The full text on this page is automatically extracted from the file linked above and may contain errors and inconsistencies.
of the Secretary of the Treasury on the State of the Finances FISCAL YEAR 1978 DEPARTMENT OF THE TREASURY DOCUMENT NO. 3276 Secretary For sale by the Superintendent of Documents, U.S. Govemment Printhig Offlce, Washington, D.C. 20402 Stock number 048-000-00325-7 THE SECRETARY OF THE TREASURY WASHINGTON January 17, 1979 Dear Sirs: I have tlie honor to transmit to you a report on the state of the finances of the United States Government for the fiscal year This ended September 30, 1978. submission is in accordance with 31 UoS.C. 1027o Sincerely yours. Wo Michael Blumenthal President of the Senate Speaker of the House of Representatives CONTENTS Page Introduction XIX REVIEW OF TREASURY OPERATIONS Financial Operations Domestic Finance Economic Policy General Counsel, Office of the Enforcement and Operations Tax Policy Intemational Affairs 3 8 39 49 52 57 68 ADMINISTRATIVE REPORTS Administrative Management Alcohol, Tobacco and Firearms, Bureau of Comptroller of the Currency, Office of the Computer Science, Office of Director of Practice, Office of Engraving and Printing, Bureau of. Equal Opportunity Program, Office of Federal Law Enforcement Training Center Fiscal Service: Govemment Financial Operations, Bureau of Public Debt, Bureau of the Foreign Assets Control, Office of Intemal Revenue Service Mint, Bureau of the Revenue Sharing, Office of Tariff Affairs, Officeof United States Customs Service United States Savings Bonds Division United States Secret Service 117 131 150 154 155 156 163 165 169 181 184 186 213 218 224 224 241 244 EXHIBITS 1. 2. 3. 4. 5. 6. 7. 8. Public Debt Operations, Regulations, and Legislation Treasury notes Treasury bonds Treasury bills Department Circular No. 653, Ninth Revision, April 23, 1974, amended, offering of United States savings bonds. Series E Department Circular No. 905, Sixth Revision, April 19, 1974, amended, offering of United States savings bonds. Series H An act to increase the temporary debt hmit, and for other purposes An act to extend the existing temporary debt limit An act to provide for a temporary increase in the public debt limit 255 260 265 268 280 285 285 285 Domestic Finance 9. Statement by Assistant Secretary Altman, Febmary 6, 1978, before the Subcommittee on Taxation and. Debt Management of the Senate Finance Committee, on the public debt limit V 285 VI CONTENTS Page 10. Statement bvAssistant Secretary Altman, June 27, 1978, before the Subcommittee on Domestic Monetary Pohcy ofthe House Committee on Banking, Finance and Urban Affairs, on extension of the authority of Federal Reserve banks to purchase pubhc debt obUgations directly from the Treasury 11. Statement by Assistant Secretary Altman, April 3, 1978, before the House Budget Committee, on the administration's urban policy proposals 12. Statement by Assistant Secretary Altman, October 12, 1977, before the Senate Committee on Energy and Natural Resources, on the financing of an Alaska natural gas transportation system 13. Statement b^ Assistant Secretary Altman, August 1, 1978, before the Subcommittee on Economic Stabilization of the House Committee on Banking, Finance and Urban Affairs, on the proposed National Development Bank 14. Other Treasury testimony pubhshed in hearings before congressional committees Ecomomic Policy 15. Excerpt from remarks by Secretary Blumenthal, October 19,1977, before the annual convention ofthe American Bankers Association, Houston, Tex., on the economic plans of the Carter administration 16. Remarks by Assistant Secretary Brill, April 6,1978, before the conference on "The Midyear Economic Outlook" of the Conference Board, San Francisco, Calif., on economic policies to reduce inflation 17. Statement by Deputy Assistant Secretary Karlik, April 25, 1978, before the Subcommittee on Intemational Economic Policy and Trade of the House Committee on Intemational Relations, on the Intemational Investment Survey Act of 1976 18. Remarks by Secretary Blumenthal, May 8, 1978, before the Financial Analysts Federation, Bal Harbour, Fla., on capital formation 19. Other Treasury testimony pubhshed in hearings oefore congressional committees 20. 21. 11. 23. 24. 25. 26. 27. EnaforcemeEBt auBci Operatlosis Statement by Assistant Secretary Davis, January 31, 1978, before the Subcommittee on Alcohohsm and Dmg Abuse of the Senate Committee on Human Resources, conceming warning labels on alcohohc beverage containers Statement by Assistant Secretary Davis, April 19, 1978, for Xhe Library of Congress Fomm, "Terrorism: Information as a Tool for Control" Statement by Assistant Secretary Davis, May 3, 1978, at the 35th annual convention of The Wine and Spirits Wholesalers of America, Las Vegas, Nev., on "Liquor Regulations: Current Issues and Future Options" Statement by Assistant Secretary Davis, May 4,1978, before the Subcommittee on Crime of the House Judiciary Committee, on proposed firearms regulations Press release, June 9, 1978, conceming revocation of ban on melting 1-cent coins Statement by Assistant Secretary Davis, July 20, 1978, before the Subcommittee on Courts, Civil Liberties, and the Administration of Justice ofthe House Committee on the Judiciary, conceming H.R. 214, the Bill of Rights Procedures Act Statement by Assistant Secretary Davis, July 25, 1978, before the Subcommittee on Aviation of the House Committee on Pubhc Works and Transportation, on explosives tagging Excerpt from statement by Under Secretary Anderson, August 7, 1978, before the School for Bank Administration, Madison, Wise, entitled "The Bank Secrecy Act: Challenge for American Banking" 289 > 290 294 297 < , x 307 307 ' 310 * 313 314 319 ' 319 321 t 323 325 330 \ 330 335 340 CONTENTS VII Page 28. Statement by Assistant Secretary Davis, September 14, 1978, before the Permanent Subcommittee on Investigations of the Senate Committee on Govemmental Affairs, on the problem of arson for profit and Treasury's investigative role Tax Policy 29. Statement of Secretary Blumenthal, January 30, 1978, before the House Ways and Means Conimittee, on the President's tax program 30. Statement of Acting Assistant Secretary Lubick, April 7, 1978, before the House Ways and Means Committee, on integration of the corporate and individual income tax 31. Statement of Deputy Assistant Secretary Sunley, April 24, 1978, before the Subcommittee on Taxation and Debt Management of the Senate Finance Coinmittee, on tax indexing 32. Statement by Deputy Assistant Secretary Sunley, May 22, 1978, before the Senate Committee on Banking, Housing and Urban Affairs, on tax-based incomes pohcy 33. Statement of Secretary Blumenthal, June 28, 1978, before the Subcommittee on Taxation and Debt Management ofthe Senate Finance Committee, on capital gains taxation 34. Statement by Secretary Blumenthal, August 17, 1978, before the Senate Finance Committee, on the Revenue Act of 1978 342 344 373 380 386 392 400 Trade and Investment 35. Excerpts from press releases dated October 31, 1977, May 15, 1978, June 22, 1978, and July 14, 1978, respectively, regarding new projects ofthe United States-Saudi Arabian Joint Commission on Economic Cooperation 36. Remarks by Secretary Blumenthal, November 14, 1977, to the National Foreign Trade Convention, New York, N.Y., on the foreign trade position of the United States 37. Remarks by Secretary Blumenthal, November 14, 1977, to the U.S.-U.S.S.R. Trade and Economic Council, Los Angeles, Calif., on expansion of United States-Soviet trade and economic relations 38. Remarks by Under Secretary for Monetary Affairs Solomon, December 2, 1977, before the United Steelworkers of America, Washington, D.C, on the current steel crisis.... 39. Excerpt from address by Secretary Blumenthal, Febmary 16, 1978, to the Puget Sound Chamber of Commerce, Seattle, Wash., entitled "The Economic Challenge Ahead: A View from Washington, D.C." 40. Excerpt from statement by Assistant Secretary Bergsten, March 20, 1978, before the Subcommittee on Intemational Finance ofthe Senate Committee on Banking, Housing and Urban Affairs, regarding a 5-year extension and an increased authon2:ation to $40 billion for the Export-Import Bank... 41. Excerpt from remarks by Secretary Blumenthal, April 21, 1978, before the U.S.-Arab Chamber of Conmierce, Inc., Intemational Business Conference in Washington, D.C, on United States-Arab economic relations and cooperation 42. Remarks by Assistant Secretary Bergsten, May 9, 1978, before the BrazilianAmerican Chamber of Commerce, New York, N.Y., entitled "Economic Relations Between the United States and Brazil: A Focus on Trade" 43. Excerpt from remarks by Assistant Secretary Bergsten, June 20, 1978, before the French-American Chamber of Commerce, New York, N.Y., entitled "Trade and Money: The Need for Parallel Progress" 44. Statement by Deputy Assistant Secretary Hufbauer, July 14,1978, before the Subcommittee on Trade ofthe House Committee on Ways and Means, on the intemational trade aspects of recent A-300 Airbus and Rolls-Royce engine sales to U.S. airlines 420 421 425 428 432 433 437 439 444 446 VIII CONTENTS Page 45. Excerpt from statement by Assistant Secretary Bergsten, August 1, 1978, before the Subcommittee on Intemational Trade, investment, and Monetary Pohcy of the House Committee on Banking, Finance and Urban Affairs, on current issues in intemational trade policy 449 Conunodities and Natural Resources 46. Statement by Assistant Secretary Bergsten, March 9, 1978, before the Subcommittee on Energy ofthe Joint Economic Committee, on the impact of higher energy costs on the U.S. balance of payments, and expanded investment in worldwide energy production 47. Excerpts from remarks by Assistant Secretary Bergsten, April 7, 1978, before the 1978 Financial Conference ofthe American Mining Congress, Phoenix, Ariz., entitled "U.S. Commodity Policy: The Integration of Domestic and Intemational Requirements" 48. Statement by Peputy Assistant Secretary Junz, August 17, 1978, before the Subcommittee on Oceanography of the House Committee on Merchant Marine and Fisheries, on the relationship between U.S. international economic policy and the seabed negotiations at the U.N. Law of the Sea Conference 451 ^ 455 ^ 457 International Monetary Affairs 49. Press release, January 4, 1978, on utilization ofthe Exchange Stabilization Fund under a swap agreement between the Treasury and the Deutsche Bundesbank 50. Text of statements by Minister of Economy Gosta Bohman of Sweden, January 23, 1978, in his capacity as Chairman of the Group of Ten, released in Stockholm, Sweden, and Under Secretary for Monetary Affairs Solomon, on G-10 gold arrangements 51. Press release, March 13, 1978, on a joint statement by Secretary Blumenthal and Minister Matthoefer of the Federal Republic of Germany 52. Statement by Under Secretary for Monetary Affairs Solomon, April 19,T978, before the Subcommittee on Intemational Trade, Investment, and Monetary Policy of the House Committee on Banking, Currency and Housing, on H.R. 9066, a bill to place the administrative expenses of the Treasury in the intemational affairs area on an appropriated basis and to discontinue the funding of those expenses from the ESF 53. Press release, April 19, 1978, announcing the sale ofgold for dollars by the U.S. Treasury 54. Communique of the Interim Committee of the Board of Govemors of the Intemational Monetary Fuiid on the Intemational Monetary System, April 29-30, 1978, issued after its 10th meeting in Mexico City, Mexico 55. Remarks by Under Secretary for Monetary Affairs Solomon, May 15, 1978, before the Intemational Herald Tribune/Forex Research Ltd. conference on "Managing Foreign Exchange Risk," New York, N.Y., entitled "Exchange Market Developments and U.S. Policy" 56. Remarks by Secretary Blumenthal, June 15, 1978, at the Ministerial meeting of OECD, Paris, France, on shared problems in the economically interdependent world 57. Text of the declaration issued following the meeting of heads of state or govemment of Canada, the Federal Republic of Germany, France, Italy, Japan, the United Kingdom of Great Britain and Northem Ireland, and the United States of America, July 16-17, 1978, in Bonn, West Germany (official English version) , 58. Statement by Assistant Secretary Bergsten, July 19, 1978, before the Joint Economic Committee, entitled "Intemational Economic Policy—Where We Stand" 460 460 461 462 465 465 469 474 478 482 CONTENTS IX Page ^ ^ 59. Statement by Under Secretary for Monetary Affairs Solomon, July 24, 1978, before the Subcommittee on Economic Pohcy ofthe Senate Committee on Foreign Relations, on the role of the dollar and other currencies in the intemational monetary system 60. Press release, August 22, 1978, entitled "Increase in the Amount of Gold Sales by the U.S. Treasury" 61. Statement by Assistant Secretary Bergsten, August 25, 1978, before the Senate Committee on Banking, Housing and Urban Affairs, on the question of Treasury gold sales and on S. 2843, a bill to provide for the issuance ofgold medallions by the Treasury 62. Communique of the Interim Committee of the Board of Govemors of the Intemational Monetary Fund on the Intemational Monetary System, September 24, 1978, issued after its llth meeting in Washington, D.C... 63. Statement by Secretary Blumenthal as Govemor for the United States, September 26, 1978, at the joint annual meetings of the Boards of Govemors of the Intemational Monetary Fund and the Intemational Bank for Reconstruction and Development and its affihates, Washington, DC Developing Nations 64. Remarks by Under Secretary for Monetary Affairs Solomon, December 5, 1977, to the Council of Americas at its XIII Annual Membership Meeting, New York, N.Y., on Latin America's role in the world economy 65. Remarks by Assistant Secretary Bergsten, Febmary 7, 1978, before the Intemational Development Conference, Washington, D.C, entitled "The United States and World Development" 66. Excerpts from statement by Deputy Assistant Secretary Nachmanoff, March 14, 1978, before the Subcommittee on International Development Institutions and Finance of the House Committee on Banking, Finance and Urban Affairs, on the congressional pohcy directives in Public Law 95-118 487 491 491 503 506 510 515 521 Testimony on Intemational Matters 67. Other Treasury testimony in hearings before congressional committees 527 Organization and Procedure 68. Treasury Department orders relating to organization and procedure 530 INDEX 537 NOTE.—Details of figures may not add to totals because of rounding. ^ The tables to this Annual Report will be published in the separate Statistical Appendix. Secretary, Depmitty Secretaries, Unader Secretaries, Gemeral CosimseS, Assistant Secretaries, ffiiiid Treasurer of tlie Usalted States serviMg Im tlie Departmesst ©f tine Treasairy from • Jamuary 21, 1977, tisroMgla September 3®, 197Si' Term of service From To Officials Jan. 23, 1977 W. Michael Blumenthal, Michigan. Deputy Secretaries: Mar. 3, 1976 Jan. 23, 1977 George H. Dixon, Minnesota. May 3, 1977 Robert Carswell, New York. Unader Secretary for Mosnetary Affalrsi Mar. 30, 1977 Anthony M. Solomon, Virginia. Under Secretary (CouMselor): Mar. 30, 1977 Bette B. Anderson, Georgia. Gesaeral Counsel; Aug. 4, 1977 Robert H. Mundheim, Pennsylvania. Assistant Secretaries: Apr. 11, 1972 Apr. 28, 1977 Warren F. Brecht, Connecticut. Feb. 28, 1977 Dec. 7, 1977 Laurence N. Woodworth, Maryland. Mar. 30, 1977 Gene E. Godley, District of Columbia. 2 Mar. 31, 1977 C Fred Bergsten, New York. 2 Apr. 29, 1977 Roger C Altman, New York. Apr. 29, 1977 William J. Beckham, Jr., Michigan., Apr. 29, 1977 Joseph Laitin, Maryland. May 16, 1977 Darnel H. Brill, Maryland. Jan. 30, 1978 Richard J. Davis, New York. June 26, 1978 Donald C Lubick, Maryland. July 29, 1975 Dec. 31, 1977 July 5, 1978 Aug. 3, 1977 David Mosso, Virginia. Paul H. Taylor, Maryland. Treasurer of tlie Umted States: Azie T. Morton, Virginia. • For officials from Sept. 11, 1789, to Jan. 20, 1977, see exhibit 62, 1977 Annual Report. 2 Act of May 18, 1972, provided for two Deputy Under Secretaries, to be designated Assistant Secretari^ by the President as desired. XI PRINCIPAL ADMINISTRATIVE AND STAFF OFFICERS OF THE DEPARTMENT OF THE TREASURY AS OF SEPTEMBER 30, 1978 Secretary of the Treasury Deputy Secretary of the Treasury Under Secretary for Monetary Affairs Under Secretary General Counsel Office, Secretary of the Treasury: Executive Assistant to the Secretary Executive Assistant to the Secretary Confidential Assistant to the Secretary Office, Deputy Secretary of the Treasury: Inspector General Executive Assistant to the Deputy Secretary Executive Secretary Deputy Executive Secretary Special Assistant to the secretary (National Security) Office, Under Secretary for Monetary Affairs: Assistant Secretary (Intemational Affairs) Deputy Assistant Secretary for Trade and Investment Policy Deputy Assistant Secretary for Commodities and Natural Resources Deputy Assistant Secretary for International Monetary Affairs Deputy Assistant Secretary for Developing Nations Deputy to the Assistant Secretary for Saudi Arabian Affairs Deputy to the Assistant Secretary and Secretary of IMG (Intemational Monetary Group) Inspector General ; Fiscal Assistant Secretary Deputy Fiscal Assistant Secretary Assistant Fiscal Assistant Secretary (Banking) Assistant Fiscal Assistant Secretary (Financing) Assistant Fiscal Assistant Secretary Office, Under Secretary: Special Assistant to the Under Secretary Assistant Secretary (Administration) Deputy Assistant Secretary (Administration)... Director, Office of Admimstrative Programs... Director, Office of Audit Director, Office of Budget and Program Analysis Director, Office of Computer Science Director, Office of EqualOpportunity Program Director, Office of Management and Organization Director, Office of Personnel XII W. Michael Blumenthal Robert Carswell Anthony M. Solomon Bette B. Anderson Robert H. Mundheim Curtis A. Hessler Richard W. Fisher Lisa Astudillo Leon Wigrizer David W! Heleniak (Vacancy) Steven L. Skancke J. Foster Collins C Fred Bergsten Gary C Hufbauer Helen B. Junz F. Lisle Widman Arnold Nachmanoff Lewis W. Bowden George H. Wilhs Weir M. Brown Paul H. Taylor (Vacancy) John A. Kilcoyne Philip J. Fitzpatrick Lester W. Plumly Faye P. Hewlett Wilham J. Beckham, Jr. Patricia M. Harvey Robert R. Fredlund Wilbur R. DeZeme Arthur D. Kallen Francis A. McDonough David A. Sawyer J. Elton Greenlee Morris A. Simms PRINCIPAL ADMINISTRATIVE AND STAFF OFFICERS Assistant Secretary (Enforcement and Operations). Deputy Assistant Secretary (Operations) Deputy (Regulatory and Trade Affairs)... Director, Office of Operations Deputy Assistant Secretary (Enforcement) Director, Foreign Assets Control XIII Richard J. Davis Wilham T. Archey Stephen M. Creskoff John W. Mangels (acting) Arthur Sinai Stanley L. Sommerfield (acting) Director, Interpol (National Central Bureau).. Louis B. Sims Treasurer ofthe United States Azie T. Morton Assistant to the Treasurer ofthe United States... Joan T. Thomell Office, General Counsel: Deputy General Counsel Henry C Stockell, Jr. Assistant General Counsel and Chief Counsel, Internal Revenue Service Stuart E. Seigel Assistant General Counsel Wolf Haber Assistant General Counsel Russell L. Munk Assistant General Counsel Hugo A. Ranta Counselor to the General Counsel Forest D. Montgomery Director of Practice Leslie S. Shapiro Deputy to the General Counsel for Tariff Affairs... Peter D. Ehrenhaft Assistant Secretary (Tax Pohcy) Donald C Lubick Deputy Assistant Secretary (Tax Pohcy) Daniel I. Halperin Deputy Assistant Secretary (Tax Policy) (Tax Analysis) Emil M. Sunley Associate Director, Office of Tax Analysis Harvey Galper Tax Legislative Counsel John M. Samuels Intemational Tax Counsel H. David Rosenbloom Director, Office of Industrial Economics Karl Ruhe Assistant Secretary (Legislative Affairs) Gene E. Godley Deputy Assistant Secretary (Legislative Affairs) Lawrence M. Baskir Deputy Assistant Secretary (Legislative Affairs) Colbert I. King Special Assistant to Assistant Secretary B. Alexander Kress Special Assistant to Assistant Secretary Lawrence F. O'Brien III Special Assistant to Assistant Secretary Leshe J. BanAssistant Secretary (Economic Policy) Daniel H. Brill Deputy Assistant Secretary for Domestic Economic Analysis Beatrice N. Vaccara Director, Office of Financial Analysis John H. Auten Deputy Assistant Secretary for Intemational Economic Analysis John R. Karlik Assistant Secretary (Domestic Finance) Roger C Altman Deputy Assistant Secretary for Capital Markets Policy Stephen J. Friedman Director, Office of Securities Markets Policy... (Vacancy) Director, Office of Capital Markets Legislation. Gordon Eastbum Deputy Assistant Secretary for State and Local Finance Donald H. Haider Director, Office of Municipal Finance (Vacancy) Director, Office of New York Finance John J. McLaughlin Deputy Assistant Secretary (Debt Management).... Richard M. Kelly Senior Adviser (Debt Research) Edward P. Snyder Director, Office of Govemment Financing Francis X. Cavanaugh Director, Office of Market Analysis ana Agency Finance Roland H. Cook Director, Office of Revenue Sharing Bemadine N. Denning Assistant Secretary (Public Affairs) Joseph Laitin Deputy Assistant Secretary Everard Munsey XIV . P R I N C I P A L ADMINISTRATIVE A N D STAFF OFFICERS BUREAU OF ALCOHOL, TOBACCO AND FIREARMS Director Deputy Director Assistant Director Assistant Director Assistant Director Assistant Director Assistant Director Chief Counsel (Vacancy) John G. Krogman (Administration) William J. Rnodes (Criminal Enforcement) Miles Keathley (Inspection) Jarvis L. Brewer (Regulatory Enforcement) Stephen E. Higgins (Technical and Scientific Services).... Michael Hoffman Marvin J. Dessler OFFICE OF THE COMPTROLLER OF THE CURRENCY Comptroller ofthe Currency First Deputy Comptroller Deputy Comptroller for Operations Deputy Comptroller for Policy Planning : Deputy Comptroller for Bank Supervision Deputy Comptroller (Special Surveillance) Deputy Comptroller for Administration Deputy Comptroller for Specialized Examinations Deputy Comptroller (Research and Economic Programs) Deputy Comptroller for Interagency Coordination Chief National Bank Examiner Special Assistant to the Comptroller... Special Assistant to the Comptroller Special Assistant to the Comptroller (Congressional Affairs) Special Assistant to the Comptroller (Communications) Associate Deputy Comptroller—Bank Organization and Structure Associate Deputy Comptroller (Consumer Programs).... Director, Customer ana Community Programs John G. Heimann (Vacancy) H. Joe Selby Cantwell Muckenfuss Paul M. Homan (Vacancy) James T. Keefe Dean E. Miller (Vacancy) David C Motter Charles B. Hall Charles Van Hom Stuart Gordon Donald A. Melbye Samuel Kaplan (Vacancy) Thomas W. Taylor Jo Aim Barefoot BUREAU OF ENGRAVING AND PRINTING Director Deputy Director Assistant Director (Administration) Assistant Director (Operations) Assistant Director (Research and Engineering) Seymour Berry Everett J. Prescott (Vacancy) Sadie Mitchell (acting) (Vacancy) FEDERAL LAW ENFORCEMENT TRAINING CENTER Director Deputy Director Associate Director for Administration Associate Director for Training Assistant Director (Criminal Investigator Training Division) , Assistant Director (Police Training Division) Assistant Director (Special Training Division) Assistant Director (Washington Liaison Office) Arthur F. Brandstatter (Vacan^) David w. McKinley Dale C Mitchum Wilham H. McClarin Alvin C Tumer Robert T. Lacey John C Dooher BUREAU OF GOVERNMENT FINANCIAL OPERATIONS Commissioner Deputy Commissioner Assistant Commissioner, Administration Assistant Commissioner, Banking and Cash Management Assistant Commissioner, Comptroller Assistant Commissioner, Disbursements and Claims Assistant Commissioner, Govemment-wide Accounting Dario A. Paghai Gerald Murphy George L. McConville Lloyd L. Morgan Steve L. Comings Michael D. Serlin John O. Tumer P R I N C I P A L ADMINISTRATIVE A N D STAFF OFFICERS INTERNAL REVENUE SERVICE Commissioner Deputy Commissioner Assistant Commissioner (Taxpayer Service and Retums Processing) Assistant Commissioner (Resources Management) Assistant Commissioner (Comphance) Assistant Commissioner (Employee Plans and Exempt Organizations) Assistant Commissioner (Inspection) Assistant Commissioner (Planning and Research) Assistant Commissioner (Technical) Assistant Commissioner (Data Services) Chief Counsel Jerome Kurtz William E. Williams James I. Owens Joseph T. Davis Singleton B. Wolfe Sidney A. Winbome (Vacancy) Anita F. Alpem John L. Witners Donald J. Porter Stuart E. Seigel BUREAU OF THE MINT Director Assistant Director for Administration Assistant Director for Marketing and Statistical Services. Assistant Director for Production Assistant Director for Technology Assistant Director for Personnel. Stella B. Hackel Chadwick B. Pierce Francis B. Frere George G. Ambrose Alan J. Goldman James J. Mulcahy BUREAU OF THE PUBLIC DEBT Commissioner Deputy Commissioner Assistant Commissioner (Washington) Assistant Commissioner (Field) Chief Counsel Hubert J. Hintgen Wilham M. Gregg Kenneth W. Ram Martin French Calvin Ninomiya UNITED STATES CUSTOMS SERVICE Commissioner of Customs Deputy Commissioner of Customs Assistant Commissioner (Operations) Assistant Commissioner (Regulations and Rulings) Assistant Commissioner (Administration) Assistant Commissioner (Investigations) Assistant Commissioner (Intemal Affairs) Assistant Commissioner (Enforcement Support) Chief Counsel Robert Chasen G. R Dickerson Vemon V. Harm Leonard Lehman Jack Lacy George C Corcoran, Jr. Perry Martin (acting) Alfred R DeAngelus Thaddeus Rojek UNITED STATES SAVINGS BONDS DIVISION National Director Deputy National Director Director of Sales Director of Advertising and Promotion Azie T. Morton Jesse L. Adams, Jr. Walter R. Niles Louis F. Perrinello UNITED STATES SECRET SERVICE Director Deputy Director Assistant Director Assistant Director Assistant Director Assistant Director Assistant Director (Protective Research) (Investigations) (Protective Operations) (Inspection) (Administration) H. Stuart Knight Lilbum E. Boggs Myron I. Weinstein James T. Burke Robert E. Powis Amold J. Lau Francis A. Long XV ORGANIZATION OF THE DEPARTMENT OF THE TREASURY SECRETARY • DEPUTY SECRETARY UNDER SECRETARY FOR MONETARY AFFAIRS UNDER SECRETARY ComptraDer of Assistant SecrstarY Assistant Secretary the Currency (Legislative Affairs) Deputy Asst. Sec. Deputy Asst. Sec. for Domestic for Debt Econ. Poficy Management Deputy Asst Sec. for Capital Markets Policy Deputy Asst. Sec. Deputy Asst. Sec. for Developing Bureau of Government financial Legal Division Otfice ol Administrative Programs • Dffice of Director of Practice Deputy AssL Sec for Trade and Policy Deputy Asst. Sec. Bureau of Alcohol, fot Intemational for State and Tobacco and Econ. Analysis Local Finance firearms Officeof Revenue Sharing Officeof Equal Opportunity Program Office of Industrial Economics ^ s t . (^missioner ITaipayer Service and Retums Deputy to the Asst Sec and Sec of tha Intemational Monetary Group Officeof Management and Organization Federal Law Enforcement Training Center Inspector General Officeof for Intemational finance Foreign Assets ' NOTE: Dotted Ene encloses officials serviced by ttte Executive Secretariat Control This introduction reviews developments which affected areas of Treasury interest and responsibility during fiscal 1978. Only major domestic and international developments are covered since detailed information on the operating and administrative activities of the Department is provided in the body of the report. Statistical information is presented in the separate Statistical Appendix. Tine Economic ExpanisioE The economic upswing which began at the end of the first quarter of .1975 continued through fiscal 1978. The pace of growth moderated somewhat during the course of the year, and the expansion remained remarkably well balanced although inflationary pressures did intensify. The level of economic activity (measured in terms of real GNP) at the close of fiscal 1978 was up 3.5 percent from a year earlier. A 5.3-percent increase had been recorded during fiscal 1977. During 1978, the pace of growth was interrupted in the first quarter of calendar 1978 by severe winter weather and a lengthy coal strike, but the economy rebounded during the following quarter. In the final quarter of the fiscal year real GNP registered an annua! growth rate of 2.6 percent, somewhat below the average growth rate for the year but definitely not a cause for concern. The Department of Commerce estimated that if the strike and weather effects are set aside, real GNP probably would have increased at about a 3Vi-percent annual rate in each of the three quarters of calendar 1978. This was a remarkably steady and satisfactory pace for such an advanced stage of the economic expansion. During the course of the fiscal year, economic policy began to shift from the promotion of rapid rates of real growth toward the control of inflation. This resulted in large part from two developments. First, the decline in the rate of unemployment was much more rapid than expected during the first half of the fiscal year and this was combined with a very slow rate of advance in productivity which, in turn, added to cost pressures. Second, the economy began to move into a zone of high utilization within which demand pressures were more easily translated into rising prices. The result was a relatively unsatisfactory price performance which acted adversely on the value of the dollar abroad. By the close of the fiscal year, control of inflation became the primary economic policy objective of the administration in recognition of the fact that accelerating rates of inflation would imperil the continuation of the expansion itself and would further undermine the foreign exchange value of the dollar. Employment continued to register strong gains during the year which even outpaced the exceptionally large increases in the labor force. Total XIX XX 1978 REPORT OF THE SECRETARY OF THE TREASURY employment increased by 3.8 million persons (4.2 percent) from September to September, significantly faster than the increase of 3.2 million persons (3.2 percent) in the labor force. The consequence of this rapid rate was a drop in the unemployment rate from 6.8 percent at the beginning of the fiscal year to 5.9 percent at the end. Most of the improvement in the unemployment rate occurred during the first half of the fiscal year. After April of 1978, the overall rate generally remained in the vicinity of 6.0 percent but did go as low as 5.8 percent for one month (June). The improvements in the unemployment picture affected all labor force groups more or less equally in fiscal 1978, somewhat in contrast with the previous year. For adult men, the unemployment rate dropped from 4.7 percent to 4.1 percent from September 1977 to September 1978, while the corresponding figure for adult women was a drop from 6.9 to 5.9 percent and for teenagers a drop from 18.3 to 16.3 percent. In the previous fiscal year, adult women had experienced a decline in the unemployment rate only half as large as that for adult males. While the rate for teenagers declined somewhat in fiscal 1978, the absolute number of unemployed teenagers remained relatively constant. Personal consumption spending was a key element in the economic developments of fiscal 1978. In a pattern reminiscent of the cold-weatherrelated stop-and-go movements of a year earlier, retail sales sagged during the first quarter of calendar 1978, recovered briskly, and then entered a period of relatively slow growth which continued until fall. The weakness in retail sales at the end of the fiscal year occurred in conjunction with a relatively low personal saving rate (5.2 percent) and some tightening in credit conditions, as reflected primarily in rising interest rates. The latter development was potentially important since it appeared that some consumption spending during the year had been financed by converting equity in existing homes into cash and this source of funds was presumably being made less attractive by rising interest rates. However, there was very little direct evidence that any seriously restraining effect on consumption spending was being exerted through this or other avenues. The ratio of consumer debt repayments to disposable income moved up during the fiscal year, but demographic and other factors have probably been raising the level of what constitutes an acceptable debt ratio for consumers. Therefore, the fiscal year closed without any obvious signs of weakness in the consumer spending picture. Investment also played a key role in the economic developments which occurred during fiscal 1978. Nonresidential fixed investment in real terms increased at about a 4-percent annual rate in three out of the four quarters of the fiscal year. The second quarter of 1978 was the exception, however, and it witnessed a sharp jump in investment spending, particularly for nonresidential structures. The second quarter 1978 increase contributed substantially to the increase of 8.3 percent recorded for the fiscal year as a whole. Residential investment, on the other hand, stabilized at a INTRODUCTION XXI high level but did not provide much further net contribution to real growth, rising by only 1.5 percent for the year as a whole and posting small declines in the first and third quarters of calendar 1978. The important fact was that the high levels of activity in the homebuilding industry which had been reached by the end of fiscal 1977 were essentially maintained in fiscal 1978, despite rising interest rates. This was accomplished, in large part, by the regulatory authorities allowing thrift institutions to issue money market certificates with yields geared to the 6month Treasury bill rate. Inflows into thrift institutions were well maintained and mortgage lending continued at high levels. This was in marked contrast to earlier postwar experience when monetary restraint and high interest rates led to sharp contractions in mortgage lending and residential construction activity. Business inventories were relatively stable over the course of the fiscal year and reflected the somewhat cautious behavior evident in this area after the inventory corrections of the beginning of fiscal 1977. In manufacturing, inventories came under increasingly tight control as evidenced by the steadily declining inventory-sales ratios for most industries. At the retail level, the only significant aberration was in the early cold-weatherrelated months and the inventory-sales ratio was little different from a year earlier as fiscal 1978 drew to a close. Wholesale inventories were only slightly tighter at the end of the fiscal year than they were at the beginning and also showed unusual stability during the period. Inventorysales ratios in some general merchandising levels were relatively high by historical standards at the close of the fiscal year, but this was the exception, with most industries holding very low inventories relative to sales. The absence of inventory imbalance was a favorable development, suggesting that the expansion might well continue, rather than move into a recessionary phase. Indeed, by the close of the fiscal year, there were few signs that the expansion was running into its late stages. Growth had moderated but few of the traditional signs of cyclical imbalance had emerged. The main flaw in economic performance was an excessively high rate of inflation. Inflation The need to control inflation became an increasingly urgent task during fiscal 1978. At the beginning of the fiscal year, the Consumer Price Index for all urban workers was increasing at an annual rate slightly under 5 percent, a rate which represented substantial improvement from only 6 months earlier. Following the fiscal 1977 pattern, however, prices again accelerated until mid-1978, when once again a moderating phase set in. Before the moderation occurred, however, the inflation rate had accelerated to a doubledigit pace, reaching 11.4 percent (annual rate) for the 3 months ending in June. In the final quarter of the fiscal year the rate eased to 7.8 percent. XXII 1978 REPORT OF THE SECRETARY OF THE TREASURY Also in a replay of 1977, the driving forces of the monthly price movements were concentrated in the behavior of food prices, and to a lesser extent in energy and services. Producer prices tended to exhibit somewhat the same pattern for the year except that both the acceleration and deceleration turning points in the index tended to occur a few months in advance of the equivalent movements in the Consumer Price Index. At the producer level, food prices were again the major contributor to the volatility of the quarter-to-quarter changes. The behavior of industrial prices at the close of the fiscal year suggested that the recently observed moderation in price performance might prove to be short lived. Crude materials prices declined for 2 of the 3 months of the fina! quarter of fiscal 1978, but the final month recorded a 1.6-percent monthly rate of increase. The disturbing element here was that the earlier declines were largely due to decreasing prices of foodstuffs and feeds while the prices of other crude items continued showing a definite tendency to accelerate, a tendency which had been evident for several months. Productivity in the private business sector was virtually unchanged in the final quarter of fiscal 1978 from the level which had prevailed a year earlier. Within the year the quarterly pattern was quite erratic, reflecting the influence of severe weather and the coal strike on the economy during the first half of calendar 1978.'Increases in compensation per man-hour accelerated from the already rapid pace of fiscal 1977, going up at an annual rate of 9.3 percent for fiscal 1978. The net result of the productivity and compensation movements was a rapid acceleration in unit labor costs, which went up at a worrisome 9.1 percent for the year. Thus inflation which had been a major problem in fiscal 1977 became the most critical economic issue as fiscal 1978 drew to a close. Significant improvement on the price front was imperative to prevent distortions in consumption, saving, and investment patterns. Furthermore, the absence of progress in controlling inflation at home was beginning to undercut the dollar abroad. Tlie Bedget aed Fiscai DevelopiMeMts The budget estimates for fiscal 1978 presented in January 1978 called for outlays of $462.2 billion and revenues of $400.4 billion, leaving a deficit of $61.8 billion. Outlays for the fiscal year actually turned out to be $450.8 billion and receipts $402 billion, producing a deficit of $48.8 billion. The major reason for the difference between the expected and realized budgetary outlays was the continued occurrence of outlay underruns. Much of the shortfall which occurred in the actual outlays figure was evident by the middle of calendar 1978. By that time it was becoming increasingly clear that as a result of accelerating inflationary pressures a shift in fiscal stance was in order and steps were not taken to combat or offset these shortfalls. INTRODUCTION XXIII The slight addition to budgeted revenues in fiscal 1978 reflected legislative changes and higher receipts under existing tax statutes. Congressional action brought about slightly higher individual and corporate income taxes which were only partly offset by lower excise taxes. These changes accounted for about half of the gain in receipts compared with the January estimates, while higher receipts under existing legislation accounted for the other half. Off-budget net outlays for fiscal 1978 were also somewhat lower than had been anticipated. In the January budget submission such outlays were expected to amount to $11.5 billion, including an offset of net revenues amounting to $78 million from the Exchange Stabilization Fund which, beginning in July, became a budget item (meaning, for comparison purposes, the January off-budget estimate should have been considered to be $11.6 billion). In the midsession review issued on July 1, off-budget outlays were estimated to amount to $11 billion. At the conclusion of fiscal 1978, total off-budget outlays were reported to have been $10.3 billion, with most of the decline from expectations attributable to a shift by the Postal Service from an expected deficit in excess of $800 million to a net revenue position just slightly below $500 million. Doinestic Finances The financing of the record volume of funds raised in the financial markets in fiscal 1978 was facilitated by substantial inflows of funds to depository institutions, assisted by the introduction of the new money market certificates on June 1, 1978. These permitted savings and loan associations, mutual savings banks, and commercial banks to offer higher yields on 6-month certificates based on the yield on 6-month Treasury bills. Some $37 billion of these certificates were outstanding at the close of the fiscal year. The successful introduction of these certificates helped maintain the flow of funds into mortgage markets and supported a high level of residential construction activity. Total funds raised aggregated some $453 billion during the fiscal year, up about 19 percent from $380 billion in fiscal 1977. Business—nonfinancial and financial institutions—moved into first place as the largest borrowing sector. Its borrowings increased by 32 percent, rising from $129 billion in fiscal 1977 to $170 billion in fiscal 1978, with the increase accounting for about 56 percent of the higher total borrowings. The nonfinancial corporate portion of the business sector raised about $91 billion, up from $71 billion in fiscal 1977, as the margin between corporate capital expenditures and internally generated funds widened. The greater share of the increase in corporate debt—about 57 percent—was funded at long term. Households, which had been the largest borrowing sector in fiscal 1977, raised $151 billion during fiscal 1978, for an increase of 13!^ percent. Home mortgages accounted for nearly two-thirds of household borrowing and consumer credit for nearly one-third, with other borrowings XXIV 1978 REPORT OF THE SECRETARY OF THE TREASURY relatively small. Federal Government (Treasury) borrowings accounted for a slightly smaller percentage (13 percent) than in the year before, but a substantial rise in Federal agency borrowings resulted in a slight increase in the share of the Federal sector (including Federal agencies) in total borrowings. State and local government net borrowing, on the other hand, virtually leveled off, at about $25 billion. The large volume of funds was raised in an environment of rising interest rates and some shift toward monetary restraint. Credit became more expensive during the course of the fiscal year but remained readily available. As is typical of periods of strong credit demand, the potential gap between funds raised and supplied was bridged by an increase in direct household purchases of market securities induced by rising interest rates. Thus, even though the ratio of financial intermediation to total funds raised declined from the levels of the previous 2 years, the credit markets functioned smoothly. Short-term money market rates increased over the 12-month period, with most of the rise occurring in the second half of the year. By late September 1978, private short-term interest rates had climbed by 2 to 2Vi percentage points to levels of SVi to 8% percent, not seen in nearly 4 years. The prime lending rate to corporate borrowers at commercial banks rose from IV2 percent to 9% percent during the fiscal year. In the capital markets, yields on Treasury coupon issues and on corporate bonds climbed over most of the fiscal year, but dipped slightly towards the end. Intermediate-term issues rose about Wi points over the fiscal year as a whole, while longer term Treasury and corporate bonds rose about 1 point. Municipal bond yields, on the other hand, adyanced only about one-half of a percentage point. Even so, by the end of the fiscal year, all long-term yields were generally high by historical standards. Federal Reserve policy moved in a restraining direction during fiscal 1978. The discount rate was raised in six steps from 5% percent to 8 percent by the end of the fiscal year. Federal funds, which had been trading close to 6 percent at the end of fiscal 1977, rose to the SYs range by the end of fiscal 1978. Restraint was not as clearly reflected in the behavior of the monetary aggregates. The money supply on a narrow definition, consisting of currency and demand deposits ( M - 1 ) , rose by 8.4 percent during the fiscal year, up slightly from 8.2 percent in fiscal 1977. On a slightly broader definition, including time deposits at commercial banks other than large certificates of deposit ( M - 2 ) , the rise was 8.5 percent, down from nearly 11 percent in fiscal 1977. Federal financing proceeded smoothly during the course of the fiscal year. Treasury net cash borrowing (excluding Government account transactions) totaled $60.2 billion, up from $54.8 billion in fiscal 1977. The bulk of Treasury financing was done in the intermediate area, with only a slight expansion over the period in Treasury bills outstanding in the market, following a net paydown of bills in fiscal 1977. A high priority continued to INTRODUCTION XXV be placed upon the issuance of longer term notes and bonds. As a result, the average length of the privately held marketable debt was increased from 2 years 11 months at the beginning of the fiscal year to 3 years 3 months at the end. Of the $60 billion increase in public debt securities held by the public during the fiscal year, the Federal Reserve banks absorbed $11.6 billion. (Publicly held securities include nonmarketable issues as well as the market financing discussed above.) Commercial banks reduced their holdings by about $2.8 billion in the face of strong loan demand—a usual adjustment during a cyclical expansion. Household net purchases equaled $15.6 billion, of which savings bonds held by individuals accounted for $4^/^ billion. State and local holdings rose about $15 billion, in large part reflecting special nonmarketable issues, and foreign and international issues rose $26.3 billion. Corporations reduced their holdings by $6.7 billion, and nonbank financial and other investors increased theirs by $1 billion. Taxation Developments Tax policy developments reflected tax proposals to reduce tax burdens and provide economic stimulus coupled with tax reform to make the tax system fairer. Social security, energy, and urban matters were also reflected in tax policy. In January 1978, President Carter proposed a $25 billion net tax reduction program for fiscal 1979. It provided for a gross reduction of $30.4 billion in fiscal 1979 offset, in part, by tax reform that would have increased tax liabilities by $5.4 billion. The proposal also included: (1) Net cut, in individual income tax liabilities of $18.3 billion, comprising gross cuts of $22.6 billion and tax-raising reforms of $4.3 billion; (2) net business income tax cuts of $5.1 billion, reflecting gross tax cuts of $6.3 billion combined with $1.2 billion of reform; and (3) cuts in excise taxes and payroll taxes of $1.6 billion in fiscal 1979. In May 1978, the administration trimmed the proposed tax cut from $25 billion in fiscal 1979 to $14.3 billion. The administration recognized that economic conditions had changed substantially since January 1978 and there was a need to get a better balance between monetary and fiscal policy. Inflationary pressures were mounting; employment was increasing, the unemployment rate was falling. Under these circumstances, a smaller budget deficit in fiscal 1979 was appropriate. Congress gave immediate consideration to the President's proposals but had not enacted a tax program by the close of the fiscal year. In March 1978, the administration proposed several tax incentives related to urban policy: An employment tax credit for the hiring of young and handicapped persons to replace the existing ''new jobs" credit and an additional investment credit for certain investments made in distressed areas. "Small issue" industrial development bonds were to be limited to XXVI 1978 REPORT OF THE SECRETARY OF THE TREASURY distressed areas but the dollar limit on an issue increased. No final congressional action had been taken by the end of the fiscal year. Acting on the President's proposals of May 1977 to resolve both shortand long-term financing problems in the social security system. Congress passed and the President signed on December 20, 1977, the Social Security Amendments of 1977. The amendments included the President's recommendation to correct a serious inflation-indexing flaw and to change the relationship of the self-employment tax rate to the employee rate. Subsequent to the approval of the 1977 amendments and during congressional consideration of the President's 1978 tax program, various legislative efforts were made to modify or reduce the social security tax increases in the 1977 act. These actions were opposed by the administration, and the Congress did not approve any change. The Congress continued to consider President Carter's comprehensive long-term national energy program proposed in April 1977 which included a number of tax penalty and tax incentive recommendations. At the close of the fiscal year, congressional consideration of these proposals and alternatives was proceeding with the nature of the eventual legislative outcome in doubt. INTERNATIONAL DEVELOPMENTS InternationaB Cooperation on Paynients Problems The central feature in the international monetary and payments sphere was the recurrent periods of pressure on dollar exchange rates that were associated with the continuing imbalances in international payments. Overall payments surpluses were especially prominent in Japan, Germany, and Switzerland, while the United States, Canada, and a number of other countries were in deficit. The recurrent periods of strain in the exchange market led to appreciation of the currencies of surplus countries in terms of the dollar. At times the exchange markets became nervous, uncertain, and disorderly, leading to substantial purchases of dollars by foreign central banks. In the month of October 1978, in particular, very heavy sales of dollars took place, leading to rapid declines in dollar exchange rates against major currencies that were exaggerated by a seriously deteriorating market psychology. This situation was met by an important series of actions culminating in the announcements made by the President, the Treasury, and the Federal Reserve System on November 1, 1978. U.S. monetary policy was tightened, and major foreign exchange resources were arranged to finance participation by U.S. authorities in internationally coordinated market intervention. These announcements were followed by a rise in dollar exchange rates and by more balanced and orderly exchange market conditions. INTRODUCTION XXVII Faced with the problems presented by these imbalances of payments, the United States and the major industrial nations took action during the year along three broad and interrelated lines of approach. The first of these three aspects was a series of policy measures of fundamental importance taken by the United States to deal with underlying economic factors that exerted a powerful influence on both the external and internal value of the dollar. In the sphere of energy, the Congress, after long and arduous deliberations, enacted an energy bill, designed to reduce dependence on imports of oil by an amount estimated at up to 500,000 barrels per day from the level otherwise expected, as early as 1979, with further import reductions