments in cohort years 2015 and 2016. Since

this program had payment assistance that brings the borrower interest rate to 1 percent, which is

lower than the Single Effective Rate (SER), it would cause a downward reestimate.

The Water and Environmental Program had an overall downward reestimate of $78 million as

compared to a $133 million downward reestimate in FY 2015. The impact to the overall

downward reestimate was contributed to a decrease in the SER, or the rate at which the Agency

pays/earns interest on Treasury borrowings from the previous year. The decrease in the SER

created a larger variance between the SER and the borrower interest rate thus reducing the

Agency’s cost.

In FY 2016, the post-1991 Housing Program had a significant decrease in the defaulted

guaranteed loans receivable and corresponding allowance. RD policy changed to suspend

referral for Treasury debt offset. Previously, losses paid were referred to Treasury for

collection. Losses referred to Treasury were recalled. As a result, RD wrote off approximately

$1,000 million.

92 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Guaranteed Loans

In FY 2016, the Agency implemented a new econometric model to estimate the cost of the

Guaranteed Single Family Housing Program. The industry standard model incorporates the use

of key loan and borrower attributes and economic variables to better estimate the future

program performance. The implementation of this new model, along with lower than

previously projected losses for 2015, resulted in significantly lower projected defaults for

cohort years 2011through 2016, slightly offset by higher projected default costs for the 2004

through 2008 cohorts, resulting in a net downward reestimate of $4,200 million.

Loan Modifications

A modification is any Government action different from the baseline assumptions that affect

the subsidy cost, such as a change in the terms of the loan contract. The cost of a modification

is the difference between the present value of the cash flows before and after the modification.

Multi-Family Housing direct loan modifications related to the revitalization program, which

began in FY 2006, continued through FY 2016. In this program, Rural Development provides

restructured loans and grants to development owners to revitalize multi-family housing

development projects in order to extend the affordable use without displacing tenants due to the

increased rent.

The Debt Reduction Fund is used to account for CCC’s “modified debt.” Debt is considered to

be modified if the original debt has been reduced or the interest rate of the agreement changed.

In contrast, when debt is “rescheduled,” only the date of payment is changed. Rescheduled debt

is carried in the original fund until paid. With one exception, all outstanding CCC modified

debt is carried in the Debt Reduction Fund and is governed by the Federal Credit Reform Act

of 1990, as amended.

Foreclosed Property

Property is acquired largely through foreclosure and voluntary conveyance. Acquired

properties associated with loans are reported at their market value at the time of acquisition.

The projected future cash flows associated with acquired properties are used in determining the

related allowance (at present value).

As of September 30, 2016, foreclosed property consisted of 1,239 rural single-family housing

dwellings, with an average holding period of 16 months. As of September 30, 2016, FSA-Farm

Loan Program properties consist primarily of 89 farms. The average holding period for these

properties in inventory for FY 2016 was 61 months. Certain properties can be leased to eligible

individuals.

SECTION I I FINANCIAL INFORMATION 93

Other Information

Non-performing loans are defined as receivables that are in arrears by 90 or more days or are

on rescheduling agreements until such time two consecutive payments have been made

following the rescheduling. When RD, FSA and CCC calculate loan interest income, however,

the recognition of revenue is deferred. Late interest is accrued on arrears.

Approximately $15,900 million of Rural Housing Service unpaid loan principal as of

September 30, 2016 were receiving interest credit. If those loans receiving interest credit had

accrued interest at the full-unreduced rate, interest income would have been approximately

$777 million higher for FY 2016.

At the end of FY 2016, the RD portfolio contained approximately 60,734 restructured loans

with an outstanding unpaid principal balance of $2,900 million. At the end of FY 2016, the

farm loan portfolio contained approximately 17,087 restructured loans with an outstanding

unpaid principal balance of $1,133 million. Direct credit and credit guarantee principal

receivables in the food aid and export programs under rescheduling agreements as of

September 30, 2016 were $1,382 million.

Change in Accounting Estimate

Beginning in FY 2016, the Guaranteed Single Family Housing (GSFH) program started using

an econometric model to develop credit subsidy formulation estimates and reestimates. This

was a change from previous fiscal years where a historical weighted average approach was

used.

RD made the change to an econometric model after experiencing several years of large

fluctuations in the Liability for Loan Guarantee year-end balances. The historical weighted

average approach for projecting cash flows relied on averages of actual loan performance data,

and could not adequately predict future cash flows for the GSFH program based on the volatile

economy. For example, during the housing crisis the model was inadequate at capturing the

projected losses that were likely to occur given the observed decline in housing prices and

increased defaults.

94 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 1: Direct Loan and Loan Guarantees, Net

FY 2016 Loans Present Value of Assets

Direct Loans Receivable, Interest Foreclosed Value Related to

Gross Receivable Property Allowance Loans

Obligated Pre-1992

Farm 318$ 19$ 5$ (21)$ 321$

Export - - - - -

Food Aid 1,815 480 - (1,203) 1,092

Housing 6,994 111 14 (14) 7,105

Community Facility 23 - - - 23

Electric 2,488 4 - (1,456) 1,036

Telecommunications 152 - - - 152

Water and Environmental 397 5 - (1) 401

Intermediary Relending 11 - - - 11

Business and Industry - - - - -

Economic Development - - - - -

Pre-1992 Total 12,198 619 19 (2,695) 10,141

Obligated Post-1991

Farm 10,168 162 6 (387) 9,949

Export - - - - -

Food Aid 846 48 - (365) 529

Housing 18,057 113 58 (2,305) 15,923

Community Facility 6,290 44 - (192) 6,142

Electric 44,854 25 - (658) 44,221

Telecommunications 4,199 1 - 12 4,212

Water and Environmental 12,154 101 - (225) 12,030

Intermediary Relending 383 2 - (105) 280

Business and Industry 41 1 - 1 43

Economic Development 189 - - (13) 176

Post-1991 Total 97,181 497 64 (4,237) 93,505

Cushion of Credit (5,914) - - - (5,914)

Total Direct Loan Program Receivables 103,465 1,116 83 (6,932) 97,732

Defaulted Guarantee Loans

Pre-1992

Farm - - - - -

Export 10 - - - 10

Food Aid - - - - -

Housing - - - - -

Community Facility - - - - -

Electric - - - - -

Telecommunications - - - - -

Water and Environmental - - - - -

Intermediary Relending - - - - -

Business and Industry - - - - -

Economic Development - - - - -

Pre-1992 Total 10 - - - 10

Post-1991

Farm 150 - - (148) 2

Export 586 38 - (368) 256

Food Aid - - - - -

Housing 51 1 - (17) 35

Community Facility 13 - - - 13

Electric - - - - -

Telecommunications - - - - -

Water and Environmental - - - - -

Intermediary Relending - - - - -

Business and Industry 249 4 - (52) 201

Economic Development - - - - -

Post-1991 Total 1,049 43 - (585) 507

Total Defaulted Guarantee Loans 1,059 43 - (585) 517

Loans Exempt from Credit Reform Act:

Commodity Loans 577 2 - (15) 564

Other Foreign Receivables - - - - -

Total Loans Exempt 577 2 - (15) 564

Total Direct Loan and Loan Guarantees, Net 98,813$

SECTION I I FINANCIAL INFORMATION 95

Table 2: Subsidy Cost Allowance Balances (Post-1991) Direct Loans

Ending balance of the subsidy cost allowance 4,824$

Table 3: Subsidy Expense for Direct Loans by Program and Component

FY 2016

Interest Fees and Other Subtotal Total Interest Rate Technical Total Total Subsidy

Differential Defaults Collections Other Subsidy Modifications Reestimates Reestimates Reestimates Expense

Direct Loan Programs

Farm (41)$ 91$ -$ 3$ 53$ -$ (195)$ 152$ (43)$ 10$

Export - - - - - - - 4 4 4

Food Aid - - - - - - - - - -

Housing 48 44 - 11 103 4 (7) (75) (82) 25

Community Facility (116) 29 - (5) (92) - (42) 218 176 84

Electric (105) 7 (11) (41) (150) - 101 2 103 (47)

Telecommunications 1 3 - (10) (6) - (49) (74) (123) (129)

Water and Environmental 63 1 - (20) 44 - (80) 2 (78) (34)

Intermediary Relending 5 - - - 5 - - - - 5

Business and Industry - - - - - - - 9 9 9

Economic Development 5 - - - 5 - (2) (1) (3) 2

Total Direct Loan Subsidy Expense (140)$ 175$ (11)$ (62)$ (38)$ 4$ (274)$ 237$ (37)$ (71)$

Table 4: Total Amount of Direct Loans Disbursed (Post-1991)

FY 2016

Direct Loan Programs

Farm 2,451$

Export -

Food Aid -

Housing 1,109

Community Facility 1,230

Electric 3,433

Telecommunications 362

Water and Environmental 854

Intermediary Relending 17

Business and Industry 4

Economic Development 39

Total Direct Loans Disbursed 9,499$

96 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 5: Guaranteed Loans Outstanding

Pre-1992 Post-1991 Total Pre-1992 Post-1991 Total

FY 2016

Outstanding

Principal,

Outstanding

Principal,

Outstanding

Principal,

Outstanding

Principal,

Outstanding

Principal,

Outstanding

Principal,

Face Value Face Value Face Value Guaranteed Guaranteed Guaranteed

Loan Guarantee Programs

Farm $ 4 $ 15,066 $ 15,070 $ 3 $ 13,578 $ 13,581

Export - 2,127 2,127 - 2,084 2,084

Food Aid - - - - - -

Housing 1 114,846 114,847 1 103,326 103,327

Community Facility - 1,217 1,217 - 1,075 1,075

Electric 7 172 179 7 172 179

Telecommunications - - - - - -

Water and Environmental - 119 119 - 105 105

Intermediary Relending - - - - - -

Business and Industry 4 6,093 6,097 4 4,516 4,520

Economic Development - - - - - -

Total Guarantees Disbursed $ 16 $ 139,640 $ 139,656 $ 15 $ 124,856 $ 124,871

Table 6: Liability for Loan Guarantees (Present Value Method for Pre-1992 Guarantees)

FY 2016

Liabilities for

Losses on Pre-

1992

G

uarantees

Present Value

Liabilities for Loan

Guarantees on Post-

1991 Guarantees

P

resent Value

Total Liabilities for

Loan Guarantees

Loan Guarantee Programs

Farm -$ 197$ 197$

Export - 6 6

Food Aid - - -

Housing - 743 743

Community Facility - 40 40

Electric - - -

Telecommunications - - -

Water and Environmental - 1 1

Intermediary Relending - - -

Business and Industry - 542 542

Economic Development - - -

Total Liability for Loan Guarantees -$ 1,529$ 1,529$

SECTION I I FINANCIAL INFORMATION 97

Table 7: Loan Guarantee Liability

Ending balance of the loan guarantee liability 1,529$

Table 8: Subsidy Expense for Loan Guarantees by Program and Component

FY 2016

Total

Interest Fees and Other Total Interest Rate Technical Total Subsidy

Loan Guarantee Programs Supplement Defaults Collections Other Subtotal Modifications Reestimates Reestimates Reestimates Expense

Farm -$ 35$ (20)$ -$ 15$ -$ 1$ (26)$ (25)$ (10)$

Export - - 11 (9) 2 - - (6) (6) (4)

Food Aid - - - - - - - - - -

Housing - 1,058 (1,092) - (34) - 36 (4,267) (4,231) (4,265)

Community Facility - 5 (1) - 4 - 1 7 8 12

Electric - - - - - - - - - -

Telecommunications - - - - - - - - - -

Water and Environmental - - - - - - - - - -

Intermediary Relending - - - - - - - - - -

Business and Industry - 105 (43) - 62 - (1) (9) (10) 52

Economic Development - - - - - - - - - -

Total Loan Guarantee Subsidy Expense $ - $ 1,203 $ (1,145) $ (9) $ 49 $ - $ 37 $ (4,301) $ (4,264) $ (4,215)

98 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 9: Guaranteed Loans Disbursed

Principal, Face

Value Disbursed

Principal,

Guaranteed

Disbursed

Loan Guarantee Programs

Farm 3,863$ 3,481$

Export 2,028 1,986

Food Aid - -

Housing 16,756 15,081

Community Facility 86 76

Electric - -

Telecommunications - -

Water and Environmental 13 11

Intermediary Relending - -

Business and Industry 1,157 896

Economic Development - -

Total Guaranteed Loans Disbursed 23,903$ 21,531$

FY 2016

Table 10: Administrative Expenses

FY 2016

Direct Loan Programs 508$

Guaranteed Loan Programs 473

Total Administrative Expenses 981$

SECTION I I FINANCIAL INFORMATION 99

Table 11: Subsidy Rates for Direct Loans (percentage)

FY 2016

Interest

Differential Defaults

Fees and

Other

Collections Other Total

Direct Loan Programs

Farm Ownership (2.92) 0.92 - (0.74) (2.74)

Farm Operating (2.86) 6.91 - 0.25 4.30

Emergency Disaster (10.48) 13.05 - 1.07 3.64

Indian Tribe Land Acquisition (24.44) - - - (24.44)

Boll Weevil Eradication (0.63) - - (0.18) (0.81)

Indian Highly Fractionated Land (5.79) 1.32 - (0.11) (4.58)

Farm Storage Facility Loan Program (1.25) 0.01 (0.27) (0.14) (1.65)

Sugar Storage Facility Loan Program (1.43) 0.02 - (0.17) (1.58)

Multi-Family Housing Relending Demo 31.27 - - (0.01) 31.26

Multi-Family Housing Revitalization Seconds 53.64 0.53 - (0.05) 54.12

Multi-Family Housing Revitalization Zero 52.46 0.39 - (0.17) 52.68

Community Facility Loans (12.68) 3.67 - 0.96 (8.05)

Section 502 Single-Family Housing 1.54 4.90 - 0.31 6.75

Section 515 Multi-Family Housing 28.81 0.75 - 0.07 29.63

Section 504 Housing Repair 16.91 (0.04) - (3.84) 13.03

Section 514 Farm Labor Housing 28.77 0.37 - (0.68) 28.46

Section 524 Site Development (2.46) - - 0.93 (1.53)

Section 523 Self-Help Housing (0.35) - - 0.05 (0.30)

Single-Family Housing Credit Sales (9.83) 2.29 - 2.67 (4.87)

Rural Microenterprise Direct Loans 8.24 3.09 - - 11.33

Intermediary Relending Program 27.90 1.34 - (1.63) 27.61

Rural Economic Development Loans 13.42 - - (0.04) 13.38

Water and Waste Disposal Loans 4.80 0.14 - (2.33) 2.61

FFB Electric Loans (4.30) 0.06 - (0.72) (4.96)

Treasury Telecommunication Loans 0.16 0.68 - (0.81) 0.03

FFB Telecommunications Loans 0.17 0.36 - (3.27) (2.74)

FFB Guaranteed Underwriting 0.01 5.21 (5.23) - (0.01)

Rural Energy Savings Program 12.83 1.42 - (0.91) 13.34

Broadband Treasury Loans 0.17 25.02 - (2.40) 22.79

100 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 12: Subsidy Rates for Loan Guarantees (percentage)

FY 2016

Interest

Differential Defaults

Fees and

Other

Collections

Other Total

Guaranteed Loan Programs

Farm Ownership—Unsubsidized - 1.17 (1.30) - (0.13)

Farm Operating—Unsubsidized - 2.36 (1.33) - 1.03

Conservation—Guaranteed - 0.97 (1.30) - (0.33)

GSM 102 - 0.26 (0.72) - (0.46)

Export Guarantee Program—Facilities - 0.39 (3.68) - (3.29)

Community Facility Loan Guarantees - 3.24 (0.88) - 2.36

Guaranteed 538 Multi-Family Housing - 5.41 (8.38) - (2.97)

Guaranteed 502 Single-Family Housing - 6.49 (6.64) - (0.15)

Business and Industry Loan Guarantees - 7.93 (4.06) - 3.87

Renewable Energy Loan Guarantees - 7.91 (1.32) - 6.59

Section 9003 Loan Guarantees - 26.39 (5.58) 1.61 22.42

Water and Waste Disposal Loans - 1.41 (0.86) - 0.55

Note 8: Inventory and Related Property, Net

Commodity inventory is restricted for the purpose of alleviating distress caused by natural

disasters, providing emergency food assistance in developing countries and providing price

support and stabilization.

Commodities:

Unit of Measure Quantity

Value

Corn Meal Pounds 6 1$

Blended Foods Pounds 27 9

Dry Edible Beans Cwt. - 3

Dry Whole Peas Cwt. - 5

Emergency Food Ration Bars Pounds - -

Grain Sorghum Bushels - -

Lentils Dry Cwt. - -

Nonfat Dry Milk Pounds - -

Rice Products Cwt., Pounds - 1

Meat Pounds - -

Vegetable Oil Pounds 10 6

Wheat Products Bushels, Pounds - -

Other Various XXXX -

Total Commodities XXXX 25$

Allowance for losses (1)

Barter Delivery Obligations (BDO) -

Total Inventory and Related Property, Net 24$

Ending Inventory

FY 2016

SECTION I I FINANCIAL INFORMATION 101

Note 9: General Property, Plant, and Equipment (PP&E), Net

FY 2016 Useful Net

Life Accumulated Book

Category (Years) Cost Depreciation Value

Land and Land Rights 70$ -$ 70$

Improvements to Land 10 - 50 756 (724) 32

Construction-in-Progress 100 - 100

Buildings, Improvements and Renovations 15 - 30 3,056 (1,783) 1,273

Other Structures and Facilities 15 - 50 1,839 (1,592) 247

Equipment 5 - 20 1,753 (1,291) 462

Assets Under Capital Lease 3 - 20 41 (32) 9

Leasehold Improvements 10 80 (74) 6

Internal-Use Software 5 - 8 1,113 (838) 275

Internal-Use Software in Development 131 - 131

Total 8,939$ (6,334)$ 2,605$

Note 10: Stewardship PP&E

Stewardship PP&E consist of assets whose physical properties resemble those of general PP&E

that are traditionally capitalized in the financial statements. Due to the nature of these assets,

valuation would be difficult and matching costs with specific periods would not be meaningful.

Stewardship PP&E include heritage assets and stewardship land.

HERITAGE ASSETS

Heritage assets are unique and are generally expected to be preserved indefinitely. Heritage

assets may be unique because they have historical or natural significance, are of cultural,

educational or artistic importance, or have significant architectural characteristics. The assets

are reported in terms of physical units rather than cost, fair value, or other monetary values. No

amounts are shown on the Balance Sheet for heritage assets, except for multi-use heritage

assets in which the predominant use of the asset is in general government operations. The costs

of acquisition, betterment, or reconstruction of multi-use heritage assets is capitalized as

general PP&E and depreciated. The costs of acquiring, constructing, improving, reconstructing,

or renovating heritage assets, other than multi-use is considered an expense in the period

incurred when determining the net cost of operations. Heritage assets consist of collection type,

such as objects gathered and maintained for exhibition, such as library collections, and

non-collection type, such as memorials, monuments and buildings.

National Forests, National Grasslands and Other Sites

FS manages its heritage assets by site. Sites include national forests, national grasslands, other

FS-managed sites, and non-FS-managed sites such as museums and university laboratories. The

102 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

mission of the FS is to sustain the health, diversity, and productivity of the Nation’s forests and

grasslands to meet the needs of present and future generations. The FS strives to achieve

quality land management under the sustainable multiple-use management concept, to deliver

the necessary products and services that are essential for enhancing natural resource

stewardship, and to meet the diverse needs of people.

Heritage Asset categories can include the following:

Priority Heritage Assets (PHA): Heritage assets of distinct public value that are, or should be,

actively maintained, and meet one or more of the following criteria:

• The property is recognized through an official designation, such as a listing on the

National Register of Historic Places, State register, etc.

• The property is recognized through prior investment in preservation, interpretation, and

use. Any improvement to a PHA that meets real property designation criteria is considered

real property.

• The property is recognized in an Agency-approved management plan.

• The property exhibits critical deferred maintenance needs, and those needs have been

documented.

Other Heritage Assets: Assets that may have potential important historical or cultural

significance but lack formal listing and the demonstrated need for active maintenance.

Assemblage Assets: Any grouping of artifacts or archival materials aggregated through

donation, agency events, site-specific or other field collection, other acquisition method, or

combination therein.

Research Centers

Agricultural Research Service (ARS) conducts research at centers nationwide to develop and

transfer solutions to agricultural problems of high national priority. ARS provides information

access and dissemination to ensure high-quality, safe food and other agricultural products;

assess the nutritional needs of Americans; sustain a competitive agricultural economy; enhance

the natural resource base and the environment; and provide economic opportunities for rural

citizens, communities, and society as a whole.

NRCS owns one heritage asset, the Tucson Plant Materials Center (TPMC), which is included

in general PP&E as a multi-use asset. It was listed in the National Register of Historic Places

(NRHP) on July 2, 1997. The TPMC develops and evaluates native plants and addresses an

array of resource issues in the areas of rangeland, mined land, urban lands, cropland riparian

areas, and desert lands. The TPMC provides technical assistance to NRCS field offices;

SECTION I I FINANCIAL INFORMATION 103

Resource Conservation and Development (RC&D) groups; conservation districts; Federal,

State, and Tribal agencies; and private landowners through the greater Southwest. Research

centers are considered heritage assets because one or more buildings or structures at these

centers is on (or eligible for inclusion on) the NRHP.

Library Collections

The National Agricultural Library (NAL) comprises one of the largest collections of materials

devoted to agriculture in the world. The collections are in constant use to support the research

activities of USDA, assist policymakers, and answer inquiries from citizens such as writers,

editors, historians, filmmakers, and university researchers. NAL houses and provides access to

millions of books and periodicals. The majority of these items were published more than

25 years ago and almost all of them are out of print. By statute, NAL is the primary depository

of publications and information concerning the research and other activities of USDA. Included

in the collection are government documents and many items that are unique and irreplaceable.

NAL collects, preserves and provides access to manuscripts, rare books, photographs, posters,

oral histories, agricultural objects and tools, and other unique materials. Collection

concentrations include the fields of agriculture, forestry, horticulture, entomology, poultry

science, animal science, nutrition, botany, natural history, and agricultural history. Although

focused primarily on American agriculture and related sciences, NAL holds numerous items of

international origin.

Acquisition and Withdrawal of Heritage Assets

The FS generally does not construct heritage assets, although in some circumstances important

site-structural components may be rehabilitated or reconstructed into viable historic properties

to provide forest visitors with use and interpretation. Heritage assets may be acquired through

the procurement process, but this rarely occurs. Normally, heritage assets are part of the land

acquisition and inventory process. Withdrawal occurs through land exchange or natural

disasters. Most additions occur through inventory activities where previously undocumented

sites are discovered and added to the total.

STEWARDSHIP LAND

Stewardship land is land and land rights not acquired for or in connection with items of general

PP&E. Land is defined as the solid surface of the earth, excluding natural resources.

Stewardship land is valued for its environmental resources, recreational and scenic value,

cultural and paleontological resources, vast open spaces, and resource commodities and

revenue provided to the Federal Government, States, and counties. These assets are reported in

terms of physical units rather than cost, fair value, or other monetary values. No asset amount is

shown on the balance sheet for stewardship land. The acquisition cost of stewardship land is

considered an expense in the period acquired when determining the net cost of operations.

104 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Stewardship land consists primarily of the national forests and grasslands owned by the FS and

conservation easements purchased by NRCS.