in later years. These reductions would decrease the anticipated deficit in the current accounts and thus contribute to correcting the imbalance in world payments. As the year progressed, and output and employment continued to advance closer to the economy's potential, prices began to move upward in the United States, with consumer prices rising at an annual rate of 8.0 percent in July-September 1978, as against 6.7 percent a year earlier. By contrast, in Germany and Japan, consumer prices were rising only about 21^ and 4 percent, respectively, in the third quarter of 1978, and the rate of growth had been declining during the year. Slower growth relative to potential in those countries was considered to be one factor in their divergence from U.S. price behavior, which contributed to the strength of their currencies vis-a-vis the dollar in the exchange market. To cope with the resurgent inflationary pressures, fiscal policy in the United States was modified during the year, resulting in a budget deficit estimated at $33.2 billion for fiscal 1979, as compared with $48.8 billion in fiscal 1978. For fiscal 1980, the President has proposed that the deficit be reduced to $29 billion. This is roughly 1 percent of gross national product, and it compares with a deficit of $66 billion in fiscal 1976, which was about 4 percent of gross national product. Monetary policy also became progressively more restrictive during the year, with the average Federal funds rate rising from 5.82 percent in the third quarter of 1977 to 8.45 percent in September 1978 and later to 9% percent or more after the Federal Reserve's discount rate was raised from SV2 to 9V^ percent on November 1, 1978. Some reserve requirements were also tightened at that time. The uncovered margin between short-term dollar rates and German and Japanese rates widened markedly, providing an interest incentive to international investors. In October 1978, the President announced a broad, tough, and determined anti-inflation program designed to slow down the rate of change in wages and prices. To promote exports, the President also announced on September 26, 1978, a series of measures committing the administration to placing a higher priority on exports. Congress will be asked to increase the loan authorization of the Export-Import Bank; intensified efforts were an XXVIII 1978 REPORT OF THE SECRETARY OF THE TREASURY nounced to reduce domestic governmental barriers to U.S. sales abroad; and the Treasury was directed to negotiate more effective international arrangements to restrain excessive subsidies through export credit procedures. The second of the three broad approaches to the problem of international imbalance was encouragement of policy measures that would stimulate domestic-led economic growth in the major surplus countries. Responding to international consultations, including meetings of Ministers and heads of government, Germany and Japan adopted programs designed to maintain or expand rates of growth, and thus to reduce their excessively large trade and current account surpluses. Comparing the third quarter of 1978 with the third quarter of 1977, the German rate of real growth had risen from about 2 percent per annum to 4 percent, but the Japanese rate had advanced only from about SVi percent to nearly 6 percent. The appreciation of the currencies of these countries, together with their increased growth rates, began to have an impact on physical volumes of exports and imports of Germany, Japan, and Switzerland in 1978. However, dollar prices of exports rose more rapidly than dollar prices for imports, including oil, and this caused the combined current account surpluses of these three countries, in dollar terms, to rise from about $18 billion in calendar 1977 to an estimated $30 billion in calendar 1978. From a longer term perspective, compound annual rates of real economic growth in the decade 1962-72 were substantially higher in other industrial countries than the figure of 3.9 percent for the United States. Corresponding figures were 10.3 percent in Japan, 5.5 percent in Canada, and 4.5 percent in industrial European countries. In 1977, by contrast, foreign growth rates on average were well below the U.S. figure of 4.9 percent. Corresponding figures were 5.3 percent in Japan, 2.7 percent in Canada, and 2.1 percent in European industrial countries in that year. This sizable shift in relative economic progress had affected the U.S. trade position adversely in 1977. The movement towards a narrower divergence in real growth rates that has occurred in 1978, and that is expected to continue in 1979, should over time have a favorable impact on the trade and current account positions. In the nonoil developing countries, the growth in output was relatively well sustained at about 5 percent in both 1976-77 and 1977-78, a level somewhat higher than in the major industrial countries. The third major line of approach to international cooperation in correcting imbalances was the response to disturbed and increasingly disorderly market conditions through evolving intervention policies. During the year, U.S. intervention became more forceful as market conditions changed. At the beginning of the fiscal year, the dollar encountered generalized and continuing selling pressure in increasingly unsettled foreign exchange market conditions. These conditions reflected, in particular, the sharply rising U.S. trade deficit, the delays in completion of U.S. energy legislation, and concerns that growth rates among major industrialized nations INTRODUCTION XXIX would not soon converge. In January 1978, the Treasury began to use the Exchange Stabilization Fund actively, along with the resources of the Federal Reserve System, in foreign exchange market operations. Treasury operations were financed by drawings of German marks against a swap agreement concluded with the Bundesbank on January 4, 1978. In March, Secretary Blumenthal and the German Finance Minister reaffirmed that forceful action would be continued to counter disorderly market conditions. In this connection, in order to provide further foreign currency resources if needed, the Treasury announced that arrangements had been made for the sale of SDR 600 million to purchase German marks, that the United States was prepared to draw against its reserve position in the International Monetary Fund, and that the Federal Reserve and Bundesbank had agreed to double the amount of their swap arrangement from $2 billion to $4 billion. In early April, selling pressure on the dollar intensified following the release of U.S. trade figures showing a record $4.5 billion deficit in February. Later in April the Treasury announced that a series of monthly public auctions of gold would be initiated in May, amounting to 300,000 ounces at each of the first six auctions, which would reduce net imports of gold. In August, the Treasury announced that the amount of gold offered would be increased to 750,000 ounces beginning with the November auction. At that time, a congressional compromise on the natural gas bill was achieved, paving the way for passage of energy legislation. The Federal Reserve moved to increase U.S. interest rates further and reduced reserve requirements on Eurodollar borrowings by U.S. banks. Swap indebtedness to the Bundesbank, incurred by the Treasury and Federal Reserve to finance foreign exchange market operations in German marks, reached a peak in early April 1978 of $2,284 million. However, by the end of the fiscal year, this indebtedness had been reduced to $1,031 million. During October, it became evident that the severe and persistent disorder and excessive decline in the dollar were undermining U.S. efforts to control inflation and adversely affecting the climate for continued investment and growth in the United States. The market did not respond favorably to the President's comprehensive anti-inflation program and was failing to take account of the improvements that were being made in the underlying conditions that determine the dollar's value. Accordingly, on November 1, 1978, the President, the Secretary of the Treasury, and the Chairman of the Board of Governors of the Federal Reserve System announced a series of major corrective actions. The Federal Reserve raised the discount rate from SVi to 9Vi percent and imposed a supplementary reserve requirement on large time deposits. The U.S. authorities joined Germany, Switzerland, and Japan in closely coordinated exchange market intervention. To finance the U.S. participation in the xxx 1978 REPORT OF THE SECRETARY OF THE TREASURY coordinated market intervention, the United States announced that it would mobilize up to $30 billion in the currencies of those three countries. These resources were to be obtained by drawings on the IMF, sales of special drawing rights (SDR's) to foreign monetary authorities, increases in Federal Reserve swap lines, and by the issuance abroad by the Treasury of up to $10 billion in securities denominated in foreign currencies. The Treasury also increased its monthly sales of gold to at least V/i million ounces per month, starting with the December auction. The market responded favorably to these measures, dollar exchange rates rose from the October lows, and more orderly conditions resulted. Changes in Dollar Exchange Rates, Gold Market Prices, and Global Reserves Persistent large current account surpluses of Japan, Germany, and Switzerland reached a combined total of nearly $30 billion during the 12 months ending September 30, 1978. These surpluses were not fully offset by outward nonofficial capital movements. The currencies of those countries appreciated by 40, 19, and 50 percent, respectively, in terms of the U.S. dollar, from September 30, 1977, to the end of September 1978. There were also substantial accumulations of reserves by the three countries, amounting to about $20 billion during fiscal 1978, which absorbed a substantial amount of market pressure on their currencies. Overall, during the fiscal year, the dollar depreciated by 12.5 percent on a trade-weighted basis, as against the other Organization for Economic Cooperation and Development (OECD) currencies, and by 9.2 percent in terms of the SDR. Gold market prices rose from about $155 per ounce at the beginning of the fiscal year to about $188 per ounce in March 1978. After declining to about $168 per ounce in the latter part of April, the gold price resumed rising in May. The price was about $218 per ounce at the end of the fiscal year, representing an increase of about 40 percent during the fiscal year. Under the Treasury's monthly program, sales of gold to the public were conducted by the General Services Administration on a competitive bid basis. Through September 30, 1978, proceeds of the sales totaled nearly $300 million. The oil-exporting group of countries, for the first time in several years, reported to the IMF a decline of about SDR 15 billion (nearly $19 billion) in reserves during the fiscal year, though part of this appears to be accounted for by reclassification of some assets into a nonreserve and unreported category. Other developing countries continued to build up their aggregate reserves at a somewhat faster rate than the industrial country group. For the world as a whole, reported reserves increased to SDR 264 billion ($338 billion) at the end of September 1978, as compared with SDR 249 billion ($290 billion) a year earlier, an increase of about 6 percent in SDR terms, and 17 percent measured in dollars. INTRODUCTION XXXI The International Monetary System and the International Monetary Fund The entry into force of the second amendment of the IMF Articles of Agreement, on April 1, 1978, represents the most fundamental change in the international monetary order since the Bretton Woods system was established in 1944. The United States had earlier accepted the amendment pursuant to Public Law 94-564, effective October 19, 1976. The central features of the new international monetary system, as embodied in the amended IMF Articles, are: • Members are given wide latitude in the choice of exchange rate practices, subject to specific undertakings regarding promotion of orderly underlying economic and financial conditions and avoidance of unfair exchange rate practices. The IMF is given expanded authority for surveillance over exchange rate policies to ensure that members comply with their obligations; • Concrete steps to reduce the monetary role of gold, including the abolition of the official price of gold, the elimination of gold's function as the "numeraire" of the system and as an important instrument in IMF transactions, and provision for continued disposal of the IMF's gold holdings; 9 Changes in the characteristics and expansion of the uses of the SDR, designed to enhance its role in the system; • Changes in the IMF's operation and organization to modify obsolete provisions, simplify operations, and adopt structural changes. The increase in IMF quotas agreed in 1976 also became effective on April 1, 1978. Total Fund quotas were raised from SDR 29.2 billion to SDR 39 billion (about $50 billion). The U.S. quota was increased from SDR 6,700 million to SDR 8,405 million, pursuant to Public Law 94-564.; Legislation required for U.S. participation in the Supplementary Financing Facility was passed by Congress and signed by the President. The facility will temporarily supplement the IMF's resources by credit lines from members of approximately $11 billion, and should enable it to provide more financing to members experiencing particularly difficult payments problems. The U.S. share in the facility is approximately $1.8 billion, 17 percent of the total. At the September 1978 meeting of the IMF's Interim Committee, a consensus was reached in support of two major additional measures to strengthen the International Monetary Fund and the monetary system: A 50-percent increase in IMF quotas and new allocations of SDR's totaling approximately SDR 12 billion, to be issued over 3 years. The continued uncertainties in the world economy—and the associated wide range of world payments patterns which could develop—argued for a substantial increase in Fund quotas. The 50-percent increase was the result of the seventh periodic review of quotas, and is intended to cover the next 5 years. It is mainly equiproportional; i.e., equal percentage in XXXII 1978 REPORT OF THE SECRETARY OF THE TREASURY creases for most countries, with only 11 developing countries receiving selective quota increases. The consensus on SDR allocations reflects the view that SDR allocations should provide a part of the growth of reserves as international transactions continue to expand in value, and that such allocations will help to assure the viability and credibility of the SDR as a reserve asset and will assist the SDR in fulfilling its longrun potential in the international monetary system. Financial Relations with Non-OPEC Developing Countries The overall economic situation of the non-OPEC developing countries in 1977-78 was mixed with significant improvments being made in some indicators and less progress in others. Current account deficits for the group, which declined significantly to $26 billion (excluding official transfers of funds) in calendar 1976 and fell further to $22 billion in calendar 1977, have been projected to rise in calendar 1978 to about $28 billion.* This nominal increase is not significantly different from historical averages when world inflation and economic growth are factored in, and it should not pose financing difficulties for the group as a whole. Total official and private flows to non-OPEC developing countries have been more than adequate to cover the aggregate current account deficits. Official development assistance (grants and loans) from Development Assistance Committee countries and multilateral institutions to less developed countries (LDC's) as a group increased in 1977 to about $15 billion; concessional and nonconcessional flows from OPEC countries to nonOPEC LDC's were about $5 billion. Gross foreign exchange reserves of the non-OPEC LDC's increased 29 percent to about $53 billion by the end of calendar 1977. Data for December 1978 showed slower growth in aggregate reserves although it is estimated that import coverage did not decline. During 1978, the United States continued its policy of placing increased emphasis on the role of the multilateral development banks in providing financing for sound projects and programs in developing countries. These institutions, including the World Bank group, the Inter-American Development Bank, the Asian Development Bank, and the African Development Fund, provided almost $12 billion in loans during the year, of which nearly $4 billion was on concessional terms for the poorest countries. A paramount objective of U.S. policy in the banks has been to encourage projects which reach poor people in recipient countries and which help meet the basic human needs of these people. For this reason, the United States has favored greater priority in bank lending for the agricultural sector and for those projects which improve health, education, and nutrition. In working toward this objective, the United States has also *Including official transfers of funds (grants only) to these countries, their deficits were approximately $17 billion in 1976, $12 billion in 1977, and are projected at about $16 billion for 1978. INTRODUCTION XXXIII proposed the channeling of more assistance to small-scale enterprises and the development and use of labor-intensive and capital-saving technologies. During 1978, significant progress was made in reaching the poor through changes in the sectoral composition of lending to meet basic human needs, modifications in the design of projects to pass greater benefit to poorer people, and increased use of aid leverage to encourage policy changes in developing countries. Improvement of human rights conditions in recipient countries has also been an important policy objective of the United States. Accordingly, during 1978, the United States used its voice and vote on a number of occasions in the multilateral development banks to advance these rights. Other issues within the banks on which substantial progress was made in 1978 included greater availability of information concerning the operations of the banks, improved audit procedures, and reduction of administrative costs including travel and compensation. The Congress appropriated $2,514 million for U.S. subscriptions and contributions to the multilateral development banks for fiscal 1979, up from $1,925.5 million in fiscal 1978. Of this amount, $1,258 million represented contributions to the International Development Association, including $800 million for the second installment of the fifth replenishment of resources and $458 million for the fourth replenishment of resources. Under the same appropriation, $265 million was made available to the Asian Development Bank; $763 million to the Inter-American Development Bank; $163 million to the International Bank for Reconstruction and Development; $40 million to the International Finance Corporation; and $25 million to the African Development Fund. The appropriations legislation enacted by the Congress also included the following provisions: That the U.S. Governors of the banks propose and seek the adoption of amendments to the Articles of Agreement to establish human rights standards to be considered in connection with each application for assistance; that international consultations be initiated to develop a viable standard for allocation of development assistance for production and export of commodities; and that the United States oppose loan proposals for the production for export of surplus commodities which would cause substantial injury to U.S. suppliers of similar or competing commodities. The IMF/IBRD Development Committee, which was established in 1974 to maintain an overview of the development process especially regarding the transfer of resources to developing countries, continued to provide a forum for discussion of important issues. The United States is represented on the Committee by the Secretary of the Treasury. The Department of the Treasury participated actively in the formulation of U.S. development assistance policy through its membership in the National Advisory Council on International Monetary and Financial Policies, in the Development Coordination Committee (DCC), and in various other XXXIV 1978 REPORT OF THE SECRETARY OF THE TREASURY interagency committees designed to coordinate economic assistance programs. Under the reorganization of the DCC, four new subcommittees were established to treat issues in the specific areas of multilateral assistance, bilateral assistance, food aid, and international organizations. Treasury assumed responsibility for chairing the Subcommittee on Multilateral Assistance. Treasury continued to follow developments in international indebtedness. In January 1978, Treasury submitted to Congress the administration's fourth annual report on developing countries' external debt and debt relief provided by the United States. The report is comprehensive, containing detailed information on the debt situation of major debtor countries and the means by which the United States and other creditor countries have dealt with debt service programs. During fiscal 1978, the United States participated in multilateral debt reschedulings for Zaire and Turkey. Trade Treasury activities in the trade area during the fiscal year centered on continuing efforts to secure significant trade liberalization and reform of the international trading system, as well as on specific trade problems and new efforts to reduce our record trade deficit. Treasury continued to participate actively in drafting proposals for a subsidy/countervailing duty code within the multilateral trade negotiations in Geneva, as a prerequisite for U.S. adherence to the final package of agreements. The Department also participated actively in the adoption of positions with respect to tariffs, safeguards, customs matters, and special treatment to developing countries. In July 1978, the major trading nations agreed upon a basic "framework of understanding" for these negotiations, which the Bonn economic summit agreed should be completed by December 15. A number of special import problems also developed during the year, the most important relating to steel imports allegedly dumped in the U.S. market. To assure prompt investigation of potential dumping in the future, an interagency steel task force chaired by Under Secretary Solomon proposed, and the administration adopted, a trigger price mechanism (TPM) for steel imports. The TPM is part of a comprehensive steel program to modernize and improve the competitive position of the U.S. steel industry. A new International Arrangement on Export Credits was negotiated. This constituted a useful, if limited, instrument of international discipline in the provision of officially supported export credits. The clear need for substantive improvements in the Arrangement caused the Secretary to undertake renewed consultations with major trading nations in the fall of 1978 to strengthen and broaden the Arrangement. INTRODUCTION XXXV In September 1978, the United States adopted a new national export policy to encourage U.S. exports, as one means of helping to reduce the record U.S. trade deficit. The new program includes efforts to assure fully competitive financing through the Export-Import Bank and to minimize Government disincentives to exports. Export expansion should also assist our broader efforts to maintain confidence in the dollar and stimulate continued domestic economic growth. The East-West Foreign Trade Board, chaired by the Secretary of the Treasury, continued to monitor trade with the nonmarket economy countries to insure that it remained consistent with the national interests of the United States. Secretary Blumenthal participated in the meeting of the U.S.-U.S.S.R. Trade and Economic Council in Los Angeles on November 14, 1977. In I>ecember 1978, Secretary Blumenthal served as Cochairman of the Joint U.S.-U.S.S.R. Commercial Commission during its Seventh Session at Moscow. He also conferred with Chairman Brezhnev and other Soviet leaders, and addressed a meeting of the U.S.-U.S.S.R. Trade and Economic Council. He subsequently visited Bucharest, where he met with President Ceausescu and other Romanian officials. Investment In the international investment area the U.S. Government placed special emphasis during the past fiscal year on the problems associated with governments' use of (1) subsidies to induce investors to locate in their territories and (2) other measures to tilt the benefits of such investments their way. Several initiatives, which the Treasury played a key part in developing, were taken in international organizations and on a bilateral basis. In the OECD the Committee on International Investment and Multinational Enterprises (CIME) has agreed, at the suggestion of the United States, to undertake a comprehensive examination of the effects of investment incentives, performance requirements, and other measures on international economic relations. This work will begin after the CIME's review of the 1976 OECD Investment Declaration, a part of which covers investment incentives and disincentives. Bilateral consultations between the U.S. and Canadian Governments were also begun, and will continue in fiscal 1979, on governments' use of investment incentives. These consultations were initiated after the Canadian Government gave a subsidy to an American automobile manufacturer to induce it to locate a new plant in the Province of Ontario. The incentives issue was also among those relating to the role of foreign investment in development that were pursued in a working group of the IMF/IBRD Development Committee. The group completed its work in December 1978, with the preparation of a report to the Development Committee regarding appropriate policies for developed and developing countries. Discussions are now underway to establish a small task force XXXVI 1978 REPORT OF THE SECRETARY OF THE TREASURY consisting of policy-level officials from a few countries to continue and give added emphasis to this work. Regarding inward investment, the Committee on Foreign Investment in the United States, an interagency group chaired by Treasury, met during the fiscal year to review current trends in and coordinate U.S. policy on^ such investment. One of the Committee's major concerns was foreign investment in U.S. farmland. It served as a forum for coordinating the positions taken by executive branch agencies in congressional discussions of the issues and legislative proposals relating to it. The House and Senate committees with legislative responsibility approved plans submitted by Treasury for a survey of foreign residents') portfolio investment in the United States and authorized the funds required to initiate this project. The last such survey conducted by Treasury was in 1974. Questionnaires were to be mailed in November, the reporting or "as of" date being December 31, 1978, and respondents are being requested to file their reports by the end of March 1979. Up to a year will be required to tabulate and check the roughly 10,000 expected responses. Treasury plans to file a report with the Congress by the end of 1980. In addition, the feasibility of surveying U.S. residents' portfolio investment abroad is being studied. If such an outward survey is conducted, its outcome will be reported in 1981. Energy In the energy area, the key issues continued to be price, supply, and development of indigenous energy resources in the United States itself and also in the oil importing developing countries. The Bonn economic summit gave major attention to these issues, as well as to the growing dependence of the United States on imported oil. In this regard. President Carter committed the United States to adoption of a comprehensive ener-, gy program by the end of the year that would result in oil import savings of 2.5 million barrels per day by 1985. During the year, the U.S. current account deficit, the national energy program, and oil prices became intimately linked. Our deficit was increasingly a result of excessive oil imports, while the depreciation of the dollar led to renewed pressure within OPEC for an oil price increase. s. In their relations with the developing countries, the developed countries took steps to intensify cooperation in energy research and development, with special attention to renewable energy resources and technologies. The United States continued to stress the importance of adequate investment in indigenous energy resources and the role of the multilateral development banks and the private sector in fostering energy development. The World Bank adopted new policies in July of 1977 which significantly enlarged its participation in the development of energy resources of the developing nations. A Petroleum Projects Division was established to INTRODUCTION XXXVII coordinate this. In 1978, missions were sent to a dozen developing countries to identify and prepare projects aimed at oil and gas production. Loans have been approved by the World Bank group to India ($150 million), to Zaire ($4.1 million), Turkey ($2.5 million), and Pakistan ($30 million) for training of technicians and for petroleum development. In response to the Bonn summit request, the World Bank sent a report to the Board in November of 1978 on the first year of this program, together with proposals to extend the group's activities into energy exploration in the oil-importing LDC's. Commodity Policy During fiscal 1978, the United States continued to develop and refine its basic initiatives in commodity policy. In these discussions, the United States has advocated commodity proposals that would work to the mutual benefit of producers and consumers. Foremost among commodity problems is the sharp fluctuation of prices which is detrimental to stable economic growth in both developed and developing countries, by giving rise to near-term inflationary pressures and by discouraging investment in commodity industries. To remedy the situation in the most volatile markets, the United States has supported, where feasible, the negotiation of international commodity agreements. These agreements, operating to the maximum possible extent through buffer stocks, are aimed at stabilizing prices within a broad range around their long-term trends while at the same time allowing for the play of market forces to promote an efficient allocation of resources. Currently, international commodity agreements are in effect for tin, coffee, and cocoa (though the United States is not a member of the latter); a sugar agreement was negotiated in fiscal 1978, but has not as yet been acted upon by Congress. Discussions which may eventually lead to agreements have been undertaken for wheat, natural rubber, and copper. Proposed negotiation of a tungsten agreement was rejected as technically infeasible by the United States and other industrial countries. To assist in financing buffer stock activities designed to reduce instability in commodity prices, the United States actively participated in the November 1977 negotiating conference on a common fund. The industrial countries presented a proposal at that session for the consolidation of individual international commodity agreement financial resources in a common fund that would lower the paid-in financial requirements for each agreement. To provide for more equitable sharing of financial responsibility for the agreements, the proposal implicitly assumes participation of consuming and producing countries in their financing. The developing countries presented their own proposal for a common fund which would be financed by mandatory direct government contributions and which would contain a second window to finance non-buffer-stocking measures for commodities and a voting structure which would give developing countries a controlling voice in decisions. XXXVIII 1978 REPORT OF THE SECRETARY OF THE TREASURY The differences between the two approaches prevented agreement in the November 1977 session. Subsequent informal discussions took place in Geneva in an attempt to narrow the differences. These discussions led to a resumption of the negotiations in November 1978. The resumed negotiations saw some convergence of views, with the developed countries / indicating a willingness to accept an element of direct contributions in the financial structure of the fund and some possible activities which the second window might finance. However, developing countries insisted on a larger role for direct government contributions in the financial structure of the fund, and a broader scope for the second window, than developed countries could accept. These differences between the developed and ) developing countries reflected different conceptions of the nature and role of the fund, and the negotiating session concluded without reaching agreement. Another conference is scheduled for early 1979. The administration undertook a commitment to contribute tin to the International Tin Agreement buffer stock. Although considerable support for it developed in Congress, legislation faltered late in the session because of Congress's inability to settle policy with respect to disposals from the U.S. strategic stockpiles. The United States participated in the Third United Nations Conference on the Law of the Sea which met twice in 1978 and will reconvene in the spring of 1979. Much of the discussion at these two sessions centered on the deep seabed mining regime, as serious differences persist between the industrialized and the developing countries on the scope, nature, and organization of this regime. The Congress considered seabed mining legislation in 1978 which would have authorized the licensing of private firms to begin mining the seabeds. The legislation passed the House of Representatives, but was not acted on by the full Senate. It is expected that such legislation will again be considered at the next session of Congress. The staffs of the International Monetary Fund and World Bank under- ' took an examination of the provisions of and possible changes in the compensatory financing facility of the International Monetary Fund. Their analysis showed heavy use of the facility in 1975-76 and indicated the effects of possible changes. Action on the need for any changes will await the results of the full-scale review now scheduled for the spring of 1979. Major International Meetings and Consultations During the spring and summer of 1978, the Secretary took part in the meeting of the Interim Committee of Governors of the International Monetary Fund in Mexico at the end of April, the OECD Ministerial meeting in Paris in mid-June, and the Bonn meeting of heads of government of seven industrial countries in July. Through these meetings a consensus was reached on the major policy adaptations needed for achieving further progress toward better balanced growth among major industrial countries. INTRODUCTION XXXIX A meeting of the IMF/IBRD Development Committee in September 1978 was held at the time of the annual meeting of the Boards of Governors of the two institutions. The Committee commented favorably on the Bank's World Development Report, reviewed the Committee's work program, and agreed to establish a Task Force on Foreign Direct Investment. Secretary Blumenthal visited the Middle East twice over the past 2 years to discuss U.S. economic and financial concerns with the leaders of important countries in that area. In October 1977, he visited Egypt, Israel, Kuwait, Iran, and Saudi Arabia. In November 1978, he met with the leaders of Saudi Arabia, the United Arab Emirates, Iran, and Kuwait. United States/Saudi Arabian Joint Commission While in Saudi Arabia, Secretary Blumenthal headed the U.S. delegation and served as Cochairman of the Fourth Session of the Commission, held in Riyadh November 18-19, 1978. Three new technical cooperation agreements were signed, in the areas of transportation, agricultural bank operations, and executive management development. The Joint Commission now is implementing 20 major projects, with a total ultimate value of over $850 million. Funding of the International Affairs Function of Treasury The Congress, in early October 1978, terminated the financing of administrative expenses by the Exchange Stabilization Fund, to become effective when appropriations become available. REVIEW OF TREASURY OPERATIONS FINANCIAL OPERATIONS Summary On the unified budget basis the deficit for fiscal 1978 was $48.8 billion. Net receipts for fiscal 1978 amounted to $402.0 billion ($44.2 billion over fiscal 1977), and outlays totaled $450.8 billion ($48.0 billion over fiscal 1977). Fiscal 1978 borrowing from the public amounted to $59.1 billion as a result of (1) the $48.8 billion deficit, (2) a $3.0 billion increase in cash and monetary assets, and (3) a $7.3 billion decrease in other means of financing. As of September 30, 1978, Federal securities outstanding totaled $780.4 billion, comprised of $771.5 billion in public debt securities and $8.9 billion in agency securities. Of the $780.4 billion, $610.9 billion represented borrowing from the public. The Government's fiscal operations for fiscal years 1977 and 1978 are summarized below. The receipts and outlays figures reflect the reclassification of earned income credit from an income tax refund to a budget outlay. [In billions of dollars] . 1977 1978 Budget receipts and outlays: Receipts Outlays 357.8 402.8 402.0 450.8 Budget deficit -45.0 -48.8 53.5 -2.2 B9.1 -3.0 .4 —8.7 2.0 .4 — 10.3 2.6 45.0 48.8 Means of fmancing: Borrowing from the public Increase in cash and other monetary assets Other means: Increment on sold and seigniorage Outlays of off-Dudget Federal agencies Other Total budget fmancing 1978 REPORT OF THE SECRETARY OF THE TREASURY THE BUDGET $Bil. 400 300 200 100 1969 1970 1971 1972 1973 1974 Fiscal Years 1975 1976 1977 1978 Receipts Total budget receipts amounted to $402.0 billion in fiscal 1978, an increase of $44.2 billion over fiscal 1977. Net budget receipts by major source for fiscal years 1977 and 1978 are shown below. [In millions of dollars] Source Individual income taxes Corporation income taxes Employment taxes and contributions Unemployment insurance O^ntrioutions for other insurance and retirement Excise taxes Estate and gift taxes Customs duties Miscellaneous receipts Total budget receipts 1977 1978 157,626 54,892 92,210 11,312 5,167 17,548 7,327 5,150 6,531 180,988 59,952 103,893 13,850 5,668 18,376 5,285 6,573 7,413 357,762 401,997 Projected estimates of receipts to future years, required of the Secretary of the Treasury, are shown and explained in the President's budget. Individual income taxes.—Individual income taxes rose to $ 181.0 billion in fiscal 1978, an increase of $23.4 billion. Substantially all ofthe increase was due to higher personal incomes. Corporation income taxes.—Corporation income taxes increased by $5.1 billion over the prior year to reach $60.0 billion. This modest increase (9 percent) reflects in part unusually high final payments in fiscal 1977 on 1976 liability. REVIEW OF TREASURY O P E R A T I O N S 3 Employment taxes and contributions.—Receipts from this source totaled $103.9 billion, reflecting in part an increase in the social security taxable earnings base from $16,500 effective January 1, 1977, to $17,700 effective January 1, 1978. Unemployment insurance.—Unemployment insurance receipts increased by 22 percent to reach $13.8 billion in fiscal 1978. State tax deposits at the Treasury, the largest component in this category, increased by $1.8 billion, reflecting continued high financing of past unemployment benefits. In addition, the Federal Unemployment Tax Act base was raised from $4,200 to $6,000 effective January 1,1978, and receipts from this source increased from $1.9 billion in fiscal 1977 to $2.6 billion in fiscal 1978, a 39-percent increase. Contributions for other insurance and retirement.—Receipts in this category increased by $0.5 billion to a total of $5.7 billion in fiscal 1978. Excise taxes.—Receipts of excise taxes in fiscal 1978 were $18.4 billion, an increase of $0.8 billion over the prior year. These receipts reflect continued phaseout of the telephone excise tax from 5 percent in 1977 to 4 percent in 1978. Estate and gift taxes.—Receipts in this category declined by $2.0 billion in fiscal 1978 to reach $5.3 billion. Much of the decline can be attributed to substantially increased gifts in fiscal 1977 in anticipation ofthe estate and gift tax provisions of the Tax Reform Act of 1976. Customs duties.—Customs duties increased by $1.4 billion in fiscal 1978 to reach $6.6 billion. Miscellaneous receipts.—These receipts totaled $7.4 billion in fiscal 1978, an increase of $0.9 billion. Deposits by the Federal Reserve System, the largest component of this category, increased by $0.7 billion to reach $6.6 billion. Outlays Total outlays in fiscal 1978 were $450.8 billion (compared with $402.8 billion for 1977). Outlays by major agency for fiscal years 1977 and 1978 are presented in the following table. For details see the Statistical Appendix. [In millions of dollars] Funds appropriated to the President Agriculture Department Defense Department Energy Department i Health, Ediication, and Welfare Department Housing and Urban Development Department Labor Department Transportation Department Treasury Department National Aeronautics and Space Administration Veterans Administration.. Other Undistributed offsetting receipts Totaloutlays 1 Created Oct. 1, 1977. 1977 1978 2,487 16,738 97,930 5,252 147,455 5,838 22,374 12,514 50,461 3,944 18,019 34,843 - 15,053 4,475 20,368 105,677 6,430 162,809 7,761 22,90? 13,452 56,309 3,980 18,962 43,405 - 15,773 402,802 450,758 6 1978 R E P O R T OF THE SECRETARY OF THE TREASURY C a s h a n d monetary assets On September 30, 1978, cash and monetary assets amounted to $31.9 billion. The balance consisted of U.S. Treasury operating cash of $22.4 billion ($3.3 billion more than September 30, 1977); $1.6 billion held in special drawing rights ($0.4 billion more than September 30, 1977); a net $3.5 billion with the International Monetary Fund ($0.6 billion less than September 30, 1977); $0.7 billion in loans to International Monetary Fund (a slight increase over September 30, 1977); and $3.6 billion of other cash and monetary assets ($0.1 billion less than September 30, 1977). For a discussion of the assets and liabilities in the Treasury's account, see page 173. Transactions affecting the account in fiscal 1978 are shown in the following table: Transactions affecting the account o f t h e U.S. Treasury, fiscal 1978 [In millions of dollars] Operating balance Sept. 30, 1977 Excess of deposits or withdrawals ( - ) , budget, trust, and other accounts: Deposits Withdrawals ( - ) Excess of deposits or withdrawals ( —), public debt accounts: Increase in gross public debt Deduct: Net discounts on new issues Interest increment on savings and retirement plan securities Net pubhc debt transactions included in budget, trust, and other Govemment accounts 19,104 465,672 506,526 -40,854 72,704 11,603 4,136 12,764 Net deductions operating balance Sept. 30, 1978 28,503 44,201 22,444 C o r p o r a t i o n s a n d o t h e r business-type activities of the Federal G o v e r n m e n t The business-type programs which Government corporations and agencies administer are financed by various means: Appropriations (made available directly or in exchange for capital stock), borrowings from either the U.S. Treasury or the public, or by revenues derived from their own operations. Various agencies have been borrowing from the Federal Financing Bank, which began operations in May 1974. The bank is authorized to purchase and sell securities issued, sold, or guaranteed by Federal agencies. Many Federal agencies finance programs through this bank that would otherwise involve the sale or issuance of credit market instruments, including agency securities, guaranteed obligations, participation agreements, and sales of assets. Corporations or agencies having legislative authority to borrow from the Treasury issue their formal securities to the Secretary of the Treasury. Outstanding borrowings are reported as liabilities in the periodic financial statements of the Government corporations and agencies. In fiscal 1978 borrowings from the Treasury, exclusive of refinancing transactions, totaled REVIEW OF TREASURY OPERATIONS / $32.5 billion, repayments were $13.2 million, and outstanding loans on September 30, 1978, totaled $85.7 billion. Agencies having legislative authority to borrow from the public must either consult with the Secretary ofthe Treasury regarding the proposed offering, or have the terms of the securities to be offered approved by the Secretary. The Federal Financing Bank makes funds available in accordance with program requirements to agencies having authority to borrow from the bank. Interest rates shall not be less than rates determined by the Secretary of the Treasury taking into consideration current average yields on outstanding Government or bank securities of comparable maturity. The bank may charge fees to provide for expenses and reserves. During fiscal 1978, all funds loaned by the bank have been borrowed from the Treasury. During fiscal 1978, Congress granted new authority to borrow from the Treasury in the total amount of $ 14.4 billion, adjustments increased borrowing authority by $1.8 billion, making a total increase of $16.2 billion. The status of borrowings and borrowing authority and the amount of corporation and agency securities outstanding as of September 30, 1978, are shown in the Statistical Appendix. Unless otherwise specifically fixed by law, the Treasury determines interest rates on its loans to agencies by considering the Government's cost for its borrowings in the current market, as reflected by prevailing market yields on Government securities which have maturities comparable with the Treasury loans to the agencies. A description of the Federal agency securities held by the Treasury on September 30, 1978, is shown in the Statistical Appendix. During fiscal 1978, the Treasury received $4.4 billion from agencies which consisted of dividends, interest, and similar payments. (See the Statistical Appendix.) As required by Department Circular No. 966, Revised, semiannual statements of financial condition, and income and retained earnings are submitted to the Treasury by Government corporations and business-type agencies (all other activities report on an annual basis). Quarterly statements showing direct and guaranteed loans, and annual statements of commitments and contingencies are also submitted. These statements are the basis for the combined financial statements compiled by the Treasury which, together with individual statements, are published periodically in the Treasury Bulletin. Summary statements of the financial condition of Government corporations and other business-type activities, as of September 30, 1978, are shown in the Statistical Appendix. Government'wide financial management Joint Financial Management Improvement Program.—During fiscal 1978, JFMIP continued to concentrate on Government-wide improvements in accounting, auditing, cash management, and financial management. A study 8 1978 REPORT OF THE SECRETARY OF THE TREASURY on various aspects of auditing federally assisted programs was made and tentative findings and recommendations were released in an exposure draft. Draft statements were developed on the objectives of Federal agency financial statements. A project was initiated to prepare a financial and administrative checklist for new agencies to assure that all necessary actions in financial management matters are properly performed within a timely manner. A project on accounting for ADP costs and charging users for computer services was also initiated. As a continuing process, JFMIP engaged in sharing information on new techniques and new technology with Federal, State, and local governments through liaison meetings and various publications. In addition, JFMIP sponsored cash management workshops on letters of credit, in Washington, D . C , and in Boston. The seventh annual Financial Management Conference was held in February 1978, on the 'Tmpact of New Initiatives on Financial Management." DOMESTIC FINANCE Federal Debt Management In fiscal 1978, Treasury debt management operations continued to have a major impact on the Nation's credit markets as the Treasury refunded its maturing debt and raised a large amount of new cash. The bulk of this financing was accomplished in a period of rising prices and interest rates as inflation dominated the economic and financial scene during fiscal 1978. An added depressing factor was the decline of the dollar in foreign exchange markets. Over the course of the fiscal year both the Producer Price Index and the Consumer Price Index rose more than 8 percent. Likewise, both short and long interest rates moved steadily upward. In addition, the Federal Reserve, in tightening monetary policy in order to strengthen the international position of the dollar and to slow the growth in the money supply, increased the discount rate 6 times in fiscal 1978, while commercial banks increased the prime rate 10 times. In conducting its debt management operations, the Treasury had to make sure (1) that the extensive fundraising was done in the most efficient manner possible; (2) that the borrowings were done in such a way that fosters, rather than inhibits, economic stability and sustained growth of the economy; and (3) that new issues were geared toward creating a more balanced maturity structure, which in turn would facilitate the orderly managing of the debt in future years. Consistent with these principles, the Treasury's financing requirements were met primarily by auctions of regularized coupon securities. REVIEW OF TREASURY OPERATIONS V The auction technique allowed the price ofthe new securities to be determined by competitive bidding and thereby minimized the Treasury's financing costs and the underwriting pressures on primary dealer organizations. The regularized offerings of cycle notes and bonds provided the Treasury with regular access to the various maturity sectors of the market and, at the same time, allowed investors to plan on these expected offerings for their investment needs because of the reduction in market uncertainty concerning Treasury financing plans. Excluding bills, total Treasury financing amounted to $99.3 billion. This included nearly $43.2 billion to refund privately held maturing securities and $13.2 billion of new issues allotted to Federal Reserve banks and Govemment accounts. Total new cash raised from marketable and nonmarketable issues amounted to $63 billion, which was $ 10 billion more than in fiscal 1977. About $17 billion ofthe $63 billion in new cash was from nonmarketable issues with State and local government series sales providing a record $12.8 billion and E and H savings bonds another $4.4 billion. Other nonmarketable securities declined $0.2 billion. MARKET YIELDS AT CONSTANT MATURITIES 1973-1978^ 1973 1974 1975 1976 1977 1978 1/Monthly averages of daily market yields of public debt securities. Bank discount rates of Treasury bills. 10 1978 REPORT OF THE SECRETARY OF THE TREASURY Federal debt and Government-sponsored agency debt [In billions of dollars] Class of debt Increase, or decrease Sept. 30, 1976 Sept. 30, 1977 Sept. 30, 1978 . 206.1 131.1 57.3 13.2 217.9 148.4 58.9 18.3 225.4 168.5 65.9 25.4 7.5 20.1 7.0 7.1 407.7 443.5 485.2 41.7 70.8 .4 2.3 75.4 .4 2.2 79.8 .4 2.2 4.4 19.2 1.6 2.9 .1 20.5 1.3 11.4 2.8 20.9 .8 24.2 .1 .4 -.5 12.8 -2.7 97.3 114.0 128.4 14.4 128.6 1.1 634.7 140.1 1,2 698.8 153.3 4.6 771.5 13.2 3.4 4.1 3.6 2.0 1.1 .8 3.8 2.9 1.8 1.0 .8 3.2 2.1 1.8 .9 .9 .1 11.7 10.3 8.9 -1.4 646.4 709.1 780.4 71.3 19.1 30.7 16.6 10.8 3.9 .7 19.2 31.5 18.7 11.7 4.1 1.0 1.0 27.4 38.4 20.2 11.6 4.3 2.8 2.3 8.2 6.9 1.5 -.1 .2 1.8 1.3 81.8 87.2 107,0 \9.l (-) Public debt securities: Marketable public issues by maturity class: Within 1 year 1 to 5 years 5 to 20 years Over 20 years -. Total marketable issues Nonmarketable public issues: Series E and H savings bonds U.S. savings notes • Investment series bonds Foreign govemment series: Dollar denominated Foreign currency denominated State and local goverimient series Other nonmarketable debt Total nonmarketable public issues Goverimient account series (nonmarketable) Non-interest-bearing debt Total gross public debt Federal agency securities: Govemment National Mortgage Association Export-Import Bank of the United States Tennessee VaUey Authority Defense family housing Other ; Total Federal agency debt Total Federal debt Govemment-sponsored agency securities: Federal home loan banks Federal National Mortgage Association Federal land banks Federal intermediate credit banks Banks for cooperatives Farm Credit discount notes Farm Credit consolidated bonds Govemment-sponsored agency debt 72.7 1 U.S. savings notes fu-st offered in May 1967; sales discontinued after June 30, 1970. C h a n g e s in Federal securities The public debt issues ofthe Treasury, both marketable and nonmarketable, as well as the obligations issued by those Federal agencies in which there is an element of Federal ownership are known as Federal securities. The Federal agency securities included are the participation certificates ofthe Government National Mortgage Associatipn, the debt issues ofthe Export-Import Bank of the United States and the Tennessee Valley Authority, Postal Service bonds. Defense family housing mortgages, and various guaranteed issues of the Federal Housing Administration. REVIEW O F TREASURY 11 OPERATIONS At the close of fiscal 1978 there were $780.4 billion of Federal securities outstanding, compared with $709.1 billion a year ago. The public debt issues of the Treasury amounted to $771.5 billion, an increase of $72.7 billion for the fiscal year. Outstanding Federal agency securities totaling $8.9 billion were down $ 1.4 billion from the end of fiscal 1977. Treasury marketable securities outstanding amounted to $485.2 billion, an increase of $41.7 billion for the fiscal year, compared with the $35.8 billion increase in fiscal 1977. Treasury nonmarketable public issues rose by $ 14.4 billion to a level of $ 128.4 billion. The increase in fiscal 1978 was $2.3 billion less than in fiscal 1977. Special nonmarketable securities issued to State and local governments increased $12.8 billion, or 111 percent, while special nonmarketables issued to foreign official accounts declined $0.1 billion, or less than 1 percent. Savings bonds and notes increased $4.4 billion, compared with $4.6 billion a year earlier. The Government account series, or special nonmarketables issued only to Government accounts and trust funds such as the Federal old-age and survivors insurance trust fund, increased $13.2 billion, or 9 percent. Total nonmarketable Treasury securities increased $27.7 billion to a level of $281.8 billion at the end of fiscal 1978. In fiscal 1978, the securities issued by Government-sponsored agencies increased by $19.8 billion to a level of $107 billion. The $8.2 billion increase PRIVATE HOLDINGS OF MARKETABLE FEDERAL SECURITIES Federal Agency Securities 1973 1974 1975 1976 1977 1978 1973 1974 1975 Fiscal Years Jacket No. ,„ >.^lM^ illus. Width _ _ i i J _ _ _ Depth - i " D Sq. Ht. D Line D Broad D Paster Fi3 % D Duo Tone D Rescreen 1976 1977; 1978 12 1978 REPORT OF THE SECRETARY OF THE TREASURY in Federal Home Loan Bank securities and the $6.9 billion rise in Federal National Mortgage Association issues accounted for 76 percent ofthe increase in sponsored agencies' issues outstanding. The securities issued by Government-sponsored agencies are not included in Federal securities since these agencies are not owned in whole or in part by the Government. However, these privately owned and managed agencies are subject to some degree of Federal supervision. At the end of fiscal 1978 private investors held $99 billion of Government-sponsored agency securities. This accounted for $ 18.8 billion, or 95 percent, ofthe $ 19.8 billion increase in these agencies' outstanding issues. Holdings by the Federal Reserve System increased by $1 billion to a level of $8 billion. Nearly $46 billion in new cash was raised through marketable issues. Excluding the $20.5 billion of cash management bills issued and redeemed in the fiscal year, over $4.8 billion of the new cash was raised with Treasury bill issues. Regular issues of 13- and 26week bills accounted for $2 billion and 52-week bill issues raised $2.8 billion, close to $ 1.5 billion ofwhich was foreign add-ons. Coupon securities provided $41.1 billion of new cash, including a record $9.4 billion of foreign add-ons. Eleven 2-year cycle notes accounted for $12.5 billion while the four 4-year cycle notes brought in $ 11.4 billion. Two 5-year cycle note issues raised $5.3 billion and two issues of 15-year bonds raised almost $3.3 billion ofthe new cash. The quarterly refundings accounted for the remaining $8.6 billion of new money. In fiscal 1978, the Treasury took advantage of two increases in its "bond authority" to sell $8.8 billion of new bonds to the public. The bond authority applies to the limit on the amount of marketable Treasury bonds with coupon rates exceeding 4 1/4 percent held by private investors. Congress raised the ceiling from $17 to $27 billion in October 1977 and to $32 billion in August 1978. By the end of the fiscal year, the amount of bonds held by private investors rose by only $7.9 billion because of market purchases by the Federal Reserve of issues originally sold to the public. The increase in bond authority gave the Treasury more flexibility in its financing options and was a factor in the Treasury's successful efforts to lengthen the average maturity of the Treasury marketable debt held by private investors, which had increased by over 3 months to a level of 3 years 3 months by the end of the fiscal year. Estimated ownership Private investors held $495.5 billion of the $780.4 billion of Federal securities outstanding at the end of fiscal 1978. The remaining $285 billion was held by the Federal Reserve banks and Govemment accounts. Borrowings from the public, which includes the Federal Reserve as well as foreign and international investors, amounted to a net $59.1 billion, cpmpared with $53.3 billion in fiscal 1977. Private investors accounted for $48.7 billion, or 82 percent, of the $59.1 billion borrowed from the public while the Federal Reserve System absorbed the remaining $10.4 billion, or 18 percent. REVIEW O F TREASURY 13 OPERATIONS Individuals.—Public debt securities held by individuals increased by $5.5 billion in fiscal 1978, compared with $4.2 billion in fiscal 1977. Savings bonds accounted for $4.4 billion ofthe increase while marketable holdings rose $1.1 billion. On September 30, 1978, individuals held $109.3 billion ofpublic debt securities, of which $79.9 billion were savings bonds and notes and $29.4 billion were marketable and other Treasury securities. Individuals' holdings of Federal agency securities totaling $0.4 billion remained unchanged. Estimated ownership ofpublic debt securities on selected dates 1976-78 [Dollar a m o u n t s in billions] Change during fiscal 1978 June 30, 1976 Sept. 30, 1976 Sept. 30, 1977 Sept. 30, 1978 Estimated ownership by: Private nonbank mvestors: Individuals: ' Series E and H savings bonds U.S. savings notes 2 Other securities $69.2 .4 26.8 $70.5 .4 28.8 $75.2 .4 28.3 $79.5 .4 29.4 $4.4 Total individuals. 96.4 99.7 103.9 109.3 5.5 10.6 5.4 8.0 r39.3 69.8 24.3 30.0 11.7 5.7 8.3 38.7 74.6 25.3 32.8 r 14.3 ^d.2 ^9.7 r53.o r95.5 r23.3 r32.9 15.1 5.4 8.2 67.8 121.0 21.5 44.7 .8 —.8 —1.5 14.8 25.4 -1.8 11.8 283.8 296.9 r 338.8 393.0 54.2 92.5 94.4 149.6 r95.2 96.4 146.1 r99.8 104.7 155.5 95.3 115.3 168.0 -4.5 10.6 12.5 620.4 634.7 698.8 771.5 72.7 Insurance companies Mutual savings banks Savings and loan associations State and local govemments Foreign and intemational Corporations Miscellaneous investors 3 Total private nonbank investors Commercial banks Federal Reserve banks. Government accounts... Total gross debt outstanding 1.1 Percent Percent owned by: Individuals Foreign and intemational Other private nonbank investors.. Conunercial banks Federal Reserve banks Goverimient accounts Total gross debt outstanding.. 16 11 19 15 15 24 16 12 19 15 15 23 15 14 20 14 15 22 14 16 21 12 15 22 100 100 100 100 r Revised. * Less than $50 milhon. 1 Including partnerships and personal trust accounts. 2 U.S. savmgs notes first offered in May 1967; sales discontinued after June 30, 1970. 3 Includes nonprofit institutions, corporate pension trust funds, nonbank Govemment security dealers, certain Govemment deposit accounts, and Govemment-sponsored agencies. Insurance companies.—Insurance companies' holdings of public debt securities increased by $0.8 billion in fiscal 1978. This compares with a $2.7 billion increase in fiscal 1977. At the end of the fiscal year insurance companies held $15.1 billion of public debt securities. Federal agency securities held by insurance companies decreased $0.2 billion to a level of $0.3 billion. 14 1978 REPORT OF THE SECRETARY OF THE TREASURY Savings institutions.—In fiscal 1978, savings and loan associations liquidated $1.5 billion ofpublic debt securities, compared with a $1.5 billion increase in holdings in fiscal 1977. Holdings of Federal agency securities increased $0.2 billion. On September 30, savings and loan associations held $8.2 billion of public debt securities and $0.4 billion of Federal agency securities. Mutual savings banks also decreased their holdings ofpublic debt securities as they liquidated $0.8 billion in fiscal 1978, compared with a $0.5 billion increase in fiscal 1977. Holdings of Federal agency securities amounted to $0.5 billion, an increase of $0.1 billion for the year. State and local governments.—PubMc debt securities held by State and local governments increased by $14.8 billion in fiscal 1978. This was $0.5 billion more than the increase in fiscal 1977. Most ofthe increase was concentrated in their holdings of special nonmarketable issues designed especially for these governmental units to invest the proceeds from the sale of lower coupon issues that are to be used to "advance refund" higher coupon securities. Holdings of these special issues increased by a record $ 12.8 billion as State and local units stepped up their "advance refunding" issues to beat the September 1 deadline when new Treasury regulations restricting arbitrage opportunities would go into effect. Holdings of Federal agency issues fell by $0.9 billion to a level of $2.1 billion. Over $0.4 billion of the decline was in Government National Mortgage Association participation certificates. Foreign and international.—Foreign investors increased their holdings of public debt securities by a record $25.4 billion after posting a $20.5 billion increase a year earlier. The increase in holdings was all due to acquisitions of marketable securities, $10.8 billion of which was from foreign add-ons. OWNERSHIP OF FEDERAL SECURITIES September 30, 1978 $Bil. 800 Total Government Accounts 700 600 500 Federal Reserve Commercial Banks 400 ^121.3 300 200 100 0 Foreign & International ^ ^ Private Domestic Nonbank Investors A P 109.7;^ Individuals Savings Institutions \//)//A 9.91'P^K'21 9!^ All Other H J REVIEW O F TREASURY OPERATIONS 15 Foreign add-ons represent additional amounts of publicly offered marketable securities sold to foreign official accounts at the average price. Actually, over the first half of the fiscal year foreign and intemational investors acquired $29 billion of public debt securities, part of which was acquired in foreign central bank support operations of the dollar. Holdings peaked in March at $ 124.5 billion and since then have declined to $ 121 billion by the end of fiscal 1978. At that level foreign and international investors became the largest holders of public debt securities among private investors. Federal agency securities held by foreign investors declined by $0.2 billion to a level of $0.4 billion. Nonfinancial corporations.—Corporations continued to liquidate public debt securities in fiscal 1978 and reduced their holdings by $1.8 billion, compared with a reduction of $2 billion in fiscal 1977. On September 30,1978, corporations held $21.5 billion of public debt securities. Federal agency securities held by corporations amounted to $0.4 billion after a decline of $0.2 billion in fiscal 1978. Other private nonbank investors.—Public debt securities held by other private nonbank investors increased by $ 11.8 billion in fiscal 1978, compared with an increase of $0.1 billion in fiscal 1977. By contrast, holdings of Federal agency issues increased by $0.4 billion to an end of fiscal year level of $1.4 billion. Commercial banks.—Unlike fiscal 1977, when bank loan demand was low and banks had an incentive to take longer maturities, commercial banks liquidated $4.5 billion of public debt securities to help meet the high loan demand from business and consumers. By contrast, in fiscal 1977 commercial banks added $4.6 billion ofpublic debt securities. On September 30, 1978, commercial banks held $95.3 billion ofpublic debt securities. Federal agency securities held by commercial banks fell by $0.3 billion to a level of $ 1.4 billion at the end of fiscal 1978. Federal Reserve System.—The Federal Reserve System increased its holdings ofpublic debt securities $10.6 billion in fiscal 1978, compared with $8.3 billion in fiscal 1977. Holdings of Federal agency securities declined $0.1 billion. On September 30, 1978, the System held $115.3 billion ofpublic debt securities and $0.2 billion of Federal agency securities. Government accounts.—Holdings of public debt securities by Government accounts increased $12.5 billion in fiscal 1978, compared with an increase of $9.4 billion in fiscal 1977. Special nonmarketable securities (Govemment account series) held by these accounts increased $13.2 billion while holdings of marketable securities decreased $0.7 billion. Federal agency securities held by Government accounts declined $0.3 billion. At the end of fiscal 1978, Government accounts held $168 billion of public debt securities and $1.5 billion of Federal agency securities. 16 1978 REPORT OF THE SECRETARY OF THE TREASURY Financing operations On September 30, 1977, the temporary debt limit of $700 billion expired, leaving the Treasury without the authority to issue new debt obligations. In the absence of new debt legislation, the debt ceiling reverted to its "permanent" statutory limit of $400 billion until October 4, when Congress passed legislation increasing the temporary debt limit to $752 billion through March 31, 1978.' During the interim, the Treasury was able to handle its short-term cash needs without difficulty because ofthe large $19.1 billion operating cash balance at the end of fiscal 1977. The economy looked strong at the start of fiscal 1978. Early October reports of a decline in unemployment and an increase in the index of leading economic indicators for September provided evidence of a vigorous economy. In addition, industrial production and housing continued to move along at a brisk pace. Nevertheless, inflation and recent large increases in the money supply were the major worries of market participants. On September 27 the Treasury announced plans to sell a 5-year 1-month note to raise $2.5 billion of new cash. The October 5 auction drew over $3.7 billion of tenders from the public including $0.2 billion submitted on a noncompetitive basis. Foreign add-ons of $0.2 billion increased the issue size to $2.7 billion and made it the largest amount of 5-year notes sold since the Treasury instituted this cycle at the beginning of 1976. Commercial banks received $1 billion, or 37 percent, of the notes and dealers received $0.8 billion, or 30 percent. A slightly higher than expected 7.18-percent average yield led to the assignment of a 7 1/8 percent coupon. The issue declined in price in the secondary market and by the time the notes were issued on October 17, they were bid at a price yielding 7.33 percent. Meanwhile, on October 12, the Treasury announced it would sell $3.5 billion of 2-year notes to refund $2.9 billion of privately held notes due October 31 and raise $0.6 billion of new cash. The issue was well received at the auction on October 18. Almost $0.6 billion of noncompetitive tenders were included in the $6.2 billion of tenders received from the public and $0.6 billion of foreign add-ons brought the issue size up to $4.1 billion and new cash to $1.2 billion. Commercial banks took $1.8 billion, or 44 percent, ofthe issue while dealers took $0.8 billion, or 20 percent. The average yield of 7.27 percent was 53 basis points above the yield at the previous 2-year note sale and resulted in a 7 1/4 percent coupon. The new notes moved to a premium in when-issued trading activity. Both short- and long-term rates moved higher during October. The effective Federal funds rate rose about 35 basis points to almost 6 1/2 percent as the Federal Reserve attempted to slow monetary growth. The prime rate was increased twice in October, first to 7 1/2 percent and then to 7 3/4 percent; and in late October, the Federal Reserve raised the discount rate 1/4 percent t See exhibit 6. REVIEW OF TREASURY OPERATIONS 17 to the 6-percent level. In the Treasury bill market, 3-month bill rates rose above 6 percent to reach their highest levels since late 1975. In the coupon market, intermediate and long Treasury rates rose from about 15 to 40 basis points in terms of monthly averages, with the larger increases recorded for the shorter maturities causing a flattening of the yield curve. Corporate and municipal bond rates climbed about 10 basis points during the month. Data released covering the month of October revealed the basically healthy performance of the economy. Personal income rose by a large $20.2 billion seasonally adjusted annual rate, while industrial production rose 0.3 percent seasonally adjusted. Housing starts posted a healthy rise along with retail sales. Employment was up but unemployment rose as well. However, inflationary pressures persisted as wholesale prices rose a rather high 0.8 percent, seasonally adjusted, while consumer prices rose by a moderate 0.3 percent. The large increase in business loans by commercial banks was indicative ofthe strength of credit demands. Within this framework of strong economic activity, on October 21, a slightly larger than expected quarterly refunding package of three securities totaling $6.5 billion was announced by the Treasury. The new securities offered were: $3 1/4 billion of 3-year notes, $2.0 billion of 10-year notes, and $1 1/4 billion of 30-year bonds. The Treasury sought to raise $4.1 billion in new cash while refunding $2.4 billion of privately held notes due November 15. The 10-year note represented the first time such an issue was sold in a yield auction. The two previous 10-year note issues were sold at fixed prices by the subscription method in the May and August 1976 quarterly refunding operations. The 3-year note auction on October 28 attracted strong bidding interest. About $8.6 billion of tenders were submitted by the public including over $1.1 billion of noncompetitive tenders. The issue size grew to almost $4 billion when $0.7 billion of add-ons were sold to foreign accounts. The average yield was 7.24 percent and the Treasury assigned a 7 1/8 percent coupon to the issue. Commercial banks took $1.9 billion, or 47 percent, of the notes; dealers received $0.7 billion, or 18 percent; and individual investors received $0.3 billion, or 7 percent. Since the Federal Reserve usually remains neutral during a refunding, some confusion and apprehension existed over the Federal Reserve's apparent tightening maneuvers at the time ofthe refunding. Nevertheless, the 10-year notes auctioned on November 1 attracted strong bidding interest. This was the Treasury's first use of this maturity length since August 1976. About $4.3 billion of tenders from the public were received for the $2 billion of notes, including $0.3 billion of noncompetitive tenders. A 7 5/8 percent coupon was set on the basis of an average yield of 7.69 percent for the notes. Dealers received $0.8 billion, or 39 percent, of the issue; commercial banks were allotted $0.6 billion, or 32 percent; and State and local pension and retirement funds took $0.2 billion, or 10 percent. 18 1978 REPORT OF THE SECRETARY OF THE TREASURY The 30-year bond auction on November 2 also attracted a good level of interest with tenders totaling $2.9 billion received from the public. Of the almost $1.3 billion accepted, $0.1 billion were noncompetitive tenders. The average yield was 7.94 percent which resulted in setting a 7 7/8 percent coupon on the issue. Dealers and commercial banks each received $0.5 billion which accounted for 82 percent ofthe bonds. In all, over $7.2 billion of new securities were sold to the public in this quarterly financing. Of this total, almost $4.9 billion represented new cash. The Treasury's announcement, on November 3, of an 8-day issue of cash management bills was expected by the market as the Treasury had announced earlier that it anticipated an offering of cash management bills to get by a low cash point in early November. Moreover, the Treasury also announced that it might raise new cash by additions to the regular bills. About $2.5 billion of cash management bills were issued on November 7 as an addition to 52-week bills maturing November 15. The minimum acceptable tender was $ 10 million. With good demand, evidenced by the $6.4 billion of tenders received at the November 4 auction, an average rate of 6.39 percent evolved. Around midmonth an offering of $3 3/4 billion of 2-year notes to refund $2.5 billion of privately held notes due November 30 and raise $ 1 1/4 billion of new money was announced by the Treasury on November 14. This was the largest 2-year note offering since the cycle was started in late 1972. Although the amount of new cash was above market expectations, the November 22 auction encountered good bidding interest. Almost $3.8 billion ofthe $8.7 billion of tenders from the public was accepted including $0.7 billion tendered noncompetitively. In addition, official foreign and intemational accounts were allotted an unprecedented $0.9 billion of add-ons, raising the size ofthe issue to $4.7 billion and the new cash figure to $2.2 billion. Commercial banks were allotted $1.8 billion, or 39 percent, ofthe notes while dealers took $1.1 billion, or 23 percent. A 7.13-percent average auction yield led the Treasury to assign a 7 1/8 percent coupon rate to the issue. November 23 brought the expected announcement of the offering of $3 billion in 139-day Treasury bills to be issued as an addition to the outstanding 26-week bills due April 20, 1978. The minimum acceptable tender was $10,000 for the bills which were auctioned on November 29. About $7.4 billion of tenders were received and $3 billion were accepted including $14 million of noncompetitive bids. Good demand for the bills resulted in an average discount rate of 6.27 percent, just below the bid rate on the outstanding 26-week bills of the same maturity. As a result ofthe financing operations during November, the average length of the privately held portion of the marketable Treasury debt rose by nearly 2 months to a level of 3 years by the end of the month. On November 30, the Treasury auctioned $2 3/4 billion of 4-year 1-month notes, to be dated December 7. This was the largest offering for a 4-year cycle 19 REVIEW OF TREASURY OPERATIONS note to date. The auction attracted $5.4 billion of tenders from the public, of which $2.8 billion was accepted including $0.4 billion of noncompetitive tenders. Almost $0.7 billion of foreign add-ons, also a historic high for a 4-year cycle note, were accepted and this brought total new cash raised to almost $3.5 billion. Commercial banks received $1.4 billion, or 41 percent, ofthe issue while dealers accounted for $0.6 billion, or 18 percent. A 7.31 -percent average yield, almost 50 basis points above the previous 4-year note auctioned in August 1977, led to a 7 1/4 percent coupon rate. The new cash raised with this latest 4-year cycle note brought the total raised by the Treasury in the coupon sector to $14.4 billion for the first quarter of fiscal 1978. About $3.3 billion was from 2-year cycle notes, while $6.2 billion was from 4- and 5-year cycle notes. In addition, $4.9 billion of new cash was raised in the quarterly refunding. Over the course ofthe quarter, $7.8 billion of maturing coupons were refunded. Offerings of marketable Treasury securities excluding refunding of regular bills, fiscal 1978 [In millions of dollars] Allotted to private investors Date Description 1977 NOTES AND BONDS Oct. 1 ...1 Oct. 17 ...7 Oct. 31 ...7 Nov. 15... ...7 Nov. 15... ...7 Nov. 15... ...7 1/2 percent 1/8 percent 1/4 percent 1/8 percent 5/8 percent 7/8 percent 2002-2007 Nov. 30... ...7 1/8 percent ...7 1/4 percent Dec. 7 note, Oct. 1, 19821 note, Nov. 15, 1982 note, Oct. 31, 1979 note, Nov. 15, 1980 note, Nov. 15, 1987 bond, Nov. 15, : note, Nov. 30, 1979 note, Dec. 31, 1981 For cash For refunding Allotted to Federal Reserve and Govemment Total accounts 2 .... .... .... .... 2,737 1,178 2,664 1,350 .... .... Average auction yield (percent) 2 2,737 4,334 4,600 2,387 7.18 7.27 7.24 7.69 2,938 1,311 664 218 625 373 841 2,163 3,452 414 2,516 240 112 1,495 4,791 3,452 7.94 7.13 7.31 1,164 1,501 1,364 857 890 2,428 328 2,239 2,036 2,113 272 1,000 1,200 3,920 1,501 3,875 3,893 4,203 7.20 7.95 7.55 7.53 7.88 372 1,705 2,853 845 882 2,062 771 53 2,850 312 2,025 3,820 2,853 4,007 8.23 7.70 7.89 7.56 2,146 2,548 428 1,600 3,180 4,148 7.94 7.80 8.29 1,502 2,390 895 177 2,537 794 2,480 1,630 1,908 375 1,200 1,434 2,397 3,099 2,594 4,407 1,768 4,164 4,110 4,838 8.47 8.09 8.27 8.32 8.63 8.61 8.46 8.36 661 595 2,501 842 2,749 600 200 2,103 3,544 2,501 8.43 8.38 8.41 42 927 43,187 13,207 99,321 1978 ...7 1/8 percent note, Dec. 31, 1979 Jan. 3 ....7 7/8 percent bond, Feb. 15, 1993 Jan. 6 Jan.31 ...7 1/2 percent note, Jan. 31, 1980 Feb. 15.... ...7 1/2 percent note. May 15, 1981 Feb. 15.... ...8 percent note, Feb. 15, 1985 Feb. 15...,....8 1/4 percent bond. May 15, 2006-2005 Feb. 28... ....7 5/8 percent note, Feb. 29, 1980 Mar. 6 ....7 7/8 percent note. Mar. 31, 1982 M a r . 3 1 . . ....7 1/2 percent note, Mar. 31, 1980 Apr. 1 ....1 1/2 percent note, Apr. 1, 1983 i Apr. 5 ....7 7/8 percent note, May 15, 1983 ....7 3/4 percent note, Apr. 30, 1980 Mayl May 15... ....8 1/4 percent note. May 15, 1988 May 15... ....8 3/8 percent bond, Aug. 15, 1995-2000. May 31... ....8 percent note. May 31, 1980 June 7 ....8 1/4 percent note, June 30, 1982 June 30... ....8 1/4 percent note, June 30, 1980 July 11.... ....8 5/8 percent bond, Aug. 15, 1993 July 31.... ....8 1/2 percent note, July 31, 1980 Aug. 15.. ....8 3/8 percent note, Aug. 15, 1981 Aug. 15 .. ....8 1/4 percent note, Aug. 15, 1985 Aug. 15 .. ....8 3/8 percent bond, Aug. 15, 2003-2008 Aug. 31 .. ....8 3/8 percent note, Aug. 31, 1980 Sept. 6.... ....8 3/8 percent note, Sept. 30, 1982 Total notes and bonds .... .... .... .... .... .... 2,573 606 532 2,594 1.076 1,768 1,309 1,280 1,496 C) 20 1978 REPORT OF THE SECRETARY OF THE TREASURY Offerings of marketable Treasury securities excluding refunding of regular bills, fiscal 1 9 7 8 — C o n . [In millions of dollars] Allotted to private investors Date Description For cash For refunding Allotted to Federal Reserve and Govemment accounts Total Average auction yield (percent) BILLS (MATURITY VALUE) Change in offerings of regular bills: 1977 October-December 1,986 1,986 laryil-Jui April-June July-September 1,567 113 1,179 1,567 113 1,179 4,845 4,845 2,505 2,505 3,004 3,004 1978 Total change in regular bills Other bill offerings: 1977 Nov. 7.... Dec. 2 6.390 percent, 8-day, maturing Nov. 15, 1977 6.273 percent, 139-day, maturing Apr. 20, 1978 1978 Mar. 8 Apr. 3 June 6 6.346 percent, 43-day, maturing Apr. 20, 1978 6.645 percent, 24-day, maturing Apr. 27, 1978 7.110 percent, 20-day, maturing June 22, 1978 3,004 3,004 6,006 6,006 6,005 6,005 Total other bill offerings 20,524 20,524 Total offerings 68,296 43,187 13,207 124,690 I Issued in exchange for 2 3/4 percent Treasury bonds, investment series B-1975-80. • Less than $500,000. In the bill market, the Treasury raised $5 billion of net new cash during the first quarter of fiscal 1978; $3 billion from 139-day bills and $0.6 billion from three 52-week bill auctions, all of which was from foreign add-ons. Finally, $1.4 billion of new cash was raised from regular weekly 13- and 26-week bill auctions. The November 5 issues of 13- and 26-week bills marked the first time since March 1976 that the Treasury had used the weekly bill auctions as a source of new cash. The total amount of net new money, $19.4 billion, raised from marketable securities during the October-December quarter was the highest since the January-March 1976 quarter when the Treasury raised $22.8 billion. Included in the $19.4 billion of new cash for the quarter was $3.7 billion of foreign addons, $3.1 billion of which was the most ever raised from coupon issues. REVIEW OF TREASURY OPERATIONS 2 1 From nonmarketable sources, about $4.1 billion of additional new cash was raised during the quarter, nearly $2.4 billion was from State and local series, while foreign nonmarketables provided $0.5 billion and savings bonds $1.2 billion. The signs of economic strength exhibited in October continued to improve during November and December. The seasonally adjusted unemployment rate fell in both months and stood at 6.4 percent by yearend—the lowest level in 3 years. Consumer spending provided a boost throughout the quarter as personal income posted large gains. Residential construction continued to be another source of strength, and demand for credit was high in almost all areas including commercial bank loans. Most short-term rates rose only slightly during November and December. Intermediate- and long-term rates eased slightly lower in November but rose in December. Intermediate and long Treasury security yields ended the calendar year about 20 basis points higher than late October levels. Corporate bond rates also rose 20 basis points during the period while municipal bond rates climbed by 5 to 10 basis points. Rates on new conventional mortgages edged higher also. The first two coupon issues in January had been announced and sold during December. On December 13, the Treasury had announced an offering of $3 billion of 2-year notes to be dated January 3, 1978, to refund $2.4 billion of privately held maturing notes and raise $0.6 billion of new cash. Expectations of higher rates ahead contributed to the weakness of bidding interest at the December 21 auction as only $4.2 billion of tenders from the public were received. About $3 billion was accepted including $0.5 billion in noncompetitive tenders. A 7 1 /8 percent coupon was assigned to the notes following the 7.20-percent average yield result in the auction. New cash totaled almost $1.2 billion with the addition of $0.6 billion of foreign add-ons. Commercial banks were allotted $1.4 billion, or 39 percent, ofthe notes and dealers took $0.9 billion, or 26 percent. Market uncertainty as to whether the Treasury would use a 5-year or 15year issue to fill the early January slot was resolved in favor of the latter with the announcement on December 19 of an offering of 15-year 1-month bonds to raise $1.5 billion of new cash. Market reaction was mild and a cautious market atmosphere prevailed up to the December 27 auction in anticipation of further interest rate increases, the appointment of a new Chairman of the Federal Reserve Board, and uncertainty conceming the yield needed to attract investors to this maturity area which was seldom used by the Treasury. However, a good interest did surface for the auction as $3 billion of tenders were received from the public including $0.1 billion submitted noncompetitively. Dealers were awarded $0.6 billion, or 40 percent, of the bonds while commercial banks took another $0.6 billion, or 37 percent. Corporations took $0.3 billion, or 18 percent. This was about three times what they received in the June 1977 15-year bond auction. The average yield was 7.95 percent and a 7 7/8 percent coupon was assigned to the issue compared with a 7.29 percent 22 1978 REPORT OF THE SECRETARY OF THE TREASURY coupon on an issue identical in size and maturity auctioned 6 months earlier. Later, on January 12, the Treasury announced a $3 1/4 billion 2-year note to refund $2.2 billion of similar notes privately held and to raise new cash. The note was to be dated January 31. A good bidding interest developed at the January 18 auction as $6.7 billion of tenders from the public were submitted and $3.3 billion were accepted including $0.7 billion of noncompetitive tenders. About $0.3 billion of foreign add-ons increased the issue to $3.6 billion and net new money to $1.4 billion. Commercial banks received $1.7 billion, or 48 percent, ofthe notes and dealers took $0.9 billion, or 24 percent. The 7.55-percent average yield was the highest for a 2-year note since the October 16, 1975, auction which produced an identical yield. The notes were assigned a 7 1/2 percent coupon. One of the biggest concems at the start of the new year was the decline of the dollar in foreign exchange markets caused mainly by the large trade and current account deficits posted by the United States in recent months. So, early in January the Treasury and Federal Reserve jointly announced that the Treasury's Exchange Stabilization Fund and a $20 billion currency swap network of agreements among the Federal Reserve and other central banks would be utilized to keep the foreign exchange markets orderly. Market participants reacted favorably to this news. Also in early January the Federal Reserve raised the discount rate 1/2 percent to 6 1/2 percent, a move motivated in part by the disorders in the foreign exchange markets. Other short-term rates moved up as well, as the Federal funds rate rose to 6 3/4 percent and the prime rate increased to 8 percent. Also, rates on commercial paper due in 90 to 119 days rose about 15 basis points in January while 3-month Treasury bill rates climbed about 40 basis points. In the coupon area, intermediate- and long-term Treasury rates rose 20 to 30 basis points above the levels prevailing at the end of 1977. Municipal bond yields edged slightly higher while new Aa corporate bonds yielded about 20 basis points higher in late January than the month before. Meanwhile, the economy had slowed up slightly in January due, in part, to the severe winter weather. Residential construction and industrial production fell but the drop in unemployment indicated underlying strength in the economy. The major economic problems were the renewed weakness of the dollar in foreign exchange markets and the outlook of increased inflation. Nevertheless, the January 25 announcement of the Treasury's quarterly refunding package was received quite favorably. The amount of new cash to be raised, $1.7 billion, was modest and $5 billion of privately held maturing notes were to be refunded. The inclusion of a $2.5 billion, 3 1/4-year note represented a departure from the usual 3-year length as the short note issue. This was done because of the sizable amount of notes already maturing on February 15, 1981. The intermediate issue was $3 billion of 8 percent 7-year notes to be sold at a price auction, the first of this kind since November 1974. The Treasury opted for this auction technique to elicit broader investor interest to what was considered a slightly larger intermediate issue than usual. REVIEW OF TREASURY OPERATIONS 23 This was the first time since August 1976 that the intermediate-term note issue size was larger than the short anchor issue in a quarterly refunding. Finally, the 8 1/4 percent bonds of May 15, 2000-05 were to be reopened in the amount of $1 1/4 billion, also in a price auction. The objective in enlarging this issue was to improve its currently limited tradability. Only about $0.9 billion of the bonds were in private hands. Market participants were optimistic approaching the auctions due to the market's good technical position and the relative stability of interest rates and Federal Reserve System policy at the time. The 7.53-percent average in the 3 1 /4-year note auction was a little below yields available on some outstanding issues in this maturity range. A 7 1/2 percent coupon was set in the January 31 yield auction. About $2.6 billion ofthe $5.1 billion ofpublic tenders was accepted, including $1.2 billion of noncompetitive tenders. Foreign add-ons totaling $0.3 billion increased the issue size to $2.9 billion. Investor classes taking the largest portions of the notes were commercial banks with $ 1.4 billion, or 50 percent; dealers with $0.5 billion, or 16 percent; and individuals with $0.3 billion, or 10 percent. Bidding interest at the February 1 price auction of 8 percent notes was routine. Of the $4.9 billion of tenders submitted by the public, $3 billion was accepted including $1.1 billion of noncompetitive tenders. Commercial banks were allotted $1.3 billion, or 42 percent, ofthe notes and dealers received $0.9 billion, or 31 percent. In addition, individuals, apparently attracted by the 8 percent coupon, took $0.5 billion, or 16 percent, of the issue. The average auction price of 100 21/32 corresponded to a yield of 7.88 percent. The 8 1 /4 percent bonds of 2000-05 sold at the February 2 price auction at an average yield of 8.23 percent, close to the yield available on this issue in the secondary market. Almost $1.3 billion of the $3.4 billion of public tenders was accepted including less than $0.2 billion of noncompetitive tenders. Dealers took $0.7 billion, or 57 percent, of the bonds while commercial banks took $0.2 billion, or 19 percent, and State and local pension funds took $0.1 billion, or 8 percent. Including the $0.3 billion of foreign addons to the 3 1/4-year note, over $2.1 billion of new cash was raised in the quarterly refunding. The prices of all three new issues moved to a discount in when-issued trading as investor demand for the issues proved less than anticipated by some and caution surfaced over the possibility of a firmer policy stance by the Federal Reserve System. February 10 brought the expected announcement of a 3 1/4 billion, 2-year note offering to be issued February 28. The notes were to refund $2.1 billion of maturing privately held 2-year notes and raise $ 1.2 billion of new cash. The February 16 auction drew $5.2 billion of tenders of which $3.3 billion was accepted including $0.5 billion of noncompetitive tenders. About $0.5 billion of foreign add-ons increased the issue size to $3.8 billion and the new cash figure to $ 1.7 billion. Commercial banks received $ 1.6 billion, or 42 percent, ofthe issue while dealers were allotted $0.8 billion, or 21 percent. A 7.70percent average yield, 15 basis points above the yield in January's 2-year note 24 1978 REPORT OF THE SECRETARY OF THE TREASURY auction, led to the assignment of a 7 5/8 percent coupon. Demand was good for the notes, so in when-issued trading the notes sold at a premium. Earlier, on February 15, the Treasury had announced its regular 4-year cycle note auction which \vas to be dated March 31, 1982. The February 22 auction for $2.5 billion of new cash drew good bidding interest with over $5.8 billion of tenders submitted by the public including $0.3 billion of noncompetitive tenders. An additional $0.3 billion of foreign add-ons increased the size ofthe issue to nearly $2.9 billion. Commercial banks took $ 1.3 billion, or 46 percent, ofthe notes and dealers picked up $0.8 billion, or 29 percent, in the auction. The 7.89-percent average yield was almost 60 basis points higher than the yield at the most recent 4-year cycle note auction 3 months back. A 7 7/8 percent coupon was set on the issue, which immediately traded at higher price levels in when-issued trading. Disposition of marketable Treasury securities excluding regular bills, fiscal 1978 [In millions of dollars] Securities Date of . retirement Description and maturing date 1977 Oct. 1 Oct. 31 Nov. 15 Nov. 30 Dec. 31 Issue date Redeemed Exchanged for cash or for new carried to issue at matured debt maturity Total NOTES AND BONDS 1 1/2 7 1/2 7 3/4 6 5/8 7 1/4 percent percent percent percent percent note, note, note, note, note, Oct. 1, 1977 Oct. 31, 1977 Nov. 15, 1977 Nov. 30, 1977 Dec. 31, 1977 Oct. 1, 1972 Oct. 31, 1975... Nov. 15, 1974.. Mar. 3, 1976.... Dec. 31, 1975 .. 17 2,938 2,392 2,516 2,437 3/8 percent note, Jan. 31, 1978 1/4 percent note, Feb. 15, 1978 percent note, Feb. 28, 1978 3/4 percent note. Mar. 31, 1978 l/2percent note, Apr. 1, 1978 1/2 percent note, Apr. 30, 1978 1/8 percent note. May 15, 1978 7/8 percent note. May 15, 1978 1/8 percent note, May 31, 1978 7/8 percent note, June 30, 1978 7/8 percent note, July 31, 1978 3/4 percent note, Aug. 15, 1978 5/8 percent note, Aug. 15, 1978 5/8 percent note, Aug. 31, 1978 1/4 percent note, Sept. 30, 1978 Feb. 2, 1976 Feb. 15, 1971.., Oct. 7, 1975 Mar. 31, 1976., Apr. 1, 1973..., Niay 17, 1976., Feb. 18, 1975.., Aug. 15, 1975., June 1, 1976..., June 30, 1976., July 30, 1976... May 15, 1974., May 15, 1975., Aug. 31, 1976., Sept. 30, 1976., 2,239 5,418 2,062 2,850 218 1,238 112 328 17 3,156 3,630 2,628 2,765 1978 Jan.31 Feb. 15 Feb. 28 Mar.31 Apr. 1 Apr. 30 May 15 May 15 May 31 June 30 July 31 Aug. 15 Aug. 15 Aug. 31 Sept 30 6 6 8 6 1 6 7 7 7 6 6 8 7 6 6 Total coupon securities 15 2,146 3,006 2,882 2,390 2,537 2,480 1,825 2,558 2,749 2,684 48,141 272 200 511 2,511 8,389 2,115 3,162 15 2,574 3,960 4,423 2,567 3,331 2,855 2,462 5,155 2,949 3,195 13,718 61,859 2,971 53 312 428 954 1,541 177 794 375 637 2,597 BILLS 1977 Nov. 15.. Other: 6.390 percent (8-day) Nov. 7, 1977.. 2,505 2,505 6.273 6.346 6.645 7.110 Dec. 2, Mar. 8, Apr. 3, June 2, 3,004 3,004 6,006 6,005 3,004 3,004 6,006 6,005 1978 Apr. Apr. Apr. June 20.. 20.. 27.. 22., percent percent percent percent (139-day) (43-day) (24-day) (20-day) Total other bills.. Total securities.. 1977 .. 1978.. 1978 .. 1978 .. 20,524 20,524 68,665 , 13,718 82,383 REVIEW OF TREASURY OPERATIONS 25 The harsh winter weather continued into February but its impact on the economy did not appear too drastic. Industrial production showed a small increase, but was not enough to offset January's decline. The seasonally adjusted annual rate of housing starts was also higher than the January rate but was much lower than the rates of other recent months. The same was true with retail sales. However, credit demands continued high as commercial bank loans and consumer installment credit posted increases. The unemployment rate fell to 6.1 percent despite the long coal miners strike. Probably the worst news for the month of February was the record $5.5 billion U.S. balance of trade deficit. To help meet its seasonal cash needs, the Treasury announced the offering of a 43-day cash management bill of $3 billion. There was very little market reaction to the March 1 announcement. The bills were to be issued March 8 as an addition to the outstanding bills maturing on April 20. This raised the total amount of bills maturing on that date to $ 11.7 billion. Only competitive tenders totaling $3 billion in minimum amounts of $1 million were accepted from the $7.3 billion ofpublic tenders received in the March 3 auction. A 6.35percent average discount rate resulted in the auction. Subsequently, on March 15, the Treasury announced a $3 billion issue of 2-year notes to refund $2.8 billion of privately held notes due March 31 and raise $0.2 billion of new cash. Ofthe $6.1 billion of tenders from the public, $3 billion was accepted including $0.7 billion of noncompetitive tenders. Another $0.7 billion of foreign add-ons increased the size ofthe issue to $3.7 billion. Commercial banks were allotted $1.9 billion, or 51 percent, of the notes. Dealers took only $0.3 billion, or 8 percent, while individuals and corporations each received $0.2 billion, or 6 percent. The good bidding interest in the March 22 auction resulted in a 7.56-percent average yield, 14 basis points below the last 2-year note auction. A 7 1/2 percent coupon was set. Since this coupon was identical to that of an outstanding 4-year note issue also maturing on March 31, 1980, the new issue was considered an addition to the 4-year notes. The Treasury had anticipated this possibility and had indicated in the original announcement that the two issues would be consolidated effective March 31, 1978, if a 7 1/2 percent coupon resulted in the auction. The auction of this 7 1/2 percent 2-year note was the last coupon issued in the first quarter of 1978. For the quarter as a whole, the Treasury raised $11.6 billion of new cash with coupons, $5.1 billion ofwhich came from four 2-year cycle notes issued during the quarter. The quarterly 4-year cycle note raised $2.9 billion while the 15year bond issue accounted for $1.5 billion. The quarterly refunding issues raised an additional $2.1 billion of new cash. The total of foreign add-ons included in the notes and bonds issued during the quarter amounted to $2.7 billion. Looking at the bill market in the January-March quarter, $4.6 billion of new cash was raised including $3 billion from the March 1, 43-day cash management bill. About $ 1.2 billion was raised from regular 13- and 26-week 26 1978 REPORT OF THE SECRETARY OF THE TREASURY issues during the second half of February and the month of March. Foreign add-ons to 52-week bills accounted for $0.4 billion of new cash during the quarter. In all, the Treasury raised $16.1 billion from marketable issues during this period compared with $ 19.4 billion in the previous quarter. In addition, about $14.6 billion of privately held coupon maturities was refunded during the quarter. New cash raised in the nonmarketable sector in the January-March quarter amounted to $5.1 billion, $2.5 billion of which was in the State and local government series, while $1.4 billion was received from the foreign government series. Series E and H savings bonds accounted for another $1.2 billion. After their initial rise in January, most short-term interest rates fluctuated within fairly narrow ranges during February and March. The Federal funds rate continued to hover around 6 3/4 percent, its level since mid-January. Rates on commercial paper due in 90 to 119 days also remained at the level of 6 3/4 percent. However, short-term Treasury bill rates actually declined since January, reflecting in part the strong demand by foreign investors seeking to halt the appreciation of their currencies against the U.S. dollar. Intermediateand long-term Treasury rates posted net increases of from 10 to 15 basis points between late January and the end of March. These rates rose through most of February and then declined in early and mid-March, only to begin climbing again in late March. Corporate and municipal bonds ended March trading at about the same price levels as in late January, but mortgage rates continued to climb steadily during the January-March period. Around the end ofthe month, on March 28, the Treasury auctioned a 5-year 1-month note that had been announced on March 21. This announcement to raise $2.5 billion of new cash had been expected. About $2.5 billion of the notes, which were to be dated April 5, was accepted from the $5.6 billion of public tenders. Nearly $0.4 billion was noncompetitive tenders. Foreign addons of $50 million increased the issue size to almost $2.6 billion. Commercial banks took $1.3 billion, or 49 percent, ofthe issue while dealers' allotments totaled $0.6 billion, or 25 percent. Routine bidding interest resulted in an average yield of 7.94 percent and a 7 7/8 percent coupon rate was assigned to the notes. Both the average yield and the coupon were the highest since the Treasury began selling 5-year cycle notes early in 1976. The issue traded at about the same price levels as the auction average in when-issued activity., On March 28, the Treasury announced a slightly larger than expected issue of 24-day cash management bills to raise $6 billion in new cash. The bills, available only by competitive tender in $ 1 million minimums, were to be dated April 3 and due April 27. About $5.7 billion of outstanding 13- and 26-week bills were also maturing on April 27. Almost $10.9 billion of tenders were received from the public for the $6 billion of bills and an average discount rate of 6.64 percent resulted in the auction on March 30. March economic data showed that the adverse effects of the harsh winter were not lingering. Industrial production, sales, employment, and both REVIEW O F TREASURY OPERATIONS 27 commercial and residential construction rose. At the same time, however, inflationary fears were fueled by further large increases in the Consumer Price Index and the Producer Price Index, formerly known as the Wholesale Price Index. Commercial bank lending also continued to expand in March, and the United States continued to run a balance of trade deficit. The Treasury's offering of its regular monthly 2-year note was announced on April 12. This cycle note was to refund $2.2 billion of notes maturing April 30, with a new 2-year note dated May 1. The auction was held on April 19, 1978. About $2.2 billion of the $5.3 billion of tenders from the public was accepted including $0.4 billion of noncompetitive tenders. Foreign add-ons totaling nearly $0.6 billion increased the issue size to $2.8 billion. Commercial banks received $1.3 billion, or 48 percent, ofthe notes while dealers received $0.6 billion, or 22 percent. Despite good demand for the notes, the 7.80percent average yield was higher than expected and almost 25 basis points above the most recent 2-year note auction in March. A 7 3/4 percent coupon was placed on the issue. As the quarterly refunding approached, a cautious atmosphere developed in the market due mainly to fears of accelerating inflationary pressures. Nevertheless, a favorable reaction greeted the Treasury's April 26 announcement concerning the May quarterly refunding. The refunding package included a paydown of $1.9 billion to be achieved by issuing $2.5 billion of 10-year notes and $1.5 billion of 22 1/4-year bonds to partially refund $5.9 billion of privately held notes due May 15. The bond issue represented a reopening of the outstanding 8 3/8 percent bonds maturing in August 2000. The 10-year note issue was the fourth since March of 1976, when the Treasury was granted authority to sell notes up to 10 years in length instead of the previous 7-year maximum. The 10-year notes were well received at the auction on May 2 as slightly more than $2.5 billion of tenders were accepted from the $5 billion submitted by the public, including a higher than expected $0.6 billion of noncompetitive tenders. Dealers received $1 billion, or 40 percent, of the notes while commercial banks took $0.8 billion, or 32 percent; and allotments to nonfinancial corporations totaled almost $0.3 billion, or 11 percent. The average auction yield was 8.29 percent, and an 8 1/4 percent coupon was placed on the issue. The May 3 price auction for the $1.5 billion of reopened 8 3/8 percent bonds attracted $3.1 billion of tenders from the public. Noncompetitive tenders totaled almost $0.2 billion. This reopening raised the amount of these bonds in the hands of the public to $2.7 billion. Dealers took $0.6 billion, or 40 percent, of the bonds while commercial banks were awarded $0.4 billion, or 27 percent. State and local governments accounted for $0.3 billion, or 20 percent, ofthe issue including $0.2 billion, or 12 percent, taken by the general funds. Routine interest in the auction resulted in an 8.47-percent average yield which was a bit higher than anticipated. 