National Forests

National forests are formally established and permanently set aside and reserved for national

forest purposes, including National Wilderness, National Primitive, National Wild and Scenic

River, National Recreation, National Scenic Research, National Game Refuges and Wildlife

Preserve, and National Monument areas.

National Grasslands

National grasslands are designated by the Secretary of Agriculture and permanently held by the

USDA under Title III of the Bankhead-Jones Farm Tenant Act.

Research and Experimental Areas

Research and experimental areas are reserved and dedicated by the Secretary of Agriculture for

forest and range research experimentation. Areas reported are located outside the exterior

boundaries of a national forest or national grassland.

National Preserves and Other Areas

National preserves are units established to protect and preserve scientific, scenic, geologic,

watershed, fish, wildlife, historic, cultural and recreational values; and to provide for multiple

use and sustained yield of renewable resources. Other areas include areas administered by the

FS that are not included in one of the above groups.

Conservation Easements

NRCS’s mission objectives in administering the conservation easement programs are to

provide landowners with financial and technical assistance in return for maintaining and

improving high quality productive soils, clean and abundant water, healthy plant and animal

communities, clean air, an adequate energy supply, and working farm and ranch land.

NRCS’s objectives in managing, monitoring and enforcing the terms and conditions of

easement deeds are to ensure that: 1) taxpayer investments are properly used in accordance

with the intent of the program; 2) the agency is a good steward of the land; and 3) the land is

properly maintained.

Stewardship resources involve substantial investment in order to gain long-term benefits for the

American public and help the Agency satisfy its mission. The purpose of purchasing easements

is to restore or enhance wetlands; protect farmland; restore and protect grassland; restore and

protect forest ecosystems; and restore, protect, maintain, and enhance the functions of

floodplains.

SECTION I I FINANCIAL INFORMATION 105

NRCS, on behalf of USDA, administers and owns conservation easements on private lands.

Landowners are not allowed to withdraw from the program; however, termination or expiration

may occur. For the purpose of stewardship asset reporting, all easements where NRCS is the

grantee of the easement are included as stewardship land. Also included are easements that are

administered by NRCS on behalf of other USDA agencies.

Acquisition and Withdrawal of Stewardship Lands

The Land and Water Conservation Fund (L&WCF) Land Acquisition Program acquires land

for the FS National Forest System (NFS). The program coordinates with a variety of partners,

including State, local, and Tribal governments, and private landowners through statewide

planning for development of a land-adjustment strategy.

The Land Acquisition Program preserves, develops, and maintains access to NFS lands and

waters for the public and provides permanent access to public lands for recreation, commodity

production, resource management, public safety, and community economic viability.

The L&WCF statutory authority specifically defines the purpose to also include protecting the

quality of scientific, scenic, historical, ecological, environmental, air and atmospheric, water

resource, archeological values, as well as food and habitat for fish and wildlife, and managing

the public lands for minerals, food, timber, and fiber.

From these several allowable uses of program funding, the program concentrates on protecting

habitat for priority species identified in the national forest and grassland’s Land Management

Plans and enhancing recreational opportunities for areas with high demand for recreation. The

program focuses acquisitions on inholdings and areas adjacent to existing NFS lands.

FY 2016

Heritage Assets

National Forests 154

National Grasslands 20

Other Sites 175

Research Centers 34

Library Collections 1

Total 384

Stewardship Land

National Forests 154

National Grasslands 20

Research and Experimental Areas 3

National Preserves and Other Areas 2

Conservation Easements 17,672

Total 17,851

106 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 11: Other Assets

In FY 2016, other assets included investments in trust for loan asset sales of $37 million.

FY 2016

Intragovernmental:

Advances to Others 3$

Subtotal Intragovernmental 3

With the Public:

Advances to Others 170

Other Assets 37

Total Other Assets 210$

Note 12: Liabilities Not Covered By Budgetary Resources

In FY 2016, other intragovernmental liabilities not covered by budgetary resources included

accruals for Federal Employee Compensation Act (FECA) of $158 million, contract disputes

claims payable to Treasury’s Judgment Fund of $26 million, unemployment compensation of

$15 million, and custodial of $6 million.

In FY 2016, other liabilities with the public not covered by budgetary resources included future

funded indemnity costs of $5,098 million, estimated underwriting gain on crop insurance of

$1,998 million, unfunded leave of $615 million, contingent liabilities of $512 million,

Payments to States of $79 million, clearing accounts of $19 million, credit programs of

$8 million, custodial of $5 million, and cleanup cost of $2 million.

FY 2016

Intragovernmental:

Other 204$

Subtotal Intragovernmental 204

With the Public:

Accounts Payable -

Federal employee and veterans' benefits 905

Environmental and disposal liabilities 190

Other 8,335

Subtotal With the Public 9,430

Total liabilities not covered by budgetary resources 9,634

Total liabilities covered by budgetary resources 164,416

Total Liabilities 174,050$

SECTION I I FINANCIAL INFORMATION 107

Note 13: Debt

FY 2016 Ending Balance

Intragovernmental

Debt to the Treasury 78,239$

Debt to the Federal Financing Bank 43,364

Total Intragovernmental 121,603

Agency Debt:

Held by the Public -

Total Debt 121,603$

Note 14: Environmental and Disposal Liabilities

USDA is subject to the Comprehensive Environmental Response, Compensation, and Liability

Act, the Clean Water Act, and the Resource Conservation and Recovery Act for cleanup of

hazardous waste. In FY 2016, FS estimates the liability for total cleanup costs for sites known

to contain hazardous waste to be $2 million, based on actual cleanup costs at similar sites. In

FY 2016, CCC estimates the liability for total cleanup costs for sites known to contain

hazardous waste to be $21 million, based on actual cleanup costs at similar sites. CCC

estimates the range of potential future losses due to remedial actions to be between $21 million

and $160 million. These estimates will change as new sites are discovered, remedy standards

change, and new technology is introduced.

In FY 2016, ARS estimated the liability for cleanup of the Beltsville Agricultural Research

Center (BARC) to be $20 million. ARS is evaluating and remediating areas of concern on

BARC that are contaminated or threaten to contaminate ground and surface water with

pesticides, solvents, metals, and other hazardous substances.

USDA is also subject to Asbestos National Emissions Standards for Hazardous Air Pollutants.

In FY 2016, the Department estimated its liability for asbestos-related cleanup of real property

to be $153 million. The liability is calculated using total square footage of real property

expected to contain asbestos times a cost factor based on historical actual cleanup costs,

adjusted for inflation, including any other identifiable costs, e.g., survey cost. As additional

information becomes available, key assumptions will be reevaluated, cost estimates will be

revised, and necessary adjustments will be made to the liability recognition.

108 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 15: Other Liabilities

In FY 2016, other liabilities with related budgetary obligations with the public include

Agricultural Risk Coverage and Price Loss Coverage of $7,917 million; Grants, Subsidies, and

Contributions of $3,044 million; Conservation Reserve Program of $1,682 million;

underwriting gains on crop insurance of $1,809 million; indemnity payments not yet disbursed

of $108 million; and other accrued liabilities of $709 million.

In FY 2016, other liabilities without related budgetary obligations with the public include

estimated underwriting gains on crop insurance of $1,998 million, Payments to States of

$79 million, loans paid in advance for multi-family housing of $24 million, and other accrued

liabilities of $2 million.

FY 2016 Non-Current Current

Total

Intragovernmental:

Other Liabilities With Related Budgetary Obligations -

17 17

Employer Contributions and Payroll Taxes -

81 81

Unfunded FECA Liability 50

108 158

Other Unfunded Employment Related Liability -

15 15

Liability for Advances and Prepayments -

6 6

Liability for Clearing Accounts -

(54) (54)

Custodial Liability -

89 89

Liability for Non-entity Assets Not Reported on the Statement of Custodial

Activities

-

18,045 18,045

Other Liabilities Without Related Budgetary Obligations 26

- 26

Subtotal Intragovernmental 76

18,307 18,383

With the Public:

Other Liabilities With Related Budgetary Obligations -

15,269 15,269

Accrued Funded Payroll and Leave -

314 314

Unfunded Leave -

615 615

Liability for Advances and Prepayments -

136 136

Other Deferred Credits -

605 605

Liability for Nonfiduciary Deposit Funds and Undeposited Collections -

381 381

Liability for Clearing Accounts -

(8) (8)

Actuarial Liability for Federal Insurance and Guarantee Programs -

5,098 5,098

Contingent Liabilities -

512 512

Capital Lease Liability 7

2 9

Custodial Liability -

8 8

Other Liabilities Without Related Budgetary Obligations 2,022

81 2,103

Subtotal With the Public 2,029

23,013 25,042

Total Other Liabilities 2,105$

41,320$ 43,425$

SECTION I I FINANCIAL INFORMATION 109

Note 16: Leases

USDA activities based in the Washington, D.C. area are located in General Services

Administration (GSA) leased facilities and USDA owned buildings. The USDA Headquarters

complex (Whitten Building and South Building) is a government owned facility, which is part

of the GSA Federal Buildings Inventory. As the result of a 1998 agreement between GSA and

USDA, a moratorium was placed on the rental billings for the Headquarters complex beginning

in FY 1999.

At current market rate, the estimated yearly rental payment for the above mentioned space

would be $64 million. This agreement is still in effect and as a result, USDA activities located

in the Headquarters complex are not billed for rental costs.

FY 2016

Capital Leases:

Summary of Assets Under Capital Leases

Land and Building 40$

Machinery and Equipment -

Accumulated Amortization (32)

Future Payments Due:

Land & Buildings

Machinery &

Equipment

Other Totals

Fiscal Year

2017 6 - - 6

2018 5 - - 5

2019 4 - - 4

2020 4 - - 4

2021 3 - - 3

After 5 Years 5 - - 5

Total Future Lease Payments 27 - - 27

Less: Imputed Interest 13 - - 13

Less: Executory Costs 5 - - 5

Less: Lease Renewal Options - - - -

Net Capital Lease Liability 9 - -$ 9

Lease liabilities covered by budgetary resources 9

Operating Leases:

Future Payments Due:

Fiscal Year

Land & Buildings

Machinery &

Equipment

Other Totals

2017

120 - 1 121

2018

96 - 1 97

2019

79 - - 79

2020

67 - - 67

2021

57 - - 57

After 5 Years 183 - - 183

Total Future Lease Payments 602$ -$ 2$ 604$

110 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 17: Commitments and Contingencies

The Department is subject to various claims and contingencies related to lawsuits as well as

commitments under contractual and other commercial obligations.

For cases in which payment has been deemed probable and for which the amount of potential

liability has been estimated, $512 million has been accrued in the financial statements as of

September 30, 2016.

No amounts have been accrued in the financial statements for claims where the amount is

uncertain or where the probability of judgment against USDA is remote. The Department’s

potential liability for claims where a judgment against the Department is reasonably possible

ranges from $67 million to $202 million as of September 30, 2016.

Through the Conservation Reserve Program (CRP), eligible participants sign 10- to 15-year

contracts to remove land from production in exchange for an annual rental payment. The

participants also receive cost-share assistance for establishing conservation practices on the

reserve acreage and additional incentive payments for adopting high-priority conservation

measures.

Commitments to extend loan guarantees are estimated to be $4,876 million in FY 2016.

Note 18: Funds from Dedicated Collections

Funds from dedicated collections are financed by specifically identified revenues, often

supplemented by other financing sources, which remain available over time. These specifically

identified revenues and other financing sources are required by statute to be used for designated

activities or purposes and must be accounted for separately from the Government’s general

revenues.

Financial information for all significant funds from dedicated collections follows the

descriptions of each fund’s purpose shown below.

AGRICULTURAL MARKETING SERVICE (AMS)

Funds for Strengthening Markets, Income, and Supply

This fund is used to purchase commodities for schools and elderly feeding programs, to provide

goods and other necessities in emergencies and disasters, and to purchase agricultural

commodities to stabilize markets. The fund is permanently financed by statutory transfer of an

amount equal to 30 percent of customs receipts collected during each calendar year and is

SECTION I I FINANCIAL INFORMATION 111

automatically appropriated for expanding outlets for perishable, non-price supported

commodities. An amount equal to 30 percent of receipts collected on fishery products is

transferred to the Food and Nutrition Service and is used to purchase commodities under

section 6 of the National School Lunch Act and other authorities specified in the child nutrition

appropriation. Funds are available under section 32 of the Act of August 24, 1935, as amended

(7 U.S.C. 612c).

Expenses and Refunds, Inspection and Grading of Farm Products

The commodity grading programs provide grading, examination, and certification services for a

wide variety of fresh and processed food commodities using federally approved grade standards

and purchase specifications. This fund is financed by the collection of fees charged to

producers of various food commodities who request, on a voluntary basis, inspection and

grading of agricultural food commodities. This program is authorized by the Agricultural

Marketing Act of 1946 (7 U.S.C. 1621-1627).

ANIMAL PLANT HEALTH INSPECTION SERVICE (APHIS)

Agricultural Quarantine Inspection User Fee Account

This fund is used to record and report expenditures and revenue associated with operating

Agricultural Quarantine Inspection (AQI) activities at ports of entry. The Farm Bill of 1990, as

amended by the Federal Agriculture Improvement and Reform Act of 1996, gave the Animal

and Plant Health Inspection Service (APHIS) the authority to charge user fees for AQI services

and to use the revenue to fund AQI activities. In March of 2003, a portion of the AQI program

was transferred to the Department of Homeland Security (DHS); however, APHIS retained the

authority to collect AQI revenue. APHIS transfers a portion of the revenue to DHS periodically

throughout the year to fund its expenditures. The revenue in the fund is collected from airlines,

air passengers, vessels, trucks, and railroad cars that are subject to AQI inspection at ports of

entry. These user fees are an inflow of revenue from the public that is used to fund AQI

inspections that are required by APHIS and DHS. The authority is codified in 21 U.S.C. 136(a).

FOREST SERVICE (FS)

Cooperative Work

Cooperative contributions are deposited for disbursement in compliance with the terms and

provisions of the agreement between the cooperator and the FS. Cooperators include timber

purchasers, not-for-profit organizations, and local hunting and fishing clubs. The governing

authorities are the Cooperative Funds Act of July 31, 1914 (16 U.S.C. 498) and the Knutson

Vandenberg Act.

112 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Land Acquisition

Each fiscal year this fund receives a transfer of recreation user fees from the Department of the

Interior’s Land and Water Conservation Fund, to be used for the acquisition of land or waters,

or interest therein, including administrative expenses, to carry out the provisions of the Land

and Water Conservation Fund Act of 1965, as amended (16 U.S.C. 460l-4-11), pertaining to the

preservation of watersheds. The Land Acquisition program is authorized by the Interior and

Related Agencies Appropriations Act of December 30, 1982 (96 Stat. 1983, Public Law 97-

394).

Payments to States, National Forest Fund

The Act of May 23, 1908, as amended (16 U.S.C. 500), commonly known as Payments to

States, requires with a few exceptions, that 25 percent of all monies received from the national

forests and deposited into the National Forest Fund during a fiscal year from timber, grazing,

special-use permits, power and mineral leases, and admission and user fees be paid to the States

in which the national forests are located, for public schools and public roads in the county or

counties in which the national forests are situated.

Timber Salvage Sales

The Salvage Sale Fund, Treasury account 12X5204, was established to facilitate the timely

removal of timber damaged by fire, wind, insects, diseases, or other events. Amounts collected

from the sale of salvaged timber are used on other qualifying salvage sales to cover the cost of

preparing and administering the sales. The Timber Salvage Sales program is authorized by

16 U.S.C. 472(a).

Expenses, Brush Disposal

Deposits from timber purchasers are recorded in Treasury account 12X5206 and used to cover

the cost required to dispose of slash, brush, and other debris resulting from timber cutting

operations and for supplemental protection of the cutover areas in lieu of actual disposal. The

Expenses, Brush Disposal program is authorized by 16 U.S.C. 490-498.

State, Private, and International Forestry, Land and Water Conservation Fund

The Fiscal Year 2004 Department of the Interior and Related Agencies Appropriation Act

(Public Law 108-108) authorizes the Forest Service to receive a transfer of receipts from the

Department of the Interior’s Land and Water Conservation Fund to finance the existing Forest

Legacy Program, funded previously by State and Private Forestry general appropriation. To

accommodate the new financing arrangement and at OMB’s request, the U.S. Department the

of Treasury established a new special fund, “State, Private and International Forestry, Land and

Water Conservation Fund.” The program expenditures include grants and an occasional land

purchase, but no real property will be procured or constructed.

SECTION I I FINANCIAL INFORMATION 113

Recreation Fee Demonstration Program

The Recreation Fee Demonstration Program fund receives deposits of recreation fees collected

from projects that are part of the Recreation Fee Demonstration Program. These monies are

retained and used for backlog repair and maintenance of recreation areas, sites or projects.

These funds are also used for interpretation, signage, habitat or facility enhancement, resource

preservation, annual operation, maintenance, and law enforcement related to public use of

recreation areas and sites. The Recreation Fee Demonstration Program is authorized by

16 U.S.C. 4601-6(a).

National Forest Fund Receipts

The Act of May 23, 1908, as amended (16 U.S.C. 500), requires (with a few exceptions) that all

receipts from national forest activities be aggregated each fiscal year in order to calculate the

portion which is paid to the States in which the national forests are located. The payments must

be used for public schools and roads in the county or counties in which the national forests are

situated. Originally, the States’ portion of receipts was 25 percent but past statutory

amendments have changed the calculation factors from time to time. Receipts include revenues

from the sale of timber and other forest products; fees for grazing, special-use permits, power

and mineral leases; and recreation user fees.

Restoration of Forest Lands and Improvements

The Restoration of Forest Lands and Improvements Acts (16 U.S.C. 579(c)) states any monies

received by the United States with respect to lands under the administration of the Forest

Service (a) as a result of the forfeiture of a bond or deposit by a permittee or timber purchaser

for failure to complete performance of improvement, protection, or rehabilitation work required

under the permit or timber sale contract or (b) as a result of a judgment, compromise, or

settlement of any claim, involving present or potential damage to lands or improvements, shall

be deposited into the United States Treasury and are appropriated and made available until

expended to cover the cost to the United States of any improvement, protection, or

rehabilitation work on lands under the administration of the Forest Service rendered necessary

by the action which led to the forfeiture, judgment, compromise, or settlement: Provided, that

any portion of the monies received in excess of the amount expended in performing the work

necessitated by the action which led to their receipt shall be transferred to miscellaneous

receipts.

Payments to Counties, National Grasslands

Payments to Counties, Title III, Bankhead-Jones Farm Tenant Act (Act) authorizes national

grassland or land utilization project receipts to be shared through grants with local governments

for the purposes stated in the Act. At the end of each calendar year, 25 percent of the net

revenues from each national grassland or land utilization project are paid to the counties in

114 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

which such lands are located. These payments are not in lieu of taxes. Receipts from the Act

designated as either national grasslands or land utilization projects are to be credited to a

special account.

Acquisition of Lands to Complete Land Exchanges

As authorized by 7 statutes, this program is funded annually by congressional appropriation

action, with forest revenues generated by the occupancy of public land or from the sale of

natural resources other than minerals. All funds appropriated that remain unobligated at the end

of the fiscal year are returned to the receipts of the affected national forests. These funds are

used to purchase land and for related expenditures such as title search, escrow, recording, and

personnel costs when the purchase is considered necessary to minimize soil erosion and flood

damage. This appropriation is available for land acquisition within the exterior boundaries of

the national forests.

Stewardship Contracting Product Sales

Stewardship End Result Contracting Projects (16 U.S.C. 6591c), amends the Healthy Forests

Restoration Act of 2003, and states the Forest Service, via agreement or contract as appropriate,

may enter into stewardship contracting projects with private persons or other public or private

entities to perform services to achieve land management goals for the national forests and the

public lands that meet local and rural community needs. The value of timber or other forest

products removed may be applied as an offset against the cost of services received under the

agreements or contracts. Monies earned from such agreements or contracts may be retained by

the Forest Service and shall be available for expenditure without further appropriation at the

project site from which the monies are collected or at another project site. In addition, if the

offset value of the forest products exceeds the value of the resource improvement treatments,

the Forest Service may collect any residual receipts under the Act of June 9, 1930 (commonly

known as the Knutson-Vandenberg Act, 16 U.S.C. 576); and apply the excess to other

authorized stewardship projects. Finally, the Forest Service is required to annually report to the

Committee of Agriculture, Nutrition, and Forestry of the Senate and the Committee on

Agriculture of the House of Representatives on the status and accomplishments of these

agreements and contracts.

NATIONAL INSTITUTE OF FOOD AND AGRICULTURE (NIFA)

Native American Institutions Endowment Fund

The Native American Institutions Endowment Fund was authorized by Public Law 103-382

and provided an initial installment to establish an endowment to benefit the 1994 land-grant

institutions. The public law states that “This program will enhance educational opportunities

for Native Americans by building educational capacity at these institutions in the areas of

SECTION I I FINANCIAL INFORMATION 115

student recruitment and retention, curricula development, faculty preparation, instruction

delivery systems, and scientific instrumentation for teaching.” While the principal (corpus) of

the fund cannot be used, the interest that is earned on the endowment fund investments in

Treasury instruments can be used for the purposes described above. After the close of a fiscal

year, the income is distributed after making adjustments for the cost of administering the fund.

OTHER

Financial information is summarized for all other funds from dedicated collections with total

assets less than $50 million listed below.

Agricultural Marketing Service

Perishable Agricultural Commodities Act

Wool Research, Development and Promotion Trust Fund

Animal Plant Health Inspection Service

Miscellaneous Contributed Funds

Gifts and Bequests

Forest Service

Roads and Trails for States, National Forest Fund

Reforestation Trust Fund

Timber Sales Pipeline Restoration Fund

Operation and Maintenance of Forest Service Quarters

Timber Roads, Purchaser Elections

Range Betterment Fund

Acquisition of Lands for National Forests, Special Acts

Construction of Facilities or Land Acquisition

Payment to Minnesota (Cook, Lake and Saint Louis Counties)

Licensee Program

Resource Management Timber Receipts

Quinault Special Management Area

MNP Rental Fee Account

116 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Land Between the Lakes Management Fund

Administration of Rights-of-Way and Other Land Uses Fund

Hardwood Technology Transfer and Applied Research Fund

Gifts, Donations and Bequests for Forest and Rangeland Research

Land Between the Lakes Trust Fund

Land and Water Conservation Fund

Tongass Timber Supply Fund

Midewin National Tallgrass Prairie Restoration Fund

Gifts and Bequests

Natural Resources Conservation Service

Damage Assessment and Restoration Revolving Fund

Miscellaneous Contributed Funds

Agricultural Research Service

Concessions Fees and Volunteer Services

Gifts and Bequests

Miscellaneous Contributed Funds

Rural Development

Alternative Agricultural Research and Commercialization Revolving Fund

Foreign Agricultural Service

Miscellaneous Contributed Funds

Gifts and Bequests

Foreign Service National Separation Liability Trust Fund

Grain Inspection, Packers and Stockyards Administration

Inspection and Weighing Services

Food Safety and Inspection Service

Expenses and Refunds, Inspection of Farm Products

SECTION I I FINANCIAL INFORMATION 117

Office of the Inspector General

Inspector General Assets Forfeiture, Department of Justice

Inspector General Assets Forfeiture, Department of Treasury

National Agricultural Statistics Service

Miscellaneous Contributed Funds

Economic Research Service

Miscellaneous Contributed Funds

Departmental Offices

Gifts and Bequests

118 USDA F ISCAL YEAR 2016 AGENCY FINANCIAL REPORT

AMS AMS APHIS FS FS FS FS FS FS

Balance Sheet As of September 30, 2016

Funds for

Strengthening

Markets, Income, and

S

upply

Expenses and

Refunds,

Inspection and

G

rading of Farm

Products

Agricultural

Quarantine

Inspection User Fee

Acco

unt Cooperative Work Land Acquisition

Payments to States,

National Forests

Fund

Timber Salvage

Sales

Expenses, Brush

Disposal

State, Private, and

International

Forestry, Land and

Wa

ter

Conservation Fund

12X5209 12X8015 12X5161 12X8028 12X5004 12X5201 12X5204 12X5206 12X5367

Fund Balance with Treasury 542$ 94$ 219$ 372$ 67$ 127$ 89$ 50$ 148$

Investments - - - - - - - - -

Other Assets - 17 70 15 43 2 - 1 5

Total Assets 542 111 289 387 110 129 89 51 153

Other Liabilities 28 58 25 76 1 51 1 1 -

Total Liabilities 28 58 25 76 1 51 1 1 -

Unexpended Appropriations - - - - - - - - -

Cumulative Results of Operations 514 53 264 311 109 78 88 50 153

Total Liabilities and Net Position 542 111 289 387 110 129 89 51 153

SECTION I I FINANCIAL INFORMATION 119

FS FS FS FS FS FS NIFA

Balance Sheet As of September 30, 2016

Recreation Fee

Demonstration

Program

National Forest

Fund Receipts

Restoration of

Forest Lands and

Improvements

Payments to

Counties, National

Grasslands

Acquisition of

Lands to Complete

Land Exchanges

Stewardship

Contracting

Product Sales

Native American

Institutions

Endowment Fund

Other Total

12X5268 125008 12X5215 125896 12X5216 12X5540 12X5205

Fund Balance with Treasury 101$ 98$ 375$ 73$ 39$ 37$ 20$ 280$ 2,731$

Investments - - - - - - 195 8 203

Other Assets 3 10 2 - 52 16 - 19 255

Total Assets 104 108 377 73 91 53 215 307 3,189

Other Liabilities 2 - 1 21 - 4 - 61 330

Total Liabilities 2 - 1 21 - 4 - 61 330

Unexpended Appropriations - - - - - - 143 1 144

Cumulative Results of Operations 102 108 376 52 91 49 72 245 2,715

Total Liabilities and Net Position 104 108 377 73 91 53 215 307 3,189

120 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Required Supplementary Stewardship

Information

Stewardship Investments (Unaudited)

FY 2016

Expense

Non-Federal Physical Property:

Food and Nutrition Service

Supplemental Nutrition Assistance Program 19$

Special Supplemental Nutrition Program 6

National Institute of Foods and Agriculture

Extension 1890 Facilities Program 20

Total Non-Federal Property 45$

Human Capital:

National Institute of Foods and Agriculture

Higher Education and Extension Programs 558$

Food and Nutrition Service

Supplemental Nutrition Assistance Program 104

Agricultural Research Service

National Agricultural Library 23

Risk Management Agency

Risk Management Education 9

Total Human Capital 694$

SECTION I I FINANCIAL INFORMATION 121

FY 2016

Expense

Research and Development:

Basic Research:

Agricultural Research Service

Human Nutrition 43$

Integration of Agricultural Systems -

Collaborative Research Program -

Product Quality/Value Added 51

Livestock Production 43

Crop Production 107

Food Safety 56

Livestock Protection 47

Crop Protection 97

Environmental Stewardship 101

National Institute of Foods and Agriculture

Land-grant University System 290

Forest Service 64

Economic Research Service

Economic and Social Science -

National Agricultural Statistics Service

Statistical

-

Total Basic Research

899$

Applied Research:

Agricultural Research Service

Human Nutrition 34$

Product Quality/Value Added 40

Livestock Production 35

Crop Production 87

Food Safety 45

Livestock Protection 37

Crop Protection 77

Environmental Stewardship 81

National Institute of Foods and Agriculture

Land-grant University System 492

Forest Service 224

Economic Research Service

Economic and Social Science 85

National Agricultural Statistics Service

Statistical 5

Total Applied Research

1,242$

Development:

Agricultural Research Service

Human Nutrition 9$

Product Quality/Value Added 10

Livestock Production 9

Crop Production 22

Food Safety 11

Livestock Protection 9

Crop Protection 19

Environmental Stewardship 20

National Institute of Foods and Agriculture

Land-grant University System -

Forest Service 3

National Agricultural Statistics Service

Statistical 4

Total Development

116$

Total Research and Development

2,257$

122 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Non-Federal Physical Property

FOOD AND NUTRITION SERVICE

FNS’ non-Federal physical property consists of computer systems and other equipment

obtained by State and local governments for the purpose of administering the SNAP. The total

SNAP expense for ADP Equipment & Systems has been reported as of the date of FNS’

financial statements. FNS’ non-Federal physical property also consists of computer systems

and other equipment obtained by the State and local governments for the purpose of

administering the Special Supplemental Nutrition Program for Women, Infants, and Children.

NATIONAL INSTITUTE OF FOOD AND AGRICULTURE

The Extension 1890 facilities program supports the renovation of existing buildings and the

construction of new facilities as well as computers and equipment purchases that permit

faculty, students, and communities to benefit fully from the partnership between USDA and the

1890 Land-Grant Universities.

Human Capital

NATIONAL INSTITUTE OF FOOD AND AGRICULTURE (NIFA)

The higher education programs include graduate fellowship grants, competitive challenge

grants, secondary/2-year postsecondary grants, Hispanic serving institutions education grants, a

multicultural scholars program, a Native American institutions program, a Native American

institutions endowment fund, an Alaska Native serving and a Native Hawaiian serving

institutions program, resident instruction grants and distance education grants for insular areas,

and a capacity building program at the 1890 institutions. These programs enable universities to

broaden their curricula, increase faculty development and student research projects, and

increase the number of new scholars recruited in the food and agriculture sciences. NIFA also

supports extension-related work at 1862 and 1890 land-grant institutions throughout the

country through formula and competitive programs.

FOOD AND NUTRITION SERVICE (FNS)

FNS’ human capital consists of employment and training (E&T) for SNAP. The E&T program

requires recipients of SNAP benefits to participate in an employment and training program as a

condition to SNAP eligibility.

SECTION I I FINANCIAL INFORMATION 123

Outcome data for the E&T program is only available through the third quarter. As of this

period, FNS’ E&T program has placed 662,005 work registrants subject to the 3-month SNAP

participant limit and 1,067,825 work registrants not subject to the limit in either job-search, job

training, job-workfare, education, or work experience.

AGRICULTURAL RESEARCH SERVICE (ARS)

As the Nation’s primary source for agricultural information, the National Agricultural Library

(NAL) has a mission to increase the availability and utilization of agricultural information for

researchers, educators, policymakers, consumers of agricultural products, and the public. The

NAL is one of the world’s largest and most accessible agricultural research libraries and plays a

vital role in supporting research, education, and applied agriculture.

The NAL was created as the departmental library for USDA in 1862 and became a national

library in 1990. One of four national libraries of the U.S. (with the Library of Congress, the

National Library of Medicine, and the National Library of Education), it is also the coordinator

for a national network of State land-grant and USDA field libraries. In its international role, the

NAL serves as the U.S. center for the international agricultural information system,

coordinating and sharing resources and enhancing global access to agricultural data. The NAL

collection of over 8 million items and its leadership role in information services and technology

applications combine to make it the foremost agricultural library in the world.

RISK MANAGEMENT AGENCY (RMA)

Federal Crop Insurance Corporation (FCIC) has formed partnerships with NIFA, the

Commodity Futures Trading Commission, the USDA National Office of Outreach, the

Economic Research Service (ERS), and private industry to leverage the Federal Government’s

funding of its Risk Management Education (RME) program by using both public and private

organizations to help educate their members in agricultural risk management. RME expanded

State and Regional education partnerships; encouraged the development of information and

technology-based decision aids; facilitated local crop insurance education and risk management

training workshops throughout the Nation through cooperative agreements with educational

institutions and community-based outreach organizations.

During fiscal year 2016, the RME program worked toward its goals by funding risk

management sessions, most of which directly target producers. The number of producers

reached through these sessions is approximately 96,467 in fiscal year 2016. In addition to

reaching producers, some training sessions helped those who work with producers (such as

lenders, agricultural educators, and other agricultural professionals) to better understand those

areas of risk management with which they may be unfamiliar. Total RME obligations incurred

by FCIC were approximately $9 million in fiscal year 2016.

124 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Research and Development

AGRICULTURAL RESEARCH SERVICE (ARS)

ARS’ mission is to conduct research to develop and transfer solutions to agricultural problems

of high national priority and provide information access and dissemination to: ensure high

quality, safe food, and other agricultural products; assess the nutritional needs of Americans;

sustain a competitive agricultural economy; enhance the natural resource base and the

environment; and provide economic opportunities for rural citizens, communities, and society

as a whole. ARS’ programs are aligned under the Department’s priorities as follows:

USDA Strategic Goal 1: Assist Rural Communities to Create Prosperity So They Are Self

Sustaining, Repopulating, and Economically Thriving

New Products/Product Quality/Value Added

ARS has active research programs directed toward: improving the efficiency and reducing the

cost for the conversion of agricultural products into biobased products and biofuels; developing

new and improved products for domestic and foreign markets; and providing higher quality,

healthy foods that satisfy consumer needs in the United States and abroad. Note: Some of

ARS’ Livestock and Crop Production research is carried out under this Strategic Goal and

Strategic Goal 3.

National Agricultural Library (NAL)

NAL, among the world’s largest libraries serving agriculture, delivered about 54 million page

views and almost 1 million searches in FY 2016.

Buildings and Facilities

ARS has approximately 95 laboratory locations, primarily located throughout the United States.

ARS’ facilities programs are designed to meet the needs of its scientists and support personnel

to accomplish the Agency’s mission.

USDA Strategic Goal 2: Ensure Our National Forests and Private Working Lands Are Conserved,

Restored, and Made More Resilient to Climate Change, While Enhancing Our Water Resources

Environmental Stewardship

ARS’ research program emphasis is in developing technologies and systems that support

sustainable production and enhance the Nation’s vast renewable natural resource base. The

agency is currently developing the scientific knowledge and technologies needed to meet the

challenges and opportunities facing U.S. agriculture in managing water resource quality and

quantity under different climatic regimes, production systems, and environmental conditions.

SECTION I I FINANCIAL INFORMATION 125

ARS’ research also focuses on developing measurement, prediction, and control technologies

for emissions of greenhouse gases, particulate matter, ammonia, hydrogen sulfide, and volatile

organic compounds affecting air quality and land-surface climate interactions. The agency is a

leader in developing measurement and modeling techniques for characterizing gaseous and

particulate matter emissions from agriculture. In addition, ARS is evaluating strategies for

enhancing the health and productivity of soils, including developing predictive tools to assess

the sustainability of alternative land management practices. Finding mechanisms to aid

agriculture in adapting to changes in atmospheric composition and climatic variations is also an

important component of this program.

ARS’ range and grazing land research objectives include the conservation and restoration of the

Nation’s range land and pasture ecosystems and agroecosystems through improved

management of fire, invasive weeds, grazing, global change, and other agents of ecological

change. The agency is currently developing improved grass and forage legume germplasm for

livestock, conservation, bioenergy, and bioproduct systems as well as grazing-based livestock

systems that reduce risk and increase profitability. In addition, ARS is developing whole

system management strategies to reduce production costs and risks.

USDA Strategic Goal 3: Help America Promote Agricultural Production and Biotechnology

Exports As America Works to Increase Food Security

Livestock Production

ARS’ research program is directed toward fostering an abundant, safe, nutritionally

wholesome, and competitively priced supply of animal products produced in a viable,

competitive, and sustainable animal agriculture sector of the U.S. economy by: safeguarding

and utilizing animal genetic resources, associated genetic and genomic databases, and

bioinformatic tools; developing a basic understanding of food animal physiology to address

priority issues related to animal production, animal well-being, and product quality and

healthfulness; and developing information, best management practices, novel and innovative

tools, and technologies that improve animal production systems, enhance human health, and

ensure domestic food security. The research is heavily focused on the development and

application of genomics technologies to increase the efficiency and product quality of beef,

dairy, swine, poultry, aquaculture, and sheep systems. Areas of emphasis include increasing the

efficiency of nutrient utilization, increasing animal well-being and reducing stress in production

systems, increasing reproductive rates and breeding animal longevity, developing and

evaluating non-traditional production systems (e.g., organic and natural), and evaluating and

conserving animal genetic resources.

126 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Crop Production

ARS’ program focuses on developing and improving ways to reduce crop losses while

protecting and ensuring a safe and affordable food supply. The program concentrates on

production strategies that are environmentally friendly, safe to consumers, and compatible with

sustainable and profitable crop production systems. Research activities are directed at

safeguarding and utilizing plant genetic resources and their associated genetic, genomic, and

bioinformatic databases that facilitate selection of varieties and/or germplasm with significantly

improved traits. Research activities attempt to minimize the impacts of crop pests while

maintaining healthy crops and safe commodities that can be sold in markets throughout the

world. The agency is conducting research to discover and exploit naturally occurring and

engineered genetic mechanisms for plant pest control, develop agronomic germplasm with

durable defensive traits, and transfer genetic resources for commercial use. ARS is also

providing taxonomic information on invasive species that strengthens prevention techniques,

aids in detection/identification of invasive pests, and increases control through management

tactics that restore habitats and biological diversity.

USDA Strategic Goal 4: Ensure that All of America’s Children Have Access to Safe, Nutritious,

and Balanced Meals

Food Safety

ARS’ research program is designed to yield science-based knowledge on the safe production,

storage, processing, and handling of plant and animal products, and on the detection and

control of pathogenic bacteria and fungi, parasites, chemical contaminants, and plant toxins. All

of ARS’ research activities involve a high degree of cooperation and collaboration with

USDA’s Research, Education, and Economics agencies, as well as with the Food Safety and

Inspection Service (FSIS), Animal and Plant Health Inspection Service (APHIS), the Food and

Drug Administration (FDA), the Centers for Disease Control and Prevention (CDC), the

Department of Homeland Security (DHS), and the Environmental Protection Agency (EPA).

The agency also collaborates in international research programs to address and resolve global

food safety issues. Specific research efforts are directed toward developing new technologies

that assist ARS stakeholders and customers, including regulatory agencies, industry, and

commodity and consumer organizations in detecting, identifying, and controlling foodborne

diseases that affect human health.

Livestock Protection

ARS’ program is directed at protecting and ensuring the safety of the Nation’s agriculture and

food supply through improved disease detection, prevention, control, and treatment. Basic and

applied research approaches are used to solve animal health problems of high national priority.

Emphasis is given to methods and procedures to control animal diseases through the discovery

SECTION I I FINANCIAL INFORMATION 127

and development of diagnostics, vaccines, biotherapeutics, animal genomics applications,

disease management systems, animal disease models, and farm biosecurity measures. The

research program has the following strategic objectives: establish ARS laboratories into a

fluid, highly effective research network to maximize use of core competencies and resources;

use specialized high containment facilities to study zoonotic and emerging diseases; develop an

integrated animal and microbial genomics research program; establish core competencies in

bovine, swine, ovine, and avian immunology; launch a biotherapeutic discovery program

providing alternatives to animal drugs; build a technology driven vaccine and diagnostic

discovery research program; develop core competencies in field epidemiology and predictive

biology; establish a best-in-class training center for our Nation’s veterinarians and scientists;

and develop a model technology transfer program to achieve the full impact of ARS research

discoveries. The ARS animal research program includes the following core components:

biodefense research, animal genomics and immunology, zoonotic diseases, respiratory diseases,

reproductive and neonatal diseases, enteric diseases, parasitic diseases, and transmissible

spongiform encephalopathies.

Crop Protection

ARS’ Crop Protection research program is directed to protect crops from insect and disease loss

through research to understand pest and disease transmission mechanisms, and to identify and

apply new technologies that increase our understanding of virulence factors and host defense

mechanisms. The program’s research priorities include: identification of genes that convey

virulence traits in pathogens and pests; factors that modulate infectivity, gene functions, and

mechanisms; genetic profiles that provide specified levels of disease and insect resistance under

field conditions; and mechanisms that reduce the spread of pests and infectious diseases. ARS

is developing new knowledge and integrated pest management approaches to control pest and

disease outbreaks as they occur. Its research will improve the knowledge and understanding of

the ecology, physiology, epidemiology, and molecular biology of emerging diseases and pests.

This knowledge will be incorporated into pest risk assessments and management strategies to

minimize chemical inputs and increase production. Strategies and approaches will be available

to producers to control emerging crop diseases and pest outbreaks and to address quarantine

issues.

Human Nutrition

Maintenance of health throughout the lifespan along with prevention of obesity and chronic

diseases via food-based recommendations are the major emphases of ARS’ Human Nutrition

Research Program. These health-related goals are based on the knowledge that deficiency

diseases are no longer the primary public health concerns in the United States; excessive

consumption has become the primary nutrition problem in the American population. This is

reflected by increased emphasis on prevention of obesity, from basic science through

128 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

intervention studies to assessments of large populations. The agency’s research program also

studies essential nutrients and nonessential, health promoting components in foods. To better

define the role of nutrition in pregnancy and growth of children, and for healthier aging, four

specific areas of research are emphasized: nutrition monitoring; the scientific basis for dietary

recommendations; prevention of obesity and related diseases; and life stage nutrition and

metabolism.

NATIONAL INSTITUTE OF FOOD AND AGRICULTURE (NIFA)

NIFA participates in a nationwide land-grant university system of agriculture related research

and program planning and coordination between State institutions and USDA. It assists in

maintaining cooperation among the State institutions, and between the State institutions and

their Federal research partners. NIFA administers competitive grants and capacity/formula

payments to State institutions to leverage State and local funding for agriculture research.

FOREST SERVICE (FS)

Forest Service Research & Development (R&D) has an integrated portfolio that supports

achievement of the agency’s strategic goals. The FS R&D structure has two components:

Priority Research Areas and Strategic Program Areas (SPAs).

The Priority Research Areas address urgent needs in seven areas: Forest Disturbances, Forest

Inventory and Analysis, Watershed Management and Restoration, Bioenergy and Biobased

Products, Urban Natural Resources Stewardship, Nanotechnology, and Localized Needs

Research.

The SPAs are the long-term programs from which Priority Research Areas are funded; the

SPAs are summarized here.

Wildland Fire and Fuels

R&D provides managers with the knowledge and tools to reduce negative impacts, while

enhancing the beneficial effects of wildland fire, as a natural process. This knowledge and these

tools are critical to understanding the human process of fire and fuels management on society

and the environment.

Research focuses on understanding and modeling fundamental fire processes; interactions of

fire with ecosystems; and the environmental, social, and economic aspects of fire, as well as

evaluating the integrated management strategies and disturbance interactions at multiple scales

and the application of fire research to address management problems.

SECTION I I FINANCIAL INFORMATION 129

Invasive Species

R&D provides the scientific information, methods, and technology to reduce or eliminate the

introduction, spread, and impact of invasive species and to restore or improve the functionality

of ecosystems affected by invasive species.

Research focuses on non-native plants, animals, fish, insects, diseases, invertebrates, and other

species whose introduction is likely to cause economic or environmental harm to an ecosystem.

Water, Air, and Soil

R&D enables the sustainable management of these essential resources by providing clear air

and safe drinking water, by protecting lives and property from wildfire and smoke, and by

adapting to climate variability and change.

The program features ecosystem services with a high level of integration between water, air,

and soil research, such as the effects of climate variability and change on water budgets or

carbon sequestration metrics from an ecosystem perspective.

Wildlife and Fish

R&D relies upon interdisciplinary research to inform policy initiatives affecting wildlife and

fish habitat on private and public lands, and the recovery of threatened or endangered species.

Scientists investigate the complex interactions among species, ecosystem dynamics and

processes, land use and management, and any emerging broadscale threats, including global

climate change, loss of open space, invasive species, and disease.

Resource Management and Use

R&D provides the scientific and technology base to sustainably manage and use forest

resources and forest fiber-based products.

Research focuses on the plant sciences, soil sciences, social sciences, silviculture, productivity,

forest and range ecology management, harvesting and operations, forest and biomass products

and utilization, economics, urban forestry, and climate change.

Outdoor Recreation

R&D promotes human and ecological sustainability by researching environmental

management, activities, and experiences that connect people with the natural world.

Research in outdoor recreation is interdisciplinary, focusing on nature-based recreation and the

changing trends in American society; connections between recreation visitors, communities,

and the environment; human benefits and consequences of recreation and nature contact; the

130 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

effectiveness of recreation management and decision-making; and sustaining ecosystems

affected by recreational use.

Inventory and Monitoring

R&D provides the resource data, analysis, and tools needed to monitor forest ecosystems

vulnerable to rapid change due to threats from fire, insects, disease, natural processes, or

management actions. From their research, scientists determine the status and trend of the health

of the Nation’s forests and grasslands, and the potential impact from climate change.

Their research integrates the development and use of science, technology, and remotely sensed

data to better understand the incidences of forest fragmentation over time from changes in land

use or from insects, disease, fire, and extreme weather events.

A representative summary of FY 2016 accomplishments include the following:

• 19 new interagency agreements and contracts

• 44 interagency agreements and contracts continued

• 2,022 articles published in journals

• 249 articles published in all other publications

• 5 patents granted

• 2 patent licenses executed

ECONOMIC RESEARCH SERVICE (ERS)

ERS provides economic and other social science research and analysis for public and private

decisions on agriculture, food, natural resources, and rural America. Research results and

economic indicators on these important issues are fully disseminated through published and

electronic reports and articles, special staff analyses, briefings, presentations and papers,

databases, and individual contacts. ERS’ objective information and analysis helps public and

private decision makers attain the goals that promote agricultural competitiveness, food safety

and security, a well-nourished population, environmental quality, and a sustainable rural

economy.

NATIONAL AGRICULTURAL STATISTICS SERVICE (NASS)

Research is conducted to improve the statistical methods and related technologies used to

produce U.S. agricultural statistics. The research agenda has two primary areas of emphasis:

the National Agricultural Statistics Service estimation program and the Census of Agriculture

program. For each, the goal is the development of improved estimates at lower cost, with

SECTION I I FINANCIAL INFORMATION 131

reduced respondent burden, and with valid measures of uncertainty. All facets of the estimation

process are considered, from increasing efficiencies in sampling and data collection to

enhancing the statistical methodology used to analyze the data. Two high priority items within

the research effort are significance editing (cleaning of respondent data) and model-based

estimates. Significance editing has the potential to enhance the quality of survey data and to

reduce manual operations in preparing survey responses summaries. Model-based estimates are

used to combine data from disparate sources, from sample surveys to remote sensing, resulting

in improved estimates with valid measures of uncertainty. Going forward, users of NASS

services and products will be increasingly dependent upon methodological and technological

efficiencies.

132 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Required Supplementary Information

Deferred Maintenance and Repairs (Unaudited)

The Forest Service is steward to nearly 193 million acres of national forests and grasslands

within the NFS. On these NFS lands, the agency manages major assets that are categorized as

general PP&E, including nearly 40,000 administrative, recreation, and research buildings and

approximately 27,000 recreational sites, such as campgrounds, picnic areas, trailheads, and

interpretive sites.