28 1978 REPORT OF THE SECRETARY OF THE TREASURY The paydown resulting from the refunding was over $1.8 billion but slightly less than originally announced. Due mainly to the refunding, the average length of the marketable debt held by private investors reached 3 years 1 month at the end of May, representing a gain of about 1 1/2 months over the April figure. Concem over disintermediation was heightened in May when savings flows figures in thrift institutions for April showed a sharp decline in savings. Subsequently, a joint statement by the Federal Reserve Board, Federal Deposit Insurance Corporation, and Federal Home Loan Bank Board announced the authorization of two new types of time certificates designed to boost savings inflows. The first was a 6-month money market certificate with a ceiling interest rate tied to the average auction yield for the most recently auctioned 6-month Treasury bill. Thrift institutions could pay 1/4 percent above the Treasury bill rate while commercial banks could pay a rate equal to that on the Treasury bill. The second instrument was a certificate maturing in 8 years or more on which thrift institutions would pay 8 percent and commercial banks 7 3/4 percent. The 6-month issues had a $ 10,000 minimum, and the long-term certificates had a $1,000 minimum. Both new instruments were to be offered beginning on June 1. At the time the Treasury announced its intention to refund $2.4 billion of privately held notes due May 31 by selling an identical amount of 2-year notes, there were several factors contributing to the gloomy market atmosphere that prevailed. There was evidence of a strong economy with high inflationary pressures and, also, the fear of a tightening in Federal Reserve monetary policy. This was enough to overshadow the good technical position of the market. In the auction, $2.5 billion of the $5.8 billion of tenders from the public was accepted including $1 billion of noncompetitive tenders. The amount of noncompetitive tenders was the highest in a 2-year cycle note sale since September 1975. The size ofthe issue was increased to $2.9 billion with the addition of almost $0.5 billion of foreign add-ons. Commercial banks received $0.8 billion, or 27 percent, of the notes and dealers received $0.6 billion, or 20 percent, while individuals took $0.3 billion, or 11 percent. The 8.09-percent average yield in the May 23 auction marked the first time since September 1975 that a 2-year cycle note was auctioned at a yield above 8 percent. The coupon rate was set at 8 percent. Later in the month, on May 22, the Treasury announced plans to auction $2 1/4 billion of 4-year 1-month notes for new cash on the last day of the month. Almost $2.3 billion of tenders was accepted from the $5 billion submitted by the public including $0.5 billion of noncompetitive tenders. The $0.3 billion of foreign add-ons increased the size ofthe issue to $2.6 billion. Commercial banks took $1.2 billion, or 47 percent, ofthe total and dealers took $0.6 billion, or 25 percent. Routine interest in the auction led to an 8.27percent average yield, almost 40 basis points higher than the previous quarter's 4-year cycle note issue. The assignment of an 8 1/4 percent coupon followed. By the time of issue date, the notes were selling at a premium. REVIEW OF TREASURY OPERATIONS 29 Meanwhile, some Treasury bill yields increased in reaction to the Treasury's May 26 announcement of a larger than expected $6 billion issue of 20-day cash management bills. The bills were sold June 1, and were to mature on the same day as the $5.6 billion of 13- and 26-week bills. Only competitive bids in minimum amounts of $1 million were accepted. About $6 billion ofthe $12.3 billion of public tenders was accepted at an average discount rate of 7.11 percent. The regular monthly 2-year cycle note offering was announced on June 14, when the Treasury invited tenders for $3 billion of notes to refund $2.5 billion of privately held maturing notes and raise $0.5 billion of new cash. Almost $3.1 billion ofthe $4.9 billion ofpublic tenders was accepted in the June 20 auction, including $0.7 billion of noncompetitive tenders. Foreign add-ons of $0.6 billion brought the new cash figure for this issue up to $ 1.1 billion. Allotments to commercial banks totaled $1.5 billion, or 41 percent, of the notes while dealers were allotted $0.9 billion, or 24 percent. The average auction yield of 8.32 percent was 23 basis points above the May 2-year cycle note. The coupon set on the issue was 8 1/4 percent. Unlike the previous two quarters, a net paydown of $0.3 billion was achieved through issues of marketable Treasury securities to private investors during the April-June quarter. The paydown in Treasury bills was $5.9 billion, excluding $6 billion each of April and June cash management bills issued and redeemed during the quarter. Marketable coupon issues provided $5.5 billion of new cash including $ 1.9 billion of foreign add-ons. The new cash consisted of $2.2 billion from 2-year cycle notes, $2.6 billion each from the 4- and 5-year cycle notes and a paydown of $1.8 billion in the quarterly refunding. In addition to the new cash raised, $13 billion of maturing coupons were refunded. In the nonmarketable area, a record $4.2 billion of new cash was raised with State and local government series issues. This was partially offset by a more than $2.1 billion paydown of foreign government series securities; however, E and H bonds provided $1.2 billion in new money which raised the total to a net $3.2 billion. During the quarter, interest rates rose rather sharply. Federal funds moved up by 1/4 percent to a 2.7-percent trading level in late April and then to 7 1/4 percent in early May. For most of June, funds traded at 7 1/2 percent but, by the end ofthe month, a further 1/4-percent boost to 7 3/4 percent took place. Commercial paper rates tended to lag behind the rising Federal funds rate for most of the quarter, but by late June a 7 3/4-percent rate also prevailed on these 90 to 119 day money market instruments. Three-month Treasury bill rates actually declined in April and did not begin rising until late May. In the last weekly auction in June, the average yields on both 13- and 26-week bills were the highest since December 1974. A 6.97-percent yield was realized on 13-week bills, and the companion 26-week bill yielded 7.40 percent in the June 26 auction. Commercial banks raised their prime lending rate three times between early May and late June, bringing the level from 8 percent to 8 3/4 30 1978 REPORT OF THE SECRETARY OF THE TREASURY percent. In early May, the Federal Reserve raised the discount rate 1 /2 percent to a 7-percent level. Likewise, the intermediate- and long-term interest rates rose consistently during the April-June period. Rates on Treasury securities maturing in 1 year rose almost a full percentage point to about 8.30 percent on the basis of weekly averages. Rates on Treasury issues due in 7 to 10 years increased by about 1/2 percent to 8 1/2 percent or higher while longer term issues rose by 35 to 40 basis points. Aa-rated corporate bond rates rose by 1/2 percent to almost 9.20 percent while long-term municipal bond yields rose at a steady clip from about 5.70 percent at the end ofMarch to 6.30 percent at the end of June. Mortgage rates also continued their steady climb during the quarter. Most economic data reported for the April-June quarter indicated underlying strength. Industrial production, for example, increased during all 3 months. Residential and commercial construction activity were robust throughout the period. In June, seasonally adjusted employment increased by over 700,000, pushing unemployment down to 5.7 percent. This was the first time this rate had fallen below 6 percent since October 1974. Personal income continued to gain while at the same time consumer borrowing was on the rise, as evidenced by the strong increases in consumer installment credit. Commercial bank lending was also brisk. Inflation worries continued to be justified as the Producer Price Index posted successive large increases. The rise in April was about 12 percent on a seasonally adjusted annual basis due in large part to food price increases. Consumer prices rose at a double-digit pace throughout the quarter led by very sharp increases in food prices and, more specifically, in meat prices. While the U.S. trade and current account deficits were smaller than the previous quarter, the deficits were still very large. When the time came for the Treasury's regular 5-year cycle offering for the first month after the quarter, the market expected the Treasury's June 19 announcement of $1 3/4 billion of 15-year 1-month bonds for new cash; however, the amount was higher than some anticipated. This marked the third time, beginning with July 1977, that the Treasury substituted a 15-year bond in the previously established 5-year note cycle slot. About $1.8 billion ofthe $4.1 billion of public tenders for the new bonds due in August 1993 was accepted, including $0.4 billion of noncompetitive tenders. Commercial banks and dealers combined to take $ 1.4 billion, or 80 percent, of the bonds with the latter group accounting for $0.8 billion, or 47 percent. The good bidding interest in the June 28 auction resulted in an average yield of 8.63 percent. This represented an increase of almost 70 basis points over the similar maturity sold 6 months earlier. The 8 5/8 percent coupon placed on the new security was a record for a Treasury bond. The bonds traded at a discount and were bid at a yield of 8.70 percent when issued on July 11. The next day after the settlement day for the 15-year 1-month bond, the Treasury announced a $3 1/4 billion 2-year note to be dated July 31 to refund $2.5 billion of privately held maturing notes and raise $0.8 billion of new cash. REVIEW OF TREASURY OPERATIONS 31 Almost $5 billion of tenders were received from the public in the July 20 auction, including $0.8 billion of noncompetitive tenders. A total of $3.3 billion of tenders was accepted and foreign add-ons of $0.5 billion increased the issue size to $3.8 billion. Commercial banks received $1.5 billion, or 39 percent, of the notes and dealers were allotted $1.2 billion, or 31 percent. Routine bidding interest resulted in an 8.61-percent average yield, 29 basis points higher than the previous 2-year note auction for June and the highest yield for this maturity length since the May 1974 auction. An 8 1/2 percent coupon was assigned to this new issue which traded at a premium throughout the when-issued period. Most short-term rates rose slightly in July. Federal funds, for example, rose from 7 3/4 percent to about 7 7/8 percent. Treasury bill rates rose in early and mid-July but fell later in the month, as the market rallied. On balance, only a small 5 to 10 basis point increase was realized during July. Ninety-119-day commercial paper rates posted an increase of about 1/8 percent and reached the 7 7/8-percent level. During the first week of July, the Federal Reserve raised its discount rate 1/4 percent to 7 1/4 percent, and banks raised their prime rate 1/4 percent to 9 percent. Rates on most intermediate and long Treasury issues increased about 5 basis points from the end of June to late July. Corporate bond yields rose by about the same amount while rates on long-term municipal issues declined slightly. On July 26, the Treasury announced the terms of its August quarterly refunding in which $4.4 billion of privately held notes maturing August 15 were to be refunded, and $2.6 billion of new cash was to be raised. The refunding package consisted of offerings of $2.5 billion of 3-year notes, $3 billion of 7-year notes, and $1.5 billion of 30-year bonds. Market reaction to the announcement was favorable, as the amounts of the new securities were considered quite manageable given the market's good technical position. The 3-year notes attracted $5.4 billion of public tenders at the August 1 auction. Almost $2.6 billion was accepted, including $1.1 billion of noncompetitive tenders. Over $0.3 billion of foreign add-ons increased the issue size to $2.9 billion. Commercial banks received $0.8 billion, or 30 percent, ofthe notes and dealers took $1.2 billion, or 46 percent. Strong bidding interest resulted in an 8.46-percent average yield and an 8 3/8 percent coupon. Nearly $3.1 billion of the $4.1 billion ofpublic tenders was accepted at the August 2 auction of 7-year notes, including $0.7 billion of noncompetitive tenders. The $0.3 billion of foreign add-ons, a new high for an issue of this length, brought the issue size up to $3.4 billion. Commercial banks' allotments totaled $0.7 billion, or 22 percent, of the notes and dealers received $1.9 billion, or 1.3 percent. An 8.36-percent average auction yield led to the placement of an 8 1/4 percent coupon. The 30-year bond auction on August 3 attracted $2.6 billion of tenders, and ofthe $1.5 billion accepted, over $0.1 billion was noncompetitive. Dealers took $0.8 billion, or 56 percent, ofthe bonds while commercial banks received 32 1978 REPORT OF THE SECRETARY OF THE TREASURY $0.4 billion, or 29 percent. An average auction yield of 8.43 percent, lower than anticipated, led to the setting of an 8 3/8-percent coupon rate. In whenissued trading, the 3-year notes, which were fairly widely distributed, were selling at a premium while the two longer issues moved to a discount by the August 15 issue date. All three auctions resulted in record average yields for the specific maturities sold. Including add-ons, a total of $3.4 billion of new cash was raised in this quarterly refunding. Largely due to the three new issues, the average length of the privately held marketable debt rose to 3 years 3 months by the end of August, its highest level in almost 6 years. Following its successful August refunding, the Treasury announced, on August 17, the sale of $3 billion of 2-year notes to refund $2.7 billion of notes maturing on August 31 and raise $0.3 billion of new cash. About $6.1 billion of tenders were submitted by the public and $0.6 billion of the nearly $3.1 billion of accepted tenders were noncompetitive. Including $0.3 billion of foreign add-ons, $0.6 billion of new cash was raised. Investor groups receiving the largest amounts ofthe new notes were commercial banks with $1.3 billion, or 44 percent, and dealers who took $0.7 billion, or 22 percent. A favorable reception to the auction led to an 8.38-percent average yield, 23 basis points below the 2-year sale 1 month earlier. An 8 3/8 percent coupon was set on the new notes which traded below the average auction price during when-issued trading. The market rally which began in late July lasted, approximately, through the first half of August. It was fueled by a good technical position and favorable reception to the Treasury's August refunding package, as well as a favorable report that farm prices had dropped in July for the first time in 10 months. However, in late August the market began to view the situation less optimistically. The Federal funds rate jumped from about 7 7/8 percent in early August to 8 1/8 percent and then to 8 1/4 percent. At midmonth, 90-119-day commercial paper rates had declined to 7 3/4 percent but late in the month rates rose to about 8 percent. Also in late August the Federal Reserve increased the discount rate by 1/2 percent to 7 3/4 percent. Three-month Treasury bills were bid up to about 7.35 percent in the last week of August compared with about 6.75 percent earlier in the month. Intermediate-term Treasury rates near the shorter end of the maturity spectrum also fell in the early part of the month and then climbed later on. Longer term rates moved within a narrow range over the month, showing a decline on balance. As a result, by late August, the Treasury yield curve was almost perfectly flat from I to 20 years at a level of about 8.40 percent. Aarated corporate bond yields declined by about 1/4 percent in August, while municipal bond rates fell slightly. New conventional mortgage rates remained at their July level of 7.80 percent. Meanwhile, the introduction ofthe two new savings certificates back in June had helped to improve the flow of savings to thrift institutions, and thus mitigate worries concerning disintermediation. As the popularity of the 6 REVIEW OF TREASURY OPERATIONS 33 month certificates grew, however, many in the thrift industry expressed concern over the high cost of these funds and the resulting squeeze on profit margins, as interest rates on the 6-month Treasjury bills to which the 6-month certificates were tied, continued to climb. Interest rates continued to advance in September and approached their 1974 highs. Short-term rates posted significant increases as the Federal funds rate rose steadily from about 8 1/4 percent to an average of 8 5/8 percent during the final week, while 90-119-day commercial paper rates climbed about 1/2 percent to 8 1/2 percent and commercial banks increased their prime lending rate in three successive 1/4-percent steps to 9 3/4 percent, the highest since early 1974. In mid-September, the Federal Reserve raised its discount rate to 8 percent from 7 3/4 percent. This equaled the previous high reached during 1974. Three-month Treasury bills rose by over 40 basis points to a bid-yield above 8 percent. In the last bill auctions in fiscal 1978, the 13-, 26-, and 52-week bills recorded the highest average yields since September 1974. Larger increases in short- and intermediate-term Treasury coupon issues relative to longer maturities gave the Treasury yield curve a negative slope as 1-year maturities yielded about 8.80 percent by the end of September while 20-year maturities yielded about 8.50 percent. Aa-rated corporate bonds ended the month yielding almost 9 percent representing a 1 /4-percent increase over the month while municipal bond and mortgage rates remained relatively unchanged during September. The last coupon security issued in fiscal 1978 was a 4-year cycle note that had been announced on August 22 and was to be issued on September 6, 1978. The smaller than expected $2 1/4 billion issue of 4-year 1-month notes for new cash was well received. Due to a mistake in recording competitive tenders, less than $2.2 billion was accepted from the $3.9 billion of tenders submitted by the public in the August 29 auction. With foreign add-ons of slightly over $0.3 billion the issue size was increased to $2.5 billion. About $0.4 billion of noncompetitive tenders was accepted. Commercial banks were allotted $1.1 billion, or 53 percent, of the notes while dealers' allotments totaled $0.5 billion, or 23 percent. The 8.41-percent average auction yield was the highest in 3 years for a similar maturity and an 8 3/8 percent coupon was assigned to the notes. Though the issue began trading at a discount it moved to a slight premium by the September 6 issue date. In the last quarter of fiscal 1978, the Treasury raised $10.8 billion of new cash through issues of marketable securities to private investors. Slightly more than $9.6 billion of new cash was raised in the coupon sector and an identical amount of maturing notes held by private investors was also refunded. The new cash raised was as follows: $1.9 billion from the two 2-year cycle notes; $2.5 billion in the 4-year cycle note sale; $1.8 billion from the 15-year bond; and $3.4 billion in the August quarterly financing. Foreign add-ons to coupon issues included in the above figures totaled more than $1.7 billion. All ofthe new money from Treasury bills came from the 52-week bills. The net bill issues was $1.2 billion, $0.4 billion ofwhich was foreign add-ons. 34 1978 REPORT OF THE SECRETARY OF THE TREASURY In the nonmarketable area $4.6 billion of new cash was raised in the final quarter. Over $3.6 billion was from State and local government series issues, of which $3.4 billion was raised in August alone as many State and local governments invested the proceeds from advance refunded issues in Treasury State and local series as they rushed to beat the September 1 deadline, when new Treasury regulations would restrict arbitrage opportunities created by investing in higher yielding taxable securities through sinking funds set up for this purpose. Another $0.2 billion of new cash was raised through sales ofthe foreign government series securities while the $0.8 billion raised through sales of E and H savings bonds was the smallest amount for this category in almost 4 years. Most economic measures continued to give off strong signals during the last quarter of fiscal 1978, although some indicated a slower pace than in the previous quarter. The unemployment rate fluctuated up and down during the period and stood at 6 percent in September, representing a 0.3-percent increase since June but still a rather low rate for recent years. Industrial production posted steady increases though not as large as during the previous quarter. The housing market was just slightly below the booming April-June quarter. Credit demands appeared to be undaunted by rising interest rates as commercial bank loans rose, reflecting a rise in business loans and the very strong demand for real estate and consumer loans. The extension of consumer installment credit remained at a high rate. Inflation still loomed as a major problem although the pace of both producer and consumer price increases had slowed from the previous quarter. The U.S. merchandise trade balance continued to show large monthly deficits and the dollar was still moving to new lows against some foreign currencies at the end ofthe fourth quarter of fiscal 1978. Federal Financing Bank The Federal Financing Bank (FFB), a corporate instrumentality of the U.S. Government managed and operated by Treasury employees, ended fiscal 1978 with holdings of $48.08 billion in U.S. agency and U.S. agency-guaranteed obligations, an increase of $12.66 billion over the year. Net income for fiscal 1978 totaled $86.3 million; there were no operating losses, and administrative expenses were $403,273. Accumulated surplus reached $117.4 million on September 30, 1978; a motion to transfer this surplus, less an operating reserve, to the Treasury will be considered at the next FFB Board of Directors meeting. The FFB was established by the Federal Financing Bank Act of 1973 to reduce the costs of Federal and federally assisted borrowing programs, and to finance these programs in a manner least disruptive of private financial markets and institutions. The act authorizes the FFB to purchase obligations issued, sold, or guaranteed by a Federal agency, and to finance these purchases by borrowing either directly in the private market or through the Secretary of REVIEW OF TREASURY OPERATIONS 35 the Treasury. Since it began operations in 1974, the FFB has become the vehicle for most Federal agency financing; major eligible programs still not financed by the FFB are: Department of Commerce guaranteed ship mortgage bonds. Department of Housing and Urban Development guaranteed taxexempt housing and urban renewal notes and bonds, and Govemment National Mortgage Association guaranteed passthrough securities. Currently, the FFB finances each of its loans by a borrowing from the Treasury with identical terms other than the interest rate; currently the FFB lends at oneeighth percent above its borrowing rate, which is Treasury's cost of money. This one-eighth-percent spread, and the FFB's investment of cash surplus in Treasury market-based short-term special issues, produce the FFB's income. Fiscal 1978 was a period of FFB growth through existing, rather than new, lending programs, and of increased congressional interest in the FFB role in foreign military sales financing and in Federal credit assistance generally. During fiscal 1978, for example, holdings of Farmers Home Administration certificates of beneficial ownership in pools of insured loans increased by $7.66 billion; loans to electric and telephone systems guaranteed by the Rural Electrification Administration increased by $1.8 billion; and holdings ofthe Tennessee Valley Authority notes and bonds increased by $1.34 billion. The FFB began the year holding New York City revenue anticipation notes having a book value of $ 1.16 billion purchased with recourse from the Secretary of the Treasury pursuant to the New York City Seasonal Financing Act of 1975. These notes, plus $0.73 billion in additional notes purchased in 1978, were repaid by June 30, 1978, when the Secretary's lending authority under this act expired. The FFB will have no role in the new assistance legislation: the New York City Financial Assistance Act of 1978. FFB loans to foreign govemments guaranteed by the Department of Defense pursuant to the Arms Export Control Act grew by $ 1.46 billion in fiscal 1978. This program was the subject of an oversight hearing on January 30, 1978, by the Senate Banking Committee with Roger Altman, Assistant Secretary ofthe Treasury and Vice President ofthe FFB, testifying on behalf of Treasury and the FFB. After this hearing. Senator Proxmire introduced S. 2545, which would prohibit the FFB from any further foreign military sales financing. No action was taken on the bill during the 95th Congress. In an attempt to control the overall level of Federal loan guarantees, several bills were introduced in the 95th Congress (e.g., H.R. 10416, H.R. 7416) which would utilize the FFB as the instrument for control. Generally, the bills would (1) place the FFB on budget, (2) limit annual FFB lending to an amount approved in appropriations acts, and (3) require guarantee programs ofthe marketable-security type to be financed through the FFB. In commenting on these proposals, Treasury agreed that greater congressional control is needed, that loan guarantee programs should be subject to appropriation process review and that if the FFB is included in the budget, a requirement that certain 36 1978 REPORT OF THE SECRETARY OF THE TREASURY guarantee programs be financed through the FFB was necessary to counter budgetary pressures for returning these programs to market financing. Treasury also promised to work with the Congress to clarify the technical issues raised by the bills. None of these bills was enacted; however, an administration proposal on Federal credit program control is being prepared. Capital Markets Policy The Office of the Deputy Assistant Secretary for Capital Markets Policy includes the Office of Capital Markets Legislation (which is responsible for the development of administration policy on legislation affecting banks and other fmancial institutions) and the Office of Securities Markets Policy (which is primarily concerned with the corporate securities markets and with equity capital formation). In the area of capital markets legislation, the Office played an important role for the administration in shaping the Financial Institutions Regulatory Act of 1978, the first major piece of banking legislation since 1970. It was also responsible for the development of the administration's views on proposed legislation to stem the attrition in membership in the Federal Reserve System, to regulate the rights of consumers of banking services in the area of electronic funds transfer, and to establish a central liquidity facility for credit unions. It continued to advance the Treasury's work as lead member ofthe Interagency Task Force on Regulation Q and other aspects of deposit interest rate controls. In the securities markets area, the Office has continued its review of proposed changes in the restrictions governing the securities activities of commercial banks, commenced an investigation of the effects on the capitalraising process of structural changes in the securities markets and the securities industry, and initiated a broad-ranging inquiry into problems experienced by small and medium-sized enterprises in raising equity capital. The Office of Securities Markets Policy has also undertaken part of the Treasury's responsibility for the Industrial Innovation Domestic Policy Review. Finally, the Office has continued to represent the Treasury in performing the Secretary's statutory role as a Director of the U.S. Railway Association and the Pension Benefit Guaranty Corporation. In the former capacity, the Office has been the lead negotiator of the terms of an additional $1.3 billion investment in the Consolidated Rail Corporation (ConRail) authorized by the 95th Congress. State and Local Finance The Office of the Deputy Assistant Secretary for State and Local Finance serves as the point of coordination for the Offices of New York Finance, Urban and Regional Economics, and Municipal Finance. This Office provides policy guidance within Treasury and without on financial and economic matters relating to State and local finance. It works closely with the Office of Revenue Sharing, a separate agency within Treasury, REVIEW OF TREASURY OPERATIONS 37 in reviewing various policy options with respect to general revenue sharing, a major Federal assistance program to State and local governments which expires September 30, 1980. This Office will continue its close relationship with the Office of Revenue Sharing during 1979-80 as the administration's position on the program is developed and transmitted to the Congress. Further, the Office serves as the Department's liaison to several interagency groups designed to coordinate administration policies and programs directed at the State and local sector including the Assistant Secretaries' Working Group for Rural Development and the Interagency Coordinating Council. The latter was established as part of the President's urban program announced in March 1978. The Office also deals with State and local governments directly or through their interest groups in Washington. Office of New York Finance During fiscal 1978, the Department had oversight responsibility for the loan program to New York City pursuant to the provisions of the New York City Seasonal Financing Act of 1975 (Public Law 94-143). That act authorized the Secretary to extend up to $2.3 billion in annual seasonal financing to New York City until the end ofthe city's 1978 fiscal year. It expired on June 30, 1978. The Federal Government provided $725 million in loans to New York City in fiscal 1978. This amount, along with another $1.15 billion it had lent the city in Federal fiscal 1977, was repaid in the April-June 1978 quarter. These were the final loans authorized under the act. While Public Law 94-143 was in existence, the Department lent the city a total of $5.2 billion ($1.26 billion in city FY 1976, $2.1 billion in FY 1977, and $1,875 billion in FY 1978). All loans were repayed on time or ahead of schedule with interest. The Department estimates it returned some $30 million less administrative expenses to the general Treasury as a result of the 1 -percent fee charged to the city above the Treasury cost of borrowed funds. The seasonal financing legislation was intended to assist the city's successful return to the credit markets. The city attempted a sale of notes in the public markets in November 1977, as required under section 6.11 ofthe Department's credit agreement with the city. However, this offering failed. It became clear that the city would not be able to regain market access in fiscal 1979 either for its short-term or long-term needs. Consequently, the administration introduced legislation in 1977 to assist the city in fulfilling its financing needs. The bill was adopted on August 8, 1978, as the New York City Loan Guarantee Act of 1978 (Public Law 95-339). It authorizes the Secretary to guarantee up to $ 1.65 billion in long-term city debt as a means of assembling financing necessary to carry the city through fiscal 1982. During this period, the city is required to achieve a balanced budget in accordance with generally accepted accounting principles and to complete other budget and financial reforms. These actions should enable the city to regain access to conventional borrowing sources so that, by the end of the 38 1978 REPORT OF THE SECRETARY OF THE TREASURY period (fiscal 1982), it will be able to meet its short- and long-term financing needs in the public credit markets. Under the terms of the Loan Guarantee Act, the Secretary of the Treasury may make guarantees only if there is a reasonable prospect of repayment of the city indebtedness and if the city is unable to obtain credit in the public markets or elsewhere. Accordingly, the Office of New York Finance has major responsibilities and functions under this act for overseeing the city's finances and in assisting the Secretary of the Treasury in making the findings pursuant to extension of Federal loan guarantees. Office of Municipal Finance In fiscal 1978, the Office established a comprehensive data base which proved to be useful in evaluating the fiscal effects of the administration's economic stimulus programs on 48 large city governments. A final report was released in January 1978 and will be updated periodically. Early in 1978 this data base was again drawn upon for assessing the antirecession fiscal assistance (ARFA) program scheduled for expiration on September 30, 1978. Based upon research and evaluation provided by this Office, the administration proposed a supplementary fiscal assistance program to replace the existing ARFA program. The major feature of the proposed legislation was a formula which targeted funds to economically distressed areas, excluding States. [Although a compromise proposal was passed by the Senate, the House failed to pass the proposal and Congress adjourned sine die October 15, 1978, without passing on the legislation.] The Office continues in its duties to review developments and proposals in the field of fiscal management and financial administration of State and local governments. It will give particular attention to State-local government budgetary and accounting practices. In addition, the Office will be reviewing impact of newly imposed tax and/or expenditure controls on State and local governments. The Office also is giving significant attention to current issues which may affect the municipal credit market, in particular those issues relating to governmental accounting principles, the development of uniform financial disclosure in the sale of State and local securities, the impact on credit markets of new Federal bankruptcy laws for municipalities, and related issues. Office of Urban and Regional Economics The Office of Urban and Regional Economics was established to evaluate local and regional economic trends and their impact on the financial condition of State and local governments. In addition, it will assess the impact of Federal economic policies on local economies. In 1978, the Office assumed the lead role in drafting and introducing to Congress the President's proposal to establish the National Development Bank.' The bank would provide a package of long-term financing incentives ISee exhibit 13. REVIEW OF TREASURY OPERATIONS 39 to influence private businesses to invest in economically distressed communities. Related to the bank legislation, this Office reviewed the impact of existing Federal economic development programs on rural and urban areas and has worked closely with the Office of Management and Budget in developing the administration's policies in the economic development area. ECONOMIC POLICY The Office of the Assistant Secretary for Economic Policy (OASEP) is responsible for advising and informing the Secretary and other senior policy officials of the Department on current and prospective economic developments, and for assisting in the development of appropriate domestic economic policies.' The Office of Economic Policy also has responsibility for macroeconomic analyses relevant to the formulation of international economic policies, including analyses of the longer term effects of policies—both U.S. and foreign—on U.S. domestic activity and foreign trade and capital flows. The office participates in the interagency group that produces the official domestic economic projections which serve as the basis for budgetary planning and for choices among alternative courses of economic policy. The staff support for these activities is provided by the Office of Financial Analysis and the Office of Special Studies. A series of biweekly briefings for the Secretary and other senior policy officials were initiated in 1977 and continued during 1978. These briefings present analyses of important economic and financial developments, both domestic and international, on a timely basis designed to supplement the flow of information provided through other channels. In addition, OASEP participated with the Council of Economic Advisers, Office of Management and Budget, Domestic Policy Staff, and various other agencies in the analysis and formulation of a number of specific policy initiatives. The work included a review of the trustees report on the social security system, including an analysis of proposals for changes in the financing and benefit structure; an analysis of the economic aspects of the national health insurance proposals; monitoring and evaluating the economic impact ofthe coal strike; participation in the work ofthe Regulatory Analysis Review Group; work on the interagency task force on industrial innovation; review of energy issues and of alternative measures for reducing oil imports; evaluations of the economic aspects of the capital gains taxes; and the general revenue sharing program. Other, more general projects undertaken during the year centered on the President's programs for controlling and reducing inflation, analysis related to the budget, and the development of policies directed at youth employment. ISee exhibit IS. 40 1978 REPORT OF THE SECRETARY OF THE TREASURY Office of Special Studies The Office of Special Studies provided a number of analyses and evaluations of economic issues. A sample of some ofthe major policy issues that this office was concerned with are as follows: Social security.—The Social Security Amendments of 1977 restored the financial soundness of the cash benefit program throughout the remainder of this century ahd into the early years of the next one. The tax increases mandated under the amendments have important economic implications, including their impact on inflation and the tax burden of employers and employees. Treasury undertook analyses of proposals for changes in the financing and benefit structure and their impact on the economy. In addition. Treasury staff participated in the review of the economic assumptions and estimates underlying the trustees annual report on the social security system. Health insurance.—The President announced his national health insurance (NHI) principles on June 30, 1978, following several months of intensive staff work within the administration. The Secretary ofthe Treasury is a key adviser to the President on NHI as this issue has important implications for the Nation's economic and budget policies. The Office of Special Studies participated in interdepartmental work groups on various aspects of NHI and economic analyses that included examinations of cost estimates for various NHI program options. Capital gains tax treatment.—The tax treatment of capital gains came under considerable discussion and debate prior to passage of the Revenue Act of 1978 and the reduction in capital gains taxation. The Office of Special Studies analyzed the impact of capital gains tax reductions upon the stock market and the U.S. economy in general. This study was prepared in connection with the testimony ofthe Assistant Secretary for Economic Policy before the Subcommittee on Taxation and Debt Management of the Senate Finance Committee in June 1978. Coal strike.—In late 1977 and early 1978, a prolonged strike of coal miners threatened to impose a serious economic hardship and burden on the U.S. economy. Treasury participated in an interagency task force established to monitor and analyze the economic impact of the strike and to evaluate the potential threat to the Nation's health and security. The strike was eventually settled before serious damage was inflicted on the economy. Government regulations.—Government regulations impose a sizable cost burden on business, taxpayers, and consumers and contribute directly to raising prices. Under Executive Order 12044, President Carter established a high-level interagency committee—the Regulatory Analysis Review Group (RARG)—to review the economic effects of major regulations. The RARG, which includes Treasury as well as other economic and regulatory agencies, seeks to assure that the costs ofeach regulation have been carefully considered and that all alternatives have been explored so that the least costly means of achieving the regulatory objectives are applied. Several Government regula- REVIEW O F TREASURY OPERATIONS 41 tions were reviewed, including the Occupational Safety and Health Administration's (OSHA) generic carcinogen regulations, the Department of Transportation's proposed regulations to prevent discrimination on the basis of handicap, and OSHA's proposed standards for acrylonitrile. Industrial innovation.—There has been a generally perceived decline in industrial innovation in the United States, both in spending on pure research and development and in the translation of such research and development findings into commercially feasible and profitable products or processes. This decline appears to have had an impact on capital formation, productivity, and inflation.2 The Department of Commerce is coordinating an interagency Domestic Policy Review of Industrial Innovation, and Treasury is chairing and coordinating an interagency task force investigating the impact of economic and trade policies on industrial innovation. This task force, along with several others, is preparing for the President's consideration policy options that will stimulate increased innovation. Some of the areas of concern are tax policy, availability of venture capital, the impact of Government regulations, the role of research and development, and the impact of foreign trade policies on industrial innovation. Anti-inflation.—Inflation is recognized as the Nation's top priority economic problem.3 After decelerating substantially in 1976, the Consumer Price Index started to rise more rapidly in 1977 and by 1978 was accelerating at a disturbing pace. During the first 10 months of 1978, consumer prices increased 9.5 percent at an annual rate. Treasury, along with economists from the other economic agencies, analyzed and evaluated intensively many alternatives for controlling and reducing inflation. General revenue sharing.—Title I of the State and Local Fiscal Assistance Act of 1972 provides for the distribution of general revenue sharing funds to approximately 40,000 State and local governments. The authorizing legislation for the general revenue sharing program expires at the end of fiscal 1980. As part of an overall assessment and evaluation of the existing program. Treasury staff undertook a review of the research conducted to date on the macroeconomic and aggregate fiscal effects of revenue sharing; analyzed the estimated impact of general revenue sharing on aggregate State and local expenditures, revenues, and surpluses; and evaluated its effects on the gross national product and on public and private employment. In addition, the macroeconomic effects of general revenue sharing were compared with the effects of alternative uses of Federal resources such as increased Federal purchases, transfer payments, categorical grants-in-aid, and Federal tax cuts. Employment tax credits.—^he Tax Reduction and Simplification Act of 1977 contained the new jobs tax credit for calendar year 1977 and 1978. The Office of Special Studies provided analyses for the interagency task force evaluating the effect of that credit. The Revenue Act of 1978 allowed the new 2See exhibit 18. 3 See exhibit 16. 42 1978 REPORT OF THE SECRETARY OF THE TREASURY jobs tax credit to expire and replaced it with a targeted employment tax credit that the administration had proposed to the Congress. The Office of Special Studies staff participated in the interdepartmental task force that designed the new targeted credit. Private sector employment initiative.—The fiscal 1979 budget includes a major effort to increase the orientation of training and employment programs toward preparing and placing disadvantaged and unemployed persons in private sector jobs. Treasury played a major role in designing this initiative and provided the economic analyses upon which many of the interdepartmental discussions were based. Energy issues.—Treasury staff participated in the analytical work on the energy proposals submitted to the Congress by the administration. The Office of Special Studies collaborated with other U.S. Government agencies in assessing the impact of these proposals on U.S. energy use, energy prices, and economic activity. The office devoted a substantial effort to develop an understanding of the economic impacts of U.S. crude oil price regulations, especially as these regulations affected the level of domestic crude oil production and import requirements. The office evaluated adjustments in the regulations which could increase the production of domestic crude oil and thus reduce import requirements. This office also monitored movements in domestic energy markets. During 1978, this office made projections of short- and long-term levels of U.S. energy consumption and production, and projected movements in the mix of fuels consumed. One output of these exercises, a forecast of the quantity and cost of U.S. oil imports, was regularly used by the Treasury Office of Balance of Payments in its short- and long-term forecasts. Office of Financial Analysis The Assistant Secretary for Economic Policy represents Treasury on an interagency group charged with developing the official economic forecasts on which the administration's budgetary and economic policy decisions are based. Other agencies represented on this group are the Council of Economic Advisers, OMB, and the Departments of Commerce and Labor. Staff of the Office of Financial Analysis provided support for the Assistant Secretary in this role and regularly attended meetings of the forecasting group. An essential element in the formulation of economic policy is the compilation and evaluation of current economic data and information. In order to support the Department's economic policy function, the office prepares an Economic Briefing Book for use by the Secretary ofthe Treasury and other high-level Treasury officials. The briefing material covers the data for all the major economic statistics and provides historical perspective on these series. Memoranda prepared for the Briefing Book on latest economic developments circulate throughout Treasury and provide a vehicle for keeping Treasury officials informed of current economic developments. REVIEW OF TREASURY OPERATIONS 43 Supplementing the Briefing Book, the office prepares a weekly Summary of Economic Developments, which gives an overview of current economic performance and evaluates prospects for the future course ofthe economy. In addition, the office has primary responsibility for a biweekly economic and financial briefing for top Treasury officials. As a principal participant in the formulation of economic policy. Treasury is requested by congressional committees to explain and elaborate upon the economic goals and objectives of the administration. In support of this function, the office prepares briefing and background material for the Secretary and Assistant Secretary for Economic Policy to use in testimony before the Joint Economic Committee, congressional budget committees, and other committees concerned with economic and financial policies. Public awareness of economic developments and acceptance of Government policies are important for achieving stated goals and objectives. The Office of Financial Analysis conducts periodic briefings for private groups and organizations on the current economic performance and the economic outlook. Officials of Treasury serve as attaches in the embassies and missions to several foreign nations. In order to keep these officials, as well as members of the Treasury staff in this country, well informed about current economic developments, the office prepares a periodic review of economic and financial developments. Office of Trade Research The Office of Trade Research is responsible for performing substantive economic analysis of issues confronting the Department of the Treasury related to international trade and U.S. commercial policies. Thus, the Office of Trade Research could be requested to analyze the effects on U.S. trade, or on the U.S. economy as a whole, of various developments in international markets for traded goods such as U.S. or foreign measures to protect domestic industries and their workers from foreign competition, changes of exchange rates, and new international agreements to reduce tariffs and other barriers to trade, or to establish multilateral buffer stocks for commodity price stabilization. During fiscal 1978, the Office of Trade Research undertook and completed a number of research projects and activities. To aid U.S. negotiators at international forums, one important analysis sought to identify factors contributing to successful outcomes at previous multilateral negotiations to liberalize trade among countries, while another study developed and proposed operating rules for internationally held commodity buffer stocks. Contributions by this office to interagency task forces included an analysis ofthe impact on U.S. exports of the 1977-78 decline of the U.S. dollar in world money markets, and the development of procedures by which the U.S. Export-Import Bank might judge the competitiveness of U.S. commercial jet aircraft as 44 1978 REPORT OF THE SECRETARY OF THE TREASURY opposed to foreign-produced planes. This analysis was designed to help the Eximbank determine whether or not its financing was critical to obtaining an export sale for a U.S. manufacturer. The office also responded directly to needs for economic research within Treasury. To aid the Inspector General's Office, an index was developed for measuring the advancement of basic human needs in developing countries. Since these countries borrow from institutions such as the World Bank, whose operations Treasury must monitor according to the instructions of the Congress, an evaluation of human needs performance is required. For the Office of International Monetary Affairs, an analysis of the economic foundations and relative performance of different effective exchange rate measures was also completed. To support congressional testimony by the Assistant Secretary of the Treasury for International Affairs that favored the extension ofthe U.S. Export-Import Bank Charter, an empirical analysis was prepared ofthe effectiveness of major Eximbank programs. The success of that institution in overcoming imperfections in private capital markets was evaluated, along with a comparison of Eximbank programs relative to the activities of similar foreign official lending institutions. In addition to its normal research activities, the Office of Trade Research assisted in the calculation of trigger prices for U.S. imports of steel mill products until a full-time staff could be assembled to administer this new Treasury program protecting domestic steel manufacturers from dumping by foreign steel producers. As a part of this effort, the inflationary effect on the U.S. economy ofthe trigger price mechanism and the magnitude ofthe fall in aggregate demand that would be necessary to offset the inflationary effect were estimated. Office of Monetary Research The primary function of the Office of Monetary Research is to conduct technical analyses of various aspects of international financial and monetary relations, especially in terms of their consequences for the United States. A variety of quantitative techniques are used to evaluate and predict the performance of major foreign economies as they affect the U.S. economy. The day-to-day activities of the Office of Monetary Research are geared towards providing: (a) Background analyses on particular issues faced by senior Treasury officials in their conduct of international economic policy, (b) quantitative assessments of effects of unexpected developments abroad, and (c) specific forecasts of various foreign economic variables. Major projects undertaken by the Office of Monetary Research included: (a) Development of a framework for investigating the global distribution of current-account payments surpluses and deficits among the United States, Organization of Petroleum Exporting Countries (OPEC), and the rest ofthe world; (b) construction o f a model of German economy; (c) analysis of the 'effects of new accounting standards for U.S. corporations on foreign exchange REVIEW OF TREASURY OPERATIONS 45 markets; (d) setting up a large computerized data bank containing basic economic information on all less developed countries; (e) developing a methodology for comparing domestic and export prices of major product categories in other industrial countries. Office of International Energy Research The Office of International Energy Research provides two kinds of analysis—general reports covering energy developments throughout the world, and those specialized studies that focus on particular issues. The office analyzed the relationship between energy demand and economic growth to. help formulate alternative options for U.S. energy policy. Also examined in detail was the question of energy prices and their effect on exports. Further issues examined included OPEC financial holdings and the future international coal market factors influencing the foreign exchange value ofthe dollar. Treasury officials were given advice on the impact that the export of energy and other technology could have on tax revenues and economic development abroad. Oil imports and oil pricing policy have been a continuous subject of attention. Various options for curbing oil imports were examined. This office also provided Treasury officials with nuclear and Sino-Soviet energy expertise; these studies were frequently consulted by other agencies. The office participated in a White House review of solar energy and pointed out the need for an initial international market analysis, a thorough survey of existing Federal programs, and budgetary restraint. Office of Balance of Paynients The Office of Balance of Payments has staff responsibility for briefing and advising the Secretary and other policy officials on the current situation and outlook for our intemational payments, including the merchandise trade balance, other current account transactions, and official and private international capital flows. This office also represents the Treasury in technical meetings of various interagency groups and international organizations such as the International Monetary Fund and the Organization for Economic Cooperation and Development. During the fiscal year the merchandise trade balance suffered a substantial further deterioration in the first half, followed by a sharp improvement in the second. Starting from a $28 billion seasonally adjusted annual rate in the second (April-September) half of fiscal 1977, the trade deficit rose to a $43 billion annual rate in the first (October 1977-March 1978) half of fiscal 1978 before declining again to a $32 billion rate in the second half. This worsening of the trade balance in the first half of the fiscal year reflected a nearly 34-percent annual rate increase in nonpetroleum imports over the preceding half year, compounded by a 5-percent decline in nonagricultural exports. In the second (April-September) half, however, that adverse pattern 46 1978 REPORT OF THE SECRETARY OF THE TREASURY was reversed—with nonagricultural exports rising at a 37-percent annual rate from the previous half, while nonpetroleum imports slowed to an 18-percent growth rate. Agricultural exports in fiscal 1978 totaled about $3 1/2 billion more, and petroleum imports about $1 1/2 billion less, than in fiscal 1977. The current account deficit in the first (October-March) half of the fiscal year rose to a $28 billion annual rate—more than double the $11 billion rate in the second half of fiscal 1977—before declining sharply again in the second half to a $14 billion annual rate. Also in the first half of fiscal 1978, the recorded net outflow on private capital transactions rose to a $43 billion annual rate (not seasonally adjusted) from a $10 billion rate in the previous half year. The main source of financing for these very large deficits, on both current account and private capital transactions, in the first half of the fiscal year was an annual rate inflow of more than $60 billion (not seasonally adjusted) of foreign official capital, predominantly from other industrial countries. In the second (April-September) half of the fiscal year, official assets declined at an annual rate of $1.6 billion. Since only $1.6 billion of private capital inflow could be identified in this period, an unusually large (not seasonally adjusted) statistical discrepancy resulted, amounting to almost $23 billion. U.S. current account transactions, October 1977-September 1978 [Seasonally adjusted; $ billion] Fiscal 1978* Fiscal 1977 (quarterly averages) Exports Agriculture Other Imports Petroleum and products Other (including other fuels) Trade balance Net services and remittances Government economic grants Net invisibles Balance on current account Oct.