Across the NFS, the agency also manages over 371,000 miles of roads, of which 65,000 miles

are for passenger vehicles; over 151,000 miles of trails for motorized and non-motorized use;

nearly 13,000 road and trail bridges; and over 1,700 Forest Service-owned and Special Use

Permitted dam structures.

ARS owns/manages approximately 15 million gross square feet of facility space in

3,000 buildings on 400,000 acres of land. APHIS operates approximately 28 facilities, which

includes 378 buildings, in the United States and 14 facilities/buildings internationally. The

NRCS portfolio of owned assets encompasses 29 sites, including 13 parcels of owned land,

260 buildings, and about 250 other structures.

Deferred Maintenance & Repairs (DM&R) estimates include capitalized PP&E,

non-capitalized heritage assets, and non-capitalized or fully depreciated PP&E.

No DM&R is reported for stewardship land because land is considered to be in acceptable

condition unless an environmental contamination or liability is identified and the land cannot

be used for its intended purpose. Stewardship land easements are excluded from DM&R since

ownership is retained by the landowner.

DEFINING AND IMPLEMENTING MAINTENANCE AND REPAIRS POLICIES IN

PRACTICE

The Forest Service uses condition surveys to estimate DM&R on all major classes of its PP&E

and heritage assets. DM&R estimates for most assets—except bridges—are based on condition

surveys performed on a 5-year maximum revolving schedule. The bridge class is on a 2-year

maximum revolving schedule. The agency’s DM&R for NFS passenger-car roads is determined

annually—from random sample surveys—providing an 80 percent level of confidence. DM&R

is not reported for roads that are not part of the passenger-car system.

ARS, APHIS, and NRCS use similar condition surveys to estimate DM&R on all major classes

of its PP&E and heritage assets.

SECTION I I FINANCIAL INFORMATION 133

RANKING AND PRIORITIZING MAINTENANCE AND REPAIRS ACTIVITIES

Maintenance and repair activities are prioritized based on condition surveys and ranked based

on PP&E and heritage assets that pose serious threats to public health or safety, a natural

resource, or the ability of the agency to implement its mission.

FACTORS CONSIDERED IN SETTING ACCEPTABLE CONDITION

The standards for acceptable operating condition for various classes of PP&E and heritage

assets are as follows:

Conditions of roads and bridges within the NFS road system are measured by various

standards:

• Federal Highway Administration regulations for the Federal Highway Safety Act.

• Best management practices for the nonpoint source provisions of the Clean Water Act

from U.S. Environmental Protection Agency and States.

• Road management objectives developed through the National Forest Management Act

forest planning process.

• Forest Service directives—Forest Service Manual (FSM) 7730, Operation and

Maintenance (August 25, 2005, amendment was superseded with October 1, 2008,

revision); Forest Service Handbook (FSH) 7709.56a, Road Preconstruction, and FSH

7709.56b, Transportation Structures Handbook.

Dams in the NFS are managed according to FSM 7500, Water Storage and Transmission, and

FSH 7509.11, Dams Management Handbook. The condition of a dam is acceptable when the

dam meets current design standards and does not have any deficiencies that threaten the safety

of the structure or public. For dams to be rated in acceptable condition, the agency needs to

restore the dams to the original functional purpose, correct unsightly conditions, or prevent

more costly repairs.

Buildings in the NFS shall comply with the International Family of Building and Related

Codes, the National Fire Protection Association Life Safety Code, the Forest Service Health

and Safety Handbook, and the Occupational Safety Health Administration as determined by

condition surveys and safety inspections. These requirements are found in FSM 7310,

Buildings and Related Facilities, revised November 19, 2004.

Recreation facilities in the NFS are located within recreation sites that range from highly

developed sites to general forest areas such as campgrounds, trailheads, trails, water and

wastewater systems, interpretive facilities, and visitor centers. Recreation sites are managed in

accordance with Federal laws and regulations (Code of Federal Regulations [CFR] 36).

134 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Detailed management guidelines are contained in FSM 2330, Publicly Managed Recreation

Opportunities, and forest- and regional-level user guides. Quality standards for developed

recreation sites in the NFS were established as Meaningful Measures for health and cleanliness,

settings, safety and security, responsiveness, and the condition of the facility.

The condition assessment for range structures in the NFS (fences and stock handling facilities)

is based on (1) a determination by knowledgeable range specialists or other district personnel of

whether the structure would perform the originally intended function and (2) a determination

through the use of a protocol system to assess conditions based on age. A long-standing range

methodology is used to gather this data.

Trails and trail bridges in the NFS are managed according to Federal law and regulations

(CFR 36). More specific direction is contained in FSM 2350, Trail, River, and Similar

Recreation Opportunities, and the FSH 2309.18, Trails Management Handbook.

DM&R of NFS structures for wildlife, fish, and threatened and endangered species is

determined by field biologists using their professional judgment. The DM&R is considered

critical if resource damage or species endangerment would likely occur if maintenance were

deferred much longer.

ARS, APHIS, and NRCS define acceptable condition in accordance with standards comparable

to those used in private industry for buildings and other structures.

DEFERRED MAINTENANCE AND REPAIR COSTS

FY 2016

Ending Balance

Asset Category

General PP&E 5,828$

Heritage Assets 132

Total 5,960$

SECTION I I FINANCIAL INFORMATION 135

Statement of Budgetary Resources (Unaudited)

FY 2016 FSA CCC FAS RMA FNS FSIS AMS APHIS GIPSA

Non-Budgetary Non-Budgetary

Financing Financing

Budgetary

Accounts

Budgetary

Accounts

Budgetary

Budgetary Resources:

Unobligated balance, brought forward, October 1: 401$ 2,145$ 598$ 179$ 516$ 573$ 34,288$ 144$ 153$ 674$ 33$

Recoveries of prior year unpaid obligations 54 105 341 10 90 3 1,956 15 17 62 4

Other changes in unobligated balance (+ or -) (59) (2,031) 88 (74) 68 - (3,542) (10) 8 (10) (2)

Unobligated balance from prior year budget authority, net 396 219 1,027 115 674 576 32,702 149 178 726 35

Appropriations (discretionary and mandatory) 2,089 - 1,823 - 400 4,938 110,014 1,028 1,172 1,206 43

Borrowing authority (discretionary and mandatory) - 2,833 34,655 171 - - - - - - -

Spending authority from offsetting collections (discretionary and mandatory) 413 787 99 147 73 3,762 77 208 94 189 57

Total budgetary resources 2,898 3,839 37,604 433 1,147 9,276 142,793 1,385 1,444 2,121 135

Status of Budgetary Resources:

New obligations and upward adjustments (total) (Note 23) 2,469 2,978 37,054 290 835 8,698 103,688 1,285 1,303 1,522 96

Unobligated balance, end of year:

Apportioned, unexpired accounts 304 302 88 35 123 576 6,085 82 126 509 33

Exempt from apportionment, unexpired accounts - - 85 3 - - - - 1 - -

Unapportioned, unexpired accounts 51 559 376 105 8 - 6,168 - - 3 2

Unexpired unobligated balance, end of year 355 861 549 143 131 576 12,253 82 127 512 35

Expired unobligated balance, end of year 74 - 1 - 181 2 26,852 18 14 87 4

Unobligated balance, end of year (total) 429 861 550 143 312 578 39,105 100 141 599 39

Total budgetary resources 2,898 3,839 37,604 433 1,147 9,276 142,793 1,385 1,444 2,121 135

Change in Obligated Balances:

Unpaid obligations:

Unpaid obligations, brought forward, October 1 419 472 5,288 133 411 2,724 8,980 130 645 687 14

New obligations and upward adjustments 2,469 2,978 37,054 290 835 8,698 103,688 1,285 1,303 1,522 96

Outlays (gross)(-) (2,442) (2,861) (18,132) (288) (424) (8,004) (101,539) (1,246) (1,284) (1,660) (94)

Recoveries of prior year unpaid obligations (-) (54) (105) (341) (10) (90) (3) (1,956) (15) (17) (62) (4)

Unpaid obligations, end of year 392 484 23,869 125 732 3,415 9,173 154 647 487 12

Uncollected payments:

Uncollected payments, Federal sources, brought forward, October 1 (-) (60) (11) - - (323) - (1) (39) (21) (242) (8)

Change in uncollected payments, Federal sources (+ or -) 5 1 (136) (14) 44 - (1) (7) 6 10 1

Uncollected payments, Federal sources, end of year (-) (55) (10) (136) (14) (279) - (2) (46) (15) (232) (7)

Memorandum (non-add) entries:

Obligated balance, start of year (+ or -) 359 461 5,288 133 88 2,724 8,979 91 624 445 6

Obligated balance, end of year (+ or -) 337 474 23,733 111 453 3,415 9,171 108 632 255 5

Budget Authority and Outlays, Net

Budget authority, gross (discretionary and mandatory) 2,502 3,620 36,577 318 473 8,700 110,091 1,236 1,266 1,395 100

Actual offsetting collections (-) (discretionary and mandatory) (484) (2,152) (7,085) (391) (194) (3,765) (77) (201) (111) (199) (58)

Change in uncollected customer payments from Federal sources 5 1 (136) (14) 44 - (1) (7) 6 10 1

(discretionary and mandatory)

Recoveries of prior year paid obligations (discretionary and mandatory) 1 - 119 2 78 1 1 - 12 - -

Anticipated offsetting collections (+ or -) (discretionary and mandatory) - - - - - - - - - - -

Budget authority, net (discretionary and mandatory) 2,024 1,469 29,475 (85) 401 4,936 110,014 1,028 1,173 1,206 43

Outlays, gross (discretionary and mandatory) 2,442 2,861 18,132 288 424 8,004 101,539 1,246 1,284 1,660 94

Actual offsetting collections (discretionary and mandatory) (-) (484) (2,152) (7,085) (391) (194) (3,765) (77) (201) (111) (199) (58)

Outlays, net (discretionary and mandatory) 1,958 709 11,047 (103) 230 4,239 101,462 1,045 1,173 1,461 36

Distributed offsetting receipts (-) - (193) (4) (58) (3) - - (13) (164) (12) -

Agency outlays, net (discretionary and mandatory) 1,958$ 516$ 11,043$ (161)$ 227$ 4,239$ 101,462$ 1,032$ 1,009$ 1,449$ 36$

136 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

FY 2016 FS NRCS ARS NIFA ERS NASS RD DO TOTAL

Non-Budgetary Non-Budgetary

Financing Financing

Budgetary

Accounts

Budgetary

Accounts

Budgetary Resources:

Unobligated balance, brought forward, October 1: 1,230$ 4,150$ 135$ 416$ 3$ 1$ 6,144$ 11,472$ 217$ 49,676$ 13,796$

Recoveries of prior year unpaid obligations 319 350 23 56 2 12 139 986 13 3,456 1,101

Other changes in unobligated balance (+ or -) 2 (12) - (8) - 1 (150) (5,844) (2) (3,628) (7,949)

Unobligated balance from prior year budget authority, net 1,551 4,488 158 464 5 14 6,133 6,614 228 49,504 6,948

Appropriations (discretionary and mandatory) 7,236 4,288 1,381 1,483 85 168 7,495 - 389 145,238 -

Borrowing authority (discretionary and mandatory) - - - - - - - 10,173 - 34,655 13,177

Spending authority from offsetting collections (discretionary and mandatory) 416 58 144 25 4 34 2,608 12,503 1,047 9,308 13,437

Total budgetary resources 9,203 8,834 1,683 1,972 94 216 16,236 29,290 1,664 238,705 33,562

Status of Budgetary Resources:

New obligations and upward adjustments (total) (Note 23) 7,255 4,223 1,341 1,452 92 215 9,328 14,875 1,426 182,282 18,143

Unobligated balance, end of year:

Apportioned, unexpired accounts 1,443 1,738 300 580 - 1 5,886 11,137 176 18,050 11,474

Exempt from apportionment, unexpired accounts - - - - - - - - - 86 3

Unapportioned, unexpired accounts 500 344 - (82) - - 909 3,278 30 8,309 3,942

Unexpired unobligated balance, end of year 1,943 2,082 300 498 - 1 6,795 14,415 206 26,445 15,419

Expired unobligated balance, end of year 5 2,529 42 22 2 - 113 - 32 29,978 -

Unobligated balance, end of year (total) 1,948 4,611 342 520 2 1 6,908 14,415 238 56,423 15,419

Total budgetary resources 9,203 8,834 1,683 1,972 94 216 16,236 29,290 1,664 238,705 33,562

Change in Obligated Balances:

Unpaid obligations:

Unpaid obligations, brought forward, October 1 2,567 4,501 468 1,971 44 45 3,745 20,284 449 33,088 20,889

New obligations and upward adjustments 7,255 4,223 1,341 1,452 92 215 9,328 14,875 1,426 182,282 18,143

Outlays (gross)(-) (6,964) (3,774) (1,318) (1,368) (98) (202) (9,007) (13,060) (1,424) (158,980) (16,209)

Recoveries of prior year unpaid obligations (-) (319) (350) (23) (56) (2) (12) (139) (986) (13) (3,456) (1,101)

Unpaid obligations, end of year 2,539 4,600 468 1,999 36 46 3,927 21,113 438 52,934 21,722

Uncollected payments:

Uncollected payments, Federal sources, brought forward, October 1 (-) (600) (206) (165) (69) (12) (15) (10) (562) (307) (2,078) (573)

Change in uncollected payments, Federal sources (+ or -) 185 40 17 11 (1) 13 (17) 28 22 192 15

Uncollected payments, Federal sources, end of year (-) (415) (166) (148) (58) (13) (2) (27) (534) (285) (1,886) (558)

Memorandum (non-add) entries:

Obligated balance, start of year (+ or -) 1,967 4,295 303 1,902 32 30 3,735 19,722 142 31,010 20,316

Obligated balance, end of year (+ or -) 2,124 4,434 320 1,941 23 44 3,900 20,579 153 51,048 21,164

Budget Authority and Outlays, Net

Budget authority, gross (discretionary and mandatory) 7,652 4,346 1,525 1,508 89 202 10,103 22,676 1,436 189,201 26,614

Actual offsetting collections (-) (discretionary and mandatory) (601) (103) (168) (40) (3) (47) (3,863) (15,054) (1,072) (18,071) (17,597)

Change in uncollected customer payments from Federal sources 185 40 17 11 (1) 13 (17) 28 22 192 15

(discretionary and mandatory)

Recoveries of prior year paid obligations (discretionary and mandatory) - 4 7 4 - - 2 - 5 234 2

Anticipated offsetting collections (+ or -) (discretionary and mandatory) - - - - - - - - - - -

Budget authority, net (discretionary and mandatory) 7,236 4,287 1,381 1,483 85 168 6,225 7,650 391 171,556 9,034

Outlays, gross (discretionary and mandatory) 6,964 3,774 1,318 1,368 98 202 9,007 13,060 1,424 158,980 16,209

Actual offsetting collections (discretionary and mandatory) (-) (601) (103) (168) (40) (3) (47) (3,863) (15,054) (1,072) (18,071) (17,597)

Outlays, net (discretionary and mandatory) 6,363 3,671 1,150 1,328 95 155 5,144 (1,994) 352 140,909 (1,388)

Distributed offsetting receipts (-) (716) - (26) (1) - - (1) (1,516) (15) (955) (1,767)

Agency outlays, net (discretionary and mandatory) 5,647$ 3,671$ 1,124$ 1,327$ 95$ 155$ 5,143$ (3,510)$ 337$ 139,954$ (3,155)$

SECTION I I FINANCIAL INFORMATION 137

Risk Assumed Information (Unaudited)

Risk assumed is generally measured by the present value of unpaid expected losses net of

associated premiums based on the risk inherent in the insurance or guarantee coverage in force.

Risk assumed information is in addition to the liability for unpaid claims from insured events

that have already occurred. The assessment of losses expected based on the risk assumed are

based on actuarial or financial methods applicable to the economic, legal and policy

environment in force at the time the assessments are made. The FCIC has estimated the loss

amounts based on the risk assumed for its programs to be $8,343 million as of September 30,

2016.

138 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Section III:

Other Information

Unaudited Financial Statements

Consolidated Statement of Net Cost

For the Year Ended September 30, 2016 ($ In Millions)

2016

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 24,949$

Less: Earned Revenue 7,444

Net Costs 17,505

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs 13,040

Less: Earned Revenue 1,046

Net Costs 11,994

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs 2,456

Less: Earned Revenue 175

Net Costs 2,281

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs 105,593

Less: Earned Revenue 1,075

Net Costs 104,518

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs 1,264

Less: Earned Revenues 217

Net Costs 1,047

Total Gross Costs 147,302

Less: Total Earned Revenue 9,957

Net Cost of Operations (Note 19) 137,345$

The accompanying notes are an integral part of these statements.

S ECTION III OTHER INFORMATION 139

Consolidated Statement of Changes in Net Position

For the Year Ended September 30, 2016 ($ In Millions)

Funds From

Dedicated

Collections

All Other Consolidated

(Note 18)

Funds

Eliminations Total

Cumulative Results of Operations:

Beginning Balances 1,920$ 6,305$ -$ 8,225$

Budgetary Financing Sources:

Other Adjustments (recissions, etc.) - (478) - (478)

Appropriations Used (1) 127,032 - 127,031

Non-exchange Revenue - 22 - 22

Donations and Forfeitures of Cash and Equivalents 1 - - 1

Transfers In (Out) without Reimbursement 1,129 8,251 757 10,137

Other Financing Sources (Non-Exchange):

Donations and Forfeitures of Property - 1 - 1

Transfers In (Out) without Reimbursement (111) 803 (757) (65)

Imputed Financing 42 3,607 (2,660) 989

Other 27 (8,553) - (8,526)

Total Financing Sources 1,087 130,685 (2,660) 129,112

Net Cost of Operations (292) (139,713) 2,660 (137,345)

Net Change 795 (9,028) - (8,233)

Cumulative Results of Operations 2,715 (2,723) - (8)

Unexpended Appropriations:

Beginning Balances 131 48,041 - 48,172

Budgetary Financing Sources:

Appropriations Received 12 142,894 - 142,906

Appropriations Transferred In (Out) - (3) - (3)

Other Adjustments - (10,112) - (10,112)

Appropriations Used 1 (127,032) - (127,031)

Total Budgetary Financing Sources 13 5,747 - 5,760

Unexpended Appropriations 144 53,788 - 53,932

Net Position 2,859$ 51,065$ -$ 53,924$

The accompanying notes are an integral part of these statements.

140 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Combined Statement of Budgetary Resources

For the Year Ended September 30, 2016 ($ In Millions)

2016

Non-Budgetary

Credit Reform

Financing

Budgetary Accounts

Budgetary Resources:

Unobligated balance, brought forward, October 1: 49,676$ 13,796$

Recoveries of prior year unpaid obligations 3,456 1,101

Other changes in unobligated balance (+ or -) (3,628) (7,949)

Unobligated balance from prior year budget authority, net 49,504 6,948

Appropriations (discretionary and mandatory) 145,238 -

Borrowing authority (discretionary and mandatory) 34,655 13,177

Spending authority from offsetting collections (discretionary and mandatory) 9,308 13,437

Total budgetary resources 238,705 33,562

Status of Budgetary Resources:

New obligations and upward adjustments (total) (Note 23) 182,282 18,143

Unobligated balance, end of year:

Apportioned, unexpired accounts 18,050 11,474

Exempt from apportionment, unexpired accounts 86 3

Unapportioned, unexpired accounts 8,309 3,942

Unexpired unobligated balance, end of year 26,445 15,419

Expired unobligated balance, end of year 29,978 -

Unobligated balance, end of year (total) 56,423 15,419

Total budgetary resources 238,705 33,562

Change in Obligated Balance:

Unpaid obligations:

Unpaid obligations, brought forward, October 1 33,088 20,889

New obligations and upward adjustments 182,282 18,143

Outlays (gross) (-) (158,980) (16,209)

Recoveries of prior year unpaid obligations (-) (3,456) (1,101)

Unpaid obligations, end of year 52,934 21,722

Uncollected payments:

Uncollected customer payments from Federal sources, brought forward, October 1 (-) (2,078) (573)

Change in uncollected customer payments from Federal sources (+ or -) 192 15

Uncollected payments, Federal sources, end of year (-) (1,886) (558)

Memorandum (non-add) entries:

Obligated balance, start of year (+ or -) 31,010 20,316

Obligated balance, end of year (+ or -) 51,048 21,164

Budget Authority and Outlays, Net:

Budget authority, gross (discretionary and mandatory) 189,201 26,614

Actual offsetting collections (discretionary and mandatory) (-) (18,071) (17,597)

Change in uncollected customer payments from Federal sources 192 15

(discretionary and mandatory)(+ or -)

Recoveries of prior year paid obligations (discretionary and mandatory) 234 2

Anticipated offsetting collections (discretionary and mandatory) (+ or -) - -

Budget authority, net (discretionary and mandatory) 171,556 9,034

Outlays, gross (discretionary and mandatory) 158,980 16,209

Actual offsetting collections (discretionary and mandatory) (-) (18,071) (17,597)

Outlays, net (discretionary and mandatory) 140,909 (1,388)

Distributed offsetting receipts (-) (955) (1,767)

Agency outlays, net (discretionary and mandatory) 139,954$ (3,155)$

The accompanying notes are an integral part of these statements.

S ECTION III OTHER INFORMATION 141

Unaudited Notes to Financial Statements

Note 7: Direct Loans and Guarantees, Non-Federal Borrowers

Table 2: Schedule for Reconciling Subsidy Cost Allowance Balances (Post-1991) Direct Loans

FY 2016

Beginning balance of the subsidy cost allowance 6,425$

Add: Subsidy expense for direct loans disbursed during the year by component

Interest rate differential costs (140)

Default costs (net of recoveries) 175

Fees and other collections (11)

Other subsidy costs (62)

Total subsidy expense prior to adjustments and reestimates (38)

Adjustments

Loan modifications 4

Fees received 71

Loans written off (1,182)

Subsidy allowance amortization (114)

Other (305)

Total subsidy cost allowance before reestimates 4,861

Add or subtract subsidy reestimates by component

Interest rate reestimate (274)

Technical/default reestimate 237

Total reestimates (37)

Ending balance of the subsidy cost allowance 4,824$

142 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 7: Schedule for Reconciling Loan Guarantee Liability

FY 2016

Beginning balance of the loan guarantee liability 5,590$

Add:Subsidy expense for guaranteed loans disbursed during the year by component

Interest supplement costs -

Default costs (net of recoveries) 1,203

Fees and other collections (1,145)

Other subsidy costs (9)

Total of the above subsidy expense components 49

Adjustments

Loan guarantee modifications -

Fees received 816

Interest supplements paid (10)

Foreclosed property and loans acquired (263)

Claim payments to lenders (749)

Interest accumulation on the liability balance 185

Other 175

Ending balance of the subsidy cost allowance before reestimates 5,793

Add or subtract subsidy reestimates by component:

Interest rate reestimate 37

Technical/default reestimate (4,301)

Total of the above reestimate components (4,264)

Ending balance of the loan guarantee liability 1,529$

S ECTION II I OTHER INFORMATION 143

Note 8: Inventory and Related Property, Net

Commodity inventory is restricted for the purpose of alleviating distress caused by natural disasters, providing emergency food

assistance in developing countries and providing price support and stabilization.

Commodities:

Unit of Measure Quantity

Value

Quantity

Value

Quantity Value

Quantity

Value

Quantity Value

Quantity

Value

Corn Meal Pounds - -$ 68 10$ - -$ (61) (9)$ - -$ 6 1$

Blended Foods Pounds 13 3 119 32 - - (105) (28) - 2 27 9

Dry Edible Beans Cwt. - - - 11 - - - (8) - - - 3

Dry Whole Peas Cwt. - 2 3 98 - - (3) (96) - 1 - 5

Emergency Food Ration Bars Pounds 2 3 1 1 - - (3) (4) - - - -

Grain Sorghum Bushels - - 20 92 - - (19) (92) - - - -

Lentils Dry Cwt. - 2 - 21 - - - (23) - - - -

Nonfat Dry Milk Pounds - - - - - - - - - - - -

Rice Products Cwt., Pounds - - 1 30 - - (1) (29) - - - 1

Meat Pounds - - - - - - - - - - - -

Vegetable Oil Pounds 23 12 209 107 - - (222) (113) - - 10 6

Wheat Products Bushels, Pounds 2 - 64 190 19 56 (66) (190) (19) (56) - -

Other Various XXXX 30 XXXX 34 XXXX 1,464 XXXX (45) XXXX (1,483) XXXX -

Total Commodities XXXX 52$ XXXX 626$ XXXX 1,520$ XXXX (637)$ XXXX (1,536)$ XXXX 25$

Allowance for losses (1)

Barter Delivery Obligations (BDO) -

Total Inventory and Related Property, Net 24$

Beginning Inventory Acquisitions Collateral Acquired Donations Other Ending Inventory

FY 2016 FY 2016

144 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 10: Stewardship PP&E

FY 2016

Ending Balance Additions Withdrawals

Beginning

Balance

Heritage Assets

National Forests 154 - - 154

National Grasslands 20 - - 20

Other Sites 175 1 (1) 175

Research Centers 34 - - 34

Library Collections 1 - - 1

Total 384 1 (1) 384

Stewardship Land

National Forests 154 - - 154

National Grasslands 20 - - 20

Research and Experimental Areas 3 - - 3

National Preserves and Other Areas 2 - - 2

Conservation Easements 17,672 354 - 17,318

Total 17,851 354 - 17,497

Note 13: Debt

FY 2016

Beginning

Balance

Net Borrowing

Ending Balance

Intragovernmental

Debt to the Treasury 72,531$ 5,708$ 78,239$

Debt to the Federal Financing Bank 41,701 1,663 43,364

Total Intragovernmental 114,232 7,371 121,603

Agency Debt:

Held by the Public - - -

Total Debt 114,232$ 7,371$ 121,603$

S ECTION III OTHER INFORMATION 145

Note 18: Funds from Dedicated Collections

AMS AMS APHIS FS FS FS FS FS FS

Funds for

Strengthening

Markets, Income, and

Supply

Expenses and

Refunds,

Inspection and

Grading of Farm

Products

Agricultural

Quarantine

Inspection User Fee

Account

Cooperative Work Land Acquisition

Payments to States,

National Forests

Fund

Timber Salvage

Sales

Expenses, Brush

Disposal

State, Private, and

International

Forestry, Land and

Water

Conservation Fund

Statement of Net Cost For the Period

Ended September 30, 2016

Gross program costs 795 202 216 101 41 (104) 26 10 69

Less Earned Revenue 5 140 609 106 - 182 36 8 -

Net Cost of Operations 790 62 (393) (5) 41 (286) (10) 2 69

Statement of Changes in Net Position

For the period Ended September 30, 2016

Net Position Beginning of Period 558 70 256 108 74 (210) 15 14 144

Other Financing Sources 747 45 (384) 198 76 1 63 38 78

Net Cost of Operations (791) (62) 392 5 (41) 287 10 (2) (69)

Change in Net Position (44) (17) 8 203 35 288 73 36 9

Net Position End of Period 514$ 53$ 264$ 311$ 109$ 78$ 88$ 50$ 153$

146 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

FS FS FS FS FS FS NIFA

Recreation Fee

Demonstration

Program

National Forest

Fund Receipts

Restoration of

Forest Lands and

Improvements

Payments to

Counties, National

Grasslands

Acquisition of

Lands to Complete

Land Exchanges

Stewardship

Contracting

Product Sales

Native American

Institutions

Endowment Fund

Other Total

Statement of Net Cost For the Period

Ended September 30, 2016

Gross program costs 72 - 39 22 5 25 6 183 1,708

Less Earned Revenue 86 (27) 10 29 17 35 5 175 1,416

Net Cost of Operations (14) 27 29 (7) (12) (10) 1 8 292

Statement of Changes in Net Position

For the period Ended September 30, 2016

Net Position Beginning of Period 60 161 241 102 65 31 205 157 2,051

Other Financing Sources 28 (26) 164 (57) 14 7 11 97 1,100

Net Cost of Operations 14 (27) (29) 7 12 11 (1) (8) (292)

Change in Net Position 42 (53) 135 (50) 26 18 10 89 808

Net Position End of Period 102$ 108$ 376$ 52$ 91$ 49$ 215$ 246$ 2,859$

S ECTION III OTHER INFORMATION 147

Note 19: Sub-Organization Program Costs/Program Costs by Segment

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 899$ 1,062$ 1,268$ 11,623$ 102$ 252$

Less: Earned Revenue 153 202 8 1,380 91 -

Net Costs 746 860 1,260 10,243 11 252

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs 203 240 433 2,009 - -

Less: Earned Revenue 35 46 16 1 - -

Net Costs 168 194 417 2,008 - -

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs - - 79 1,962 28 68

Less: Earned Revenue - - 21 99 24 -

Net Costs - - 58 1,863 4 68

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Total Gross Costs 1,102 1,302 1,780 15,594 130 320

Less: Total Earned Revenue 188 248 45 1,480 115 -

Net Cost of Operations 914$ 1,054$ 1,735$ 14,114$ 15$ 320$

FAS

FSA

CCC

148 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 81$ 6,210$ -$ -$ -$ -$

Less: Earned Revenue - 1,287 - - - -

Net Costs 81 4,923 - - - -

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs - - 987 101,384 414 950

Less: Earned Revenue - - 1 75 3 219

Net Costs - - 986 101,309 411 731

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Total Gross Costs 81 6,210 987 101,384 414 950

Less: Total Earned Revenue - 1,287 1 75 3 219

Net Cost of Operations 81$ 4,923$ 986$ 101,309$ 411$ 731$

RMA FNS FSIS

S ECTION III OTHER INFORMATION 149

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 69$ 493$ 48$ 164$ 37$ 66$

Less: Earned Revenue 4 88 6 95 1 56

Net Costs 65 405 42 69 36 10

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs - - 19 65 - -

Less: Earned Revenue - - 3 38 - -

Net Costs - - 16 27 - -

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs - - 18 62 - -

Less: Earned Revenue - - 3 36 - -

Net Costs - - 15 26 - -

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs 80 573 296 1,016 - -

Less: Earned Revenue 4 102 41 590 - -

Net Costs 76 471 255 426 - -

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Total Gross Costs 149 1,066 381 1,307 37 66

Less: Total Earned Revenue 8 190 53 759 1 56

Net Cost of Operations 141$ 876$ 328$ 548$ 36$ 10$

AMS APHIS GIPSA

150 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs -$ -$ -$ -$ 83$ 269$

Less: Earned Revenue - - - - 32 23

Net Costs - - - - 51 246

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs 1,475 5,231 646 3,234 53 173

Less: Earned Revenue 166 687 65 19 20 15

Net Costs 1,309 4,544 581 3,215 33 158

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs - - - - 40 129

Less: Earned Revenue - - - - 15 11

Net Costs - - - - 25 118

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs - - - - 128 414

Less: Earned Revenue - - - - 49 35

Net Costs - - - - 79 379

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Total Gross Costs 1,475 5,231 646 3,234 304 985

Less: Total Earned Revenue 166 687 65 19 116 84

Net Cost of Operations 1,309$ 4,544$ 581$ 3,215$ 188$ 901$

ARSNRCSFS

S ECTION III OTHER INFORMATION 151

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 32$ 664$ 14$ 20$ 58$ 145$

Less: Earned Revenue 23 1 1 - 30 2

Net Costs 9 663 13 20 28 143

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs 8 175 6 8 - 1

Less: Earned Revenue 6 - - - - -

Net Costs 2 175 6 8 - 1

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs 5 95 10 14 - -

Less: Earned Revenue 3 - 1 - - -

Net Cos

ts 2 95 9 14 - -

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs 18 374 9 14 3 7

Less: Earned Revenue 13 1 1 - 1 -

Net Costs 5 373 8 14 2 7

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - - - - -

Less: Earned Revenue - - - - - -

Net Costs - - - - - -

Total Gross Costs 63 1,308 39 56 61 153

Less: T

otal Earned Revenue 45 2 3 - 31 2

Net Cost of Operations 18$ 1,306$ 36$ 56$ 30$ 151$

NIFA NASSERS

152 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

FY 2016

Intragovernmental With the Public Intragovernmental With the Public Intragovernmental With the Public

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs 4,071$ (1,193)$ 11$ 25$ 6,773$ 19,800$

Less: Earned Revenue 734 3,411 4 - 1,087 6,545

Net Costs 3,337 (4,604) 7 25 5,686 13,255

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs - - 5 9 2,848 11,145

Less: Earned Revenue - - 5 - 316 806

Net Costs - - - 9 2,532 10,339

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs - - - - 180 2,330

Less: Earned Revenue - - - - 67 146

Net Costs - - - - 113 2,184

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs - - - - 1,935 104,732

Less: Earned Revenue - - - - 113 1,022

Net Costs - - - - 1,822 103,710

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs - - 395 937 395 937

Less: Earned Revenue - - 957 11 957 11

Net Costs - - (562) 926 (562) 926

Total Gross Costs 4,071 (1,193) 411 971 12,131 138,944

Less: Total Earned Revenue 734 3,411 966 11 2,540 8,530

Net Cost of Operations 3,337$ (4,604)$ (555)$ 960$ 9,591$ 130,414$

RD Departmental Offices Total

S ECTION III OTHER INFORMATION 153

FY 2016

Intradepartmental

Eliminations

Grand Total

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Gross Costs (1,624)$ 24,949$

Less: Earned Revenue (188) 7,444

Net Costs (1,436) 17,505

Ensure Our National Forests and Private Working Lands Are

Conserved, Restored, and Made More Resilient to Climate Change,

While Enhancing Our Water Resources:

Gross Costs (953) 13,040

Less: Earned Revenue (76) 1,046

Net Costs (877) 11,994

Help America Promote Agricultural Production and

Biotechnology Exports as America Works to Increase Food Security:

Gross Costs (54) 2,456

Less: Earned Revenue (38) 175

Net Costs (16) 2,281

Ensure that All of America's Children Have Access

to Safe, Nutritious, and Balanced Meals:

Gross Costs (1,074) 105,593

Less: Earned Revenue (60) 1,075

Net Costs (1,014) 104,518

Create a USDA for the 21st Century That is High Performing,

Efficient, and Adaptable:

Gross Costs (68) 1,264

Less: Earned Revenue (751) 217

Net Costs 683 1,047

Total Gross Costs (3,773) 147,302

Less: Total Earned Revenue (1,113) 9,957

Net Cost of Operations (2,660)$ 137,345$

154 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 20: Cost of Stewardship PP&E

The acquisition cost of stewardship land in FY 2016 was $216 million.

Note 21: Terms of Borrowing Authority Used

The Secretary of Agriculture has the authority to make and issue notes to the Secretary of the

Treasury for the purpose of discharging obligations for RD’s insurance funds and CCC’s

nonreimbursed realized losses and debt related to foreign assistance programs. The permanent

indefinite borrowing authority includes both interest bearing and non-interest bearing notes.

These notes are drawn upon daily when disbursements exceed deposits. Notes payable under

the permanent indefinite borrowing authority have a term of one year. On January 1 of each

year, USDA refinances its outstanding borrowings, including accrued interest, at the January

borrowing rate.

In addition, USDA has permanent indefinite borrowing authority for the foreign assistance and

export credit programs to finance disbursements on post-credit reform, direct credit obligations,

and credit guarantees. In accordance with the Federal Credit Reform Act of 1990, as amended,

USDA borrows from Treasury on October 1, for the entire fiscal year, based on annual

estimates of the difference between the amount appropriated (subsidy) and the amount to be

disbursed to the borrower. Repayment under this agreement may be, in whole or in part, prior

to maturity by paying the principal amount of the borrowings plus accrued interest to the date

of repayment. Interest is paid on these borrowings based on weighted average interest rates for

the cohort, to which the borrowings are associated. Interest is earned on the daily balance of

uninvested funds in the credit reform financing funds maintained at Treasury. The interest

income is used to reduce interest expense on the underlying borrowings.

USDA has authority to borrow from the Federal Financing Bank (FFB) in the form of

Certificates of Beneficial Ownership (CBOs) or loans executed directly between the borrower

and FFB with an unconditional USDA repayment guarantee. CBOs outstanding with FFB are

generally secured by unpaid loan principal balances. CBOs outstanding are related to pre-credit

reform loans and no longer used for program financing.

FFB CBOs are repaid as they mature and are not related to any particular group of loans.

Borrowings made to finance loans directly between the borrower and FFB mature and are

repaid as the related group of loans become due. Interest rates on the related group of loans are

equal to interest rates on FFB borrowings, except in those situations where an FFB funded loan

is restructured and the terms of the loan are modified.

S ECTION III OTHER INFORMATION 155

Prepayments can be made on Treasury borrowings without a penalty; however, they cannot be

made on FFB CBOs, without a penalty.

Funds may also be borrowed from private lending agencies and others. USDA reserves a

sufficient amount of its borrowing authority to purchase, at any time, all notes and other

obligations evidencing loans made by agencies and others. All bonds, notes, debentures, and

similar obligations issued by the Department are subject to approval by the Secretary of the

Treasury. Reservation of borrowing authority for these purposes has not been required for

many years.

Note 22: Available Borrowing Authority, End of Period

Available borrowing authority at September 30, 2016 was $41,349 million.

Note 23: Apportionment Categories of Obligations Incurred:

Direct vs. Reimbursable Obligations

FY 2016

Direct Reimbursable Total

Apportionment by Fiscal Quarter 41,900$ 2,434$ 44,334$

Apportionment for Special Activities 119,098 28,907 148,005

Exempt from Apportionment 817 7,269 8,086

Total Obligations Incurred 161,815$ 38,610$ 200,425$

Note 24: Undelivered Orders at the End of the Period

Budgetary resources obligated for undelivered orders as of September 30, 2016 were

$52,604 million.

Note 25: Permanent Indefinite Appropriations

USDA has permanent indefinite appropriations available to fund (1) subsidy costs incurred

under credit reform programs, (2) certain costs of the crop insurance program, (3) certain

commodity program costs, and (4) certain costs associated with FS programs.

The permanent indefinite appropriations for credit reform are mainly available to finance any

disbursements incurred under the liquidating accounts. These appropriations become available

pursuant to standing provisions of law without further action by Congress after transmittal of

156 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

the budget for the year involved. They are treated as permanent the first year they become

available, as well as in succeeding years. However, they are not stated as specific amounts but

are determined by specified variable factors, such as cash needs for liquidating accounts, and

information about the actual performance of a cohort or estimated changes in future cash flows

of the cohort in the program accounts.

The permanent indefinite appropriation for the crop insurance program is used to cover

premium subsidy, delivery expenses, losses in excess of premiums, and research and delivery

costs.

The permanent indefinite appropriation for commodity program costs is used to encourage the

exportation of agricultural commodities and products, to encourage domestic consumption of

agricultural products by diverting them, and to reestablish farmers’ purchasing power by

making payments in connection with the normal production of any agricultural commodity for

domestic consumption.

The permanent indefinite appropriation for FS programs is used to fund Recreation Fee

Collection Costs, Brush Disposal, License programs, Smokey Bear and Woodsy Owl,

Restoration of Forest Lands and Improvements, Roads and Trails for States, National Forest

Fund, Timber Roads, Purchaser Elections, Timber Salvage Sales and Operations, and

Maintenance of Quarters. Each of these permanent indefinite appropriations is funded by

receipts made available by law and is available until expended.

Note 26: Legal Arrangements Affecting Use of Unobligated

Balances

Unobligated budget authority is the difference between the obligated balance and the total

unexpended balance. It represents that portion of the unexpended balance unencumbered by

recorded obligations. Appropriations are provided on an annual, multi-year, and no-year basis.

An appropriation expires on the last day of its period of availability and is no longer available

for new obligations. Unobligated balances retain their fiscal-year identity in an expired account

for an additional five fiscal years. The unobligated balance remains available to make

legitimate obligation adjustments, i.e., to record previously unrecorded obligations and to make

upward adjustments in previously underestimated obligations for five years. At the end of the

fifth year, the authority is canceled. Thereafter, the authority is not available for any purpose.

Any information about legal arrangements affecting the use of the unobligated balance of

budget authority is specifically stated by program and fiscal year in the appropriation language

or in the alternative provisions section at the end of the appropriations act.

S ECTION III OTHER INFORMATION 157

Note 27: Explanation of Differences Between the SBR and the

Budget of the U.S. Government

A comparison between the FY 2016 SBR and the FY 2016 actual numbers presented in the

FY 2018 Budget cannot be performed as the FY 2018 Budget is not yet available. The FY 2018

Budget is expected to be published in February 2017 and will be available from the U.S.

Government Publishing Office.

Note 28: Incidental Custodial Collections

Custodial collections represent collections on land leases for resource extraction, National

Forest Fund receipts from the sale of timber and other forest products, miscellaneous general

fund receipts such as collections on accounts receivable related to canceled year appropriations,

civil monetary penalties and interest, and commercial fines and penalties. Custodial collection

activities are considered immaterial and incidental to the mission of the Department.

Revenue Activity: FY 2016

Sources of Collections:

Miscellaneous 149$

Total Cash Collections 149

Accrual Adjustments 2

Total Custodial Revenue 151

Disposition of Collections:

Transferred to Others:

Treasury (154)

States and Counties -

( Increase )/Decrease in Amounts Yet to be Transferred 3

Net Custodial Activity -$

158 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Note 29: Fiduciary Activities

Rural Housing Insurance Fund (RHIF) was established by Public Law 89-117 pursuant to

section 517 of title V of the Housing Act of 1949, which authorized RD to collect escrow

payments on behalf of new and existing Single Family Housing borrowers. Other fiduciary

activities by RD include but are not limited to collections from borrowers, interest paid on

escrow accounts, and payments to insurance agencies and taxing authorities.

Rural Housing

Insurance

Fund

2016

Fiduciary net assets, beginning of year 107$

Fiduciary revenues -

Contributions 427

Investment earnings -

Gain (Loss) on disposition of investments, net -

Administrative and other expenses -

Disbursements to and on behalf of beneficiaries (420)

Increases/(Decrease) in fiduciary net assets 7

Fiduciary net assets, end of year 114$

Schedule of Fiduciary Activity

For the Year Ended September 30, 2016

Rural Housing

Insurance

Fund

2016

Fiduciary Assets

Cash and cash equivalents 7$

I

nvestments 107

Other assets -

Fiduciary Liabilities -

Less: Liabilities -

Total Fiduciary Net Assets 114$

Fiduciary Net Assets

As of September 30, 2016

S ECTION III OTHER INFORMATION 159

Note 30: Reconciliation of Budgetary Resources Obligated to

Net Cost of Operations

Budgetary and proprietary accounting information are inherently different because of the types

of information and the timing of their recognition. The reconciliation of budgetary resources

obligated and the net cost of operations provides a link between budgetary and proprietary

accounting information. It serves not only to explain how information on net obligations relates

to the net cost of operations, but also to assure integrity between budgetary and proprietary

accounting.

Net obligations and the net cost of operations are different because (1) the net cost of

operations may be financed by non-budgetary resources (e.g., imputed financing); (2) the

budgetary and non-budgetary resources used may finance activities that are not components of

the net cost of operations; and (3) the net cost of operations may contain components that do

not use or generate resources in the current period.

160 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

2016

Resources Used to Finance Activities:

Budgetary Resources Obligated -

Obligations Incurred 200,425$

Less: Spending authority from offsetting collections and recoveries 40,018

Obligations net of offsetting collections and recoveries 160,407

Less: Distributed Offsetting receipts 2,722

Net Obligations 157,685

Other Resources -

Donations and forfeitures of property 1

Transfers in(out) without reimbursement (65)

Imputed financing from costs absorbed by others 989

Other (8,526)

Net other resources used to finance activities (7,601)

Total resources used to finance activities 150,084

Resources Used to Finance Items not Part of the Net Cost of Operations:

Change in undelivered orders (11,917)

Resources that fund expenses recognized in prior periods (17,609)

Budgetary offsetting collections and receipts that do not affect net cost of operations -

Credit program collections which increase liabilities for loan guarantees or allowances for subsidy 20,673

Change in Unfilled Customer Orders (333)

Decrease in exchange revenue receivable from public 5,201

Other 2,810

Resources that finance the acquisition of assets (23,258)

Other resources or adjustments to net obligated resources that do not affect net cost of operations 5,306

Total resources used to finance items not part of the net cost of operations (19,127)

Total resources used to finance the net cost of operations 130,957

Components of the Net Cost of Operations that will not Require or Generate

Resources in the Current Period:

Components Requiring or Generating Resources in Future Periods -

Increase in annual leave liability 4

Increase in environmental and disposal liability (10)

Upward/Downward reestimates of credit subsidy expense 3,671

Increase in exchange revenue receivable from the public (1,200)

Other 132

Total components of Net Cost of Operations that will require or generate

resources in future periods 2,597

Components not Requiring or Generating Resources -

Depreciation and amortization 391

Revaluation of assets or liabilities (11)

Other Components not Requiring or Generating Resources:

Bad Debt Expense 66

Cost of Goods Sold 1,586

Other 1,759

Total components of Net Cost of Operations that will not require or generate resources 3,791

Total components of Net Cost of Operations that will not require or generate

resources in the current period 6,388

Net Cost of Operations 137,345$

SECT I ON I II OT H E R I NF O R M A TIO N 161

Schedule of Spending

The Schedule of Spending (SOS) presents an overview of how and where agencies are

spending (i.e., obligating) money for the reporting period. The data used to populate this

schedule is the same underlying data used to populate the Statement of Budgetary Resources

(SBR). The “Total Amounts Agreed to be Spent” line item of the SOS should reconcile to the

“Obligations Incurred” line in the SBR. These amounts may not reconcile to USAspending.gov

because the SOS and the website have different reporting requirements.

For the Year Ended September 30, 2016 ($ In Millions)

Non-budgetary

Credit Reform

Budgetary Financing Accounts

What Money is Available to Spend?

Total Resources 238,705$ 33,562$

Less Amount Available but Not Agreed to be Spent 18,136 11,477

Less Amount Not Available to be Spent 38,287 3,942

Total Amounts Agreed to be Spent 182,282 18,143

How was the Money Spent/Issued?