-Dec. 1977 Jan.-Mar. 1978 Apr.-June 1978 July-Sept, 1978 30.2 29.5 30.7 35.1 36.9 6.2 24.0 -36.3 5.7 23.8 -39.7 6.5 24.2 -41.9 8.0 27.1 -42.9 7.9 29.0 -45.0 -10.9 -25.4 -10.6 -29.1 -9.9 -31.9 -10.8 -32.1 -10.8 -34.2 -6.1 -10.2 -11.2 -7.8 -8.0 4.8 -.7 3.8 -.6 5.1 -.8 5.5 -.8 5.0 -.8 4.1 3.2 4.3 4.7 4.2 —2.0 —7.0 —6.9 —3.1 —3.8 * Due to seasonal adjustment on calendar-year basis, quarterly data will not add precisely to fiscal year totals. Source: Survey of Current Business, June and December 1978, pubhshed by U.S. Department of Commerce, Bureau of Economic Analysis. REVIEW O F TREASURY 47 OPERATIONS Financing of U.S. current account balances, October 1977-September 1978* [Inflows ( + ) a n d outflows ( - ) ; $ billion] Fiscal 1978 Fiscal 1977 (quarterly averages) Oct.-Dec. 1977 Jan.-Mar. 1^78 Apr.-June 1^78 July-Sept. 1978 -2.2 -5.2 -6.4 -2.7 -6.3 -1.0 -.7 -;1.1 -1.2 -1.4 7.2 15.5 15.8 -5.7 4.9 5.0 1.7 .5 13.9 1.0 .6 13.2 2.0 .6 -2.2 -2.8 -.7 6.4 -1.6 .1 U.S. banks, net -1.0 -5^6 -6^6 13 .9 Claims Liabilities2 Securities, net -3.1 2.1 -1.0 -8.7 3.1 -.2 -6.3 -.3 .4 -.5 1.8 1.1 -7.1 8.0 -1.1 Foreign securities U.S. securitiesa Direct investment, net —1.7 .7 —2.0 —.7 .5 —2.3 ^.9 1.3 —4.3 —1.1 2.2 —2.5 —.5 -.6 —.5 -2.9 -2.8 -5.1 -4.4 -2.3 Current account balance* U.S. reserve assets (increase ( — ) ) Other U.S. Govemment assets* Foreign official assets Industrial countries OPEC members Other countries U.S. investment abroad* Foreign investment in United States* I .2 .3 .2 .9 .4 .8 1.9 1.8 Other U.S. corporate capital, net -.5 -.8 -1.7 .5 .8 Claims Liabilities Statistical discrepancy* -.4 -.1 .4 -1.2 .4 —.7 -2.2 .5 3.6 .3 .2 8.8 .3 .5 2.6 * All data are seasonally unadjusted, because capital flows except U.S. Govemment lending and reinvested eamings component of direct investment income are not available on seasonally adjusted basis. a Excluding foreign official assets. Source: Survey of Current Business, June and December 1978, pubhshed by U.S. Department of Commerce, Bureau of Economic Analysis. Office of Statistical R e p o r t s The Office of Statistical Reports manages two international financial Statistics collection systems—the Treasury international capital (TIC) reporting system, and the Treasury foreign currency (TFC) reporting system. The TIC system collects weekly, monthly, quarterly, and semiannual data on U.S. banks' foreign assets and liabilities (the TIC/B subsystem); U.S. commercial firms' claims on and liabilities to unaffiliated foreigners (the TIC/C subsystem); and securities transactions with foreign residents (the TIC/S subsystem). These data provide information on all movements of capital between the United States and foreign countries other than direct investment flows and Government transfers. During fiscal 1978, the TIC staff produced a dozen brief analyses of monthly flows of U.S. bank credits to foreign residents, in addition to supplying the capital movement data for monthly publication in the Treasury Bulletin, the Federal Reserve Bulletin, and quarterly in the Department of Commerce's Survey of Current Business. 48 1978 REPORT OF THE SECRETARY OF THE TREASURY The TFC system collects weekly, monthly, and quarterly data on the foreign currency positions of U.S. banks and commercial firms, publishing these data in the Treasury Bulletin monthly; these data provide the Government's only information on foreign exchange market positions, and are collected under title II ofthe Par Value Modification Act of 1973. During fiscal 1978, the TFC staff produced seven analyses ofthe banks' weekly data for internal Treasury use. Office of Data Services The Office of Data Services provides computer and data processing facilities for the intemational affairs areas within the Office of the Secretary. Data Services also maintains and operates a computerized system for the collection and reporting of information on U.S. Government loans to foreigners. This office fumishes computer programming and technical advice services to other offices to enable them to efficiently process and analyse the large volumes of information associated with research in such areas as international capital flows, balance of payments forecasting, trade and international economic competition, and aid to the less developed countries. Foreign portfolio investnient survey project The foreign portfolio investment survey project is responsible for the collection and analysis of data relating to international portfolio investment and its effect upon the national security, commerce, employment, inflation, general welfare, and foreign policy ofthe United States. The Secretary ofthe Treasury was designated by the President as the Federal executive responsible for collecting these data pursuant to the Intemational Survey Act of 1976 (Public Law 94-472). The act requires comprehensive surveys of both foreign portfolio investment in the United States and U.S. portfolio investment abroad. • On August 9, 1978, the Office of Management and Budget approved a survey of foreign portfolio investment in domestic securities as of December 31, 1978. A report is required to be filed by every U.S. issuer of securities which, as ofthe latest available closing data of its accounting records, had total consolidated assets of $50 million if a nonbanking enterprise, or $ 100 million if a bank. However, a firm falling below these asset levels, but with assets of $2 million or more, is required to report if there is evidence of foreign ownership of its securities. Firms with assets less than $2 million are exempt from filing a report. In addition, a report is required from every U.S. entity acting as a holder of record of domestic securities on behalf of foreign persons if the combined market value of these securities, held for all foreign accounts, exceeded $50,000 as of December 31, 1978. I See exhibit 17. REVIEW OF TREASURY OPERATIONS 49 Completed survey forms are required to be filed on or before March 31, 1979. Approximately 10,000 U.S. businesses are expected to meet the reporting requirements. The data collection, processing, and analyses are scheduled to be completed in the fall of 1980 with the submission of a report to the Congress. OFFICE OF THE GENERAL COUNSEL The General Counsel, appointed by the President by and with the advice and consent of the Senate, is the chief law officer of the Department of the Treasury. As the chief law officer, the General Counsel administers the Legal Division, composed of all attorneys performing legal services in the Department and all nonprofessional employees providing support to the attorneys, and is responsible for all ofthe legal activities ofthe Department. This includes the legal staffs of all subordinate offices, bureaus, and agencies. The primary role of the General Counsel is to serve as the senior legal and policy adviser to the Secretary of the Treasury and other senior Treasury officials. As such, he reviews the legal considerations relating to policy decisions affecting the management of the public debt, administration of the revenue and customs laws, international economic, monetary, and financial affairs, law enforcement, and other activities. Other responsibilities include providing general legal advice wherever needed, coordinating Treasury litigation, preparing the Department's legislative program and comments to the Congress on pending legislation, reviewing the Department's regulations for legal sufficiency, and counseling the Department on conflict of interest and ethical matters. The General Counsel also is responsible for hearing appeals to the Secretary ofthe Treasury from administrative decisions of bureau heads or other officials. In addition, the Office of Director of Practice (which regulates practice before the Internal Revenue Service) and the Office of Tariff Affairs (which administers the U.S. antidumping and countervailing duty laws) are under the supervision of the General Counsel. The General Counsel manages the Legal Division through the Deputy General Counsel, the Assistant General Counsel for the Department, and the Chief Counsel and Legal Counsel of the various bureaus. Legislation During fiscal 1978, the General Counsel provided the Department's views to the Congress and the Office of Management and Budget on more than 1,000 bills on non-tax-related matters pending before the Congress. In addition, the Legal Division participated in drafting a number of legislative proposals during this period. Among the more significant were: 50 1978 REPORT OF THE SECRETARY OF THE TREASURY On October 3, 1978, President Carter signed into law the Customs Procedural Reform and Simplification Act of 1978. This law permits Customs to establish more efficient and flexible procedures for handling documents and the financial aspects of import transactions; revises the Customs penalty provision dealing with the false entry of merchandise so that the penalty is limited to the culpability of the violator; and modifies numerous customs procedures to expedite the processing of goods and travelers while reducing administrative costs. On December 28, 1977, the President signed Public Law 95-223, revising certain wartime and emergency powers of the President. The act confines the powers of section 5(b) of the Trading with the Enemy Act to wartime use and recodifies the emergency powers in a new International Emergency Economic Powers Act subject to new procedural restrictions on the use of emergency authority. However, the act permits the continued use of section 5(b) authorities with respect to all countries subject to regulations administered by the Office of Foreign Assets Control as of July 1, 1977. These emergency authorities were to expire on September 14, 1978, in accordance with the National Emergencies Act unless the President made a determination (which he did on September 8, 1978) that an extension for 1 year was in the national interest. The act authorizes additional 1-year extensions. The Legal Division also participated in drafting the following major legislation: 1. Financial Institutions Regulatory and Interest Rate Control Act of 1978 (Public Law 95-630). 2. Authority for Treasury to invest for cash management purposes (public funds deposited in banks will draw interest under this legislation. Public Law 95-147). 3. Providing for increased U.S. participation in multilateral development banks (Public Law 95-118). 4. Amendment to Bretton Woods Agreements Act authorizing U.S. participation in the Supplementary Financing Facility of the International Monetary Fund (Public Law 95-435). 5. Susan B. Anthony Dollar Coin Act of 1978 (Public Law 95-447). Litigation The Legal Division is responsible for formulating the Department's position on litigation involving Treasury activities and for working with the Department of Justice in the preparation of litigation reports, pleadings, trial and appellate briefs, and assisting in trying all cases in which the Department is involved. There are many thousand individual cases pending in the Customs Court, the Tax Court, and other Federal courts pertaining to Treasury functions. In Zenith Radio Corporation v. United States, the Supreme Court affirmed the U.S. Court of Customs and Patent Appeals and sustained the longstanding REVIEW OF TREASURY OPERATIONS 51 Treasury position that the nonexcessive remission upon export of an excise tax was not a bounty or grant as a matter of law and did not require that countervailing duties be levied. In Davis Walker v. Blumenthal, an independent producer of wire and wire products challenged the legality ofthe Department's trigger price mechanism (TPM) for monitoring imports of steel mill products under the Antidumping Act. The plaintiff claimed that the TPM was beyond the Secretary's authority under the Antidumping Act, was adopted without following the procedures of the Administrative Procedures Act, and was arbitrary and capricious in its effect on independent producers of wire and wire products. On the Government's motion for summary judgment, the U.S. District Court for the District of Columbia ruled for the Govemment on all three elements of the complaint. Plaintiff's motion for an injunction pending appeal was denied by the Court of Appeals and subsequently the appeal was withdrawn. Regulations During the fiscal year, the Chief Counsel for the Office of Foreign Assets Control prepared final regulations authorizing persons in the United States to send periodic support remittances to close relatives in Cuba and Vietnam. Additional one-time remittances were authorized to assist relatives in emigrating to the United States. Regulations were also promulgated which authorize transactions ordinarily incident to travel to, from, and within the United States by Cuban nationals holding U.S. visas. The Chief Counsel of the Customs Service prepared a final regulation amending the Customs Regulations relating to antidumping investigations which involve merchandise from state-controlled-economy countries. The new regulation provides that when the foreign market value of merchandise from a state-controlled-economy country is based upon the price or constructed value of like merchandise in a free-market-economy country, the freemarket-economy country selected for comparison purposes should be at a level of economic development comparable to that of the state-controlledeconomy country. Other matters The General Counsel's Office held primary staff responsibility for the Emergency Loan Guarantee Board, which was established by Congress in 1971. The Board administered the Government guarantee of private bank loans of up to $250 million to Lockheed Aircraft Corp. The guarantee was terminated by the mutual agreement ofthe parties on October 14, 1977, and the Board transferred all residual authority and responsibility for matters related to the program to the General Counsel on January 31, 1978. The Office participated in the negotiations concerning the settlement ofthe Government's claims against the bankrupt Penn Central Railroad, and advised the Secretary on the legal and financial aspects thereof. 52 1978 REPORT OF THE SECRETARY OF THE TREASURY ENFORCEMENT AND OPERATIONS At the beginning of fiscal 1978, four operating bureaus ofthe Department of the Treasury were organized under a Chief Deputy to the Under Secretary (Enforcement and Operations), who was assisted by two deputies and two staff offices. The bureaus were U.S. Customs Service, U.S. Secret Service, Federal Law Enforcement Training Center, and the Bureau of Alcohol, Tobacco and Firearms. The policies and operations of the Office of Foreign Assets Control were also under the purview of the Chief Deputy to the Under Secretary. On January 20, 1978, by Executive Order 12035, the position of Assistant Secretary, disestablished during the fiscal 1977 reorganization, was reestablished in the Office of Enforcement and Operations. The Office of Operations, in conjunction with other Office of the Secretary staff offices, established an objective adjunct to the zero-base budget system (zero-base budget objectives). The zero-base budget objectives link desired goals for the current year to available resources with interim progress measured at quarterly review sessions. This has been a useful tool in the review and support of bureau activities. The Office of Operations continued to be concerned with cost-effective execution of programs, productivity improvements, equal employment opportunities, and various policy issues regarding the bureaus. The Office of Operations continues to provide staff support to the Under Secretary in the supervision ofthe Bureaus ofthe Mint and Engraving and Printing. This is done through the Deputy Assistant Secretary (Operations). The Office of Law Enforcement continued its oversight and coordination of Treasury's law enforcement policies and programs, and initiated programs to maximize their effectiveness. The staff of the Deputy Assistant Secretary (Enforcement) has begun a review of particular policies and standards under which Treasury law enforcement personnel perform their duties. The Office reviewed legislation affecting the enforcement bureaus and strongly supported the enactment of Public Law 95-575, which relates to trafficking in contraband cigarettes. The Office was abolished at the end of the fiscal year, and the staff report directly to the Deputy Assistant Secretary (Enforcement). Reorganization studies were continued in the U.S. Customs Service and the Bureau of Alcohol, Tobacco and Firearms. The activities of each of the bureaus are recorded in the **Administrative Reports" section of this volume. Alcohol A comprehensive review of legislation and regulations for the alcoholic beverage industry was conducted in fiscal 1978.' As a result, some significant policy changes were implemented. These include more involvement by trained criminal enforcement agents in Federal Alcohol Administration Act cases; I See exhibit 22. REVIEW OF TREASURY OPERATIONS 53 new procedures for referring criminal cases to the Department of Justice and for processing offers-in-compromise within the Bureau of Alcohol, Tobacco and Firearms; review of trade practice regulations, largely unchanged since 1935, with a view toward modernization; and closer scrutiny and review of important regulatory changes, particularly in wine labeling. A partial ingredient labeling proposal has also been developed in collaboration with the Federal Drug Administration, and three expert consultants were hired to review research and scientific materials relating to possible labels on liquor bottles, warning pregnant women of possible harm drinking can cause to unborn children. 2 Arson Treasury in the past year has sought to develop new and more effective strategies within the Department to deal with arson for profit. ^ The Office of Enforcement coordinated the activities ofthe Bureau of Alcohol, Tobacco and Firearms (ATF) in conjunction with the Organized Crime and Racketeering Section ofthe Department of Justice in establishing arson task forces in certain strike force locations. Specific investigative standards and guidelines were developed to determine when an arson-related organized crime or white collar crime should be investigated. ATF made arrangements to assume teaching duties at the National Fire Academy in order to assist in the training of State and local law enforcement and firefighting personnel in the detection and investigation of arson. Contraband cigarettes Evidence submitted to Congress established that the States are now losing an estimated $400 million per year in evaded State cigarette taxes, and that cigarette bootlegging has become a major source of income for organized crime. Treasury strongly supported the enactment of Public Law 95-575 concerning the trafficking in contraband cigarettes. The new law is designed to enable the Treasury and Justice Departments to assist the States in combating the practice of purchasing large quantities of cigarettes in low-tax States and transporting them to high-tax States for resale without payment of the second State's tax. The Bureau of Alcohol, Tobacco and Firearms has been delegated the authority to administer the provisions of 18 U.S.C. 114. Counterterrorism 4 The continuing involvement of the Department of the Treasury in U.S. planning for combating terrorism was intensified under the new interagency structure established by President Carter. The Assistant Secretary (Enforce2 See exhibit 20. 3 See exhibit 28. 4 See exhibit 21. 54 1978 REPORT OF THE SECRETARY OF THE TREASURY ment and Operations) and his staff actively participate on the Executive Committee and the Working Group on Terrorism of the National Security Council's Special Coordination Committee. Under this guidance. Treasury's principal enforcement agencies—ATF, Customs, and Secret Service— also participate in the topical committees of the Working Group on Terrorism seeking to solve various problems caused by the threat of terrorism. One of these topical committees is chaired by the Assistant Secretary's staff officer for terrorism matters. Financial recordkeeping and reporting Treasury regulations (31 CFR 103) issued under the authority of the (Foreign) Bank Secrecy Act provide financial recordkeeping and reporting requirements for the general public, as well as for financial institutions.^ The regulations require banks and other financial institutions to keep certain basic records that have a high degree of usefulness in the investigation of tax, regulatory, or criminal matters. They also contain the following reporting requirements: (1) Financial institutions must report to the IRS any unusual domestic currency transaction in excess of $10,000. (IRS form 4789) (2) Travelers and others must report to the Customs Service the international transportation of currency and certain other monetary instruments in excess of $5,000. (Customs form 4790) (3) U.S. firms and individuals must report their financial interest in or their control over foreign bank and other financial accounts. (Treasury form 90-22.1) The Federal bank supervisory agencies, the National Credit Union Administration, the Securities and Exchange Commission, the Internal Revenue Service, and the Customs Service have all been given specific compliance responsibilities under the regulations. In addition, Treasury has the overall responsibility for administering the act and coordinating the activities of the compliance agencies. The Department has taken additional actions this year to implement the recommendations of the Commerce, Consumer, and Monetary Affairs Subcommittee of the House Committee on Government Operations as reflected in House Report 95-246, dated May 5, 1977. First, IRS Form 4683 (Report of Foreign Bank, Securities, or Other Financial Accounts) was converted to Treasury Department Form 90-22.1, now required to be filed directly with the Office of the Secretary rather than with the IRS as an attachment to an income tax return. This change has made it possible for Treasury to provide information from these reports to other Federal agencies when they have a legitimate need for it. 5 See exhibit 27. REVIEW OF TREASURY OPERATIONS 5 5 Then, on July 1, 1978, the Reports Analysis Unit was established, operating at the Customs Service, under the direction ofthe Deputy Assistant Secretary (Enforcement), to analyze and disseminate information from the reports filed on forms 4789, 4790, and 90-22.1, already described. The Customs Service and the IRS have made major contributions of manpower and other resources to the Unit, which at the fiscal yearend had a staff of 13 persons. In order to reduce the reporting burden on the public and eliminate paperwork of marginal value to the Department, the Under Secretary modified the requirement to report foreign financial accounts. Employees of banks subject to Federal supervision are no longer required to report accounts they have signature authority over if they have no financial interest in them. A similar exemption was also granted to employees of certain corporations if the corporation reports the account. In addition, corporations were permitted to file a consolidated report covering all of their subsidiaries, as well as the parent corporation. The bank supervisory agencies are continuing to check the compliance of every financial institution that is normally subject to Federal supervision. While all violations are reported periodically to the Department in statistical reports, the supervisory agencies have been asked to provide the names of institutions that have failed to comply with the reporting requirements. In fiscal 1978, Treasury began requesting the bank supervisory agencies to provide information concerning the violations when there appears to have been repeated violations at a bank. The IRS, in cooperation with U.S. attorneys in various judicial districts, has undertaken a number of investigations of alleged criminal violations of the requirement that financial institutions report large currency transactions. The majority of the investigations appear to be related to the efforts of drug traffickers to "launder" their money. During fiscal 1978, Treasury transmitted to the Drug Enforcement Administration 1,394 reports pertaining to $157.5 million in currency transactions and 83 reports pertaining to the international transportation of $6.5 million in currency and other monetary instruments that appeared to be related to drug activity. A large number of reports were also provided to other offices within the Department of Justice, as well as to certain congressional committees. The Customs Service, with the establishment ofthe Currency Investigations Division in its Office of Investigations, has continued to increase its efforts to enforce the requirement to report the international transportation of monetary instruments. During the fiscal year. Customs made 639 seizures totaling more than $12.9 million. The related criminal investigations resulted in 36 convictions. 56 1978 REPORT OF THE SECRETARY OF THE TREASURY Firearms Proposed regulations were published which would amend regulations ofthe Gun Control Act of 1968 to require new reports of dispositions of firearms to licensees, reports of guns stolen from licensees, and placing unique serial numbers on all guns manufactured or imported into the United States.^ Over 340,000 written comments were received and analyzed by ATF, and a decision on the final rules is pending. This Office also worked with the Bureau to develop new strategies to more effectively enforce the Gun Control Act. More emphasis is being placed on those illegal activities which, because of their interstate nature, ATF has a greater capability to successfully investigate than State and local law enforcement agencies such as illegal interstate firearms traffic, and interdiction of major illegal sources of weapons. In addition, this Office worked with the Bureau of Alcohol, Tobacco and Firearms to eliminate unannounced routine compliance inspections of firearms licensees, and to limit its investigations of gun shows to those instances where there are specific allegations that significant violations have occurred or will occur. Narcotics The Assistant Secretary chaired a subgroup of the President's Strategy Council on Drug Abuse which examined the subject of economic assistance for narcotics-producing regions. The final report recommended an interagency agreement to institutionalize a formal Justice-State-Treasury reporting system to assure that all agencies are aware of narcotics-growing regions, developmental projects which might be relevant to reducing narcotics cultivation, and the actions being taken by each agency. Regulatory policy and trade affairs During the year there was an increased focus on regulatory policy and trade affairs. Executive Order 12044 (March 23, 1978) and the Treasury plan implementing that order established new procedures for agency rulemaking, and mandated that regulations be as simple and clear as possible, that they achieve legislative goals effectively and efficiently, and not impose unnecessary burdens on the economy, on individuals, or private or public sector organizations. The Office of the Assistant Secretary (Enforcement and Operations) worked with the bureaus supervised to implement these new procedures and policy directives. Substantively, major regulatory activity included the review of regulations implementing the Customs Procedural Reform and Simplification Act of 197 8 (Public Law 95-410, October 3, 1978), and major revisions to the Bureau of Alcohol, Tobacco and Firearms' wine-labeling regulations. All Customs and ATF regulatory proposals, as well as major civil penalty cases, were reviewed for consistency with established policies. 6 See exhibit 23. REVIEW OF TREASURY OPERATIONS 57 TAX POLICY Legislation During fiscal 1978, the Carter administration proposed extensive tax reform to make the tax system efficient, equitable, and simple. The administration also recommended substantial tax reductions to stimulate economic activity and to reduce tax burdens of individuals and businesses. In addition, tax incentives were proposed related to urban policy. The administration also continued to pursue enactment of tax aspects of the President's energy program related to gas pricing, utility rates, and energy conservation and continued to pursue social security tax changes directed at solving short- and long-term financing problems. Tax cuts, incentives, and reforms President's proposals.—On January 21, 1978, the President proposed major tax reform to make the tax system more efficient, tax burdens more equitable, and tax rules simpler.' In addition, tax reductions were proposed to sustain purchasing power and to provide business with incentives to invest in more and better facilities and to create jobs. The President's recommendations were in a balanced tax program. Recommendations for tax cuts and incentives were designed in conjunction with tax reform. The Congress was informed that enactment of proposed tax cuts and incentives by themselves would be unacceptable. The revenue drain would be too great and tax burdens would be misallocated among the income groups. Under the program, net tax liabilities would be reduced by $24.5 billion net for calendar 1979. Gross reductions would be $33.9 billion. Tax reform, however, would raise tax liabilities by $9.4 billion. Net individual income tax liabilities would be cut by $16.8 billion, comprising gross cuts of $23.5 billion and tax-raising reforms of $6.8 billion. Net business income tax cuts would be $5.7 billion, reflecting gross tax cuts of $8.3 billion combined with $2.6 billion of tax increases resulting from various reforms. Cuts in excise taxes and payroll taxes would be $2 billion. The tax cut proposals are summarized as follows: Individuals.—T^x rates would be reduced from the present range of 14 to 70 percent to a range of 12 to 68 percent. In each bracket, there would be a cut of up to 5 percentage points on joint returns, and up to 7 percentage points on returns of single people. The existing $750 personal exemption and the general tax credit (which equals the greater of $35 per exemption or 2 percent of the first $9,000 of taxable income) would be replaced by a $240 tax credit for each personal exemption. 1 See exhibit 29. 58 1978 REPORT OF THE SECRETARY OF THE TREASURY The above tax cuts would take effect on October 1,1978. For calendar 1978, there would be a tax cut approximately one-fourth the size ofthe full year cuts. The tax cut would be reflected in withholding rates in the last 3 months of 197 8, Businesses.—The present corporate income tax rate schedule would be reduced as follows: Taxable income Proposed rates New rates Percent Oto $25,000 $25,000 to $50,000 Above $50,000 20 22 48 18 20 44 However, the rate on income in excess of $50,000 would be reduced initially to 45 percent and to 44 percent beginning in 1980. Other.—The telephone excise tax, scheduled under present law to be phased out by January 1, 1982, would be repealed as of October 1, 1978. The Federal unemployment insurance tax, which applies to the first $6,000 of earnings, would be reduced from 0.7 percent to 0.5 percent as of January 1, 1979. Tax incentive and reform proposals related to individuals are summarized as follows: Itemized deductions.—Deductions for nonbusiness State and local sales taxes, gasoline taxes, personal property taxes, and State levies for disability insurance would be repealed. Deductions for up to $100 of political contributions (or $200 on a joint return) would be repealed. The credit for 50 percent of the first $50 of contributions (or $100 on a joint return) would be retained. Medical expenses and casualty losses would be deductible only to the extent that, combined, they exceed 10 percent of adjusted gross income. Medical insurance premiums would be treated in the same manner as other medical expenses. The rule limiting deductible casualty losses to the extent that each loss individually exceeds $100 would be retained. Capital gains.—The 25-percent alternative tax ceiling on the first $50,000 of an individual's capital gains would be repealed. Capital gains of individuals would continue to be taxed at one-half the regular tax rates. Fringe benefits.—The present employee tax exemption for premiums paid and benefits received under employer health, accident, disability, and group life insurance plans would be limited to those plans which do not discriminate in favor of shareholders, officers, and higher paid employees. The $5,000 employee death benefit exclusion would be repealed. A limit would be imposed on the extent to which qualified pension plans may be integrated with social security. Generally, there would have to be at least 1 percent in contributions or benefits on compensation below the social security wage base for every 1.8 percent in contributions or benefits provided on compensation above the wage base. REVIEW OF TREASURY OPERATIONS 59 Employer contributions under a nondiscriminatory "cafeteria plan" would be taxable to participants only to the extent the contributions are used to provide an otherwise taxable benefit. Transfer payments.—The current exclusion for unemployment compensation benefits would be phased out for income above $20,000 for single persons and $25,000 for married couples. Tax shelters.—The deduction under the minimum tax for one-half of an individual's regular income tax liability would be eliminated. Capital gains on the sale of a home would be exempt from the minimum tax. The "at-risk" provision, which denies the deduction of a taxpayer's losses in an investment except to the extent the taxpayer is personally liable, would be extended to cover all activities other than real estate and to cover closely held corporations (controlled by five or fewer shareholders). The current method of determining useful lives of buildings for depreciation, which is based on the facts and circumstances of the individual cases, would be replaced by a system of guideline lives based on the average lives now used by all taxpayers. The method of depreciation for buildings would generally be limited to straight-line depreciation, instead of the accelerated depreciation methods used under current law. However, new multifamily housing would be able to be depreciated using the 150-percent declining balance depreciation (instead of the present law 200-percent declining balance method) through 1982. Also low-income housing would continue to be depreciated using the 200-percent declining balance method of depreciation through 1982. After 1982, only new low-income housing would be eligible for accelerated depreciation methods, and the maximum allowable depreciation would be based upon the 150-percent declining balance method. New limited partnerships with more than 15 limited partners would be taxed as corporations so that they could not pass through their losses to the partners. Residential real estate partnerships would be exempt through 1982, and lowincome housing would continue exempted as long as 150 percent declining balance depreciation was allowed. The IRS would be authorized to conduct audits at the partnership level and apply any adjustments to returns of individual partners. Taxes would be imposed currently on the earnings of most deferred annuities not purchased under qualified retirement plans. All farming syndicates and all farm corporations, except nurseries, subchapter S corporations, and those with receipts of $1 million or less would be required to use accrual accounting and to capitalize preproductive period expenses. Tax-exempt bonds.—State and local governments would have the option of issuing subsidized taxable bonds. The subsidy rate would be 35 percent of interest costs for bonds issued in 1979 and 1980 and 40 percent for bonds issued thereafter. 60 1978 REPORT OF THE SECRETARY OF THE TREASURY Interest on industrial development bonds for pollution control facilities, industrial parks, and hospital construction would no longer be tax exempt unless, in the case of hospitals, there is a certification by the State that those new hospitals are needed. The $5 million small issue exemption for industrial development bonds would be eliminated except for economically depressed areas, for which the limit would be increased to $10 million. This proposal was modified in the administration's urban policy proposals made in March 1978. (See below.) Tax incentive and reform proposals related to business are summarized as follows: Investment credit and depreciation.—The 10-percent investment credit would be made permanent. The credit, which now applies only to equipment and certain special purposes structures, would be extended to all new industrial buildings and to investment made to rehabilitate existing buildings for construction costs incurred after 1977. Investment credits would be allowed to offset up to 90 percent of tax liability, instead of 100 percent of the first $25,000 of tax liability and 50 percent of tax liability in excess of $25,000 as under present law. The full 10-percent investment credit (instead of 5 percent) would be extended to pollution control equipment qualifying for 5-year amortization which is placed in service after 1977. Tax administrators would be given legislative authority to issue new asset depreciation range (ADR) regulations to simplify and revise the present regulations for all electing businesses. Small business.—Subchapter S provisions, which generally allow electing small business corporations to be taxed in a manner similar to partnerships, would be expanded and simplified. The provision in present law which allows losses from stock in a small business corporation as a deduction against ordinary income would be broadened by allowing business to double (to $1 million) the amount of their stock issues which may qualify, increasing the aggregate amount of losses which may be/claimed on individual tax returns to $50,000 ($100,000 on a joint return) and by eliminating some restrictions on the use of the provision. Business deductions.—Deductions would be disallowed for entertainment facilities such as yachts, hunting lodges, and club dues, as well as for such entertainment activities as tickets to theater and sporting events. Deductions would be disallowed for one-half of the cost of meals which otherwise would be deductible. However, meals consumed while traveling on business away from home overnight would continue to be deductible fully. Expenses incurred to attend foreign conventions would be disallowed unless it is as reasonable for the meeting to be held outside as within the United States. Deductions for first-class airfare would be disallowed to the extent they exceed coach fare for similar flights. Financial institutions.—The excess additions to the bad debt reserves of commercial banks, now being phased out through 1987, would be disallowed REVIEW OF TREASURY OPERATIONS 61 as of 1979, at which time banks would compute their bad debt reserves based on actual experience. The excess additions to the bad debt reserves of savings and loan associations and mutual savings banks would be phased down from 40 percent of taxable income to 30 percent of net income over a 5-year period. The tax exemption for credit unions would be phased out over a 4-year period, and after 1982, they would be taxed on the same basis as savings and loan associations. On May 12, 1978, the administration decided to trim the proposed $24.5 billion tax cut to $19.5 billion and to postpone the effective date 3 months to January 1, 1979. The administration recognized that economic conditions had changed substantially since January 1978 and there was a need to get a better balance between monetary and fiscal policy. Inflationary pressures were mounting. Employment was increasing. Under these circumstances, a smaller budget deficit in fiscal 1979 would be highly desirable. Congressional consideration.—The Congress gave immediate consideration to the President's proposals. However, by the end ofthe fiscal year. Congress had not taken final action. The House Ways and Means Committee began hearings on January 30 and reported its bill, H.R. 13511 (the Revenue Act of 1978), on August 4. The House approved H.R. 13511 on August 10. The House-approved bill would provide a $ 15.6 billion cut in calendar 1979 tax liabilities. The cut would include $10.5 billion in personal tax cuts, $4 billion in business tax cuts, and $1.1 billion in capital gains tax reductions. The House bill, however, excluded a number ofthe President's proposed tax reforms and directed a larger share of tax cut benefits to people in the middle and upper income ranges, rather than to people lower down the income scale, as recommended by the President. In addition, the House bill contained capital gains tax reductions directed largely at wealthy individuals. The administration sought Senate modification when the Senate Finance Committee began hearings on the House-approved bill on August 17. While accepting the size ofthe House tax cut, the administration recommended that the personal tax cut be focused more toward lower and middle income groups. In addition, the administration objected to the large capital gains tax cuts which would be less than in the House bill and opposed the House's weakening of the minimum tax. The administration also continued to seek proposed reforms which the House had failed to approve.^ The Senate Finance Committee reported an amended H.R. 13511 on September 28. The calendar 1979 cut in tax liabilities would be considerably larger than the $ 15.6 billion cut in the House bill which included a $2.5 billion revenue gain from repeal ofthe general jobs credit and the $ 19.5 billion in the administration's proposals revised in May 1978. 2 See exhibit 34. 62 1978 REPORT OF THE SECRETARY OF THE TREASURY Most notably, the Finance Committee's bill enlarged the tax cuts for individuals, businesses, and capital gains. Individual income tax cuts in the House were enlarged primarily to benefit individuals within the $10,000 to $50,000 income range. The committee also added business tax cuts to the House-approved reduction in corporate income tax rates, most notably more rapid writeoffs for new plant and equipment. In addition, the committee expanded the capital gains tax reduction in the House bill and provided a new alternative minimum tax to replace the add-on minimum tax. While indicating that in some respects the Finance Committee's bill improved the House version, the administration still had serious objections to the Finance Committee's decisions. The size ofthe tax cuts in the committee bill would be excessive not orily for calendar 1979 but also for 1980, 1981, and beyond. Such tax cuts would be inflationary and would compromise the flexibility and discretion of the Government to reduce the budget deficit currently and in the future. Moreover, while the committee's distribution of personal tax cuts would be an improvement over the House version, the committee's tax cut share going to middle incomes would be inadequate. The committee's skewing of cuts to upper income individuals was attributable primarily to objectionable capital gains tax cuts. Further, the committee's bill would encourage excessive tax sheltering. The bill would permit very highincome taxpayers to shelter more of their income than they do under present law. Finally, the administration found that not only did the committee's action ignore many ofthe President's reform proposals but would add inappropriately new and inequitable tax preferences. At the end of the fiscal year, the Finance Committee's bill was awaiting Senate floor action. Overseas taxation.—The President proposed in his 1978 tax package a 3year phaseout of the domestic international sales corporation (DISC) provision. DISC'S were typically wholly owned subsidiaries of large manufacturing corporations through which export profits could be channeled. Tax on one-half of a DISC's profits attributable to "incremental" exports was indefinitely deferred so long as the profits were invested in export-related assets. The primary purpose of DISC was to stimulate exports. But analysis indicated that DISC was more costly and less effective than expected. ^ The administration preferred more cost-effective and fairer means of stimulating exports than DISC. Moreover, DISC was enacted in 1971, when exchange rates were fixed. But subsequent adoption of flexible exchange rates provided a more direct method of compensating for changes in the U.S. trade balance. The President also proposed as part of the tax reform program the termination over 3 years ofthe deferral of U.S. tax on the unremitted income of controlled foreign corporations. Under current law, a U.S. parent corporation typically did not pay tax on the earnings of its foreign subsidiaries unless, and until, those earnings were repatriated. When the earnings were repatri3See Treasury's Sth annual report to Congress, "The Operation and Effect of the DISC Legislation," Apr. 14, 1978. REVIEW OF TREASURY OPERATIONS 63 ated, a credit was allowed against U.S. tax for foreign taxes paid on the earnings. The excess ofthe U.S. tax over foreign taxes on unremitted earnings of foreign subsidiaries was therefore indefinitely deferred. This deferral created an incentive for U.S. companies to invest overseas in low-tax countries rather than in the United States, and to shift artificially profits from their U.S. to their low-tax foreign subsidiary operations. Consequently, deferral rested entirely on the artifact of a foreign corporate charter interposed between the U.S. parent company and its foreign operations. In addition, terminating deferral would permit the rationalization and simplification of U.S. taxation of foreign income, and would promote competition between large multinational companies and their smaller, more domestic, competitors operating only in domestic markets. The administration also proposed to amend the taxation of income eamed by Americans working overseas. The proposal would have postponed the amendments already enacted in the Tax Reform Act of 1976 until 1978 and would then replace the exclusion of a fixed amount of foreign earned income with a series of special deductions for added costs of housing, education, and home leave travel incurred by Americans working overseas, plus more generous rules for deducting expenses of foreign moves. The Senate Finance Committee had already introduced a bill with essentially these provisions which was subsequently approved by the full Senate. The House approved a more generous system of special deductions plus, in the case of Americans living abroad other than in Canada or Western Europe, an additional $20,000 or $25,000 exclusion. The House bill also provided an extension of pre-1976 law through 1977. The matter was in House-Senate conference at the close of the fiscal year. Urban tax policy.