Assist Rural Communities to Create Prosperity so They Are

Self-Sustaining, Repopulating, and Economically Thriving:

Personnel Compensation and Benefits 2,157 -

Travel and transportation 80 -

Rent, communications, and utilities 176 -

Other contractual services 5,717 2,291

Supplies and materials 401 -

Equipment, land, and structures 42 -

Investments and loans 8,565 11,142

Grants, subsidies, and contributions 32,747 6

Insurance claims and indemnities 5,287 -

Interest, dividends, and refunds 119 4,050

Other 54 -

Total 55,345 17,489

Ensure Our National Forests and Private Working Lands Are Conserved,

Restored, and Made More Resilient to Climate Change, While

Enhancing Our Water Resources:

Personnel Compensation and Benefits 4,454 -

Travel and transportation 246 -

Rent, communications, and utilities 347 -

Other contractual services 3,340 6

Supplies and materials 280 -

Equipment, land, and structures 425 -

Investments and loans - 446

Grants, subsidies, and contributions 5,363 -

Insurance claims and indemnities 6 -

Interest, dividends, and refunds (8) 97

Other 265 -

Total 14,718 549

2016

162 USD A F I SC AL YEAR 2 0 1 6 AGENCY F INAN C IAL RE P O R T

Schedule of Spending (continued)

For the Year Ended September 30, 2016 ($ In Millions)

Non-budgetary

Credit Reform

Budgetary Financing Accounts

Help America Promote Agricultural Production and Biotechnology

Exports as America Works to Increase Food Security:

Personnel Compensation and Benefits 178 -

Travel and transportation 8 -

Rent, communications, and utilities 15 -

Other contractual services 202 -

Supplies and materials 66 105

Equipment, land, and structures 11 -

Investments and loans - -

Grants, subsidies, and contributions 2,461 -

Insurance claims and indemnities 1 -

Interest, dividends, and refunds - -

Other 21 -

Total 2,963 105

Ensure that All of America's Children Have Access to Safe,

Nutritious, and Balanced Meals:

Personnel Compensation and Benefits 2,249 -

Travel and transportation 125 -

Rent, communications, and utilities 148 -

Other contractual services 887 -

Supplies and materials 2,308 -

Equipment, land, and structures 75 -

Investments and loans - -

Grants, subsidies, and contributions 101,777 -

Insurance claims and indemnities 22 -

Interest, dividends, and refunds 1 -

Other 274 -

Total 107,866 -

Create a USDA for the 21st Century that is High Performing,

Efficient, and Adaptable:

Personnel Compensation and Benefits 554 -

Travel and transportation 13 -

Rent, communications, and utilities 151 -

Other contractual services 591 -

Supplies and materials 9 -

Equipment, land, and structures 64 -

Investments and loans - -

Grants, subsidies, and contributions 9 -

Insurance claims and indemnities - -

Interest, dividends, and refunds - -

Other (1) -

Total 1,390 -

USDA Total

Personnel Compensation and Benefits 9,592 -

Travel and transportation 472 -

Rent, communications, and utilities 837 -

Other contractual services 10,737 2,297

Supplies and materials 3,064 105

Equipment, land, and structures 617 -

Investments and loans 8,565 11,588

Grants, subsidies, and contributions 142,357 6

Insurance claims and indemnities 5,316 -

Interest, dividends, and refunds 112 4,147

Other 613 -

Total 182,282 18,143

Total Amounts Agreed to be Spent 182,282 18,143

Who did the Money go to?

Federal 11,951 5,909

Non-Federal 170,331 12,234

Total Amounts Agreed to be Spent 182,282$ 18,143$

S ECTION III OTHER INFORMATION 163

Response to Management Challenges

The Reports Consolidation Act of 2000 requires the U.S. Department of Agriculture’s (USDA)

Office of Inspector General (OIG) to report annually on the most serious management

challenges USDA and its agencies face. To identify these Departmental challenges, OIG

examined previously issued audit reports where corrective actions have yet to be taken. OIG

also assessed ongoing investigative and audit work to ascertain significant vulnerabilities, and

analyzed new programs and activities that could pose significant challenges due to their range

and complexity.

Annually, OIG assesses the previous year’s challenges to determine if those are still critical

challenges; examines recently issued audit reports to identify critical issues that remain topical and

where corrective action has not been satisfactorily implemented; identifies repeated inquiries or

hotline trends in risk areas; assesses ongoing audit and investigative work to identify new issues;

and analyzes new programs and activities that pose significant challenges due to size and

complexity.

OIG reviewed the challenges cited in 2015, and concluded that they continue to be critical

challenges for the Department. Therefore, OIG has not removed or added any challenges to this

year’s report. However, in this year’s report, OIG added an analysis that measures the Department’s

progress on implementing corrective actions to resolve each challenge. OIG identified the

recommendations associated with each management challenge and quantified whether they

accepted the corrective action or whether the agreed-to corrective action had been implemented, as

of May 31, 2016.

The following narratives summarize:

• OIG-recognized management challenges;

• USDA’s fiscal year (FY) 2016 agency accomplishments; and

• FY 2017 planned actions to address these management challenges.

Challenge 1: USDA Needs to Improve Oversight and

Accountability for its Programs

In Challenge 1, USDA, much like other agencies and departments throughout the Government,

faces challenges in overseeing its many programs. USDA employs nearly 100,000 employees

in 17 agencies and 18 staff offices; in total, these employees operate more than 300 programs

that are responsible for $144 billion in spending per year. Overseeing these programs so every

164 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

dollar spent accomplishes the results intended poses significant challenges to USDA program

managers.

USDA managers are responsible for the following: 1) establishing an effective internal control

system, 2) ensuring that a culture of compliance with those controls exists, and 3) holding

employees accountable for implementing those controls. Internal controls are the tools

managers use to ensure programs achieve intended results efficiently and effectively; they

provide for program integrity and proper stewardship of resources. Since systemic control

flaws can yield systemic program weaknesses—e.g., unrealized goals—managers must

continuously assess and improve their internal control systems. If management does not

emphasize those controls, Federal programs will not function as intended.

OIG DETERMINED THE FOLLOWING:

• The Animal and Plant Health Inspection Service (APHIS), Agricultural Research Service

(ARS), and the Food Safety and Inspection Service (FSIS) need to more effectively and

efficiently manage limited resources for addressing antibiotic resistance issues relating to

funding and staffing needs. The Department itself does not have a well-developed central

communication platform for distributing a unified, scientifically based, antibiotic

resistance message;

• The Natural Resources Conservation Service (NRCS) did not have sufficient controls in

place to evaluate official determinations or verify data, which led to payments of over

$43 million for conservation easements on land whose values were not sufficiently

supported by documented, transparent decisions;

• NRCS’ control environment did not include a system of management accountability to

ensure land values for NRCS’ conservation easement programs were properly supported

and accurately reported before payments were made;

• NRCS did not maintain data for easement payments in a format that would allow the

agency to monitor program performance. NRCS should reassess its oversight and

evaluation process to cover key program requirements and ensure fair and compliant land

valuations;

• The Risk Management Agency’s (RMA) national office did not fully use the compliance

review system’s capabilities to identify key performance indicators and generate reports to

monitor and oversee compliance activities; and

• APHIS can do more to strengthen controls intended to prevent the environmental release

of genetically engineered (GE) organisms.

S ECTION III OTHER INFORMATION 165

CORRECTIVE ACTIONS:

The USDA’s Office of the Chief Scientist and the USDA One Health Joint Working Group

Co-chairs (APHIS, ARS, and FSIS) hosted a departmental strategic planning meeting for

USDA agencies addresssing Combating Antibiotic Resistant Bacteria (CARB) National Action

Plan (NAP) goals. A departmental antimicrobial resistance (AMR) strategic planning meeting

will occur annually so that antibiotic resistance priorities for achieving NAP goals are

coordinated before agencies submit their budgets.

The USDA One Health Joint Working Group Co-chairs, senior executives, and Budget Officers

from USDA agencies developed a plan to meet annually with the Office of Budget and Program

Analysis (OBPA) to develop budget language to show intradepartmental agency dependencies

addressing CARB NAP goals. All AMR budget requests will be harmonized and further

developed with USDA AMR leadership and OBPA for a strategic budget request that represents

the entire Department.

The USDA One Health Joint Working Group established a communications AMR sub-group,

and by March 31, 2017, the new communication working group will develop, for the USDA

Office of Communications, a comprehensive strategic communications plan for providing

antibiotic resistance information to stakeholders and to the general public. The plan will

promote the development of a more robust antibiotic resistance web site that will explore the

use of other social media outlets, address the needed resources, convey a unified and

scientifically based message to the public and to all interested parties, and include matters

regarding antibiotic resistance and the gathering of stakeholders’ data.

Natural Resources Conservation Service

NRCS updated its Agriculture Conservation Easement Program (ACEP) manual and issued

National instructions on guidance for state implementation of easement acquisition and

enhanced internal controls prior to obligation, payment, and closing to adequately address

improper payments of the $43 million on land whose values were previously not sufficiently

supported by documented, transparent decisions. NRCS is currently conducting compliance

reviews and anticipates completing reviews by October 30, 2016.

NRCS will continue to work with OIG to determine the corrective actions needed to establish

the value of the two questioned easements in Kentucky, either by (1) using the cooperating

entity’s original appraisals, or (2) by obtaining new appraisals for those conservation easements

and working with the State Conservationist and cooperating entity to recover improper

payments, if necessary.

166 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Risk Management Agency

RMA completed the business process review, development, documentation, and

implementation of a formal strategy for fully utilizing its databases to improve RMA’s internal

oversight and to increase consistency throughout its compliance case management process.

This includes the identification of key performance indicators and generation of reports to

monitor and oversee compliance activities.

RMA performs quarterly peer reviews of its data to enhance oversight of the case management

process. During its quarterly peer reviews, RMA crosschecks several databases and verifies that

cases are valid, adequately documented, and closed appropriately. RMA provided the Office of

the Chief Financial Officer (OCFO) operating procedures for performing quarterly peer

reviews and documentation supporting the development of key performance indicators that

RMA will use to provide effective case management oversight. RMA also revised the

Compliance Manual, including the method for enforcing its use.

In addition, RMA will provide documentation of consultation with Approved Insurance

Providers for establishing and documenting reasonable expectations of receiving water. RMA

will develop policy and/or procedures used to supplement the current guidance.

Animal and Plant Health Inspection Service

In order to prevent the unauthorized dissemination or persistence in the environment of a

regulated Genetically Engineered (GE) organism after APHIS has issued an authorization for

an activity involving the regulated GE organism, APHIS will aim to accomplish the following

in fiscal year (FY) 2017:

• Develop and implement policies which that require APHIS officials to analyze reports to

(1) ensure that all release sites are included, (2) identify discrepancies, and (3) require

immediate resolution;

• Develop and implement a process, within the new information systems, to document

report due dates, as well as track, search, and monitor the status of progress reports. In

addition, include a process to refer report discrepancies, as well as missing and late

reports, to the APHIS compliance branch;

• Until a new information system is fully operational, enter into e-Permits the data for all

progress reports received via mail, email, etc.; this method will allow APHIS officials to

track and search all received reports;

• Develop and implement a detailed selection policy for permits for inspection that discuss

which risk factors will be evaluated and how risk factors will be evaluated. The policy

should also require staff to document the monthly process for permit selections;

S ECTION III OTHER INFORMATION 167

• Update the compliance database to allow for more than one category to be selected in

order to identify the compliance incident;

• Incorporate compliance reporting and tracking of all incidents in the information system

being developed;

• Share the compliance database with the biotechnologists responsible for the review and

approval of applications, so that compliance history can be reviewed during the approval

process;

• Develop and implement procedures for the approval process for notification and permits

which include reviewing the compliance issues against the organization and the

responsible party;

• Develop and implement specific policies and procedures for the retention and

maintenance of all petition documents for each step of the petition process;

• Develop and implement a Petition Tracking System that identifies each step in the petition

process in order to allow effective monitoring of the process; and

• Comply with the regulatory timeframes or revise the regulation to remove the 180-day

petition decision timeframe in order to reflect the current timeframes required for the new

review process.

Challenge 2: Information Technology Security Needs

Continuing Improvement

In Challenge 2, USDA must efficiently manage vast amounts of data to accomplish its mission

of providing benefits and services to the American public, including critical information such

as agricultural statistics that drive domestic and global markets and data from inspection

systems that help ensure food safety. Not only must USDA employees be able to access, use,

and communicate this information, but members of the public apply for and access many

USDA program benefits and other services online, which can require the transfer of personally

identifiable information through these online portals. USDA therefore faces the critical

responsibility of protecting the security, confidentiality, and integrity of its IT infrastructure.

Since the passage of the Federal Information Security Management Act of 2002 (FISMA), OIG

has annually reviewed the Department’s cybersecurity initiatives, including those that shield IT

equipment and systems from theft, attack, and intrusion. OIG reviews have consistently found

that the Department faces great challenges in complying with FISMA. Our most recent review

found that the Office of the Chief Information Officer (OCIO) is taking positive steps to

168 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

improve its security posture. For example, OCIO has improved its Incident Response and Risk

Management Framework.

OIG DETERMINED THE FOLLOWING:

The Department has not:

• Implemented all of the requirements for security training, remote access management, and

contingency planning;

• Performed an assessment of the skills, knowledge, and resources needed to effectively

implement an Information Security Continuous Monitoring (ISCM) Strategic Plan;

• Defined or formally documented within the ISCM Strategic Plan the organization’s

process for collecting and considering lessons learned to improve ISCM processes;

• Developed policies and procedures for remote access and teleworking that comply with

National Institute of Standards and Technology (NIST) guidance; and

• Examined another aspect of the Department’s IT security through a contracted assessment

of the implementation of the Continuous Diagnostics and Mitigation (CDM) program,

which Congress established to provide adequate, risk-based, cost-effective cybersecurity,

and more efficiently allocate cybersecurity resources. The contractor’s report documented

concerns and recommendations for actions necessary to increase the probability of success

for USDA’s CDM program.

USDA must not only be responsive to IT security needs, but must be vigilant to the potential

for misuse of the Department’s IT systems.

CORRECTIVE ACTIONS:

Office of the Chief Information Officer

During FY 2016, OCIO began providing a bi-weekly FISMA Cyber Security Scorecard to the

agency Chief Information Officers (CIO). The data point and status included the following:

personal identity verification (PIV) implementation for Logical Access Control, open/late plans

of action and milestones (POA&Ms), authority to operate (ATO) status, and vulnerability

remediation and patching status. OCIO has fully implemented Continuous Assessment and

Authorization within USDA enterprise in accordance with NIST Special Publication (SP) 800-

37. OCIO implemented a Continuous Monitoring and Life Cycle Management process for IT

Security-related Departmental Regulations (DR). Currently, there are 28 policies identified for

creation, revision, or update. OCIO published DR 3571-001 “Information System Contingency

S ECTION III OTHER INFORMATION 169

Planning and Disaster Recovery Planning” and DR 3300-015 “Secure Communication

Systems.”

As part of OCIO’s ongoing program oversight activities during FY 2017, OCIO will address

the issues of agency compliance with security training, remote access management, and

contingency planning by:

• Addressing these program areas as specific agenda items for the CIO council and the

Information Security System Council (ISSC) meetings;

• Require and identify specialized role-based training in these program areas for the

information systems security program managers (ISSPMs); and

• Improve monitoring and configuration of systems, authorized remote access.

OCIO plans to update the Information Security Continuous Monitoring (ISCM) Strategic Plan

to address gaps by performing an assessment of the skills, knowledge, and resources needed to

effectively implement the ISCM Strategic Plan. OCIO will conduct a gap analysis between

current program operation resources and optimum ISCM program resource requirements;

document a gap analysis between current and optimum workforce resources, skills, and

knowledge levels; and coordinate with the AgLearn Program Office to evaluate current courses

available in IT and IT security to identify potential course additions that will support and

enhance ISCM’s skills and talent base.

OCIO reviewed and began updating the ISCM Strategic Plan in FY 2016 to reflect changes in

implementation resulting from the U.S. Department of Homeland Security’s (DHS) Continuous

Diagnostics and Mitigation (CDM) Program. At this time, DHS has not fully defined their

technology suite or processes for the CDM Program. In the interim, USDA will establish an

ISCM Tiger Team to work collaboratively with the Agriculture Security Operations Center

(ASOC) Security Operations Division to define the strategic roadmap for enterprise-wide

implementation of ISCM. In addition, OCIO will hold quarterly ISCM Tiger Team meetings to

analyze, discuss, and document the current status of ISCM implementation; review the strategic

ISCM roadmap; and assess milestone status to ensure continuing alignment to the Strategic

Plan. OCIO will implement a web site to document ISCM goals, milestones, and

communications.

OCIO will develop policies and procedures for remote access and teleworking that comply with

NIST guidance. As part of the process, OCIO will conduct a gap analysis between existing

USDA DRs, NIST, and the Office of Management and Budget (OMB) guidance on secure

remote access and teleworking, and, based on the analysis, determine if a formal DR is needed.

OCIO continues to aggressively coordinate with DHS and contractors to ensure the success of

USDA’s implementation of the Continuous Diagnostics and Monitoring Program. Detailed

170 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

analyses of the contractor’s progress reports by OCIO personnel have identified several

inaccuracies. OCIO is taking actions to ensure accurate documentation of USDA’s baseline;

ensure accurate reporting by contractors of critical path elements, risks and accomplishments,

and status of milestones; and ensure System Development Life Cycle (SDLC) and Risk

Management Framework (RMF) milestones are achieved on time to achieve successful

implementation of CDM and provide ATO prior to operations of CDM equipment at USDA.

Challenge 3: USDA Needs to Strengthen Program Performance

and Performance Measures

In Challenge 3, USDA manages over 300 programs that provide a variety of services to the

American public, such as grants and loans for rural communities, food assistance for schools

and private citizens, and research and technical assistance for environmental projects. This

diverse portfolio of programs means that, for the Department to be a diligent steward of Federal

funds, USDA must have well-designed programs. However, designing, developing, and

implementing programs that reliably achieve their intended results has been a recurring

challenge for the Department. Most recently, OIG has found that agencies provide payments to

recipients without adequate reviews or controls to ensure that funds provided are used to

accomplish the program’s goals.

The Government Performance and Modernization Act of 2010 set new requirements for agency

reports, including nature and frequency of submission. In keeping with the law, an agency

should have procedures in place that allow it to regularly review a program’s performance, and

then compile reports that allow it to measure that performance. These reports enable

policymakers to fairly evaluate programs and thus make well-informed funding decisions.

OIG DETERMINED THE FOLLOWING:

• OIG’s audit of NRCS’ and the Farm Service Agency’s (FSA) processes for the

identification and proper disposition of compliance violations related to the Highly

Erodible Land (HEL) and Wetlands Conservation (WC) provisions of the Food Security

Act of 1985 found problems with the data universe the agencies rely on for conducting

these compliance reviews;

• NRCS cannot effectively verify that the results of its random sample reviews accurately

reflect producer compliance with HEL and WC provisions;

• NRCS compliance reviewers relied on inconsistent or vague guidance when evaluating

producers’ compliance with HEL and WC provisions, which increases the potential for

insufficient compliance determinations;

S ECTION III OTHER INFORMATION 171

• NRCS is ill-prepared to evaluate the performance and success of programs subject to the

HEL and WC provisions of the Food Security Act;

• Rural Business-Cooperative Service (RBS) exhibited problems with performance

measures when OIG conducted an audit of the agency’s Rural Energy for America

Program (REAP);

• The RBS program’s award and project performance data were unreliable because of

incomplete or inaccurate data and unsubmitted performance reports;

• RBS did not monitor the program to ensure grant award integrity; and

• RBS needs to improve oversight and internal controls so that it can accurately measure the

REAP performance and provide a successful energy program for rural communities.

CORRECTIVE ACTIONS:

Natural Resources Conservation Service

A Memorandum of Understanding was developed and approved by the three partner agencies,

NRCS, FSA, and RMA, to timely and accurately generate a universe of tracts subject to HEL

and WC provisions. NRCS, FSA, and RMA established an interagency working group to define

the universe, and developed and implemented an effective methodology for the 2016

compliance reviews.

In FY 2017 NRCS will aim to:

• Update the section of the National Food Security Act Manual (NFSAM) with the revisions

that detail what constitutes acceptable levels of treatment required to stabilize all types of

gullies, which include both ephemeral and classical;

• Clarify national guidance to ensure that to the greatest extent possible, representative areas

most susceptible to gully erosion are reviewed and documented, facilitate subsequent year

reviews of any compliance issues noted, and provide clarification on the required review

of tracts for employees;

• Clarify national guidance to ensure quality control reviews are performed in a consistent

and effective manner and can facilitate a validation of compliance determinations;

• Revise national guidance regarding the roles and responsibilities of the compliance

reviewers while performing the wetland compliance reviews; and

• Establish additional quality control checks to ensure the sampled tracts are sufficient to

assess compliance on a national level. Quality control checks will include a review of the

172 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

process used to select future FSA data to ensure the process sufficiently includes all

counties with agricultural tracts subject to compliance with the Food Security Act of 1985.

The sampling process will ensure that only those tracts reviewed once in the past 2 years

and found to be compliant will be excluded from the sample and that all tracts associated

with the subject producer will not be excluded.

Rural Business-Cooperative Service

The RBS Energy Division will consult with the Office of the General Counsel to determine and

develop guidance on what “other available remedies” may be used to ensure recipient

compliance with reporting requirements.

The RBS Energy Division will develop standard operating procedures (SOP) for REAP and

update the Guaranteed Loan System (GLS) manual to use GLS to track receipt of annual

performance reports from recipients. Once the SOPs and the GLS manuals are completed,

training will be conducted for State Office and field staff on the proper use of Routine

Servicing Actions in GLS that can be used to establish and track annual performance reports.

Creating SOPs for REAP and updating the GLS manual will be completed by December 31,

2016. If funding allows, RBS proposes to conduct the in-person trainings early in FY 2017,

which will be completed by March 31, 2017. The Webinars will be conducted and concluded

by the end of FY 2017.

The RBS Energy Division will also develop and implement performance report templates for

the most common types of energy efficiency improvements projects, where a template is

commensurate to project scope and complexity. This template will be made available to

recipients by March 31, 2017.

Challenge 4: USDA Needs to Strengthen Controls over

Improper Payments and Financial Management

In Challenge 4, the Department’s annual financial reports provide the public, Congress, and the

President with information about the nearly $144 billion spent on public services every year.

These reports account for USDA’s costs and revenues, assets and liabilities, and other

information, such as improper payments. It is imperative that these reports are accurate and

timely so that USDA’s financial management is transparent. However, USDA continues to fall

short of full compliance with Federal requirements for improper payments and needs to address

control issues in some component agencies in order to resolve ongoing problems with financial

management.

S ECTION III OTHER INFORMATION 173

OIG DETERMINED THE FOLLOWING:

• USDA did not comply with the Improper Payments Elimination and Recovery Act

(IPERA);

• There were instances of inaccuracy or untimely submissions of reporting high-dollar

overpayments, and the Department itself continued to submit its signed quarterly reports

after the required date. Although OIG generally found these errors to be minor, OIG

recommended continued vigilance to prevent and eliminate reporting errors, deficiencies,

and delays;

• For FY 2015 the Commodity Credit Corporation (CCC) and NRCS received a disclaimer

of opinion on their financial statements; and

• USDA’s consolidated financial statement audit has reported the same two material

weaknesses related to internal controls over financial reporting: improvements are needed

in overall financial management, and improvements are needed in the overall information

technology security program.

CORRECTIVE ACTIONS:

Department-wide

OCFO worked with RMA to send its 2017 Improper Payment Information Act Measurement

Plan to OMB and OIG for review. The Plan brings RMA’s sampling methodology into a valid

statistical sample in accordance with OMB Circular A-123. Improved internal controls

guidance and the template were sent out to agencies in the first quarter in FY 2016. FY 2016

Accountability, Infrastructure, Barriers, and Other Comment Reporting; Corrective Action Plan

guidance; and a Risk Assessment Review Checklist were issued. Risk assessments were mostly

completed in the third quarter. The improper payment section of the Agency Financial Report

was completed in the fourth quarter. Plans to bring programs non-compliant with IPERA for

one year were sent to Congress in the fourth quarter. Half of USDA’s High Dollar reporting

was completed on time. Almost all USDA programs implemented recovery audit programs or

received an OMB approved waiver in the second half of FY 2016. Recoveries of improper

payments continued to increase in FY 2016.