—In March 1978, the administration proposed an employment tax credit for employers of young persons aged 18 to 24 from low-income households and handicapped individuals referred by vocational rehabilitation programs. The credit would replace the current law "new jobs" credit scheduled to expire on December 31, 1978. The credit would be equal to onethird of each employee's wages up to a maximum of $2,000 the first year and equal to one-fourth of each employee's wages up to a maximum of $ 1,500 the second year. The credit would be limited to 20 percent of the total Federal Unemployment Tax Act (FUTA) wage base for any employer and could not exceed more than 90 percent of tax liability in any year. The administration also proposed to limit tax-exempt "small issue" industrial development bonds (IDB's) solely to the acquisition or construction of land or depreciable property in "distressed" areas but to increase the size of projects that may be financed with tax-exempt IDB's from a maximum of $5 million to $20 million. The administration also proposed an additional investment credit of 5 percent beyond the current 10-percent credit if certain investments are made 64 1978 REPORT OF THE SECRETARY OF THE TREASURY in "distressed" areas. The additional credit wou4d be allowed only for those investments or portions of investments for which the Department of Commerce has issued a certificate of necessity. Social security taxation.—On December 20, 1977, President Carter approved and signed Public Law 95-216, the Social Security Amendments of 1977. The law is primarily directed at counteracting short- and long-term financing problems in the social security system. In recent years, the combination of inflation and recession had raised benefits and reduced tax receipts, respectively, and created excessive drains on trust fund reserves. Also the projected reduction in worker-to-beneficiaries ratio in the population in the next century and the existence of a flaw in a benefit adjustment formula to compensate for inflation endangered long-term solvency of the trust fund. On May 9, 1977, the President had proposed to the Congress revision ofthe' social security laws to solve these financing problems. The President called for higher payroll taxes into the 1980's, supplemented by general revenues in times of high unemployment. Higher payroll taxes would come from proposed, increases in the taxable wage base ceiling. Tax rates would not be increased.] However, to provide relatively lower burdens for workers, the President^ recommended a higher taxable wage base for the employers' tax than for the employees' tax. In addition, he recommended that the tax rate for the selfemployed be raised to 1 1/2 times the tax rate for employees, returning to the relationship which existed in 1972 and earlier years. Correction ofthe inflation indexing flaw was also proposed. The 1977 act included the administration's recommendation to correct the indexing flaw and to change the relationship ofthe self-employment tax rate. However, the act featured higher payroll taxes than recommended by the* President because the act did not make any provision for general revenue financing of social security. Also, differential wage base ceilings for employees! and employers proposed by the administration were not accepted. : The 1977 act provided annual increases beginning in 1979 in both tax ratesj and wage base ceilings. By 1982, employees and employers will each pay a taxj of 6.70 percent on eamings up to $31,000. In 1977, the tax on each was 5.85 percent on eamings up to $ 16,000. After 1982, the law provides that the wage base ceiling keep pace with inflation by automatic annual adjustment. Miscellaneous tax provisions in the act dealt with contributions by employers of workers receiving tip incomes, exclusion from social security coverage of certain income of limited partnerships, tax treatment if anj individual is employed simultaneously by related companies, and options for nonprofit organizations to pay payroll taxes. Subsequent to the approval of Public Law 95-216 and during congressional consideration ofthe President's 1978 tax program, various legislative effortsl were made to modify or reduce the social security tax increases in the 1977 act. The actions were opposed by the administration and the Congress did not| approve any change. REVIEW OF TREASURY OPERATIONS 65 Energy taxation.—President Carter had proposed a comprehensive longterm national energy program on April 20, 1977, which included a number of tax penalty and tax incentive recommendations. Briefly they were: A graduated excise tax on new "gas guzzling" automobiles; a standby tax on gasoline consumption if an annual conservation target were not met; an equalization tax on domestic crude oil based on the difference between the controlled domestic price and the wond price of oil; a natural gas and petroleum usage tax in trade or business; an increase in excise tax on fuel for general aviation; an additional 10-percent credit for additional investment in "business energy property"; a tax deduction for intangible geothermal drilling costs comparable to intangible drilling costs available in oil and gas drilling; a tax credit for installation of residential solar energy equipment; a tax credit for the installation pf insulation and other energy conservation items in residences; and others. Also recommended were: Rebate ofthe gas-guzzler tax to buyers of gas-efficient motor vehicles; rebate of the gasoline consumption tax to income taxpayers on a per capita basis (with direct payments to nontaxpayers); and rebate of the crude oil equalization tax to home heating oil retailers if passed through to consumers in the form of lower prices.^ The energy legislation became the principal work ofthe Congress in 1977 and 1978. By the end of fiscal 1978, two versions of an energy program were before the House-Senate conferees. The House had passed an omnibus energy program (H.R. 8444) on August 5, 1977. H.R. 8444 contained a gas-guzzler tax but no rebate. The bill provided for a tax on crude oil and a tax on utility and industrial use of oil and natural gas. The bill provided also for a tax credit for home insulation. The bill, however, did not have a standby gasoline consumption tax. The Senate had not considered an omnibus bill but had broken the package into six separate bills. By October 31, 1977, the Senate had passed each bill, much of which differed from the President's proposals and the House-passed H.R. 8444. The Senate rejected a gas-guzzler tax and preferred a ban on production of gas guzzlers instead. The Senate also did not pass the gasoline consumption tax and the crude oil equalization tax. It approved, however, a tax credit for home insulation and a tax on utility and industrial use of oil and natural gas. , Other legislation.—Additional tax legislation was enacted during fiscal 197 Sj. Public Law 95-147, approved October 28, 1977, expands authorized tax depositaries. Public Law 95-170, approved November 12, 1977, provides an extension of transitional rules postponing the applicability of private foundation selfdealing rules for certain pre-October 9, 1969, leases. Public Law 95-171, also approved November 12, 1977, provides an extension for certain child care programs and affects the WIN credit and withholding by employment agencies placing companion sitters; extends 4 For more details on the President's program, see 1977 Annual Report of the Secretary of the Treasury, pp. 48-50. 66 1978 REPORT OF THE SECRETARY OF THE TREASURY amortization of low-income housing rehabilitation expenses; and extends the exclusion for Armed Forces Health Professional Scholarships. Public Law 95-172, again approved November 12, 1977, provides for the deletion of amounts paid as State and local sales or excise taxes from the Federal excise tax base related to communications services. Public Law 95-176, approved November 14, 1977, made technical amendments to provisions of the tax on distilled spirits relating to withdrawals for export, storage procedures, production of gin, etc. Public Law 95-210, approved December 13, 1977, provides for the disclosure of tax retum information to the National Institute for Occupational Safety and Health for the purpose of locating individuals exposed to an occupational hazard. Public Law 95-227, approved February 10, 1978, provides for an excise tax on coal to finance black lung benefit programs, exempt self-insurance trust funds, and allow business deductions for contributions to such funds. Public Law 95-258, approved April 7, 1978, provides for the inclusion of certain disaster crop payments received in 1978, but attributable to 1977, in the 1977 income of cash basis taxpayers and extends for 1 year the existing treatment of State legislators' travel expenses away from home. Public Law 95-339, approved August 8, 1978, authorizes the Secretary of the Treasury to provide financial assistance for the city of New York and provides for the taxability of certain federally guaranteed obligations. Public Law 95-345, approved August 15, 1978, permits exempt organizations and mutual funds to loan their portfolio securities to brokers without harmful tax effects. Public Law 95-372, approved September 18, 1978, established in the Treasury an offshore oil spill pollution compensation fund to be financed by a fee per barrel on oil obtained from the Outer Continental Shelf and to be collected by the Treasury. Administration, interpretation, and clarification of tax laws During fiscal 1978, 46 final Treasury decisions, 11 temporary Treasury decisions, and 53 Treasury notices of proposed rulemaking were published in the Federal Register. A substantial number of these publications implemented provisions ofthe Tax Reform Act of 1976, including regulations relating to the investment tax credit for movie films; public inspection of IRS determinations; requirements to obtain a ruling from the IRS under Code section 367 and information regarding carryover basis property acquired from a decedent. In addition, regulations implementing the Employee Retirement Income Security Act of 1974 and the Tax Reduction and Simplification Act of 1977 were published. Guidelines were issued to govern the arbitrage profit allowable on the refunding of certain tax-exempt bonds. I REVIEW OF TREASURY OPERATIONS 67 Tax reports I High-income taxpayers.—Pursuant to the Tax Reform Act of 1976, the Treasury published in August 1978 its second annual report, "High Income Tax Returns—1975-1976." The 1976 act requires the annual publication of a report containing data on high-income taxpayers including the number of taxpayers who do not pay any taxes and the importance of various tax provisions which permit individuals to be nontaxable. Domestic international sales corporation (DISC).—Pursuant to the Revenue Act of 1971, the Treasury submitted to the Congress on April 14, 1978, its fifth annual report, "The Operation and Effect ofthe DISC Legislation." The report covered DISC year 1976 (essentially calendar 1975). Americans working overseas.—The Treasury issued a report in February 1978 on the taxation of Americans working overseas including law and legislative proposals, general characteristics of such taxpayers, and the impact ofthe tax rules. The report covered calendar 1977. Taxation of U.S. corporations.—Pursuant to the request of the chairman of the Joint Economic Committee and the Senate Select Committee on Small Business, the Treasury issued a report to the Congress in May 1978 on the estimated effective income tax rates paid by U.S. corporations in 1972. Possessions corporation system of taxation.—Pursuant to the Tax Reform Act of 1976, the Treasury submitted to the Congress on June 29, 1978, the first annual report, entitled "The Operation and Effect of the Possessions Corporation System of Taxation." The report covered calendar 1976. Tax research.—The Treasury published in "The 1978 Compendium of Tax Research" a series of studies sponsored by the Office of Tax Policy on the effects of the tax system on the economy. Tax treaties : Negotiations and technical discussions on income tax treaties were continued with Bangladesh, Canada, Cyprus, India, and Jamaica. The tax tieaty with the United Kingdom was approved by the Senate with a reservation on article 9(4) dealing with State taxation of multinational corporations. Further discussions were held with the British on how to proceed, following the Senate reservation. The Senate Foreign Relations Committee reported out favorably the tax treaty with Korea, which was not approved by the Senate. The Foreign Relations Committee also considered, but has not yet acted on, the tax treaty with the Philippines. The income tax treaty with Morocco was submitted to the Senate for its advice and consent. The estate and gift tax treaty with the United Kingdom was prepared for signature. Negotiations for an estate and gift tax treaty were continued with Germany and Denmark. Discussions also continued with France, and a treaty draft was revised to include taxes on gifts as well as estates. 68 1978 REPORT OF THE SECRETARY OF THE TREASURY Participation in international organizations Treasury representatives participated in the work of the Committee on Fiscal Affairs of the Organization for Economic Cooperation and Development (OECD), including membership on a number of working parties ofthe Committee. Treasury representatives also attended meetings of the InterAmerican Center of Tax Administrators (CIAT), the UNESCO conference on the taxation of copyright royalties, and the U.N. Group of Experts on Tax Treaties between Developed and Developing Countries. INTERNATIONAL AFFAIRS Trade and Investment Policy Trade negotiations During fiscal 1978, primary efforts in the trade area were directed at the achievement of substantive progress in the multilateral trade negotiations (MTN), in support o f further trade liberalization and the reform of the international trading rules,' aiming toward the creation of a new international trading framework which will address a wide variety of major problems: Injurious import competition, government subsidization, government procurement, the use of export controls, the role of the developing countries, and methods of dispute settlement. By July 1978, we were able to achieve a "framework of understanding" on most major issues in the negotiations. ^ This should enable a final political levelj agreement by December 15, 1978, the deadline set by the Bonn summit! participants for conclusion of detailed negotiations. j Major progress was achieved especially in the negotiation of a code Qn subsidies and countervailing duties, one ofthe most difficult issues in the M T N and a matter of special interest to Treasury. The United States indicated its willingness to accept inclusion of an injury test in our countervailing duty law as part of a comprehensive agreement which brings needed additional discipline to this area. This has been an issue of major importance to our trading partners and clearly demonstrates our great interest in avoiding trade disputes in this area in the future. Current Treasury authority to waive the imposition of countervailing duties expires in January 1979. Although this factor has complicated the negotiations, the administration has indicated its confidence that it can secure an extension of the waiver authority from the new Congress, which convenes in January 1979, or take other measures which would equally mitigate the possible adverse effects of the expiration of this authority. i 1 See exhibit 43. 2 See exhibit 4S. i REVIEW OF TREASURY OPERATIONS 69 Trade issues During the fiscal year, the Department was also actively involved in a number of issues relating to imports. In a major test case in June 1978, the Supreme Cburt in Zenith Radio Corporation v. United States unanimously upheld the Treasury decision that the Japanese rebate or remission of its commodity tax on consumer electronics exports is not a countervailable "bounty or grant" under section 303 ofthe Tariff Act of 1930. Had Treasury lost the case, billions of dollars of imports from virtually every major trading nation could potentially have been affected. In December 1977, the interagency steel task force chaired by Treasury Under Secretary Solomon proposed a comprehensive steel program to help meet the industry's problems in competing with foreign imports and modernizing the industry.3 As part of this program, the administration adopted a "trigger price mechanism" (TPM) for steel imports to facilitate prompt Treasury investigation of potential cases of steel dumping in the U.S. market and to help prevent destructive, unfair price-cutting competition. The TPM became fully operational in May 1978. Through bilateral and multilateral discussions, the United States and other major steel trading nations made significant progress during the fiscal year in reaching a cooperative international approach to steel problems. The Ad Hoc Steel Group ofthe Organization for Economic Cooperation and Development (OECD) agreed to establish a standing steel committee ofthe OECD to act as a monitoring and consultative body to address future problems in steel trade before they become crises. Export policy Finally, in an effort to help reduce the U.S. trade deficit, which reached a Tecord $31 billion in calendar 1977,^ the President in September 1978 i^nnounced the adoption of a new national export policy to encourage exports. The program includes a number of measures to increase Government ajssistance to exports, through expanded budget support for the Export-Import Bank ofthe United States (Eximbank), loan guarantees by the Small Business -Administration to help small exporters, increased export development programs, and other measures to reduce unnecessary government regulations which adversely affect U.S. exports. East-West trade U.S. trade with Communist countries decreased in 1977 to $3.83 billion, down from $4.70 billion in 1976. This reflected a decline in U.S. exports of agricultural goods, as a result of better harvests in the Soviet Union and other countries, to $1.6 billion, from $2.4 billion in 1976. The United States had a 3See exhibit 38. 4 See exhibits 36 and 39. 70 1978 REPORT OF THE SECRETARY OF THE TREASURY positive balance of trade with these countries of $1.58 billion in 1977, down from $2.56 billion in 1976. Trade trended up again in 1978, totaling $4.39 billion for the first 8 months, ofwhich $2.44 billion represented U.S. agricultural commodities. Secretary Blumenthal, an honorary Director ofthe U.S.-U.S.S.R. Trade and Economic Council, addressed a session of the Council in Los Angeles on November 14, 1977.5 On April 7, 1978, President Carter issued a waiver of the application of subsections (a) and (c) of section 402 ofthe Trade Act of 1974 with respect to Hungary. This prepared the way for the exchange on July 7, 1978, of notes which brought into effect the agreement on trade relations between the United States and Hungary. On June 2, 1978, President Carter recommended to the Congress extension of the waiver authority as provided in section 402 of the Trade Act of 1974, allowing the United States-Romanian trade agreement to remain in force for another year.^ By not voting in either House against extension. Congress permitted the agreement to remain in force until at least July 1979. Export credits Treasury led a U.S. effort to negotiate the Intemational Arrangement on Export Credits, which became effective April 1, 1978. Secretary Blumenthal, in a subsequent effort to strengthen and improve that agreement, called for new negotiations during the OECD Ministerial meeting in June and met with Ministers of participating countries in September 1978 to emphasize the U.S. view. A series of sessions were held at the official level in the continuing effort to place effective limits on subsidized financing of exports. The dangers of competitive official export financing have become particularly acute in connection with aircraft sales—a subject on which Deputy Assistant Secretary Hufbauer testified before a House subcommittee July 14, 1978.^ / Assistant Secretary Bergsten testified March 13 and 20 before congressional committees in support of a 5-year extension and expansion of authority of the Export-Import Bank, which has become highly useful in meeting foreign official competition in the financing of exports. ^ Treasury advises Eximbanks,. on a variety of matters pertaining to U.S. international financial and economic policy. President Carter's program to expand exports will require an increase of Eximbank's budget by $500 million in fiscal 1980, Treasury also continued to review the export program of the Commodity Credit Corporation (CCC), providing advice to the Agriculture Department both directly and through the National Advisory Council on International Monetary and Financial Policies. The CCC budget for assisting in the financing of agricultural exports was $1.7 billion in fiscal 1978. 5 See exhibit 37. 6 See exhibit 67. 7 See exhibit 44. 8 See exhibits 67 and 40. REVIEW OF TREASURY OPERATIONS 71 Treasury was active on the Arms Export Control Board which was concerned with the foreign security assistance program. Treasury concem was directed primarily toward ensuring that U.S. Government financing of foreign military sales was offered under terms and conditions which were consistent with other U.S. Government financial policies. Agreements extending more than $2.1 billion in foreign military sales credit were signed during fiscal 1978, ofwhich some $ 1.5 billion was placed by the Federal Financing Bank with 22 different countries. United States-Saudi Arabian Joint Commission on Economic Cooperation Since Secretary Blumenthal's visit to Saudi Arabia in October 1977, three additional project agreements, for technical cooperation in the areas of auditing, customs, and central procurement, have been signed. The Joint Commission now is implementing 16 major projects with a total ultimate value of over $800 million.^ [Additional agreements signed on November 18, 1978, at the conclusion ofthe Fourth Session ofthe Commission, bring the number of projects to 20 and the total ultimate value to over $850 million.] There are presently over 135 American specialists working in Saudi Arabia under the auspices of the Joint Commission. This number is expected to increase during the coming year. Overseas Private Investment Corporation (OPIC) In mobilizing and facilitating the participation of U.S. private capital and skills in the economic and social progress of friendly less developed countries (LDC's) as a complement to our development assistance to these countries, OPIC gives preferential consideration to investment projects in LDC's that have per capita incomes of $520 or less in 1975 U.S. dollars, and restricts its activities in LDC's that have per capita incomes of $1,000 or more in 1975 • U.S. dollars. / Maximum insured amounts as of September 30, 1978, were (1) $3.3 billion jfor expropriation; (2) $2.8 billion for inconvertibility; and (3) $2.8 billion for jwar, revolution, and insurrection. '^ As of September 30, 1978, outstanding commitments under the investment guarantee program were $134.4 million and outstanding commitments under the direct loan program were $31.7 million. Although OPIC's authority to write insurance lapsed for a 4-month period beginning in January, OPIC wrote as much insurance in fiscal 1978 as in fiscal 1977. Thus dollar volume (maximum insured amount) remained constant at approximately $700 million. On April 24, 1978, the President signed the Overseas Private Investment Corporation Amendments Act of 1978. This act extends OPIC's insurance and guarantee authority, which lapsed at the end of December, until September 9See exhibit 35. 72 1978 REPORT OF THE SECRETARY OF THE TREASURY 30, 1981. Key amendments strengthened OPIC's development mandate by requiring, inter alia, that it refocus its efforts on the poorer countries which have the greatest difficulty in attracting adequate flows of public and private development resources; dropped the mandatory privatization targets under which OPIC would have had to transfer its insurance underwriting to the private sector by 1981; and strengthened OPIC's small business mandate by requiring OPIC to seek to increase the number of projects sponsored by or significantly involving small businesses to at least 30 percent of all projects insured, guaranteed, or reinsured by OPIC. The legislative history supports development by OPIC of innovative, risk-reducing coverage for investments in energy and raw materials. Expropriations Beginning in January and February 1975, when the Ethiopian Provisional Military Govemment (EPMG) announced widespread nationalizations, the EPMG nationalized the property of 22 U.S. citizens and firms. In November 1976 and October 1977, the EPMG invited the U.S. firms to file claims, which they did on both occasions. In October 1977, the United States abstained on an African Development Fund loan to Ethiopia because ofthe lack of progress toward settlement ofthe outstanding expropriation claims. Although the Executive Director's statement and Embassy discussions with the EPMG made clear that the U.S. Government hoped and expected that the announced willingness of the Compensation Commission to discuss the claims by telephone would produce ' meaningful negotiations toward settlements in the near future, no such negotiations have taken place. Thus, on April 4, 1978, the United States abstained on an International Development Association (IDA) loan, advising ; both IDA and the EPMG that it would vote " n o " the next time a loan to i Ethiopia was brought forward in a multilateral development bank, unless ] significant progress has been made toward settlement. ( International Center for the Settlement of Investment Disputes (ICSID) During its annual meeting on September 27, 1978, the Administrative Council of ICSID, with strong support from the United States, represented by Treasury, created an additional facility within the ICSID Secretariat for certain categories of proceedings for conciliation, arbitration, and factfinding which had not been governed by the convention establishing ICSID. The additional facility will allow states which are not members of ICSID and their nationals the opportunity to make use of the services of the Secretariat and will allow the Secretariat to help settle certain types of noninvestment disputes which fall outside the jurisdiction of the convention itself. REVIEW OF TREASURY OPERATIONS 73 UNCTAD discussions on restrictive business practices The Ad Hoc Group of Experts on Restrictive Business Practices met in March and July 1978 in a continuing effort to reach agreement on principles and rules for controlling restrictive business practices. No agreement on principles was reached, in large part because the LDC's sought a set of legally binding principles while the United States and some other developed countries took the view that any set of principles should be voluntary for both corporations and governments. Nevertheless, there was substantial progress in the areas of information exchanges and technical assistance. The group will meet again in March 1979 for a further attempt to agree on a set of multilaterally agreed principles and rules on restrictive business practices and to discuss the text of the model law that was drafted by the United Nations Conference on Trade and Development (UNCTAD) Secretariat. Commodities and Natural Resources Policy U.S. commodity policy During fiscal 1978, the United States continued to develop and refine its basic initiatives in commodity policy. Over the past 2 years of North-South dialog, commodity issues have been high on the agenda in exchanges between developed and developing countries, and in these discussions, the United States has advocated a commodity policy that would work to the benefit of both producers and consumers. The U.S. approach has been— • To promote commodity price stability through the creation of international commodity agreements; • To support the stabilization of export earnings for producing countries through the compensatory financing facility of the International Monetary Fund; • To remove existing barriers to investment and trade in commodities, and discourage imposition of new ones, to assure efficient and secure ; sources of supply.'® / Foremost among commodity problems in recent years has been the sharp ^^fluctuation of prices, which has been caused by changes in worldwide economic activity or changes in crop production. The high rate of growth in t the world economy during 1973-74 drove commodity prices sharply higher, I only to be followed by the deep recession of 1975-76 which resulted in a decline in most prices. In 1977 commodity prices were mixed, but by mid-1978 prices, both industrial and food, had established a new uptrend. While some fluctuation in prices must be expected, extreme fluctuations are detrimental to stable economic growth in both developed and developing countries as they give rise to near-term inflationary pressures and discourage investment in commodity industries. 10 See exhibit 47. 74 1978 REPORT OF THE SECRETARY OF THE TREASURY To remedy the situation in the most volatile markets, the United States has supported, where feasible, the negotiation of international commodity agreements (ICA's). These agreements, operating preferably through buffer stocks, are aimed at stabilizing prices within a broad band around their longrun trend. Properly designed, commodity agreements can moderate price fluctuations while at the same time allowing for an efficient allocation of resources. This stability contributes to an easing of inflation, greater stability in economic growth, a smoother pattem of investment in raw materials industries, and more reliable income to producers. At the same time, such agreements provide for closer coordination between producers and consumers in maintaining acceptable supply-demand balances. Currently, international commodity agreements are in effect for tin, coffee, and cocoa (though the United States is not a member); a sugar agreement was negotiated in 1977 but has not yet received final ratification. Discussions which may eventually lead to negotiations have been undertaken for wheat, natural rubber, and copper. The administration made a commitment to contribute tin to the buffer stock ofthe Intemational Tin Agreement, but Congress failed to complete action on legislation. After considerable study, the Government has concluded that agreements are not feasible for some commodities. Lack of an acceptable reference price, stability problems, nonhomogeneous grades, lack of interest, and chronically depressed markets will likely preclude ICA's for tungsten, jute, manganese, and several other commodities originally proposed by developing countries. Common fund.—To assist ICA's in financing buffer stock activities, the United States has supported the Group B (mainly OECD countries) proposal for a common fund (CF) presented at the negotiating conference in November 1977. It calls for a consolidation of individual ICA financial resources in a common fund which would lower the paid-in financial requirements for each agreement. If the paid-in resources are exhausted, the CF would supplement the deposits with commercial market borrowings secured by negotiable warehouse receipts (stock warrants) ofthe ICA's and by the remaining capital assets ofthe ICA's (callable capital or government guarantees). To provide fof more equitable sharing of financial responsibility for agreements, the proposa\[ implicitly assumes participation of consuming and producing countries in the^ financing of ICA's. Developing countries continued to insist on a common fund which relies heavily on direct mandatory contributions which would be used to finance buffer stocks. Their common fund would also include a second window to finance a wide range of non-buffer-stock measures for commodities, a pirovision which the United States was unable to support. Wide differences between the Group B proposal and the common fund proposal by the G-77 prevented successful conclusion of negotiations at the November conference. During much of 1978 both Group B and Group of 77 sought to narrow their differences so as to raise the prospects of a successful REVIEW OF TREASURY OPERATIONS 75 negotiation of the common fund. The administration, particularly the Departments of Treasury and State, participated in numerous consultations with Congress and other countries—both developed and developing. The developed countries maintained that direct governmental contributions would undermine the autonomy of ICA's and that a second window, as proposed by the developing countries, would essentially duplicate activities ofthe multilateral development banks. A third negotiating conference is scheduled for November 1978. Commodity developments Sugar.—Delay in ratification ofthe Intemational Sugar Agreement (ISA) was caused by the failure of Congress to enact ne\y domestic sugar legislation, which also contained necessary ISA implementing legislation. A new domestic sugar program is expected to be signed into law early in 1979, after which the Senate is expected to ratify the ISA. The administration believes U.S. sugar policy should be compatible with and built on an effective ISA; together these sugar programs will help stabilize both international and U.S. sugar markets. During the year, the ISA imposed, on a provisional basis, export quotas and most exporters indicated they would abide by them, thus helping to strengthen prices. Nevertheless, there is some concem that in the absence of early U.S. ratification, some exporters may abandon any commitment to restrict exports, causing increased sugar supplies and lower prices. With the expected U.S. ratification, however, the ISA should function effectively, thereby raising market prices to the agreement's 11-cent floor. Cotton.—During fiscal 1978, world cotton production increased to 64 million bales, the highest level in 3 years. However, cotton prices rose steadily throughout the year because of an expansion in demand. The Cotton Outlook Index for strict middling 1 1/6-inch quality, CIF North Europe, climbed from around 55 cents a pound early in fiscal 1978 to close to 75 cents at year's end. In early spring, a second preparatory meeting on cotton was held under the auspices of UNCTAD. While the discussions were constructively directed toward the problems in cotton markets, no conclusive evidence was presented to support the need for international stabilization. Two studies prepared by the UNCTAD Secretariat on the marketing and distribution of cotton and on the fluctuations in cotton prices in world markets will be presented at the next preparatory meeting scheduled for early November 1978. Cocoa.—The United States attended, as an observer, an ad hoc meeting on renegotiation ofthe International Cocoa Agreement in June 1978. In July, the Cocoa Council tentatively scheduled a negotiating conference for January 1979 as well as two more preparatory meetings in late 1978. The United States plans to participate actively in the preparatory meetings and the negotiating conference. Coffee.—Prices of coffee continued to fluctuate in fiscal 1978, first dropping from about $2.00 per pound in August 1977 to $1.35 in January 1978, then 76 1978 REPORT OF THE SECRETARY OF THE TREASURY rising to $ 1.53 in March, dropping off again in the summer, and rising sharply once more to around $1.60 at the end of the fiscal year. Sharp changes in supply in 1977 together with gyrating demand from U.S. crushers were the chief reasons for the price changes. As required by provisions of the 1975 International Coffee Agreement, the International Coffee Council met in September to review the agreement's price triggers for implementing export quotas and to consider a possible revision. The maximum price at which quotas can currently be triggered under the agreement is 77 U.S. cents. The Council was unable to agree upon a revision of the triggers, but it did agree that the Executive Board would meet to consider possible action if prices should change substantially in the coming months. Wheat.—Progress toward a new Intemational Wheat Agreement (IWA) was achieved, though it was slow in coming. The United States effected a major shift in its position by supporting price-triggered stocking actions with respect to the proposed wheat reserve to be included in a new IWA. Following three preparatory conferences in 1977 and 1978, an UNCTAD-sponsored negotiating conference was convened in Geneva in March. The participants were unable to reach consensus on a new agreement because of differences over several major issues including: (1) The actions to be taken when triggers are tripped; (2) the level of the price triggers; (3) the shape of a coarse grains agreement; (4) supply and purchase commitments in critical market situations; and (5) financing of LDC reserves. Considerable progress was made subsequently in a series of three Interim Committee meetings. Although some major issues—supply and purchase commitments, size of reserve, and LDC financing—have yet to be settled, agreement has essentially been reached on several other issues. Grain sales to U.S.S.R.-Sales of U.S. grain to the U.S.S.R. totaled 14.8 million metric tons during fiscal 1978, the second full year ofthe U.S.-U.S.S.R. grain agreement. This amount virtually equaled the amount offered without further consultations by the United States during regular bilateral consultations in the fall of 1977 and included 3.5 million tons of wheat (just over the minimum commitment) and 11.3 million tons of corn. Soviet purchases jumped from 6.1 million tons in the previous year because of a shortfall in 197 7 grain production. In addition to the wide fluctuations in annual purchases, a major concern ofthe United States has been the "bunched" purchases of grain by the Soviets. In the October 1977-September 1978 period, U.S.S.R. purchases occurred in all but one month. This pattern was an improvement over that for the previous year, but the month-to-month variations were still somewhat greater than the United States believes necessary. Tm.—Tin prices reached an alltime high in October at $7.00 per pound, well above the fifth International Tin Agreement's (ITA) ceiling price of $5.90 per pound. The ITA has had little success in the 1970's in moderating tin price increases, partly because its buffer stock is too small and partly because of variable production and export taxes in producing countries which have REVIEW O F TREASURY OPERATIONS 77 discouraged investment and production. An administration request for congressional authorization for a voluntary contribution of nearly 5,000 tons of tin from the United States to the ITA buffer stock was passed by the House, but not the Senate. Moreover, the Congress also failed to authorize disposal of 30,000 tons of tin from the surplus in the strategic stockpile. The administration is expected to request authorizations again in 1979 which would enable the Federal Government to benefit from sales of tin at favorable prices and, at the same time, provide much-needed tin to the international market. Copper.—Intergovernmental discussions on copper under the UNCTAD Integrated Program for Commodities reached an impasse in July over the establishment of an independent producer-consumer forum (PCF) for copper to examine various possible arrangements for stabilizing the copper market and to decide whether to move to negotiation of an ICA for copper. In October 1978, therefore, the governments participating in the discussions agreed to lay aside the PCF issue at least temporarily and to return to a series of intergovernmental meetings under UNCTAD auspices to consider stabilization measures. The governments must meet again, probably in January 1979, to spell out their work program on such measures, including any new proposals. Rubber.—In February 1978, the major natural rubber producing and consuming countries, meeting under UNCTAD auspices, agreed to negotiate a buffer stock arrangement to stabilize prices in the international market. Their decision was based on intensive, technical work during 1977 which indicated that measures to stabilize natural rubber prices were feasible and in the interests of both groups. In preparation for the negotiations, consuming countries held further technical discussions with producers in May, then met among themselves in June and July to design a consumer proposal. In September, both groups drafted a text which will serve as a basis for negotiations under UNCTAD auspices in November. An appropriately designed agreement could benefit the United States by bringing forth additional supplies of natural rubber by the mid-1980's, when a tight market is widely forecast. Tungsten.—In February, an expert group of the UNCTAD Committee on Tungsten (COT) reached a stalemate over the issue of whether to negotiate an international commodity agreement for tungsten or establish an institutionally autonomous producer-consumer forum (PCF) to discuss problems in the tungsten market and alternative procedures for solving them. Australia and Bolivia, on behalf of the producers, tabled a proposal for an ICA; the United States and four other major consumers of tungsten backed the PCF concept. The issue was referred to the April session of the UNCTAD Trade and Development Board, but was not resolved there. Consequently it was remanded to a special preparatory working group of the COT which met in June. This group did not resolve the issue but did agree to meet again, probably 78 1978 REPORT OF THE SECRETARY OF THE TREASURY in April 1979. The consuming countries opposed negotiations of an ICA because they believe the structure of the market and the heterogeneity of tungsten-containing raw materials would likely make any price-stabilizing agreement unworkable. Energy policy The administration has given high priority to development, adoption, and implementation of a national energy program. Key aspects of this program are embodied in the National Energy Act, passed by the Congress on October 15, 1978. Treasury's interests in the program center on its tax, financial, and economic implications. It is estimated that the Energy Act will result in oil import savings of 2.5 million barrels per day over what they would have been otherwise in 1985. During the year. Treasury staff participated in the evaluation of various issues affecting domestic and international energy policy. Among these. Treasury gave particular attention to the effects of Organization of Petroleum Exporting Countries (OPEC)-pricing decisions on the U.S. and the world economy and to policy options which would encourage the development of indigenous resources in oil-importing developing countries.'^ In addition. Treasury officials responded to numerous inquiries and invitations by the Congress and the public to speak on a wide range of energy issues, energyrelated legislation, and energy regulatory policy. Oil prices Oil import costs were a major burden on the U.S. trade and current account balances, even though the volume of U.S. oil imports was somewhat below that of the previous year. As a result, the U.S. current account deficit, national energy program, and oil prices became intimately linked—although official oil prices remained stable during the year. Our deficit continued to be attributed in large part to excessive oil imports, while the declining value of the dollar led to renewed pressure within OPEC for an immediate oil price increase that would have further exacerbated our trade problem, by adding roughly $0.4 billion to our import costs for each 1 -percent increase. This pressure, however, was successfully resisted by Saudi Arabia and Iran throughout fiscal 1978. LDC energy development In its relations with the developing countries, the United States was guided by the belief that reducing the dependence of developing countries on expensive oil imports would both further their development and improve the world energy balance. As a result, the United States took further steps to assist these countries in developing their own energy resources, such as: • The Agency for International Development and Department of 11 See exhibit 46. REVIEW OF TREASURY OPERATIONS 79 Energy adopted new programs to assist the LDC's to develop renewable energy technologies. • We proposed and gained a Bonn summit commitment to coordinate national efforts to bring renewable energy technologies into use in the developing countries. The scope and details ofthe effort will be worked out over the next year. • We endorsed the effort already underway within the World Bank (responding to proposals by the previous summit in London) to expand the financing of LDC energy development and agreed to the suggestion that it examine whether new approaches would be useful, particularly in the exploration area. • OPIC introduced a program to develop coverage for new types of energy investments—joint ventures, service contracts, and the like. International Energy Agency (lEA) As a result ofthe 1973 Arab oil embargo, 19 industrialized oil-consuming countries established the lEA to help coordinate their international energy policies. The goal is to reduce dependence upon imported oil through conservation, accelerated development of indigenous resources, and shared research and development. In addition, the lEA has developed methods to restrain demand and share existing supplies equitably so as to meet supply emergencies. Treasury participated in meetings of the Governing Board and its several subordinate bodies. Standing Group on Emergency Questions (SEQ).—The Standing Group has developed a program which establishes procedures to implement the sharing of fuel assets in emergencies. This program is embodied in an Emergency Management Manual, which includes basic decisions, goals, and procedures for emergency operations in the event of an oil embargo. A successful test of the emergency oil allocation system was conducted during the spring of 1978. Standing Group on Long-Term Cooperation (SLT).—Largely as the result of Standing Group action, lEA participants agreed in an October 1977 Ministerial session to a 1985 objective for group dependence on imported oil of 26 mmb/d (millions of barrels per day) and pledged individual country action on energy policies designed to achieve this goal. The SLT also makes an annual assessment of the energy programs of lEA member countries. Standing Group on Oil Markets (SOM).—Treasury has participated mainly in the SOM's Ad Hoc Group on Capital Investment and Financial Structure. This group is attempting to forecast energy industry capital requirements for OECD countries and to assess the ability ofthe industry to finance such capital investments. Ad Hoc Group on International Energy Relations.—This group is concemed with energy relations with the oil-importing developing countries and the OPEC countries. It has been considering activity in the area of energy resource 80 1978 REPORT OF THE SECRETARY OF THE TREASURY development in the developing countries, including energy balances, supply requirements, investment needs, and the adequacy of existing programs. Its Secretariat maintains contacts with OPEC spokesmen. Oceans policy Treasury continued to play an important role in two major areas of oceans policy in 1978: (1) The seabed mining negotiations within the U.N. Law ofthe Sea Conference,'2 and (2) the economic provisions in ocean mining legislation. Legislation only narrowly missed passage by the Congress in the rush to adjournment. Limited progress was made in specific areas at the Law of the Sea Conference, but wide gaps still separate the United States from other countries on a number of issues. Ocean mining legislation.—The House (H.R. 3350) and Senate (S. 2053) bills were primarily aimed at setting up a Federal administrative structure which would give guidelines to prospective ocean mining firms as they make their investment and development decisions. The Department of Commerce and/or Interior are expected to play the lead role in administering the domestic ocean mining regime. Treasury was most interested in the provisions to protect industry investment in the transition from a national deep seabed mining regime to an international regime. During the legislative process, the protection mechanism was changed from one of investment guarantees and insurance by the Federal Government to one of seeking grandfather rights for operating seabed miners in the Law of the Sea treaty. A second major issue of interest to Treasury and other agencies was establishment of an escrow "revenue sharing" fund and the tax treatment of payments by firms to the fund. This fund could be used later to meet certain obligations the United States might agree to in a final Law of the Sea treaty. The Department sought to have these payments treated as a business deduction, while industry representatives initially asked for them to be treated as tax credits. In the final versions ofthe bill, the industry and Federal agencies supported a small payment on the mining activities in the seabed which would be a busiriess deduction. Other issues of interest to Treasury included: U.S. flag requirements for the construction and operation of mining and transportation vessels (the administration favors no flag requirements except for the operation of mining vessels to facilitate law enforcement in the event of criminal actions); requirements to locate plants to process seabed minerals in the United States (the administration opposed any such requirements); a Treasury-sponsored provision to avoid any impact ofthe law on existing tax and tariff regulations Treasury, working with other agencies, will develop legislation describing tax treatment of ocean mining income. Under present law, such income would be ineligible for benefits such as investment tax credits, rapid depreciation expensing of exploration costs, and perhaps depletion allowances. Also, the 12See exhibit 48. REVIEW OF TREASURY OPERATIONS 81 treatment of any payments by seabed mining firms to an "international revenue sharing fund," under a Law ofthe Sea treaty, will need to be decided by the administration. Law of the Sea Conference.