The Department will continue to cooperate with OIG on their improper payment audits and will

strive to assist USDA agencies in becoming compliant with IPERA. OCFO will issue guidance

for the implementation of “Do Not Pay” in the first quarter of FY 2017. USDA will strengthen

the risk assessment process by utilizing the OMB Circular A-123 testing method and analyzing

the results to determine susceptibility of a program to significant improper payments. Guidance

will be issued in the first quarter with implementation in the third quarter. USDA will improve

174 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

the speed and frequency of the recovery audit distribution process in FY 2017. Finally, USDA

will issue plans to bring programs non-compliant with IPERA for one year and will send these

plans to Congress in the fourth quarter.

Commodity Credit Corporation

During FY 2016, CCC:

• Completed the Agriculture Risk Coverage (ARC)/Price Loss Coverage (PLC) software

and released obligating Program Year 2014 and future contracts at a transactional level

and properly sequestered funds;

• Completed the Commodity Loan Processing System (CLPS) and released obligating loan

Crop Year 2015 and future applications at the transactional level;

• Completed the Margin Dairy Protection Program software and released obligating

Program Year 2016 and future contracts at the transactional level;

• Closed out all activity on the IBM AS400/S36 platform hosting county office application;

• Completed the Phase II Direct Loan System (DLS) for Farm Storage Facility Loans

(FSFL) software that was released and replaced the Core Accounting System (CORE)

Budget Tables with the real-time obligations functionality and the proper obligation

liquidations FSFL loan closing (June 2016), regardless of the cohort year;

• Completed the Cotton Ginning Cost Share Program software and released obligating

Program Year 2016 contracts at the transactional level; and

• Designed and implemented processes, procedures, and effective controls related to

significant accounting estimates. This includes a Business Portfolio Manual (BPM)

process for each major CCC program to supplement the existing CCC Program Financial

Manual (PFM) process.

In FY 2017, CCC will continue to modernize FSA’s systems and become substantially

compliant with the Financial Reporting and Funds Control/Obligation Requirements related to

obligations at the transactional level. The following programs are planned to be in development

phase for obligations at the transactional level:

• Non-Insured Crop Disaster Assistance Program (NAP)

• Livestock Indemnity Program (LIP)

• Livestock Forage Disaster Assistance Program (LFP)

S ECTION III OTHER INFORMATION 175

CCC will also:

• Design and implement processes, procedures, and effective controls related to significant

accounting estimates to ensure personnel preparing and/or utilizing budgetary and/or

proprietary estimates are qualified, CCC will conduct workshop for staff and managers to

ensure competency in identifying the need for preparing, supporting, validating,

reviewing, and recording accounting estimates;

• Implement processes, procedures, and effective controls to enable the timely preparation

of financial statements and sufficient evidential matter to support accounting transactions

leveraging existing OMB Circular A-123, Appendix A;

• Implement a corrective action plan, “Maintaining, Controlling and Monitoring the CORE

General Ledger (reconciliations)”; and expand the tie-point analysis process to include

additional training and workshops to provide expert assistance with reconciliations, trial

balance analytics, clean-up projects, abnormal balances, and variances; and

• Develop effective information and communication processes to ensure that policies and

procedures related to programs or events that may give rise to the recognition of

accounting transactions are consistently communicated and applied throughout the agency

and that technical accounting issues are identified, analyzed, and resolved in a timely

manner. SOPs are being developed for BPM’s to include identification of applicable

programs, annual review of existing BPMs, assessment of new applicable programs, BPM

template updates, and preparation.

Natural Resources Conservation Service

During FY 2016, NRCS completed its annual Improper Payment testing and reporting for

FY 2015. NRCS sampled payments that evaluated actions taken to ensure that they were

adequate to address the requirements of IPERA.

In FY 2017, NRCS will:

• Monitor activity in accordance with the U.S. Standard General Ledger (USSGL) 4871 and

4881 accounts to ensure that invalid upward and downward adjustments are identified and

corrected in a timely manner and that balances are appropriate;

• Monitor open obligations (USSGL accounts 4801 and 4802) to ensure that they are

recorded in the appropriate period and liquidated in a timely manner;

• Provide adequate training to personnel related to the documentation requirements for

support;

176 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

• Assist personnel producing data extracts to determine the completeness and accuracy of

such extracts;

• Ensure data extracts are reviewed by process owners regularly for errors;

• Establish a closing schedule for period 13 transactions in order to avoid any delays in

producing such extracts;

• Establish policies/guidelines that assist accounting personnel in properly determining the

type of sufficient supporting documentation;

• Continue to develop and implement internal controls and policies and procedures to

correct or mitigate the risks and potential misstatements within the agency;

• Enhance policy and control procedures for the accuracy and consistent application of

period end accruals;

• Provide adequate training to personnel relating to the new accrual policy;

• Provide guidance and/or training to employees on policies and procedures to ensure

purchase transactions have adequate supporting documentation (e.g., purchase

requisitions, purchase orders, invoices, etc.) to determine if they are accurate and exist;

• Enhance monitoring controls over payment approvals to determine whether appropriate

documentation is provided to support the disbursement;

• Enhance procedures to determine if accrued expenses are complete, accurate, and exist at

quarter end and are properly supported;

• Implement management’s plan to develop a new process for administering the remaining

funds for the Grasslands Reserve Program (GRP) in FY 2016;

• Request and obtain supporting documentation for prior services rendered by FSA to

NRCS;

• Review and reconcile the supporting documentation to determine and mutually agree upon

the amount of services that have been rendered by FSA to NRCS;

• Make and record any necessary corresponding adjustments to fund balance with the

U.S. Department of the Treasury (Treasury), accounts receivable, accounts payable, and

cumulative results of operations balances;

• Obtain sufficient supporting documentation for the remaining GRP obligations recorded

in the general ledger at the end of FY 2015; and

S ECTION III OTHER INFORMATION 177

• Review existing policies and procedures to ensure that they are adequate to address the

requirements of the Improper Payments Elimination and Recovery Improvement Act

(IPERIA) and provide guidance and/or training to employees and outside entities

regarding the SAM.gov registration requirements.

Challenge 5: USDA Needs to Improve Outreach Efforts

In Challenge 5, USDA has emphasized its efforts to improve outreach to new and beginning

farmers and ranchers, local and regional food producers, minorities, women, and veterans. As

part of those efforts, the Secretary of Agriculture has reiterated the importance of civil rights,

stressing that significant progress is to be made in working with communities in addressing past

civil rights issues. Due to a history of public attention concerning how USDA has treated

members of socially disadvantaged groups, the Department faces challenges in earning those

groups’ trust.

The Food, Conservation, and Energy Act of 2008 directed that all pending claims and class

actions (for example, Pigford v. Glickman, Garcia v. Vilsack, and Love v. Vilsack) brought

against USDA by socially disadvantaged farmers or ranchers, including Hispanics and women,

based on racial, ethnic, or gender discrimination in farm program participation, be resolved in

an expeditious and just manner. OIG continues to evaluate the Department’s progress toward

fulfilling the Congressional mandate.

OIG DETERMINED THE FOLLOWING:

• FSA could not demonstrate that it successfully reached out to some targeted audiences,

such as specific underserved groups and veterans. The low percentage of participation by

some targeted groups suggests FSA needs to increase its outreach to those underserved

groups; and

• FSA needs to develop and implement controls and guidance to achieve consistent

administration of Microloans, periodically evaluate outreach activities to ensure effective

marketing to target groups, and develop an accurate measurement of success for its

outreach program.

CORRECTIVE ACTIONS:

Farm Service Agency

The system coding for the Microloan enhancement has been completed through the

development phase in the Direct Loan System. The enhancement is currently in the testing

phase. Once deployed, this initiative will help achieve consistent application and

178 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

documentation of Microloan program security requirements. Implementation was completed by

September 30, 2016.

FSA has increased the National Outreach Staff. Each staffer has jurisdiction over outreach

areas to support field training, provide educational materials, and track outreach activities. FSA

initiated a software enhancement to the Outreach Tracking and Information System (OTIS) to

improve specific program and targeted underserved tracking. FSA will review State reports

monthly in OTIS and provide quarterly progress reviews to the Administrator and State

Executive Directors.

In FY 2016, in an effort to improve outreach efforts to current and prospected targeted

underserved farmers and ranchers, FSA entered into over 50 cooperative agreements with local,

state, and national partners in over 28 states to conduct outreach, technical, and financial

assistance to underserved communities. These outreach partnerships will result in measurable

outreach activities to communities that FSA traditionally has not been able to reach. FSA is

currently reviewing additional cooperative agreement proposals submitted by organizations in

Round II to be funded for underserved outreach assistance later this fall.

FSA State offices have conducted informational sessions with nonprofits and organizations

who have received funding from USDA and USDA agencies in order to conduct outreach with

underserved communities. These sessions have introduced trusted organizations to FSA

program and staff information and have resulted in collaborative outreach meetings in

underserved communities.

FSA continues to evaluate an effective means of data collection that may greater enable the

agency to track customer traffic with respect to outreach activities. Specifically, FSA plans to

collect basic customer information, such as how they learned of an FSA program, by

incorporating a multi-pick question into the Receipt for Service log as an efficient way to log

the customer’s reason for seeking assistance. Discussions continue between FSA and OMB

regarding the approval requirements associated with the Paperwork Reduction Act.

Challenge 6: Food Safety Inspections Need Improved Controls

In Challenge 6, As the Nation’s gatekeeper for safe and wholesome food products, the Food

Safety and Inspection Service (FSIS) performs a variety of functions. The agency conducts

inspections of commercial meat, poultry, and egg products. Along with these inspections, FSIS

coordinates with the Food and Drug Administration to monitor levels of antibiotic-resistant

bacteria present in slaughtered swine, cattle, and poultry. FSIS also supports the interagency

National Residue Program to identify, rank, and test for chemical contaminants, including

antibiotics, in meat, poultry, and egg products.

S ECTION III OTHER INFORMATION 179

Given concerns about increasing levels of antibiotic-resistant bacteria in food animals, the

President issued an executive order to address the issue of antibiotic microbial resistance. This

executive order resulted in the development of a multi-agency National Action Plan for

Combating Antibiotic Resistance Bacteria. FSIS, together with ARS and APHIS, is responsible

for facilitating USDA’s response to certain areas in four goals outlined in the National Action

Plan: surveillance, stewardship, research, and international coordination. Of particular

relevance to food safety inspection, the National Action Plan calls for targeted surveillance for

levels of antibiotic-resistant bacteria in food throughout the production chain. Further

discussion about this challenge can be found in Challenge 1.

OIG DETERMINED THE FOLLOWING:

• FSIS needs to make antibiotic microbial resistance activities a priority in order to

effectively address the issue and meet executive expectations and actions outlined in the

National Action Plan.

CORRECTIVE ACTIONS:

Food Safety and Inspection Service

FSIS’ 2017–2021 Strategic Plan, issued the week of October 17, 2016, addresses antimicrobial

resistance (AMR). Specifically, its Goal 2: Modernize Inspection Systems, Policies, and the

Use of Scientific Approaches includes an Objective (2.1.1) entitled Modernize Scientific

Techniques and Inspection Procedures. This Objective includes a focus on the use of whole

genome sequencing (WGS), and references, among other approaches, because its use will

facilitate an in-depth understanding of harmful traits, such as bacterial virulence and AMR.

FSIS also indicates in this Objective that the agency will share what it learns about the harmful

traits of pathogens with collaborating partners in order to track and potentially prevent these

pathogens from adulterating food throughout the farm to fork continuum, as well as develop a

more in-depth understanding of AMR in bacteria and further help FSIS, APHIS, the Center for

Disease and Control, and ARS efforts to protect the effectiveness of antibiotics for the U.S.

population and animal agriculture, including collaborating through the National Antimicrobial

Resistance Monitoring System for Enteric Bacteria (NARMS). Specific steps FSIS indicates it

will take in this Plan include continuing to provide data from pathogen sampling it conducts to

Federal partners; participating in pilot studies, including through partner collaborations; and

initially identifying the appropriate technologies or tools to better understand the movement of

AMR along the farm to fork continuum.

FSIS’ performance measurement framework includes increasing the percentage of all isolates that

whole genome sequencing sampling generates being subject to FSIS to 100 percent by the end of

FY 2019.

180 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Challenge 7: FNS Needs to Strengthen SNAP Management

Controls

OIG highlights a major USDA program in Challenge 7. As the largest program within USDA

and one of the largest programs in the Federal Government, the Supplemental Nutrition

Assistance Program (SNAP) presents a unique challenge for program managers. Administered

by the Food and Nutrition Service (FNS), SNAP provided monthly food assistance for nearly

46 million low-income individuals in FY 2015 and disbursed almost $70 billion in benefits that

year. From 2007 to 2015, program participation grew by 73.9 percent (although participation

has trended down in recent years). Given SNAP’s size and significance, fraud, waste, and abuse

are critical concerns. The potential exists for billions of dollars of taxpayer-funded assistance

not to be delivered or used as intended. OIG works to combat these problems through

investigations into fraudulent activities by retailers and program participants. OIG also

conducts audits designed to identify waste and abuse by program administrators and improve

FNS’ controls over the program.

OIG DETERMINED THE FOLLOWING:

• States weakened the quality control (QC) process by using third-party consultants and

error-review committees to mitigate individual QC-identified errors rather than improving

eligibility determinations;

• State QC staff treated error cases non-uniformly;

• FNS’ two-tier QC process is vulnerable to State abuse due to conflicting interests between

(1) accurately reporting true error rates and incurring penalties, or (2) mitigating errors and

receiving a bonus for exceeding standards;

• States’ QC reviews did not meet SNAP regulatory requirements, and Federal oversight of the

States’ QC, was inadequate;

• As one of the five States OIG reviewed, New Hampshire did not enter Social Security

numbers (SSN) for every household member applying for SNAP benefits, as required; and

• New Hampshire did not consistently notify households of the date SNAP benefits expire,

which could have resulted in households not recertifying and thus having their benefits

interrupted.

S ECTION III OTHER INFORMATION 1 81

CORRECTIVE ACTIONS:

Food and Nutrition Service

FNS conducted monitoring reviews of State QC processes to focus on the integrity of statistical

reporting. In December 2014, FNS established new internal procedures to review State QC

processes to determine if any State reported error results were based on biased practices. Using

State reported data, FNS selected seven States for focused QC integrity reviews: Connecticut,

Florida, Missouri, New Jersey, Texas, Vermont, and Washington. On-site field work was

completed between April 2015 and December 2015 for all seven States and included an

analysis of the States’ use of third-party consultants. FNS found biased procedures, including

mitigation of errors before reporting results to FNS. FNS also found a lack of documentation in

State QC case files, as required by 7 Code of Federal Regulations (CFR) 273.2(f)(6) of the

SNAP regulations, that failed to substantiate the conclusions reached by the State QC reviewer.

Due to these concerns, FNS selected a second cohort of 25 States for reviews between January

and May 2016. Similar results were found in the second cohort. As a result of these findings,

FNS decided to conduct intensive reviews of State QC operations of the remaining 20 State

agencies that administer SNAP between July and September 2016. All 53 reviews were

completed as of September 30, 2016. The information gathered in these reviews will inform the

calculation of the FY2015 error rate, which will be announced by the end of December 2016.

These FNS reviews are specifically designed to identify whether any States are operating

biased QC practices, either intentionally or not intentionally, that may influence the validity of

statistical reporting. Following each review, FNS issues a report to each State outlining any

findings or operations that are contrary to regulatory or policy requirements. FNS requires

States to develop a corrective action plan and submit their plan to FNS within 45 calendar days

of receipt of the report. FNS then uses an internal quality assurance process to ensure corrective

actions are implemented in order to prevent future occurrences. Additionally, FNS is evaluating

administrative options available to address States that fail to come into compliance.

Even prior to issuance of the OIG report, FNS took steps to improve integrity by strengthening

policies and limiting the use of third-party consultants. On September 23, 2015, FNS issued a

letter to all States, reminding them of expectations regarding actions that may introduce bias

and that States are responsible for taking action to prevent the introduction of bias into State

QC case review processes. FNS requested that each State Commissioner initiate an internal

review of State procedures to ensure compliance with Federal regulations. Additionally, on

January 20, 2016, FNS issued policy guidance that provides States with further direction

regarding biased practices to avoid and restrict the use of error review committees to future

corrective action planning only; remind States of the requirements to provide Federal reviewers

with full access to certification files; and remind States of the requirements to refer all cases

182 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

found in error to the State for restitution if an under-issuance occurred or for the establishment

of a claim if an over-issuance occurred.

As of the January 20, 2016, policy statement, States are required to notify FNS at least 30 days

in advance of signing a contract with a third-party consultant to ensure the activities proposed

adhere to Federal regulatory and policy requirements. Furthermore, States are required to

provide all deliverables and training materials created by a third-party consultant to FNS. These

procedures are necessary to ensure that States follow Federal regulations and policies for

documenting and reporting errors to FNS while working with third-party consultants.

Furthermore, on September 30, 2016, FNS released a revised QC policy handbook, as well as a

new training curriculum for all Federal and State QC reviewers.

The revised policy handbook is in alignment with recommendations from OIG and the results

of our own reviews. The handbook:

• Provides a definition of bias. Explains that the same policy must be applied to all cases

regardless of whether or not it results in an error finding.

• Clarifies verification requirements and what can be used as acceptable verification of

household circumstances.

• Revises existing policy to clarify the requirements for State and Federal reviewers to

independently verify information;

• Includes greater emphasis on the importance of and need for verification and

documentation requirements in the files.

• Notes that review is required for certain prohibitions that would prevent an individual or

the entire household from being considered categorically eligible for SNAP.

• Clarifies how to calculate income for simplified reporting households to better align with

simplified reporting regulations and address a concern from the OIG audit.

FNS will continue to take action during FY 2017 to strengthen the SNAP error rate process.

FNS’ planned actions include:

• Conduct a cost/benefit analysis and pilot of a one-tier QC process;

• Enhance the QC management evaluation review modules based on information learned in

the reviews described in the corrective actions taken by FNS in FY 2016;

• Use the new training curriculum to train all Federal and State reviewers in proper policy

and procedures in order to strengthen the quality and consistency of QC case reviews;

S ECTION III OTHER INFORMATION 183

• Revise existing policy to address OIG’s concerns regarding the implementation of the

Comparison I and II calculations and issuing a timeline detailing these policy revisions.

Specific to Comparison II, FNS will ensure it is clear that the QC reviewer must examine

whether regulatory time frames for reporting and acting on changes were met instead of

applying a broad exclusionary time frame in instances where there is a variance caused by

a reportable change; and

• Issue a detailed policy memo providing clarifying guidance on FNS’ Broad-Based

Categorical Eligibility (BBCE) policies to ensure that States are applying the requirements

as FNS intended.

FNS is working closely with the State to implement the above corrective actions in FY 2017.

The OIG USDA Management Challenges Report issued August 26, 2016, may be viewed in its

entirety at the following web site: https://www.usda.gov/oig/webdocs/MgmtChallenges2016.pdf.

184 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Summary of Financial Statement Audit and

Management Assurances

Summary of Existing Material Weaknesses

The U.S. Department of Agriculture’s (USDA) material weaknesses and financial system

non-conformance, as related to management’s assurance for the Federal Managers’ Financial

Integrity Act (FMFIA) and the certification for the Federal Financial Management

Improvement Act (FFMIA), are listed in Exhibit 16 and Exhibit 17.

Exhibit 16: Summary of Financial Statement Audit

Audit Opinion: Unmodified 2016 Consolidated Balance Sheet

Restatement: No

Material Weakness

Beginning

Balance New Resolved Consolidated Reassessed

Ending

Balance

Improvement

Needed in Financial

Management

1 N/A N/A N/A N/A 1

Improvement

Needed in

Information

Technology Security

and Controls

1 N/A N/A N/A N/A 1

TOTAL MATERIAL

WEAKNESSES

2 N/A N/A N/A N/A 2

S ECTION III OTHER INFORMATION 185

Exhibit 17: Summary of Management Assurances

Effectiveness of Internal Control Over Financial Reporting (FMFIA § 2)

Statement of Assurance:

Material

Weakness

Beginning

Balance New Resolved Consolidated Reassessed

Ending

Balance

Information

Technology

1 N/A N/A N/A N/A 1

Financial

Management

1 N/A N/A N/A N/A 1

TOTAL MATERIAL

WEAKNESSES

2 N/A N/A N/A N/A 2

Effectiveness of Internal Control Over Operations (FMFIA § 2)

Statement of Assurance:

Material

Weakness

Beginning

Balance New Resolved Consolidated Reassessed

Ending

Balance

TOTAL MATERIAL

WEAKNESSES

0 N/A N/A N/A N/A 0

Conformance with Financial Management System Requirements (FMFIA § 4)

Statement of Assurance: Systems do not conform to financial management system requirements

Material Weakness

Beginning

Balance New Resolved Consolidated Reassessed

Ending

Balance

Funds Control

Management

1 N/A N/A N/A N/A 1

TOTAL NON-

CONFORMANCES

1 N/A N/A N/A N/A 1

Compliance with Federal Financial Management Improvement Act (FFMIA)

Item Agency Auditor

1. System Requirements Lack of compliance noted Lack of compliance noted

2. Accounting Standards Lack of compliance noted Lack of compliance noted

3. U.S. Standard General

Ledger at Transaction Level

Lack of compliance noted Lack of compliance noted

186 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Improper Payments

The Improper Payments Information Act of 2002 (IPIA), as amended by the Improper

Payments Elimination and Recovery Act of 2010 (IPERA), and the Improper Payments

Elimination and Recovery Improvement Act of 2012 (IPERIA), require that executive agencies

identify programs that may be susceptible to significant improper payments, estimate the

annual amount of improper payments, and submit those estimates to Congress. A program with

significant improper payments (or a high-risk program) has both a 1.5-percent improper

payment rate and at least $10 million in improper payments, or exceeds $100 million dollars in

improper payments.

Fiscal Year 2016 Results

The U.S. Department of Agriculture’s (USDA) improper payment rate is 8.86 percent for fiscal

year (FY) 2016, an increase from 5.70 percent for FY 2015. USDA’s FY 2016 improper

payment results are as follows:

• Nine USDA high-risk programs appear to be fully compliant with the Improper Payments

Elimination and Recovery Act of 2010 in FY 2016;

• The Natural Resources Conservation Service (NRCS) reduced its improper payment rate

from 22.04 percent to 2.38 percent for the NRCS Farm Security and Rural Investment Act

Programs (FSRIP);

• After 3 consecutive years of non-compliance, the NRCS is compliant for FSRIP;

• USDA enrolled over 1,600 new users into the U.S. Department of the Treasury’ Do Not

Pay Portal;

• USDA recovered approximately $0.43 million from its Supplier Credit Audit contractor,

$9.42 million from USDA programs’ internal payment recapture audits, and

$1.042 million outside of payment recapture audits;

• USDA implemented multiple internal recovery audit programs; and

• USDA distributed $9.81 million in recovered funds in accordance with IPERA.

Risk Assessment

The Office of the Chief Financial Officer (OCFO) issued detailed guidance for the risk

assessment process, including templates, and performed extensive reviews of draft risk

S ECTION III OTHER INFORMATION 187

assessments. Programs with larger outlays were required to perform more detailed assessments

than smaller programs.

The risk assessment process for USDA’s largest programs consists of the following evaluation

criteria:

1. Amount of improper payments needed to meet the reporting standards;

2. Description of the program, including purpose and basic eligibility requirements;

3. Definition of improper payments specific to the program;

4. Program vulnerabilities linked to improper payments;

5. Internal controls designed to offset the program vulnerabilities;

6. Test of transactions for selected programs;

7. Listing of significant reviews and audits;

8. Final determination of risk level;

9. Planned future enhancements; and

10. Description of how improper payments are recovered.

USDA has 147 programs of which 18 are considered to be at significant risk of improper

payments, and 129 of the 147 are considered to be low risk. Risk assessments for low-risk

programs are completed on a 3-year rotating cycle. During FY 2016, the following 42 programs

completed risk assessments and were determined to be low risk:

1. Animal and Plant Health Inspection Service Salaries and Expenses

2. Commodity Credit Corporation (CCC) Agriculture Risk Coverage and Price Loss

Coverage

3. CCC Agricultural Wool Apparel Manufacturers Trust Fund

4. CCC Biomass Crop Assistance Program

5. CCC Cotton Transition Assistance Program

6. CCC Dairy Indemnity

7. CCC Emergency Forestry Conservation Reserve

8. CCC Export 416 Ocean Transportation

9. CCC Farm Storage Facility Loan

188 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

10. CCC Food for Progress Program

11. CCC Hazardous Waste Activities

12. CCC Marginal Protection Program for Dairy Producers

13. CCC Pima Agriculture Cotton Trust Fund

14. Farm and Foreign Agricultural Services (FFAS) Salaries and Expenses

15. Farm Service Agency (FSA) Public Law 480

16. FSA State Mediation Grants

17. Food and Nutrition Service (FNS) American Samoa

18. FNS Commonwealth of the Northern Marianas Islands

19. FNS Senior Farmers Market Nutrition Program

20. FNS Special Milk Program

21. Forest Service (FS) Capital Improvement and Maintenance

22. FS Management of National Forest Lands for Subsistence Uses

23. FS National Forest System

24. FS Range Betterment Fund

25. FS Trust Funds

26. FS Wildland Fire Management

27. FS Wildland Fire Management – Suppression

28. National Institute of Food and Agriculture Community Foods Project

29. Natural Resources Conservation Service (NRCS) Conservation Technical Assistance

30. NRCS Salaries and Expenses

31. NRCS Snow Survey and Water Supply Forecasting

32. Office of the Chief Information Officer Salaries and Expenses

33. Research, Education and Economics Salaries and Expenses

34. Rural Development (RD) Rural Business Service (RBS) Payment Programs

35. RD RBS Grant Program and RBS Cooperative Agreement Program

S ECTION III OTHER INFORMATION 189

36. RD Rural Housing Service (RHS) Community Development Initiative Grants

37. RD Rural Utilities Service (RUS) Electric Loan Programs – Federal Financing Bank

(FFB) Guaranteed

38. RD RUS Rural Utilities Electric Program – Direct 5 percent

39. RD RUS Water and Waste Disposal Systems for Rural Communities – Loans

40. RD RUS Rural Telecommunications Hardship Loans – Direct Telecom Loans

41. RD RUS Rural Telecommunications Loans – FFB Telecom Loans

42. RD RUS Water and Waste Disposal Loans and Grants Section 306C

USDA identified 18 programs shown in Exhibit 18 as susceptible to significant improper

payments.

Exhibit 18: Programs Susceptible to Improper Payments

Selection

Methodology

USDA Agency Program

Former Section 57 of

Office of Management

and Budget (OMB),

Circular No. A-11

Preparation,

Submission, and

Execution of the

Budget (Circular

No. A-11).

Food and Nutrition

Service (FNS)

Supplemental Nutrition Assistance

Program (SNAP)

National School Lunch Program (NSLP)

School Breakfast Program (SBP)

Special Supplemental Nutrition Program

for Women, Infants, and Children (WIC)

USDA Identified as

Susceptible to

Significant Improper

Payments

Farm Service Agency

(FSA), Commodity Credit

Corporation (CCC)

Loan Deficiency Payments (LDP)

Livestock Forage Disaster Program (LFP)

Livestock Indemnity Program (LIP)

Supplemental Revenue Assistance

Payments Program (SURE)

Noninsured Crop Disaster Assistance

Program (NAP)

FNS Child and Adult Care Food Program

(CACFP)

Rural Development (RD) Rental Assistance Program (RAP)

Risk Management

Agency (RMA)

Federal Crop Insurance Corporation

Program Fund (FCIC)

190 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Selection

Methodology

USDA Agency Program

Natural Resources

Conservation Service

(NRCS)

Farm Security and Rural Investment Act

Programs (FSRIP)

Disaster Relief

Appropriation Act of

2013 (Sandy Disaster)

FSA Hurricane Sandy—Emergency

Conservation Program (ECP)

FSA Hurricane Sandy—Emergency Forest

Restoration Program (EFRP)

FSA Hurricane Sandy—EFRP

FS Hurricane Sandy—Capital Improvement

and Maintenance (CIM)

NRCS Hurricane Sandy—Emergency

Watershed Protection Program (EWPP)

Sampling and Estimation

USDA’s programs, which are susceptible to significant improper payments, are required to

conduct an annual sample that complies with the Office of Management and Budget (OMB)

Circular A-123, Appendix C. This can be accomplished by conducting a standard statistically

valid sample or an OMB-approved alternative methodology.

The following is a list of programs with brief descriptions of the sampling process that utilized

a standard statistically valid sampling methodology:

1. FSA/CCC’s Livestock Forage Disaster Program (LFP), Livestock Indemnity Program

(LIP), Noninsured Crop Disaster Assistance Program (NAP), Hurricane Sandy –

Emergency Conservation Program (ECP), and the Supplemental Revenue Assistance

Payments Program (SURE)

a. Determined a sample from the payments made in the prior fiscal year using a

90-percent confidence interval of plus or minus 2.5 percentage points.

b. Change in sampling process: None.

2. Hurricane Sandy – Emergency Forest Restoration Program (EFRP)

a. One hundred percent of the payments made in FY 2014 were tested for improper

payments.

b. Change in sampling process: None.

S ECTION III OTHER INFORMATION 191

3. FSA/CCC’s Hurricane Sandy – ECP

a. One hundred percent of the payments made in FY 2014 were tested for improper

payments.

b. Change in sampling process: Tested 100 percent of payments.

4. NRCS’ FSRIP and Hurricane Sandy – Emergency Watershed Protection Program

(EWPP)

a. Determined a sample from the payments made in the prior fiscal year using a

90-percent confidence interval of plus or minus 2.5 percentage points.

b. Change in sampling process: None.

5. RHS’ Rental Assistance Program (RAP)

a. Determined a sample from the payments made in the prior fiscal year using a

99 percent confidence interval of plus or minus 0.05 percent points.

b. Change in sampling process: None.

6. FSA’s Hurricane Sandy – EFRP

a. One hundred percent of the payments made in FY 2015 were tested for improper

payments.

b. Change in sampling process: None.

7. FS’ Hurricane Sandy – Capital Improvement and Maintenance (CIM)

a. One hundred percent of the payments made in FY 2015 were tested for improper

payments.

b. Change in sampling process: None.

The following is a list of programs, brief descriptions of the sampling process, and their

justifications for utilizing an OMB-approved alternative sampling methodology:

1. FNS, NSLP, SBP, WIC, and CACFP

a. The National School Lunch Program (NSLP) / School Breakfast Program (SBP)

Access, Participation, Eligibility, and Certification Study-II (APEC-II)

established estimates of erroneous payments due to certification error and non-

certification error for school year 2012–2013. FNS generates an annual update

for the improper payment measurements of both components using statistical

techniques based on the findings of this study. The sample universe represents

payments made in school year 2014–2015.

192 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

b. Estimates of improper payments in the Special Supplemental Nutrition Program

for Women, Infants, and Children (WIC) focus on two components:

certification error and vendor error. FNS makes use of periodic studies to assess

the level of error in program payments and then “ages” the data to produce

updated estimates for each reporting year. The National Survey of WIC

Participants-II Study, published in April 2012, established estimates of

erroneous payments due to certification error. The 2013 WIC Vendor

Management Study established the most recent national estimates of erroneous

payments due to vendor error. FNS generates an annual update for the improper

payment measurements of both components using statistical techniques based on

the findings of these bookend studies. The sampling universe represents

payments made in October 2014 through September 2015.

c. Child and Adult Care Food Program (CACFP) - In lieu of producing a program-

wide improper payment measure, FNS has identified the Family Day Care

Home (FDCH) component of this program as potentially high risk. A three-stage

sample design was used: the first stage was developing a sample of States, from

which a sample of sponsors was selected at the second stage, and a sample of

FDCHs was selected in the final stage. FNS measured the level of erroneous

payments due to sponsor error for the two types of program reimbursement

(Tier 1 and Tier 2). The sampling universe represents payments made in

October 2014 through September 2015. The improper payment measures

presented do not include improper payments associated with the Adult Day Care

component or Child Care Centers, nor do they include meal claiming errors at

this time.

d. Change in sampling process: None.

e. Justification: Using the OMB-approved alternative methodology is currently the

only way to report an improper payment rate for these programs.

2. RMA FCIC

a. Uses a statistically valid estimate of the improper payment rate and of the dollar

amount of improper payments for the Federal Crop Insurance Corporation

Program Fund (FCIC). The improper payment reviews include all payment

categories (premium subsidies, administrative and operating expense (A&O)

subsidies, and indemnity payments) and considers how an improper payment

can occur. A simple random sample is used to select the policies for review, and

the previous methodology of using inappropriate weighting factors is no longer

an issue.

S ECTION III OTHER INFORMATION 193

b. Change in sampling process: None.

c. Justification: For FY 2015 and FY 2016, the Risk Management Agency (RMA)

used an OMB-approved alternative sampling methodology while it was

developing a more comprehensive approach that would use a larger sample

stratified by approved insurance providers (AIP). For FY 2017 and beyond,

RMA intends to sample from all crops and develop an estimated improper

payment rate applicable to the entire program. These steps will bring RMA’s

measurement methodology into full compliance with IPERA.

The following program did not sample this year:

1. FNS Supplemental Nutrition Assistance Program (SNAP)

a. Prior to release of the OIG audit report, FNS initiated an in-depth, systematic

review of all 53 State agency quality control systems. After all reviews had been

completed, it was determined that USDA would not release a national SNAP

error rate for FY 2015. For 42 of the 53 State agencies, USDA was unable to

validate the data provided by the State. There are no statistical procedures that

can accurately adjust for this unreliability and allow calculation of a national

error rate.

194 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Improper Payment Reporting

Table 13 shows USDA’s high-risk programs sampling and estimation results. See the annotated

notes for additional program explanations as appropriate.

Table 13: Improper Payment Reduction Outlook ($ In Millions)

Program>>

FNS

Supplemental

Nutrition

Assistance

Program (SNAP)

[Note #1]

FNS National

School Lunch

Program (NSLP)

Total Program

[Note #2]

FNS School

Breakfast

Program (SBP)

Total Program

[Note #2]

FNS Special

Supplemental

Nutrition Program

for Women,

Infants, and

Children (WIC)

Total Program

Previous Year (PY)

Outlays $

70,022.00 11,319.00 3,812.00 4,542.00

PY Improper

Payment (IP) %

3.66% 15.66% 22.95% 4.62%

PY IP $ 2,562.81 1,773.00 875 210

Current Year (CY)

Outlays $

N/A 11,994.80 3,959.60 4,335.00

CY IP % N/A 15.17% 22.48% 4.79%

CY IP $ N/A 1,819.74 890.17 207.65

CY Overpayment $ N/A 1,368.92 722.81 129.62

CY Underpayment $ N/A 450.82 167.36 78.03

CY +1 Est. Outlays $ N/A 12,153.78 4,338.57 4,310.00

CY + 1 Est. IP % N/A 14.43% 21.46% 3.98%

CY + 1 Est. IP $ N/A 1,753.79 931.06 171.54

CY +2 Est. Outlays $ N/A 12,340.00 4,470.00 4,244.00

CY +2 Est. IP % N/A 14.08% 20.75% 3.88%

CY + 2 Est. IP $ N/A 1,737.47 927.53 164.67

CY + 3 Est. Outlays $ N/A 13,508.00 4,677.00 4,333.00

CY + 3 Est. IP % N/A 14.00% 20.07% 3.78%

CY + 3 Est. IP $ N/A 1,891.12 938.46 163.79

S ECTION III OTHER INFORMATION 195

Program>>

FSA Loan

Deficiency

Payments (LDP)

[Note #3]

FSA Livestock

Forage Disaster

Program (LFP)

FSA Livestock

Indemnity

Program (LIP)

FSA Supplemental

Revenue

Assistance

Payments

Program (SURE)

[Note #4]

Previous Year (PY)

Outlays $

0 3,357.00 63 34

PY Improper

Payment (IP) %

N/A 3.10% 6.36% 9.90%

PY IP $

N/A 104.2 4 3.366

Current Year (CY)

Outlays $

124.01 2,581.12 54.27 4.55

CY IP %

3.21% 4.74% 12.87% 11.53%

CY IP $

3.98 122.35 6.98 0.52

CY Overpayment $

3.84 117.7 6.64 0.52

CY Underpayment $

0.14 4.65 0.34 0

CY +1 Est. Outlays $

121 563 36 0

CY + 1 Est. IP %

3.00% 4.00% 9.00% 2.73%

CY + 1 Est. IP $

3.63 22.52 3.24 0

CY +2 Est. Outlays $

169 422 35 0

CY +2 Est. IP %

2.80% 3.25% 6.00% 2.72%

CY + 2 Est. IP $

4.73 13.72 2.1 0

CY + 3 Est. Outlays $

169 422 35 0

CY + 3 Est. IP %

2.50% 2.75% 3.00% 2.71%

CY + 3 Est. IP $

4.23 11.61 1.05 0

196 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Program>>

FSA Noninsured

Crop Disaster

Assistance

Program (NAP)

FNS Child and

Adult Care Food

Program (CACFP)

Total Program

[Note #5]

RHS Rental

Assistance

Program (RAP)

RMA Federal Crop

Insurance

Corporation

(FCIC) Program

Fund

Previous Year (PY)

Outlays $

174 N/A 1,147.00 13,734.00

PY Improper

Payment (IP) %

7.36% N/A 1.41% 2.20%

PY IP $

12.8 N/A 16.2 302.15

Current Year (CY)

Outlays $

128.85 N/A 1,141.39 11,503.29

CY IP %

5.47% N/A 1.10% 2.02%

CY IP $

7.05 N/A 12.56 232.37

CY Overpayment $

6.62 N/A 12.56 218.4

CY Underpayment $

0.43 N/A 0 13.97

CY +1 Est. Outlays $

147 N/A 1,198.45 7,267.00

CY + 1 Est. IP %

5.20% N/A 1.09% 2.01%

CY + 1 Est. IP $

7.64 N/A 13.06 146.07

CY +2 Est. Outlays $

154 N/A 1,258.37 7,903.00

CY +2 Est. IP %

4.90% N/A 1.08% 2.00%

CY + 2 Est. IP $

7.55 N/A 13.59 158.06

CY + 3 Est. Outlays $

154 N/A 1,321.30 7,910.00

CY + 3 Est. IP %

4.65% N/A 1.07 1.99%

CY + 3 Est. IP $

7.16 N/A 14.14 157.41

S ECTION III OTHER INFORMATION 197

Program>>

NRCS Farm

Security and

Rural

Investment Act

Programs

(FSRIP)

FSA Hurricane

Sandy —

Emergency

Conservation

Program (ECP)

FSA Hurricane

Sandy —

Emergency

Forest

Restoration

Program (EFRP)

FS Hurricane

Sandy —EFRP

[Note #4]

Previous Year (PY)

Outlays $

2,122.00 0.4 0.3 0.07

PY Improper

Payment (IP) %

22.04% 0.50% 1.67% 0.00%

PY IP $

467.79 0.002 0.005 0

Current Year (CY)

Outlays $

1,994.14 0.04 0.79 0.06

CY IP %

2.38% 0.18% 1.43% 0

CY IP $

47.41 0.0001 0.01 0

CY Overpayment $

47.41 0.0001 0.01 0

CY Underpayment $

0 0 0 0

CY +1 Est. Outlays $

2,361.50 0 6 0

CY + 1 Est. IP %

2.37% 0.17% 0.50% 0.00%

CY + 1 Est. IP $

55.97 0 0.03 0

CY +2 Est. Outlays $

2,637.77 0 6 0

CY +2 Est. IP %

2.36% 0.16% 0.25% 0.00%

CY + 2 Est. IP $

62.25 0 0.02 0

CY + 3 Est. Outlays $

2,993.31 0 6 0

CY + 3 Est. IP %

2.35% 0.15% 0.10% 0.00%

CY + 3 Est. IP $

70.34 0 0.01 0

198 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Program>>

FS Hurricane

Sandy —Capital

Improvement

and

Maintenance

(CIM) [Note #4]

NRCS Hurricane

Sandy —

Emergency

Watershed

Protection

Program (EWPP)

USDA Total

[Note #6]

Previous Year (PY)

Outlays $

1.18 4.83 110,332.78

PY Improper

Payment (IP) %

0.06% 0.00% 5.74%

PY IP $

0 0 6,331.32

Current Year (CY)

Outlays $

0.58 5.08 37,827.57

CY IP %

0 0 8.86%

CY IP $

0 0 3,350.79

CY Overpayment $

0 0 2,635.05

CY Underpayment $

0 0 715.74

CY +1 Est. Outlays $

0 15.97 32,518.27

CY + 1 Est. IP %

0.00% 0.00% 9.56%

CY + 1 Est. IP $

0 0 3,108.55

CY +2 Est. Outlays $

0 21.22 33,660.36

CY +2 Est. IP %

0.00% 0.00% 9.18%

CY + 2 Est. IP $

0 0 3,091.69

CY + 3 Est. Outlays $

0 21.7 35,547.31

CY + 3 Est. IP %

0.00% 0.00% 9.17%

CY + 3 Est. IP $

0 0 3,259.41

Note #1: Based on an in-depth, systematic review of all State quality control systems, USDA

determined it could not release a national SNAP error rate for FY 2015. USDA is unable to

calculate an FY 2015 national error rate due to the unreliability of some State reported data.

Note #2: Information has not been adjusted for interaction between the different sources of

certification error and counting/claiming error.

S ECTION III OTHER INFORMATION 199

Note #3: The Loan Deficiency Payments program had no FY 2014 outlays and therefore did

not conduct a sample in FY 2015.

Note #4: SURE, FSA EFRP, and FS CIM estimate zero outlays in the current year plus one.

USDA anticipates that this will be the last year these programs report an error rate.

Note #5: CACFP currently tests and reports on the FDCH-tiering decision component of the

payment process. FNS continues to evaluate the measurement processes for the CACFP meal

claim component, and will begin reporting an error rate for this component when a reliable

methodology is determined.

Note #6: The Current Year results reflect the sampling results completed in FY 2016 for all

programs except RMA. USDA sampling typically tests the prior year’s outlays or an OMB

approved alternative sampling plan. For RMA’s FCIC program, current year reflects the 2014

reinsurance year which ran from July 1, 2013 through June 30, 2014. Section II above discusses

this in more detail.

Note#7: USDA's fiscal year 2017 error rate is estimated to be higher than the fiscal year 2016

error rate because of changing outlays. Programs with higher error rates like NSLP and SBP are

estimated to have increasing outlays while programs with lower error rates like FCIC and LFP

are estimated to have decreasing outlays. These outlay changes cause USDA's weighted

average error rate to increase.

200 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Table 14 provides supplemental information providing a breakdown of specific USDA programs to the component reporting level.

Table 14: Program Component Reporting

Program

Outlays $

PY Improper

Payment (IP)

% PY IP $

Current Year

(CY) Outlays $ CY IP % CY IP $

CY

Overpayment

$

CY

Underpayment

$

FNS NSLP Total

Program

11,319.00 15.66% 1,773.00 11,994.80 15.17% 1,819.74 1,368.92 450.82

FNS NSLP

Certification Error

N/A 9.70% 1.098.00 11,994.80 9.21% 1,105.19 768.51 318.69

FNS NSLP

Counting/Claiming

Error

N/A 5.96% 675.00 11994.80 5.96% 714.54 582.41 132.13

FNS SBP Total

Program

3,812.00 22.95% 875.00 3.959.60 22.48% 890.17 722.81 167.36

FNS SBP

Certification Error

N/A 10.86% 414.00 3.959.60 10.39% 411.22 288.20 122.42

FNS SBP

Counting/Claiming

Error

N/A 12.10% 461.00 3.959.60 12.10% 478.95 434.01 44.94

FNS WIC Total

Program

4,542.00 4.62% 210.00 4,335.00 4.79% 207.65 129.62 78.03

FNS WIC

Certification Error

N/A 2.71% 123.00 N/A 2.71% 123.00 N/A N/A

FNS WIC Vendor

Error

N/A 1.91% 87.00 N/A 1.91% 87.00 N/A N/A

S ECTION III OTHER INFORMATION 201

Program

Outlays $

PY Improper

Payment (IP)

% PY IP $

Current Year

(CY) Outlays $ CY IP % CY IP $

CY

Overpayment

$

CY

Underpayment

$

FNS CACFP Total

Program [Note #4]

N/A N/A N/A N/A N/A N/A N/A N/A

FNS CACFP FDCH

– Tiering

Decisions

930.00 0.84% 7.80 910.91 .54% 4.92 3.70 1.21

FNS CACFP FDCH

– Meal Claims

N/A N/A N/A N/A N/A N/A N/A N/A

202 USDA FISCAL YEAR 2016 AGENCY FINANCIAL REPORT

Discussion of Supplemental Measures

USDA currently has the following four programs designated as high-priority programs:

1. FNS SNAP

a. State agencies and FNS report the Quality Control (QC) Payment Error Rates to

PaymentAccuracy.gov every June.

b. Each month, SNAP cases from every State are sampled for QC review, which

looks at benefits a household receives and verifies whether the benefit

determination was correct. This activity identifies where improper payments

occur. The baseline is the amount of monthly program benefits issued to

households the QC review identified and whether the benefit payment or any

portion of it was an improper payment.

c. Data collected during the QC process is analyzed to identify areas of program

administration that need improvement.

d. Each year, SNAP issues QC Payment Error Rates. States with rates above

6 percent for two consecutive years are subject to a liability, which requires that

the State invest funds into its program certification activities to reduce the

amount of improper payments.

2. FNS NSLP

USDA reports 2 supplemental measures for the NSLP on PaymentAccuracy.gov.

They are:

a. The first is the percent of students directly certified for free school meals as a

percent of all students certified for free meals. The figure is updated annually

based on information reported to FNS by that State each October. This figure

summarizes State and school district success in moving families from traditional

applications, which are associated with relatively high error, to direct

certification, which APEC finds is associated with much lower error.

b. The second is the number of State agencies that receive State Technology Grants

from USDA. This figure is an indirect measure of State agency investment in the

kinds of technology improvements and automation that reduces the risk of

human error, particularly in recordkeeping and counting and claiming meals for

Federal reimbursement. This figure is also reported on an annual cycle that

coincides with the award of State agency grants by USDA.

S ECTION III OTHER INFORMATION 203

3. FNS SBP

USDA reports two supplemental measures for the SBP on PaymentAccuracy.gov.