—The seventh session of the third U.N. Conference on the Law of the Sea met in Geneva from March 28 to May 19, 1978, and resumed in New York from August 21 to September 15, 1978. Discussions and redrafting of texts were undertaken on a number of issues including: Transfer of technology to the Enterprise, the seabed mining organization ofthe Authority; a limitation on production from the seabed area according to a formula which would allocate a position of future growth in the nickel market to seabed miners and the rest to land-based producers; a system whereby the private and national entities mining the area would share part of their income with the intemational community; composition and voting on the Council of the Seabed Authority; a review conference to be convened in 20 to 25 years to examine the success ofthe regime and prospective alternatives to govern seabed operations thereafter. These issues have been discussed in several sessions ofthe Conference, yet wide gaps between the positions of developed and developing countries still exist. At stake is whether the development of deep ocean mining will be governed exclusively by the International Seabed Authority or whether private and national firms will have assured access to sites if they agree to reasonable terms and conditions in a negotiated contract. In preparation for the next session of the Law of the Sea Conference in the spring of 1979, the U.S. Govemment has undertaken a review of U.S. positions on all major issues in the seabed negotiations. The redrafted texts, as well as alternative approaches to the issues, will be examined closely before reaffirming old positions or developing new ones. International Monetary Affairs World economic and financial developments The world economy.—The world economy is continuing its steady but historically slow recovery from the 1974-75 recession, the proximate cause of which was the OPEC embargo and oil price hikes. The basic impact of the sharp rise in oil prices on underlying inflation rates remains an important factor in international relations. OECD inflation rates are slowly declining during 1978 and should average about 7.3 percent for calendar 1978 as opposed to 8.1 percent in 1977. The rate of real economic growth in the 24 developed countries of the OECD in calendar 1978 is expected to be about 3 1/2 percent, compared with 3.7 percent in calendar 1977. These rates, while representing substantial progress, are far below the real growth rates experienced before the oil price hike. Real growth rates for the OECD averaged about 5 111 percent in the years 1960-73. 82 1978 REPORT OF THE SECRETARY OF THE TREASURY During calendar 1978, the pattern of real growth was shifting among the leading industrial nations. In the aftermath ofthe recession, the United States grew substantially faster than the six other major industrial countries (Japan, Canada, United Kingdom, France, Germany, and Italy). This higher than average U.S. real growth represented a sharp change from the decade ofthe sixties and the early seventies when U.S. growth averaged 4.2 percent while the other OECD members grew at about 6.8 percent. In 1977 the U.S. growth was 4.9 percent, compared with 3.3 percent for other major countries. In 197 8, however, the real growth rates of both the United States and the "Big-6" are expected to converge to the 3 1/2-4-percent range. Also during 1978, the structure of growth became more balanced in the major countries. Both real private consumption and real investment have picked up in most ofthe major industrial countries during 1978. The United States is expected to be the sole exception to both of these trends during calendar 1978. The growth rate of real investment in the "Big-6" is expected to be about 5 percent during 1978—up from 1 1/2 percent in 1977. U.S. real investment growth is expected to fall from a spectacular 13 1 /2-percent growth rate in calendar 1977 to a still very rapid 8.1 percent in 1978. Private consumption is expected to grow at about 4 percent in the "Big-6" during calendar 1978, as opposed to a 2.3-percent growth in 1977. American private consumption, on the other hand, is expected to grow more slowly—a 3.4percent growth is projected for 1978, compared with 4.7 percent in 1977. The pickup in real growth in the major foreign industrial nations has not had a significant impact on reducing unemployment rates. The seriousness of the unemployment problem was demonstrated by the fact that it was designated as the primary economic problem facing the developed nations at the Bonn economic summit meeting in July 1978.^^ NO major foreign nation has achieved much success in fighting unemployment. Canada, Italy, and the United Kingdom have all had serious rises in measured unemployment rates since 1975. The United Kingdom and Italy have had the consolation of seeing their current account move from deficit to surplus during this period, but Canada has suffered a stubborn current account deficit as well as rising unemployment. The fall in the American unemployment rate from 6.8 percent in September 1977 to 6.0 percent in September 1978 was the only substantial fall in unemployment in the group. The international balance of payments situation.—The most significant development in the world international payments pattem in 1978 is the reduction in the OPEC current account surplus from about $32 billion in calendar 1977 (including official transfers) to about $10 billion. The developed nations of the OECD have gone from a current account deficit of $28 billion in calendar 1977 (including official transfers) to an estimated current account deficit of only $2 billion in 1978. The American current account deficit, however, is expected to rise from $15.2 billion to about $17 13 See exhibit 57. REVIEW OF TREASURY OPERATIONS 8 3 billion over the same period. Japan, on the other hand, has increased its surplus on current account from $11.1 billion in calendar 1977 to at least $ 18 billion in 1978. The persistence of the Japanese current account surplus in the face of the very large appreciation of the yen remains one of the key international economic problems of 1978. The yen rose 22 percent against the U.S. dollar in calendar 1977 and had risen another 27 percent in 1978 as of September 30. In spite of this huge appreciation, the Japanese current account surplus had not at the end ofthe U.S. fiscal year shown clear signs of falling in dollar terms. Trade flows, however, in volume terms were reflecting the exchange rate changes as import volumes increased while export volumes declined. It is expected, however, that the economic stimulus package promised by Prime Minister Fukuda at the Bonn summit, together with the appreciation of the yen, will bring down the surplus in the near future. Taken as a group, the current account deficit of the nonoil LDC's, which are traditionally net capital importers, is expected to rise to about $16 billion in calendar 1978 (including official transfers), compared with $12 billion in 1977. If official transfers are omitted, the year-over-year rise is from $22 to $27 billion. Because of improved access to private capital markets, the total intemational reserves of the nonoil LDC's have risen slightly in 1978 despite the current account difficulties of a few individual countries. Role of private banks.—Private banks have continued to play a central role in the world financial system. Despite a narrowing of current account imbalances among countries, a substantial need for intermediation between surplus and deficit countries remained. Most of this intermediation fell to the private financial markets, and especially to the banks. Increased competition among lenders has facilitated this financing on substantially improved terms to borrowers. Loans have been extended for longer maturities while interest rates have dropped significantly relative to the cost of funds to banks. Many borrowers took advantage of the sharp improvement in terms to refinance higher cost obligations. Some countries used the opportunity to rebuild their reserves. While welcoming the role played by banks in facilitating the "recycling" process, U.S. authorities have recognized the need to ensure adequate continuing surveillance of banks' activities in the face of the greater volume and changed nature of international lending. The U.S. Government is now collecting more comprehensive data on the exposure of U.S. banks in foreign countries and has improved its other reporting systems. Development of a new uniform system for assessing the creditworthiness of U.S. banks' loans to individual countries is underway. In January 1978 the Comptroller of the Currency issued for comment an interpretive ruling on the application ofthe legal lending limit stipulated in 12 U.S.C. 84 to U.S. banks' loans to foreign governments and their instrumentalities. 84 1978 REPORT OF THE SECRETARY OF THE TREASURY Foreign exchange market developments and operations.—During the fiscal year, the dollar depreciated sharply against all major foreign currencies with the exception of the Canadian dollar. Exchange market conditions deteriorated, and a general lack of confidence in the dollar tended to develop, aggravating efforts in the United States and abroad to narrow payments imbalances, growth rates, and rates of inflation. The dollar depreciated by 34 percent against the Swiss franc, 28 percent against the Japanese yen, and 16 percent against the German mark. It appreciated by 10 percent against the Canadian dollar. On a trade-weighted basis against OECD currencies, the dollar depreciated by 12.5 percent. The currencies ofthe United Kingdom, France, and Italy also appreciated against the dollar but remained relatively stable on a trade-weighted basis. They were able to rebuild reserves, and Britain and Italy were able to reduce external indebtedness. By late September 1977, the foreign exchange market was reacting increasingly to the disparities in rates of growth, inflation, and payments imbalances among major industrialized nations. Forecasts of U.S. trade and current account deficits for 1977 and 1978 contrasted sharply with the surpluses in Japan, Germany, and Switzerland, in particular. Uncertainty was increasing over prospects for an effective U.S. energy policy. Concern over the growing U.S. dependence on petroleum imports, low rates of growth in major U.S. export markets, U.S. inflation, and the implications of these factors for future exchange rate movements unsettled the market. The dollar had been depreciating against a number of major foreign currencies, particularly the German mark and Swiss franc, for several months, but market conditions had warranted only small and occasional U.S. intervention operations. Early in October, market conditions began to deteriorate as doubts grew that policies in the United States and in the major surplus countries would be sufficient to meet the fundamental factors causing the imbalances. While U.S. authorities stressed that further depreciation ofthe dollar was not requited or sought as a means of curing the U.S. deficit, the delays in the consideration ofthe energy legislation and some uncertainties concerning the course of U.S. nionetary and fiscal policies added to the unsettled market conditions. In order to counter these conditions, the U.S. authorities, through the Federal Reserve, began intervening in the market from time to time, selling German marks drawn under the Federal Reserve swap arrangement with the Bundesbank. During October such sales totaled the equivalent of $223 million. Operations were smaller and less frequent in November, but toward the end of November the speculative atmosphere deepened. The German mark, Swiss franc, and Japanese yen were appreciating sharply, and the movement in the DM stimulated additional speculative inflows on expectations of a realignment of currency parities among the participants of the European common margins ("snake") arrangement. Accordingly, the Federal Reserve increased substantially the extent of its market operations. REVIEW OF TREASURY OPERATIONS 85 On December 21, President Carter expressed his concern about the disorder in the exchange markets and the rapid movement in exchange rates. He stressed the necessity to adopt an effective energy program and to stimulate U.S. exports, and indicated that the United States would continue to intervene to counter disorderly conditions in the foreign exchange market. During this period, Japan, Switzerland, and Germany each adopted measures to restrict capital inflows. However, market conditions deteriorated further. By the end of December, the Federal Reserve indebtedness under the Bundesbank swap arrangement, used to finance intervention during the 3 months, had increased to $803 million. During the 3 months, the dollar had depreciated by 15 percent in terms of the Swiss franc, 9 percent in terms of the DM and the yen, and by over 5 percent on a trade-weighted basis in terms of OECD currencies. On January 4, 1978, the Treasury and Federal Reserve Board announced that henceforth the Treasury's Exchange Stabilization Fund (ESF) would be utilized actively together with the Federal Reserve swap facilities and that the Treasury had entered into a swap agreement with the Bundesbank.''* Joint Treasury-Federal Reserve intervention operations in DM, conducted through the Federal Reserve Bank of New York, commenced immediately. Also, within a few days, the Federal Reserve discount rate was increased from 6 to 6 1/2 percent. Market conditions gradually improved, and the dollar appreciated. In combined operations, the U.S. authorities made net sales of $749 million of DM in the market during January 4-13. Thereafter, operations were infrequent and small until mid-February, when selling pressure on the dollar intensified. Flows into German marks were stimulated by the latest reports of the German trade surplus and speculation on a realignment of the DM and other currencies within the snake, despite the devaluation of the Norwegian crown within the arrangement on February 13. During February 10-28, Treasury and Federal Reserve operations resulted in net sales of $715 million of DM; in addition, the Federal Reserve commenced market operations in Swiss francs, selling francs drawn under its swap arrangement with the Swiss National Bank. U.S. operations were generally light during most of March, though the market was unsettled from time to time, and selling pressure on the dollar intensified following release ofthe U.S. trade figures for February showing a record deficit of $4.5 billion. By the end ofMarch, the outstanding swap debts to the Bundesbank had increased to $2.8 billion, ofwhich $1.8 billion was owed by the Federal Reserve and $1 billion by the Treasury. During January-March, the dollar had depreciated further by 8 percent in terms of the Swiss franc and the yen, by 5 percent in terms ofthe DM, and by 1.5 percent on a trade-weighted basis. On March 13, Secretary Blumenthal and Finance Minister Matthoefer ofthe Federal Republic of Germany issued a joint statement, following discussions 14 See exhibit 49. 86 1978 REPORT OF THE SECRETARY OF THE TREASURY between the two Governments and between the Federal Reserve and the Bundesbank.'5 In connection with these discussions, they affirmed that close cooperation in countering disorderly exchange market conditions would be maintained. They announced that the swap agreement between the Federal Reserve and the Bundesbank would be doubled to $4 billion, that the Treasury had arranged for the sale of SDR 600 million to purchase DM, and that the United States would draw against its reserve position in the IMF if and as necessary to acquire additional foreign exchange. By early April, market conditions appeared to be improving. The dollar began to appreciate, and the Treasury and Federal Reserve commenced purchasing DM in market and nonmarket transactions forthe payment of swap debts to the Bundesbank. Few further sales of foreign currencies in the market were made until late in July. The U.S. stock market rallied. Agreements within Congress were reported on major sections ofthe energy legislation. On April 11, the President announced new measures to counter inflation and called upon the Congress to act on the energy legislation. On April 19, the Treasury announced the initiation of a series of monthly public auctions of gold, to commence in May, to help reduce the U.S. trade deficit.'^ On May 11, the Federal Reserve increased the discount rate from 6 1 /2 to 7 percent. By late that month, the dollar was trading 4 to 8 percent above its levels at the end of March. However, the demand for dollars was not sustained. The market again tumed its focus to the persisting payments imbalances and inflation differentials. Moreover, foreign monetary authorities were perceived to have shifted from a stance of net dollar purchases to dollar sales as the effects of recent dollar intervention were unwound. The dollar began to depreciate again, especially in terms of the Japanese yen. The discussions in Europe about establishment of a European Monetary System added to market uncertainties. The further increase in the Federal Reserve discount rate from 7 to 7 1/4 percent on July 3 did not stimulate a demand for dollars in the market. Discussions at the Bonn summit'^ highlighted the U.S. commitment to reduce energy consumption, but consideration of possible future OPEC pricing actions remained a factor encouraging dollar sales. The German economic stimulus measures announced after the summit meeting were generally viewed as likely to have only a modest effect. Dollar selling accelerated, and the dollar depreciated sharply in terms ofthe German mark and other European continental currencies. On August 16, the President announced that he had asked Secretary Blumenthal and the Chairman ofthe Federal Reserve Board to consider what actions might be appropriate on their part, and to recommend any future 15 See exhibit 51. 16See exhibit 53. 17 See exhibit 57. REVIEW O F TREASURY OPERATIONS 87 actions on his part, to deal with the foreign exchange market situation. He said that the sharp decline in the dollar and disorderly market conditions, at a time when the U.S. trade position was showing signs of real improvement, could threaten progress toward dealing with inflation and achieving orderly growth in the United States and abroad. On the next day. Secretary Blumenthal announced that he and the Chairman were giving urgent attention to proposals in a number of areas and expected a series of continuing actions to be announced as decisions were reached over the next few weeks. On August 18, the Federal Reserve announced an increase in the discount rate from 7 1 /4 to 7 3/4 percent and a reduction in reserve requirements on Eurodollar borrowings. On August 22, the Treasury announced an increase in the amount of gold offered at the monthly auctions from 300,000 ounces to 750,000 ounces, beginning with the November auction.'^ Market conditions continued to deteriorate gradually during August and September, despite the actions taken and the increasing consensus that payments imbalances and growth rate differences were narrowing. Concern about U.S. inflation was growing. Exchange rates moved in a wide range as the market awaited new actions. The $2.99 billion July U.S. trade deficit, announced late in August, surprised the market and fortified market skepticism regarding trends. Moreover, speculation grew on the possibility of a realignment of the snake currencies, in advance of or in connection with a new European monetary arrangement. The Federal Reserve increased the discount rate from 7 3/4 to 8 percent on September 22, the Senate passed the natural gas bill, and a sharp decline to $1.62 billion was reported in the U.S. July trade deficit, but market conditions remained unsatisfactory. The dollar, from its levels at the end of May, had depreciated by 7 percent in terms ofthe DM and on a trade-weighted basis, 14 percent against the yen^ and 17 percent against the Swiss franc by the end of the fiscal year. The Treasury and Federal Reserve had resumed sales of DM in market operations late in July. By that time, total swap indebtedness to the Bundesbank had been reduced to $847 million, of which $650 million represented Federal Reserve and $197 million Treasury debts, utilizing for repayment DM purchased in market and nonmarket transactions since early in April. As the result of further operations in DM during August and September, however, at the end ofthe fiscal year the swap indebtedness to the Bundesbank had risen to $690 million and $341 million, respectively, to total $1,031 million. In addition, the Federal Reserve's swap debt to the Swiss National Bank, resulting from current operations in Swiss francs, amounted to $170 million. The Treasury and Federal Reserve continued to make regular payments against pre-1971 Swiss franc indebtedness under the 3-year program agreed with the Swiss authorities in 1976. During the fiscal year, the Treasury's 18 See exhibit 60. 88 1978 REPORT OF THE SECRETARY OF THE TREASURY outstanding securities denominated in Swiss francs were reduced by $521.9 million to $767.5 million; the Federal Reserve's swap indebtedness was reduced by $395.8 million to $219.6 million. Gold prices rose sharply during the fiscal year from $152 1/2 to $218 per fine troy ounce. Movements were frequently sharp and volatile, responding to increased industrial and investor demand, foreign exchange market developments, inflation, and political developments. Initiation of Treasury gold sales, and continued auctions by the IMF, had some effect on investor demand, but market volatility continued. In December, after prices rose steadily throughout the autumn to around $ 170, investor demand accelerated, and by early April, gold traded near $ 183 1/2. Prices eased over the following month to the $ 169 level, reflecting the improved foreign exchange market conditions and market reaction to the announcement of gold sales by the Treasury. Subsequently, however, gold prices rose steadily in a speculative market atmosphere. Implementing changes in the international monetary system i9 A new phase of international monetary relations began this year with the entry into force ofthe second amendment ofthe Articles of Agreement ofthe Intemational Monetary Fund. This amendment, on which agreement was reached in January 1976, after nearly 5 years of international monetary negotiations, represents the most fundamental change in the intemational monetary order since the Bretton Woods system was established in 1944. The amendment became effective on April 1 when the required three-fifths ofthe Fund's members representing four-fifths of the Fund's total voting power accepted it. The United States accepted the amendment pursuant to Public Law 94-564, approved October 19, 1976. The 1976 and 1977 Annual Reports described in detail the central features ofthe new intemational monetary system, as embodied in the amended IMF Articles. The Fund has begun to implement the new provisions ofthe Articles, including new policies and procedures for its surveillance over members' exchange rate policies, ^o Consultation procedures and practices were adapted to take account of the Fund's surveillance responsibilities under Article IV, with Article IV consultations comprehending the traditional consultations under Articles VIII and XIV. Meeting official financing needs During fiscal 1978, major steps were taken to strengthen the ability of the IMF to promote economic stabilization and balance of payments adjustment in member countries through the provision of official balance of payments financing in support of programs to correct their balance of payments difficulties. These m^'^sures, which should significantly strengthen the 19See exhibit 58. 20 See exhibit 54. REVIEW OF TREASURY OPERATIONS 89 international monetary system during the years ahead, include progress toward activation of the Supplementary Financing Facility, implementation of the increase in IMF quotas under the sixth general review of quotas, and general agreement on a further increase in IMF quotas under the seventh general review of quotas and on new allocations of special drawing rights (SDR's).^^ Supplementary Financing Facility.—The 1977 Annual Report described in detail this arrangement designed to reinforce the IMF's ability to meet world balance of payments financing needs and to promote economic stabilization by member countries experiencing particularly serious payments difficulties over the next 2 to 3 years. This facility will total approximately SDR 8.5 billion ($10.7 billion),22 with financing shared roughly equally by the oil-exporting and industrial countries. The United States, which played an important leadership role in the negotiation of the facility, has agreed to provide up to SDR 1,450 million23 under the facility, approximately 17 percent ofthe total. Legislation authorizing U.S. participation in the facility which was submitted to Congress on September 16, 1977, was passed by Congress and signed into law on October 10, 1978 [Public Law 95-435]. A request for appropriations to permit U.S. participation in the facility was submitted to Congress on September 12, 1978, and was passed as part of the foreign assistance appropriations bill for fiscal 1979. [Public Law 95-481, October 18, 1978, appropriates $ 1,831,640,000 for U.S. participation in the facility.] The facility is expected to begin operations early in fiscal 1979, and will temporarily strengthen the IMF's capacity to provide balance of payments financing to members during a period of particular strain on the international monetary system and pending a further increase in the IMF's permanent resources. IMF quotas.—As part of the overall agreements on monetary reform reached at Jamaica in January 1976, it was agreed to increase IMF quotas— the permanent base of IMF resources—by approximately one-third under the sixth general review of quotas. This increase in quotas became effective on April 1, 1978, raising total Fund quotas from SDR 29.2 billion to SDR 39 billion (approximately $50 billion). The U.S. quota was increased from SDR 6,700 million to SDR 8,405 million (approximately $ 10,767 million), pursuant to Public Law 94-564. A further review of IMF quotas—the seventh general review—was initiated during the fiscal year. The Interim Committee of the IMF agreed in principle in April 1977 to a further increase in quotas under this review. Discussions on the major issues relating to the quota increase continued in the IMF Executive Board during fiscal 1978, and a consensus was reached on the following major issues at the September 1978 meeting ofthe Interim Committee: 1. 5/z^.—The Committee took the view that a 50-percent increase in quotas—from SDR 39 billion to SDR 58.6 billion (approximately $76 2ISee exhibit 63. 22 All conversions from SDR's to dollars in this section are based on exchange rates as of Sept. 30, 1978. 23 Subject to the dollar limitation placed by Public Laws 95-435 and 95-481. 90 1978 REPORT OF THE SECRETARY OF THE TREASURY 2. 3. billion)—would be appropriate to bring about a better balance between the size of the Fund and the need of members for balance of payments financing over the medium term. This view was based on a number of factors, including the expectations that world trade will continue to expand significantly during the years ahead, and that IMF member countries will continue to experience relatively large payments imbalances and financing needs. The quota increase will ensure that the Fund is capable of continuing to fulfill its responsibilities for promoting balance of payments adjustment through the provision of balance of payments financing to member countries in support of appropriate economic stabilization and adjustment programs. Distribution.—In view of extensive changes in quota shares agreed on the occasion ofthe sixth quota review, the Committee agreed that this quota increase should be mainly equiproportional (i.e., equal percentage increases for most members), with only a very few selective increases available for countries whose quota shares are particularly small in terms of their relative positions in the world economy. Accordingly, the great bulk of IMF members will receive quota increases of 50 percent with selective increases confined to the following countries: Iraq, Iran, Korea, Kuwait, Lebanon, Libya, Oman, Qatar, Saudi Arabia, Singapore, and the United Arab Emirates. Means of payment.—It was also agreed that participants in the Special Drawing Rights Department should pay 25 percent ofthe increase in their quota subscriptions in SDR's and that nonparticipants should pay 25 percent ofthe increase in foreigri exchange (128 ofthe IMF's 135 members, including the United States, are participants). The remaining 75 percent would be paid in members' own currencies. These subscription requirements will provide for a larger role for the SDR in IMF operations, enhance the importance of the SDR as a reserve asset in the intemational monetary system, and strengthen the IMF's liquidity. [The IMF Board of Govemors approved a resolution proposing the quota increase on December 11,1978. Increases in quotas pursuant to this resolution cannot take effect until members having 75 percent of total quotas have consented to increases in their quotas, and it is not likely that the quota increase will take effect before the latter part of 1980. The increase in the U.S. quota would amount to 50 percent, from SDR 8,405 million to SDR 12,607 million ($16,150 million), and will require congressional approval.] Special drawing rights.—During fiscal 1977, a consensus was reached in support of further allocations of special drawing rights as well as on a number of measures to improve the characteristics and usability of the SDR. At its REVIEW OF TREASURY OPERATIONS 91 September 1978 meeting,2^ the Interim Committee expressed the view that the Fund should make allocations of SDR 4 billion (approximately $5 billion) per year over the next 3 years. This recommendation reflected the view that substantial increases in international transactions can be expected in the future, and that with such growth in the international economy there will be a need for growth in official reserves. An SDR allocation will meet a part of this need for reserves, will help to assure maintenance of the viability and credibility of the SDR as an important reserve asset, and will assist the SDR in fulfilling its important longrun potential in the international monetary system. The allocations will take place in 1979, 1980, and 1981. The United States would receive allocations totaling approximately SDR 2.67 billion (approximately $3.5 billion) over the 3-year period. The measures to improve the characteristics and usability ofthe SDR, which are designed to enhance its role as a reserve asset in the international monetary system, include: Changes in the composition of the currency baskets used for determining the value and interest rate of the SDR, involving essentially an update ofthe baskets to reflect changing relative importance of currencies over time. These changes took effect July 1, 1978. An increase in the SDR interest rate from 60 to 80 percent ofthe weighted average of short-term interest rates in the five largest countries. Agreement in principle on the desirability of expanding the uses of SDR's to include three additional categories of SDR operations—settlement of obligations, loans, and security of obligations (collateral)—subject to further examination of operational and technical questions. Reduction in the SDR "reconstitution" requirement (i.e., the obligation to maintain a minimum average balance of SDR's over specified periods) from 30 to 15 percent of allocations. It is expected that formal decisions regarding the latter three measures will take effect at the time of the 1979 SDR allocation. IMF operations Use of the IMF resources during fiscal 1978 was substantially less than in the immediately preceding years. This development reflected improvement in some members' external financial positions as a result of successful stabilization efforts, the availability of financing from the private capital markets, and the fact that a number of countries had made substantial use of Fund resources during the previous years and consequently had limited additional access to the IMF as well as obligations to repurchase earlier drawings. Transactions and operations in the IMF General Resources Account.—Total gross drawings (purchases) by IMF members in fiscal 1978 from the General Resources Account (including use of reserve tranches) amounted to SDR 24 See exhibit 62. 92 1978 REPORT OF THE SECRETARY OF THE TREASURY 1,347 million by 31 countries, compared with SDR 4 billion by 36 countries in the preceding year. Turkey and Zambia were the two largest purchasers, each with drawings of SDR 124 million, followed by Spain (SDR 99 million). 25 A large part of total drawings were made in special drawing rights (SDR 984 million), with the principal currencies drawn from the IMF being the United Kingdom pound sterling (SDR 102 million); U.S. dollar (SDR 60 million); and Argentine peso (SDR 57 million). Repayment of outstanding drawings (repurchases) totaled a record SDR 3.6 billion in fiscal 1978, with the largest repurchases made by Italy (SDR 730 million); the United Kingdom (SDR 700 million); and Argentina (SDR 509 million). Currencies used in the repurchases included U.S. dollars (SDR 1,649 million); German marks (SDR 594 million); and Japanese yen (SDR 433 million). SDR 1,036.5 million of total repurchases were attributed to drawings under the oil facility. The Fund repaid the equivalent of this amount to 14 lenders that had made loans to the Fund in connection with the oil facility. As of September 30, 1978, cumulative drawings under the IMF's regular resources, from the beginning of IMF operations, amounted to SDR 46 billion, of which SDR 13.9 billion was in U.S. dollars. Cumulative repurchases amounted to SDR 25.5 billion, ofwhich SDR 7.9 billion was in U.S. dollars. The U.S. reserve position in the IMF decreased to SDR 3,289.6 million at the end of fiscal 1978 from SDR 4,104.9 million at the end of fiscal 1977 as a result of net repurchase of dollars by other countries. Of the total SDR 1,347 million in gross purchases from the General Resources Account in fiscal 1978, purchases in the reserve (gold) and credit tranches accounted for SDR 643 million, 48 percent of the total. Purchases under the compensatory financing facility totaled SDR 554 million, with the largest borrowers under the facility being Spain (SDR 99 million); Turkey (SDR 74 million); and Israel (SDR 73 million). Drawings under the Extended Fund Facility during fiscal 1978 totaled SDR 150 million, with the largest purchases made by Egypt (SDR 75 million) and the Philippines (SDR 47 million). There were no purchases under the buffer stock facility. General Arrangements to Borrow.—The General Arrangements to Borrow (GAB) was not activated during fiscal 1978.25 In July 1978, the IMF repaid GAB lenders the equivalent of SDR 90 million, based on a repurchase by Italy of an earlier drawing financed by the GAB. A number of technical changes in the GAB, which were necessary in order to conform to the second amendment ofthe IMF's Articles of Agreement, became effective on August 11, 1978. In addition, the Group of Ten conducted an examination ofthe adequacy and the role ofthe GAB. This study, which was commissioned at the April 29 meeting ofthe Group of Ten, concluded inter alia that "the GAB as an additional means of official financing will remain valuable in the future and should be 23 (The United States drew the equivalent of SDR 2.22 billion from its reserve tranche in November 1978. A part of this drawing, SDR 777 billion, was financed through the General Arrangements to Borrow (GAB), which was activated for this purpose. 1 REVIEW OF TREASURY OPERATIONS 93 maintained" and that "no further changes ofthe Arrangements are considered necessary by the Deputies at the present time." The fourth review of the arrangements will be conducted during fiscal 1979. Transactions and operations in the Special Drawing Rights Department.— Activity in the SDR Department increased to a record level during fiscal 1978 with total use by participants amounting to SDR 2,518 million. Transfers of SDR's by participants to other participants totaled SDR 1,385 million. These transfers include transfers between members by agreement and transfers with designation. Transfers by participants to the General Resources Account amounted to SDR 1,134 million. These transfers were mainly for the purposes of making repurchases and payment of interest and charges on drawings. Use of SDR's by the General Resources Account equaled SDR 1,307 million, primarily to finance drawings by members and in payment of remuneration to creditors in the General Resources Account. As a result of all SDR transactions of the General Resources Account, the Account's SDR holdings declined by SDR 173 million during the fiscal year, to SDR 1,041 million as of September 30, 1978. IMF gold sales.—During fiscal 1978, the IMF continued its program ofgold sales in which 50 million ounces ofthe IMF's gold are being sold over a 4-year period as part of the process of reducing the role of gold in the international monetary system. 1. Gold auctions.—Half of the total 50 million ounces is being sold in public auctions by the IMF trust fund for the benefit of developing countries. In fiscal 1978, the IMF, on behalf of the trust fund, held 12 monthly auctions at which a total of approximately 7.25 million ounces ofgold were sold, bringing total sales in the auction program to 15.65 million ounces as of September 30, 1978. The profits received from sales in fiscal 1978 equaled approximately $981 million, bringing total profits accrued from all auctions held to approximately $1.76 billion. At each of the monthly auctions through May 1978, the IMF sold approximately 525,000 ounces. The amount for the remaining public auctions during fiscal 1978 was reduced to 470,000 ounces per month, to allow for noncompetitive bids by developing countries. The overall agreement on the gold sales program provided for the distribution of a portion of the profits accruing to the trust fund directly to eligible developing countries. As part of this agreement, eligible members have the option to use these profits to bid for gold on a noncompetitive basis at IMF auctions, paying market prices for the gold. At the monthly auctions held during June-September 1978, the IMF sold 1.17 million ounces to nine developing countries which exercised this option. 94 1978 REPORT OF THE SECRETARY OF THE TREASURY 2. Gold distribution.—The other half of the 50 million ounces is being sold at the former official price (SDR 35 per fine ounce) directly to all countries that were members of the Fund as of August 31, 1975, in proportion to their quotas in the Fund. The second of four annual direct sales occurred during fiscal 1978, with the Fund selling a total of 6,090,362 fine ounces. The United States received 1,433,516.1 ounces. Trustfund.—The trust fund was established in May 1976 for the purpose of providing additional balance of payments assistance to developing members from the profits ofthe IMF gold auctions. It is legally separate from the IMF but administered by the IMF as trustee. A portion of the profits on trust fund gold sales—that proportion that corresponded to the quota shares of eligible developing countries as of August 31, 1975—would be transferred directly to each eligible country in proportion to its quota, with the balance of the profits made available to finance balance of payments loans by the trust fund on concessional terms to the poorest countries. The "direct transfer" of trust fund profits from the first 2 years of the gold sales took place in fiscal 1978, with a total of $362.6 million being distributed to 104 developing member countries. As indicated above, eligible members have the option of using their profits to bid for gold on a noncompetitive basis at IMF auctions. Two further disbursements of trust fund loans were also made during fiscal 1978, with loans totaling approximately SDR 662 million made to 43 developing countries, bringing total disbursements under the first 2 years of the trust fund loan program to approximately SDR 841 million. Oilfacility subsidy account.—This subsidy account was established in August 1975 to assist the Fund's most seriously affected members to meet the cost of using the 1975 oil facility. The objective ofthe account, which is financed by voluntary contributions from 24 members plus Switzerland and administered by the IMF as trustee, is to reduce the effective rate of annual charge payable on drawings under the 1975 oil facility by about 5 percentage points per year (from roughly 7.2 percent to 2.2 percent). During fiscal 1978, subsidy payments totaling SDR 24.95 million were made to 18 members, bringing total subsidy account payments to SDR 66.29 million. Participation in the OECD Secretary Blumenthal attended the annual meeting ofthe OECD Council at Ministerial Level in Paris on June 14-15, 1978. During this meeting, the assembled Ministers reached agreement on an OECD program of concerted action to achieve more sustained, noninflationary growth in the OECD economy. 26 The major components of this concerted action program had been developed during meetings ofthe OECD Economic Policy Committee (EPC), Executive Committee in Special Session (XCSS), and Trade Committee (see 26 See exhibit 56. REVIEW O F TREASURY OPERATIONS 95 "Trade negotiations" and "Export credits" sections of "Trade and Investment Policy"), and at the OECD's affiliated organization, the International Energy Agency (see "Energy policy" section of "Commodities and Natural Resources"). Two of the key components of the strategy agreed to were (1) closer coordination of demand management policies as recommended by the EPC and (2) promotion of more positive policies for facilitating adjustment to structural change as recommended by the XCSS. Concerted action.—Treasury officials participated actively during fiscal 1978 in the work of the EPC and of its several working groups on growth, inflation, short-term economic prospects, and balance of payments. The primary concern ofthe EPC and its working groups during this time was development of a concerted strategy for overcoming constraints on more rapid, sustained growth ofthe OECD area. Constraints seen limiting action by individual governments included persistent inflation, protracted current account imbalances, structural problems exacerbated by slow growth, and the lagged adjustment of trade flows to exchange rate changes. At the November 1977 EPC meeting, the emphasis had been on the key role of certain "locomotive" economies in assuring the success of the OECD medium-term strategy for noninflationary growth. "Stronger" countries such as Germany and Japan were urged to meet their announced growth targets, with recent U.S. performance being cited as the example to follow. By the February 1978 meeting, the emphasis of discussion shifted to factors constraining policy action by individual governments. A more concerted approach to raising the areawide OECD growth rate, one emphasizing the responsibilities of all member countries, was seen to be both possible and desirable. During this meeting Charles L. Schultze, Chairman of the U.S. Council of Economic Advisers, was elected chairman of the EPC. At its May meeting, the EPC discussed the elements of a possible concerted action program. 1. The program adopted.—At the June meeting, the OECD Ministers agreed on the respective responsibilities of member countries in contributing to faster growth, greater price stability, and better payments equilibrium over the next 18 months. Eight countries (Belgium, Canada, France, Germany, Italy, Japan, Switzerland, and the United Kingdom) agreed to ensure that the expansion of their domestic demand was significantly greater than in 1977; the Netherlands agreed to maintain the boost in domestic demand achieved in 1977; and all other member countries agreed to concentrate primarily on reducing inflation and improving their balance of payments position. The Ministers further agreed on renewal ofthe trade pledge, and stressed the importance of the multilateral trade negotiations, the Arrangement on Officially Supported Export Credits, and positive adjustment policies to the success of the concerted action program; stressed that strengthened energy 96 1978 REPORT OF THE SECRETARY OF THE TREASURY policies form an essential part ofthe program; and agreed that monetary policy has an important role to play in achievement of the program's objectives. 2. WP-3.—Treasury led the U.S. delegation to meetings of EPC Working Party 3 (international payments equilibrium). Under Secretary for Monetary Affairs Solomon attended the February, May, and September 1978 meetings. Assistarit Secretary for International Affairs Bergsten attended the November 1977 meeting. At both the November and February meetings of WP-3, the external payments situation of the United States and the policy posture of the U.S. authorities were primary topics of discussion. Continued rapid U.S. growth, despite projected large payments deficits, was considered essential to further recovery of the world economy. By February, the WP-3 was also giving considerable attention to the desirability of faster growth outside the United States as a principal means of reducing payments imbalances and avoiding disorder in exchange markets. At its May meeting, the WP-3 reviewed the preceding period of relative calm in exchange markets, discussed the possible reasons, and considered the importance of concerted action to assuring continued market stability. At its September meeting, the WP-3 noted with approval the improved prospects for convergence of growth rates and for reduction of payments imbalances. The WP-3 also heard a report on plans for the European Monetary System. Positive adjustment.—In support ofthe concerted growth strategy, the XCSS during 1978 considered the development of more positive policies for facilitating adjustment to structural change. In addition, an ad hoc meeting of government representatives to discuss adjustment policies was held just before the May 1978 meeting ofthe EPC. Treasury officials attended the meetings of both groups. The June Ministerial communique made reference to the need for more positive adjustment policies. In July, the OECD Council directed the sectoral committees ofthe Organization to begin working on this issue, concurrent with the work underway in the ad hoc group. International Banking Act of 1978 Federal legislation to regulate the U.S. activities of foreign banks was enacted in September 1978, with the adoption ofthe Intemational Banking Act of 1978 (Public Law 95-369). Treasury officials testified on behalf of the administration in general support of this legislation during congressional hearings. , The new law is designed to accord to the extent possible national treatment for operations of foreign banks in the United States and also to provide for more uniform Federal regulation of these foreign bank operations. Under the new law, foreign banks are prohibited from engaging in both commercial banking and nonbanking activities in the United States, except to REVIEW OF TREASURY OPERATIONS 97 the extent permitted domestic banks. Nonbank operations already in existence (including securities affiliates) are either permanently grandfathered or for those operations which commenced or were authorized between July 27 and September 16, 1978, grandfathered through 1985. Federal deposit insurance is required at foreign bank branches which accept small deposits. Also, U.S. branches and agencies of foreign banks with over $1 billion in assets are subject to the Federal Reserve's reserve requirements and interest rate ceilings which are applicable to member banks. The act also subjects foreign banks to restrictions on new multi-State branching, while existing multi-State operations are permanently grandfathered. Foreign banks may continue to establish agencies outside their home State. They may not acquire a bank subsidiary outside their home State unless such acquisition would be permitted for a domestic bank holding company. Foreign banks may establish branches outside their home State if the new State approves and if the bank enters into an agreement with the Federal Reserve to receive only such deposits at that branch as would be permissible to an Edge Act corporation; i.e., deposits related to international financial transactions. International investment and capital flows (OPEC investors) The cumulative total of OPEC investable surpluses rose approximately $27 billion between June 1977 and end-June 1978, down moderately from the year earlier period. However, as the current account surplus (excluding official transfers) of OPEC members as a group plummeted from over $33 billion in 1977 toward $ 14 billion in 1978, total OPEC financial investments in industrial countries declined by approximately $3 to $4 billion during the second quarter of 1978, due to the effects of seasonally low oil revenues and continuing disbursements of funds to developing countries under prior aid commitments. The withdrawal by oil-exporting countries as a group ofabout $1.8 billion from the United States in the second quarter 1978 reflects the rapid decline in investable funds available to OPEC member nations. Since 1974, when 86 percent of OPEC members' money market and portfolio investments in the United States were placed in short-term assets, OPEC investments in the United States have progressively shifted toward longer term instruments. This trend continued in 1978. Net new investments in U.S. stocks and domestic bonds, other than Treasury bonds and notes, amounted to $ 1.2 billion in first half 1978, while there were net sales of other assets. Developing Nations Multilateral development banks 27 In fiscal 1978, the Congress appropriated $2,514 million for increased U.S. participation in the World Bank group (the International Bank for Reconstruction and Development (IBRD), the International Development Association 27See exhibits 65. 66, and 67. 98 1978 REPORT OF THE SECRETARY OF THE TREASURY (IDA), and the International Finance Corporation (IFC); the In ter-American Development Bank (IDB) and its Fund for Special Operations (FSO); the Asian Development Bank and Fund (ADB and ADF); and the African Development Fund (AFDF). This amount, for use beginning in fiscal 1979, was 31 percent greater than the amount appropriated for the banks during the previous fiscal year. No new authorizing legislation for U.S. participation in the banks was submitted to Congress during fiscal 1978. A breakdown ofthe appropriations legislation approved by Congress is shown in the table below: U.S. participation in the multilateral development banks during fiscal 1978 [$ millions] Institution Intemational Bank for Reconstruction and Development: Paid-in Callable Intemational Development Association.... Intemational Finance Corporation Fiscal 1979 appropriation 16.3 146.8 1,258.0 40.0 Comment Second installment of U.S. contribution to IBRD selective capital increase authorized in fiscal 1977. $452.5 million callable and $50.3 million paid-in remains to be appropriated for the second installment. $800 million represents the second installment of the U.S. contribution to the fifth replenishment of IDA. $458 million represents the U.S. contribution to IDA's fourtn replenishment. $292 milhon remains to be appropriated for the fourth replenishment. Appropriation is second installment of U.S. contribution to IFC capital increase authorized in fiscal 1977. Inter-American Development Bank: Paid-in Callable Fund for Special Operations 27.3 561.5 175.0 Appropriation completed U.S. contribution to IDB replenishment authorized in fiscal 1976. $150.3 milhon remains to be appropriated from replenishment authorized in fiscal 1976. Asian Development Bank: Paid-in Callable 19.4 175.1 Appropriation is second installment of U.S. contribution to second ADB capital increase authorized in fiscal 1977. $40.3 milhon callable and $4.5 million paid-in remains to be appropriated for the second installment. Appropriation is second instalhnent of U.S. contribution to first ADF replenishment. Appropriation is U.S. contribution to first AFDF replenishment authorized in fiscal 1977. Asian Development Fund African Development Fund Total 70.5 25.0 2,514.0 The multilateral development banks committed $12,049 million to developing countries in fiscal 1978. The distribution of commitments by institution was as follows: World Bank group, $9,345 million; Inter-American Development Bank, $ 1,546 million; Asian Development Bank, $ 1,002 million; and the African Development Fund, $155 million. The development banks have become an important source of finance for developing countries. Estimates indicate that in 1977 multilateral agencies accounted for one-third of all official flows to developing countries. REVIEW O F TREASURY OPERATIONS 99 The development banks are an extremely effective and efficient mechanism for promoting U.S. relations with developing countries and contributing to their social and economic development. In all cases, the loan appraisal processes of the banks are detailed and rigorous, insuring that the maximum developmental impact is obtained from every dollar lent. The banks provide developing countries with sound economic advice and serve as focal points for the coordination of the activities of official lenders. In addition, the banks permit the United States to share the burden of assisting the developing countries with other donors; for every dollar of U.S. contributions to the banks other countries contribute 3 dollars. The U.S. domestic economy also benefits directly by U.S. participation in the development banks through procurement contracts and the interest payments made to U.S. citizens who purchase bank bonds. World Bank group The World Bank group committed a total of $9,345 million for economic assistance to its borrowing member countries in fiscal 1978, an increase of 29 percent over the previous fiscal year. IBRD lending totaled $6,004 million in fiscal 1978, compared with $5,541 million in fiscal 1977, an increase ofabout 8 percent. New IDA credits reached $2,858 million in fiscal 1978, compared with $ 1,437 million in fiscal 1977. IFC commitments increased to $483 million in fiscal 1978 from $269 million in fiscal 1977, an increase of 80 percent. As of September 30, 1978, IBRD commitments outstanding totaled $34.4 billion and IDA credits totaled $11,372 million. IFC commitments outstanding totaled $2,206 million. During fiscal 1978, both the IBRD and IDA increasingly concentrated their lending in agriculture. The IBRD increased its commitments to the agricultural sector in fiscal 1978 to $ 1,383 million (31 percent of total lending), compared with $1,614 million (29 percent of lending) in fiscal 1977. The amounts committed by IDA to agriculture increased from $773 million in fiscal 1977 to $1,415 million in fiscal 1978, an increase of almost 83 percent. Other important sectors of IBRD and IDA lending in 1978 included development finance companies and industry (16 percent), transportation (14 percent), and power (12 percent). IFC investments were concentrated in mining and iron and steel (14 percent), food and food processing (11 percent), general manufacturing (5 percent), and development finance companies and capital markets (4 percent). The IBRD and IDA committed resources for 241 projects totaling $8,862 million in 75 countries distributed by region as follows: Africa, 74 ($1,041 million); Asia, 76 ($3,960 million); Latin America, 49 ($2,090 million); Europe, the Middle East, and North Africa, 42 ($ 1,771 million). India was the largest borrower from the IBRD and IDA ($1,595 million), while Brazil was second ($688 million); the Philippines, Mexico, and Indonesia received $526 million, $495 million, and $490 million, respectively. 100 1978 REPORT OF THE SECRETARY OF THE TREASURY IFC commitments during fiscal 1978 went to 53 projects in 33 developing countries. These commitments included 14 projects in Europe, the Middle East, and North Africa (26 percent ofthe total committed), 11 projects in Asia (12 percent), 18 projects in Latin America (55 percent), and 10 in Africa (7 percent). Mexico received the largest individual total ($133 million) with Jordan second ($73 million) and Brazil third ($68 million). At the September 1978 meeting of the World Bank in Washington, D . C , Secretary Blumenthal expressed his satisfaction at the rate of economic progress in the developing countries, but stressed the fact that even at the present rate of growth, 600 million people will face absolute poverty by the end of this century. To meet these needs, concerted action must be taken in the areas of trade expansion, nonconcessional finance to middle-income countries, concessional capital flows to the poorest countries (and to the poorest sectors within developing countries), and nonrural employment. The Secretary expressed support for the new directions charted by the World Bank in financing social and economic development and the increased lending by the World Bank for expansion of energy resources in developing countries. The lending operations of the IBRD are financed from five sources: Paidin capital subscriptions; borrowings in private capital markets, and from governments and central banks; sales of participations; principal repayments on loans; and earnings on its loans and investments. The Bank's outstanding funded debt increased during the IBRD fiscal year by $4,124 million to reach $22,602 million as of June 30, 1978. Estimates indicate that as of that date 26 percent of Bank bonds were held by investors in the United States, 24 percent in Germany, 13 percent in Japan, 6 percent in Saudi Arabia, and 11 percent in Switzerland. The remaining 20 percent of outstanding borrowings was held by central banks and government agencies in more than 80 countries. The Bank's borrowing program for IBRD fiscal 1978 was set at the equivalent of $4,200 million. Of this amount, $600 million was borrowed in April 1977 as an advance in order to take advantage of favorable factors in the U.S. investment market. This issue was therefore included in the Bank's statistics for fiscal 1977. Actual borrowings in IBRD fiscal 1978 amounted to the equivalent of $3,636 million. As in fiscal 1977, the principal sources of borrowed funds to the Bank were borrowings on private capital markets. The Bank sold 20 issues totaling the equivalent of $2,398 million in private markets, or about 66 percent of total funds raised through borrowings. This continues the trend of obtaining more from private financial sources rather than governments and central banks; in IBRD fiscal 1978, governments and central banks purchased $1,220 million of Bank issues, or about 34 percent of the year's total. This was $82 million more than in fiscal 1977. REVIEW O F TREASURY OPERATIONS 101 During IBRD fiscal 1978, the Bank's public and private borrowings came principally from the following countries: $750 million in the United States; $1,120 million in Germany; $700 million from the issuance of 2-year dollar bonds to central banks and other government agencies in some 80 countries; $363 million in Switzerland; and $571 million in Japan. In IBRD fiscal 1978, the Bank also borrowed $18 million from the interest subsidy fund, or third window. This facility was established in fiscal 1976 to permit lending on terms intermediate between those of the IBRD and IDA. Aggregate borrowings by the Bank from the subsidy fund totaled $ 184 million as of June 30, 1978. During IBRD fiscal 1978, the Bank's borrowers repaid $890 million of principal, $831 million to the Bank and $59 million to purchasers of loans. Cumulative repayments on loans by June 30, 1978, were $6,480 million to the Bank and $2,425 million to purchasers of loans. Income on Bank investments amounted to $614 million, up $78 million, or nearly 14.6 percent, over the previous fiscal year. Income on loans rose by $252 million, or 23.5 percent, to a total of $1,325 million. For the same period, sales of participations in the Bank's loan portfolio amounted to $183 million, compared with loan sales of $189 million in fiscal 1977. Net income ofthe Bank in IBRD fiscal 1978 was $238 million, up $29 million, or nearly 13.9 percent, from the previous fiscal year. However, after taking adjustments arising from currency devaluations into account, income was $348 million, compared with $199 million in the previous fiscal year. As discussed in last year's Annual Report, the United States believes that a substantial increase in IBRD capital is desirable in order to permit Bank lending to expand in real terms. The United States hopes that negotiations on a general capital increase can be concluded early in calendar 1979. Asian Development Bank ADB lending in fiscal 1978 totaled $1,002 million, compared with $722 million in fiscal 1977. Of fiscal 1978 loans, $647 million came from Ordinary Capital resources and $355 million from concessional funds. Lending in U.S. fiscal 1978 brings cumulative ADB lending through September 30, 1978, to $4,744 million—$3,430 million from Ordinary Capital and $1,314 million on concessional terms. In fiscal 1978, agriculture and agro-industry continued to be the largest beneficiaries of Bank lending, accounting for $242 million, or almost 24 percent of total lending. Since the Bank's inception in 1966, power projects have received the largest amount of ADB loan funds ($1,458 million, or 31 percent), followed by agriculture and agro-industry ($1,151 million, or 24 percent), industry ($896 million, or 19 percent), and transportation and communications ($841 million, or 18 percent). The three largest borrowers from the ADB's Ordinary Capital resources in 102 1978 REPORT OF THE SECRETARY OF THE TREASURY fiscal 1978 were Indonesia ($181 million, or 28 percent), the Philippines ($137 million, or 21 percent), and Korea ($125 million, or 19 percent). Pakistan and Bangladesh were the two largest borrowers from the ADB's concessional resources, having borrowed $123 million (35 percent) and $70 million (20 percent), respectively. ADB Ordinary Capital lending operations are financed by paid-in capital subscriptions, funds borrowed in private capital markets and from governments and central banks, repayments of principal and interest on loans, and net earnings on investments. Asian Development Fund resources—used for concessional loans—derive from member country contributions, amounts set aside from Ordinary Capital earnings, and repayments on loans. As of September 30, 1978, the Bank's subscribed Ordinary Capital stock totaled $8,389 million. In fiscal 1978, the Bank's gross borrowing totaled $396 million, including $70 million in 2-year U.S. dollar bonds. The ADB's outstanding borrowings amounted to $ 1,692 million as of September 30,1978. In April 1978, at the l l t h annual meeting of the Board of Governors in Vienna, the Carter administration reaffirmed its continuing support for the goals and operations ofthe Asian Development Bank, particularly the Bank's increasing efforts to assist rural development through the introduction of integrated rural development projects, and the special attention paid by the Bank to the use of appropriate technology. The U.S. representative expressed approval for the Bank's special attention to subregional development cooperation in the South Pacific and in the Association of Southeast Asian Nations (ASEAN). In fiscal 1978, negotiations were completed on a second replenishment of the Asian Development Fund to finance its 1979-82 lending program. The intended U.S. contribution, subject to congressional authorization and appropriation, would be $445 million over the 4~year period, or $111 million in fiscal 1980-83. The U.S. contribution would represent 22.2 percent ofthe basic replenishment and 20.7 percent of the total replenishment including voluntary contributions. Inter-American Development Bank During fiscal 1978, the IDB committed a total of $1,638 million, a 24percent increase in lending over fiscal 1977. Of this amount, $973 million was lent on conventional terms from the capital account and $524 million was lent on concessional terms from the Fund for Special Operations. In addition, the IDB committed $91 million in funds administered for various donors (primarily the Venezuelan trust fund). Cumulative lending by the IDB, as of September 30, 1978, totaled $12.6 billion, ofwhich $6.3 billion had been lent from the capital accounts, $5.4 billion from the FSO, and $0.9 billion from other resources (primarily the U.S. social progress trust fund and the Venezuelan trust fund). REVIEW OF TREASURY OPERATIONS 103 Agriculture, industry, and energy received the greatest attention in fiscal 1978. About 29 percent ($474 million) of the funds committed were for energy projects, 27 percent ($439 million) for industry, and 16 percent ($264 million) for agriculture. On a cumulative basis, through the end of fiscal 1978, energy had received the largest amount, 23 percent, or $2.9 billion, and agricultural projects had received the next largest amount, 22 percent, or $2.8 billion. (In some instances, however, distribution of loans into sector categories such as these may tend to be misleading since many IDB projects are of a multipurpose character.) IDB lending operations are financed principally from paid-in capital subscriptions, borrowings in international capital markets, and member country contributions to the FSO. As of September 30, 1978, the total subscribed capital ofthe Bank was $9,943 million, ofwhich $ 1,283 million was paid-in and $8,660 million was callable. The resources ofthe FSO amounted to $5,905 million. The U.S. subscriptions to IDB capital shares amounted to $3,458 million, or approximately 35 percent ofthe total. Including contributions authorized, but still pending appropriations, the United States accounted for $3,690 million, or 62 percent of total resources contributed to the FSO. In fiscal 1978, the IDB borrowed $130 million equivalent in international capital markets, including $9 million in the United States. In addition, the Bank sold $35 million of 2-year bonds to central banks in Latin America and $39 million of 2-year bonds to central banks in nonregional member countries. The Bank's outstanding funded debt amounted to $2,637 million as of September 30, 1978. At the 1978 annual meeting ofthe IDB in Vancouver, British Columbia, the U.S. representative affirmed the Carter administration's commitment to respect for the political integrity and economic and social aspirations of all nations, and our recognition ofthe essential interdependence of developed and developing economies—especially in light ofthe impressive progress made in many of the world's developing countries. The U.S. representative commended the Bank on its impressive achievements in Latin America, urging that in light of the region's relatively advanced position along the spectrum of development, further efforts should be made to assure equitable distribution of resources to the poorest of the developing countries and to those poorest sectors within countries receiving assistance. The Bank's successful efforts to draw increasingly on private sources through the mechanism of complementary financing, as well as its efforts to promote the use of appropriate technologies in its activities, were commended. During fiscal 1978, negotiations began on a replenishment ofthe resources of the Bank and the FSO. It is anticipated that the negotiations will be completed early in fiscal 1979. African Development Fund The African Development Fund was created on July 3, 1973, as the concessional lending affiliate ofthe African Development Bank (AFDB). The 104 1978 REPORT OF THE SECRETARY OF THE TREASURY AFDF is designed to channel resources to the poorest African nations; except in the most unusual circumstances, its loans are not extended to countries with a per capita GNP in excess of $400. The United States joined the AFDF in November 1976 with an initial contribution of $ 15 million and contributed a further $ 10 million in December 1977. In addition to the United States, membership in the AFDF includes 13 European countries, Canada, Brazil, Japan, Saudi Arabia, Kuwait, and the AFDB, which has no nonregional members. Total resources pledged to the fund amounted to $463.3 million as of September 30, 1978. In fiscal 1978, AFDF lending amounted to $155.2 million, distributed among 23 African countries. This represented an increase of $27.2 million, or 21 percent, above the 1977 lending level of $ 128 million. The Central African Empire was the largest borrower ($18.6 million), having received 12 percent ofthe year's loans; Mali was the second largest ($15.5 million, or 10 percent); and Benin was the third ($13.8 million, or 8.9 percent). AFDF lending in 1978 helped to finance projects in health, water supply and sewerage, agriculture and rural development, and education and transportation. Transportation projects accounted for the largest sectoral share of AFDF lending at $63.3 million, or 41 percent of total loans. The two other leading sectors benefiting from AFDF loans were agriculture ($55.5 million, or 35.8 percent) and health and education ($29.7 million, or 19.1 percent). The fifth annual meeting of the African Development Fund was held in Libreville, Gabon, during May 1978. The U.S. representative expressed the administration's commitment to assisting Africa's growth and development and support for the African Development Fund. While applauding the great strides made in enhancing the fund's administrative capacity, the U.S. delegate stressed the need for continued vigilance in improving fund operations, including greater attention to the use of appropriate technologies and an intensified program of project evaluation and auditing. The United States also emphasized that fund resources should continue to be concentrated on the poorest African countries and on reaching the basic human needs of Africa's poor. During the annual meeting, negotiations were completed on a second replenishment of the African Development Fund to finance its 1979-81 lending program. Donors agreed to a $777 million target for the replenishment, ofwhich $693 million was actually pledged. The second replenishment will permit a 10-percent real growth in AFDF lending and reflects Africa's need for concessional aid. The intended U.S. contribution to the replenishment, subject to congressional authorization and appropriation, will be $125 million, to be appropriated in three installments in fiscal 1980-82. Situation of the non-OPEC developing countries The overall economic situation of the non-OPEC developing countries in 1977 and 1978 is a mixed picture with significant improvements in some indicators and less progress in others. REVIEW O F TREASURY OPERATIONS 105 Current account deficits for the group,^s which declined significantly to $26 billion in calendar 1976 and fell further to $22 billion in calendar 1977, are projected to rise in 1978 to about $28 billion. However, this nominal increase is not significantly different from historical averages when world inflation and economic growth are factored in, nor should it pose financing difficulties for the group as a whole. Export earnings for the group grew 17 percent to around $136 billion in 1977, while imports increased 11 percent to about $162 billion. With export prices ofthe industrial countries rising an average of about 7.5 percent in 1977 and some continued softness in primary commodity prices, the terms of trade for the group declined. This trend is likely to continue through 1978. Total official and private flows to non-OPEC developing countries were, however, more than adequate to cover the aggregate current account deficits of the non-OPEC LDC's, amounting to about $34 billion in 1977. Official development assistance (grants and loans) from Development Assistance Committee countries and multilateral development banks to LDC's as a group increased in 1977 to about $15 billion; concessional and nonconcessional flows from OPEC countries to non-OPEC LDC's were about $5 billion. Gross foreign exchange reserves of the non-OPEC LDC's increased 29 percent to about $53 billion by the end of calendar 1977. Projections for 1978 show slower growth in aggregate reserves although it is expected that import coverage (about 4 months) will not decline. There are corresponding changes in the debt situation of these countries. In 1977, the rate of increased net external indebtedness dropped significantly from the very rapid rates experienced in the 1974-76 period. The rate of increase in 1978 is likely to be close to historical trends. At the same time, the distribution and composition of debt improved as the major borrowers made further progress in their adjustment efforts and as terms of borrowing in the intemational capital markets became more favorable. Multilateral arrangements to reorganize external debt were negotiated for Turkey and Peru. Zaire continued to experience critical debt-servicing difficulties. The non-OPEC developing countries as a group experienced real GDP growth of just under 5 percent in 1977 and projections indicate that growth in 1978 will be somewhat more rapid. Inflation in many non-OPEC LDC's continues to be quite high. A small drop from the estimated aggregate 30percent levels of 1976 and 1977 is expected in 1978. Disaggregating non-OPEC developing countries is critical to better understanding their widely varying economic situations. For example, a few large countries skew the aggregate figures for GDP markedly, obscuring both higher growth in 1977-78 in Asia and the Middle East and slower growth in Africa and parts of Latin America. The same caveat is true for the widely varying current account positions of non-OPEC LDC's, for variations in inflation rates. 28 Excluding official transfers. Including such transfers deficits were about $ 17 billion in calendar 1976, $ 12 billion in calendar 1977, and arc projected at $16 billion for calendar 1978. 106 1978 REPORT OF THE SECRETARY OF THE TREASURY debt positions and creditworthiness, methods of financing external balance of payments gaps as well as for virtually all other financial indicators. Development Committee Discussions and negotiations between the developed and developing countries, known collectively as the North-South dialog, take place in a variety of forums. The United Nations Conference on Trade and Development (UNCTAD) and the newly created Committee ofthe Whole explore a broad range of international economic issues. Specialized forums, most under U.N. auspices, explore specific issues such as commodities, trade, investment, technology transfer, and debt. The IBRD/IMF Development Committee, on which the United States is represented by the Secretary ofthe Treasury, is one of these forums. The Development Committee was established in 1974 by the Govemors of the World Bank and the International Monetary Fund to maintain an overview of the development process and to consider all aspects of the question of the transfer of real resources to developing countries. The resolutions establishing the Committee called for a review of its performance after 2 years. In 1976 the Committee's mandate was extended to 1978. The Development Committee ministerial meeting in September 1978 devoted much of its discussion to the first annual World Development Report, prepared by the IBRD staff at the request ofthe Committee. The United States strongly supported the main conclusions of the report, which pointed out the importance of improving the domestic policies ofthe developing countries, the need to maintain flows of concessional and nonconcessional capital to developing countries, and the necessity of avoiding protectionism. Also discussed at the September meeting was a study of stabilization of export earnings prepared by Bank and Fund staff at the request of the Committee. The Committee decided that further work was needed on the adequacy of existing facilities to stabilize export eamings, proposals for other measures, and the medium-term shortfall problem. It was agreed that the Committee Chairman, the IBRD President, and the IMF Managing Director should consult on ways to improve the effectiveness of the Committee and report back next year. Secretary Blumenthal stated in September that the United States shares the view of many developing and developed country members that the potential of the Committee has not yet been fully realized. The Working Group on Access to Capital Markets this year completed its substantive examination of developing country access to the long-term bond market. Senior officials, meeting in September 1978, endorsed the study and concluded that while progress to liberalize capital market restrictions was still needed in some countries, lack of knowledge by lenders of potential borrowers' credit and lack of information by borrowers about the operation of capital markets and criteria for access accounted for a large part of the REVIEW OF TREASURY OPERATIONS 107 difficulties experienced by developing countries. To address this latter problem, a seminar organized by the Committee Secretariat was held in October 1978 in Paris to bring together potential borrowers and market operators. The Working Group on Capital Markets also began work on private direct investment, with the objective of reaching agreement on general policies for developed and developing countries which would maximize the benefits of investment while minimizing the adverse effects. As a result of these meetings, in which the United States participated, a draft report has been circulated to members recommending appropriate government policies. The Working Group on Development Finance and Policy reviewed a survey of the multilateral development banks, identifying a number of policy issues regarding their relative roles, funding, and operational activities. Delinquent debt The total long-term principal outstanding on post-World War II debts owed the United States was $45 billion on September 30, 1978. Most of this debt derives from foreign aid and export credit programs ofthe U.S. Govemment undertaken during the last 30 years. A total of $20.4 billion ofthe indebtedness was contracted under the Foreign Assistance Act and its predecessor legislation; $7.0 billion was contracted under Public Law 480; and $13.3 billion was contracted under the Export-Import Bank Act and the Commodity Credit Corporation Act. An additional $1.3 billion stems from activities directly related to World War II—primarily lend-lease and surplus property disposal programs. Since World War II, the vast majority of these debts have been paid on time. During fiscal 1978, the United States collected over $4 billion ofprincipal and interest payments due on long-term credits, and the equivalent of almost $300 million in principal and interest payments on loans repayable in foreign currencies. As of September 30, 1978, principal and interest due and unpaid 90 days or more on post-World War II debt amounted to $611.6 million. More than two-thirds of this delinquent debt is subject to special political or other factors, as in the cases pf China and Cuba, which make prompt payment unlikely at this time. Foreign indebtedness to the U.S. Government resulting from World War I totaled approximately $25.6 billion as of September 30, 1978, ofwhich $22.6 billion was delinquent. The collection of this debt presents special problems. Most debtor countries fulfllled their commitments under the debt agreements until 1933-34, but have made no payments since. Aside from the Soviet Union, which repudiated all foreign debts in January 1918, the principal debtor governments have never denied the validity of the debts. However, these nations have steadfastly maintained that they would only resume payments on their war debts to the United States on condition that the issue of Germany's war reparations was satisfactorily settled. Resolution of the problem of 108 1978 REPORT OF THE SECRETARY OF THE TREASURY government claims against Germany arising from World War I has been deferred ''until a final general settlement of this matter" by the 1953 London Agreement on German external debts, to which the United States is a party. This agreement was ratified by the U.S. Senate and has the status of a treaty. On January 31, 1978, Treasury submitted to Congress the administration's fourth annual report on developing countries' external debt and debt relief provided by the United States as required by section 634(g) of the Foreign Assistance Act of 1961, amended in 1974. The report is comprehensive, containing detailed information on the debt situation of major debtor countries and the means by which the United States and other creditor countries have dealt with debt service problems. Debt rescheduling During fiscal 1978, the United States participated in multilateral debt reschedulings for Zaire and Turkey. Zaire's major official creditors met in Paris on November 30 and December 1, 1977. In light of the deterioration in Zaire's economic situation, they decided to improve the terms of the multilateral rescheduling agreement negotiated the previous July 7 which covered debt service falling due in 1977. Under the amended terms, the creditors agreed to reschedule 85 percent of both principal and interest for all of 1977, rather than principal and interest in the first half and principal only in the second half. With regard to Zaire's request for reorganization of 1978 debt service, the creditors agreed to meet in April 1978 to study the question on condition that: (a) Zaire had adopted an effective stabilization program in the context of an IMF standby; (b) Zaire had concluded an arrangement with its private bank creditors, through a new medium-term credit or a direct rescheduling or refinancing, which was comparable to the agreement concluded with its official creditors; and (c) Zaire had made its best efforts to meet its external obligations, particularly payments to official creditors under the Paris Club reorganizations of 1976 and 1977. As these conditions were not fulfllled, the creditors did not meet in April and had not met by the end of fiscal 1978. The United States and Zaire have negotiated a bilateral agreement implementing the multilateral agreements of July and December 1977, which is currently pending signature. This agreement reschedules $56.5 million in debt service due in 1977. The weighted average interest rate charged by the United States is 7.5 percent. Under the 1977 rescheduling agreements, other creditors agreed to provide the equivalent ofabout $ 110 million in debt relief. The rescheduled amounts are to be repaid in 10 years, including a 4-year grace period. Turkey's principal official creditors met in Paris on May 18, 19, and 20, 1978, in the context of a working party of the OECD-led consortium for Turkey. To assist Turkey in overcoming its critical economic and financial problems, these creditors agreed to extend debt relief to Turkey on 80 percent REVIEW O F TREASURY " • OPERATIONS 109 of payments ofprincipal and interest falling due between May 21, 1978, and June 30, 1979. The United States subsequently negotiated a bilateral agreement with Turkey, which was signed in Washington on September 21, 1978, implementing the terms ofthe multilateral agreement. Under the terms of the bilateral agreement, the payments rescheduled by the United States amounted to about $191 million, $15 million ofwhich related to short-term maturities of less than 1 year and the remainder ofwhich relates to mediumand long-term maturities. The weighted average interest rate charged by the United States was 6.4 percent. Under the multilateral agreement, other creditors are expected to provide almost $ 1 billion of debt relief to Turkey. The rescheduled amounts are to be repaid in 8 years, including a 3-year grace period. *, Local currency management • One of the responsibilities of the Secretary of the Treasury is to determine which foreign currencies held by the United States are in excess of normal U.S. Government requirements. The purpose of this determination is to assure maximum use of local currencies in lieu of dollars for U.S. programs in the countries concerned. For fiscal 1979, Burma, Egypt, Guinea, India, and Pakistan will remain on the excess currency list. As U.S. foreign currency receipts decrease and in-country expenses increase, currencies lose their excess status. When countries are removed from the excess list special foreign currency programs in those countries are phased out. These programs involve scientific and research projects which usually have some political benefit to the United States but, because of their lower priority, might not be funded were it not for the availability of excess currencies. Development assistance policy ^ The Department of the Treasury, in addition to its responsibilities with regard to the multilateral development banks, participates in the formulation of U.S. development assistance policy through its membership in the National Advisory Council on International Monetary and Financial Policies, in the Development Coordination Committee (DCC), and in various other interagency committees designed to coordinate economic assistance programs. Treasury's principal concerns are to promote the efficient utilization of development assistance resources and to assure that bilateral aid objectives and programs remain consistent with overall U.S. economic interests and with U.S. multilateral aid efforts, in particular.^^ As a member ofthe DCC, Treasury has actively supported measures taken in early 1978 to strengthen that Committee's policy coordinating role. Treasury participates in each of the four new subcommittees which were 29See exhibit 64. 110 1978 REPORT OF THE SECRETARY OF THE TREASURY established to treat issues in the specific areas of multilateral assistance, bilateral assistance, food aid, and international organizations. Multilateral Assistance Subcommittee.—As chairman of this DCC Subcommittee, Treasury has instituted new procedures for reviewing projects proposed by the World Bank and the regional development banks. These procedures are designed to allow for review and comment early enough in the bank's review process for the United States to suggest changes. At the same time, the Subcommittee is focusing increasingly on general policy issues which relate to multilateral assistance programs such as lending policies in specific sectors. Bilateral Assistance Subcommittee.—As a member of this DCC Subcommittee, which is chaired by the Agency for International Development (AID), Treasury reviews broad policy issues related to AID development programs, including those which arise from proposed AID projects. A major objective of Treasury in this area is to assure maximum coordination between AID policies and programs and those of the multilateral development banks. It also participates in the Subcommittee's review of AID budget proposals. During fiscal 1978, AID committed $3.3 billion in loans and grants for specific projects and supporting assistance. Of this amount $1.6 billion was in grants and $1.7 billion in loans. Food Aid Subcommittee.—Treasury is represented on the DCC Food Aid Subcommittee (previously the Interagency Staff Committee) which reviews all Public Law 480 food for peace proposals. Treasury looks primarily at the impact of this program on the development efforts and financial prospects of the recipient countries as well as on the U.S. domestic economy. During fiscal 1978, Title I sales agreements with participating governments and private trade entities totaled $812 million. Title II donations totaled $337 million. Under the new Title III authority, two agreements were signed with recipient governments for a total of $37 million. International Organizations Subcommittee.—Treasury also participates in this DCC Subcommittee, which examines proposed U.S. contributions to the development programs ofthe United Nations and other international agencies. With respect to other DCC work undertaken this year. Treasury has worked closely with other agencies in establishing a procedure for DCC review of U.S. development assistance strategies for selected individual countries. It is hoped that this procedure will enable all involved agencies to focus on development problems of high-priority countries and to formulate a coherent U.S. policy which integrates the full range of development assistance programs, bilateral and multilateral. The first such review—on Jamaica—has been completed. The DCC is also developing U.S. policy on several issues, including the definition of a "basic human needs" strategy and how to implement it; the needs ofthe "middle-income" developing countries and how the United States should relate to them; and energy problems and prospects ofthe less developed world and programs the United States should undertake in this area. Treasury expects to be actively involved in this process. REVIEW OF TREASURY OPERATIONS 111 Relations with developing nations OPEC.—The combined current account surplus (excluding official transfers) ofthe 13 members of OPEC is expected to be about $13 billion in 1978, a decline of $21 billion from the 1977 level of about $34 billion. The decline will result from a continued soft market for OPEC oil, an OPEC oil price freeze throughout the year, and continued growth of OPEC imports to sustain development plans. Since yearend 1973, the cumulative OPEC surplus has totaled nearly $180 billion. About $166 billion of this combined surplus was earned by six Arab Gulf countries (Saudi Arabia, Kuwait, Iran, Iraq, Qatar, and the United Arab Emirates). Almost $79 billion of this was earned by Saudi Arabia alone, although Saudi Arabia's share of the total decreased to 40 percent from its 47-percent share in 1977. Estimates of the OPEC current account position for 1977-78 are contained in the accompanying table. OPEC current account position [$ billion] 1977 Forecast 1978 Trade: Oil exports (government-take basis) Nonoil exports (f o.b.) Imports (f.o.b.) 131.5 9.2 -85.2 127.0 10.4 -97.4 Trade balance Services and private transfers 55.5 -21.7 40.0 -26.5 Current account balance (excluding govemment transfers) Surplus countries Deficit countries Total OPEC 33.7 13.4 38.3 -4.6 24.7 -11.3 33.7 13.4 OPEC oil earnings (government-take basis) totaled about $131 billion in 1977 and should fall to around $ 127 billion in 1978. Generally, slow economic activity and conservation in major consuming countries, along with greatly increased non-OPEC production, contributed to a slow 1-percent growth of exports during 1977. Oil consumption in the major industrial countries rose only 3 percent in 1977 compared with a 6-percent increase in 1976. Increased production from Alaska arrested the steady decline in U.S. production, and the North Sea accounted for a more than tripling of United Kingdom output. Production from all non-OPEC sources increased over 5 percent in 1977. For 1978, the sluggish demand for OPEC oil is expected to continue. The volume of OPEC oil exports is expected to decline by about 4 percent as non-OPEC oil production in Alaska and the North Sea increase, and as slow growth continues in the major consuming countries. At OPEC ministerial meetings in December 1977 and in June 1978, it was decided that OPEC oil prices would not be increased during 1978. The OPEC ministers will meet again to discuss prices in December of this year. 112 1978 REPORT OF THE SECRETARY OF THE TREASURY It is expected that the aggregate value of OPEC imports will grow almost 14 percent this year, to about $97 billion. Yearly growth in the volume of merchandise imports for OPEC as a group has trended downward since 1975. In the six strongest surplus countries, physical congestion in ports and transportation networks, the shortage of skilled and unskilled manpower to implement projects, and social factors have been the major constraints pn import growth. While transportation constraints have been reduced substantially, the manpower shortage continues to be an important limitation on the rate of import absorption for all these countries, except Iraq. In 1978, concern over strong inflationary pressures and a desire for more efficient use of resources has tempered government spending programs. The other OPEC countries have greater capacity to absorb a higher proportion of their export revenues in imports. However, in many of these countries actual or anticipated financing constraints, in addition to limited pools of trained labor, have caused cutbacks in development plans which in turn are bringing about lower rates of import growth. For Iran, concem over inflation, rather than financing, has been the main limitation on higher increases in the volume of imports. The deficit on services and private transfers is expected to rise by about 22 percent in 1978, or almost $5 billion. The rate of increase, however, is down from the 1977 rate of 28 percent and this trend is expected to continue. One important element is the adoption of restraining fiscal policies by more OPEC countries, reflecting moderation of development programs and desires to restrain the growth of foreign labor forces. The OPEC countries are also expected to incur lower demurrage costs in 1978 due to improvements in port operations. Service payments are increasingly being offset by growing net interest income on foreign investments, which should be slightly above $6 billion in 1978. Kuwait's service account, for example, moved from deficit to surplus in 1975, due largely to these earnings. Middle East.—Secretary Blumenthal visited Egypt, Israel, Saudi Arabia, Kuwait, and Iran in October and November 1977. The purposes of the Secretary's visit were to discuss economic and financial matters of mutual interest and to establish a personal relationship with key officials of each country. The subjects discussed included the outlook for petroleum prices and the world economy and, in Egypt and Israel, the outlook for U.S. economic assistance.30 In Israel the Secretary also cochaired a meeting of the United States-Israel Joint Committee for Investment and Trade. The Secretary subsequently met with a wide variety of Israeli and Arab Government officials in Washington during 1978. Latin America.^^—Treasury officials maintained a close working relationship with the Government of Mexico on a wide range of matters of mutual interest. Between April and September 1978, the Secretary met three times 30 See exhibit 41. 31 See exhibit 65. REVIEW OF TREAwSljRY OPERATIONS 113 with Finance Minister Ibarra and other Mexican officials to discuss the multilateral development banks, negotiations covering U.S. bank loans to foreign governments, access to capital markets, trade issues, national economic policies, and Mexico's stabilization program. Earlier in the year. Under Secretaries Solomon and Anderson hosted meetings with a high-level Mexican delegation concerning the United States-Mexican Customs Agreement and expanded cooperation between the respective customs services. In addition. Assistant Secretary Bergsten met with Mexican officials on several occasions to discuss the Inter-American Development Bank replenishment. Treasury also agreed to a 2-year extension of a longstanding $300 million swap line with Mexico, although in fiscal 1978 no drawings were made under this agreement. Negotiations on countervailing duties, a proposed income tax treaty, and the replenishment ofthe Inter-American Development Bank were areas of mutual concern to the United States and Brazil.32 In December 1977, Assistant Secretary Bergsten spent a week in Brazil during which he called attention to Brazil's preeminent status as an advanced developing country and the need to find new ways to encourage greater collaborative efforts between our two governments in helping to resolve the world's key economic problems. He also urged accelerated bilateral negotiations on our subsidy/countervailing duty problems. A team of U.S. negotiators headed by a Treasury official traveled to Brasilia in February 1978 to outline our proposals for an MTN code on subsidies and to review the status of our bilateral tax treaty negotiations. Secretary Blumenthal met twice with Finance Minister Simonsen in an effort to resolve a pending textile countervailing duty case. Some progress was achieved in formulating a joint approach on how the MTN code on subsidies should be applied to developing countries and in establishing certain principles for conducting the IDB replenishment. In April, Deputy Secretary Carswell met with Argentine Finance Minister de Hoz and Central Bank President Diz, who outlined the economic recovery realized since 1976 and some of Argentina's long-range economic objectives. Later in the year. Secretary Blumenthal also met with Minister de Hoz and other Argentine officials to exchange views on the replenishment of InterAmerican Development Bank resources, and discuss Argentina's recent economic performance and human rights policies. In the past year. Treasury has conducted countervailing duty investigations on Argentine exports of leather wearing apparel, nonrubber footwear, and textiles based on complaints from U.S. industry. The Department of the Treasury continued to work closely with the Government of Peru in its attempts to overcome balance of payments and budgetary problems. Treasury supported a 2 1/2-year IMF standby loan for Peru designed to strengthen Peruvian stabilization policies and set the stage 32 See exhibit 42. 114 1978 REPORT OF THE SECRETARY OF THE TREASURY for growth in key sectors of the economy. Secretary Blumenthal met on two occasions with Peruvian Government officials in Washington to review its economic situation and exchange views on the debt rescheduling negotiations of official bilateral credits to be considered in the context of a Paris Club meeting this fall. Secretary Blumenthal met with Venezuelan President Perez in Bogota, where they discussed the results of the recent Bonn summit, commodity price stabilization, the future directions of the North-South dialog, and ways to increase bilateral aid cooperation in the Caribbean region. Asia.—Secretary Blumenthal chaired a session ofthe second U.S./ASEAN Economic Consultations held in Washington, D . C , August 2-4, 1978. ASEAN (Association of Southeast Asian Nations) was established in 1967 by Indonesia, Malaysia, the Philippines, Singapore, and Thailand. During the ministerial meetings, the United States and ASEAN exchanged views on a broad agenda of economic subjects, including extensive discussion of the global economy and North-South issues. The meetings achieved the basic U.S. objectives of promoting cohesion and strengthening ASEAN and helping to stimulate awareness of ASEAN in the United States. From the ASEAN side the meeting was also viewed as being productive, both politically and economically. ASEAN ministers welcomed U.S. proposals for development cooperation, the decision to send Eximbank and OPIC investment missions to the region, and the U.S. commitments to actively pursue the common fund negotiations to an early and successful conclusion. On May 9, 1978, the Internal Revenue Service made a favorable ruling on a production sharing arrangement between the Government of Indonesia and U.S. oil firms producing oil in that country. Previously, in a ruling in May 1975 the IRS concluded that certain payments made by the U.S. oil companies were not creditable income taxes for purposes of the U.S. foreign tax credit. Subsequently, the Government of Indonesia changed its tax arrangements with the oil firms to meet the standards of a creditable tax and asked for a new ruling. The favorable ruling of this year is expected to improve the investment climate and oil production levels in Indonesia. The Govemment of Singapore would like to arrange an investment treaty with the United States. Treasury participated in developing a draft treaty that was sent to the Government of Singapore in September 1978. Formal negotiations were expected to begin later in the calendar year. Assuming a treaty is successfully concluded, it would be the first such arrangement for the United States since 1968. Treasury officials participated in the third annual meeting of the IndoUnited States Economic and Commercial Subcommission on October 26 and 27, 1977, in Washington, D.C. The array of topics discussed was quite broad. Treasury officials were particularly interested in the tax treaty negotiations, India's import regime, and its investment climate. ADMINISTRATIVE I REPORTS ADMINISTRATIVE MANAGEMENT Management and organization During fiscal 1978, the Office of Management and Organization (OMO) was involved in numerous studies and special projects touching both the Office of the Secretary and Treasury's bureaus, and in several interagency efforts arising from the President's reorganization project and other administration initiatives. OMO was the principal liaison with the reorganization project. Organization changes in the Office of the Secretary.—The position of Chief Deputy to the Under Secretary (Enforcement and Operations) was upgraded to Assistant Secretary (Enforcement and Operations) at Executive Level IV. The position of Inspector General, reporting directly to the Secretary and Deputy Secretary, was established to receive and analyze allegations of official or employee misconduct within the Department. Interagency projects.—During half ofthe fiscal year, a member ofthe OMO staff was detailed to the Task Force on Law Enforcement Reorganization. The task force made a comprehensive review of all Federal law enforcement activities. Substantial effort was devoted by Office of the Secretary and Customs Service personnel to a set of task forces examining the complex problems which would surround the establishment of a Border Management Agency. The major feature of the proposed agency was to be the melding of the Immigration and Naturalization Service Border Patrol with the Customs Patrol. OMO coordinated the response to the President's reorganization project Survey of Federal Economic Analysis and Policy Machinery. Several elements ofthe Office ofthe Secretary which have responsibilities for economic analysis and policymaking were asked to respond, as was the Assistant Commissioner (Planning and Research) of IRS. The Deputy Assistant Secretary (Administration) served on the President's Interagency Task Force on Women Business Owners. Under her direction, a Treasury study director from OMO headed an internal task group which contributed Treasury's portion to the final task force report, an examination of the barriers facing women entrepreneurs in the areas of credit and capital formation. Departmental projects.—During fiscal 1978, OMO was closely involved in studies of the field organizations of the Internal Revenue Service, the U.S. Customs Service, the Bureau of Alcohol, Tobacco and Firearms, and the U.S. Savings Bonds Division. These studies had been ordered by the Secretary in the previous fiscal year. Recommendations for changes in the field structures of the IRS and Savings Bonds were approved by OMB and implemented. Suggestions regarding Customs and ATF were held in abeyance pending the outcome of the larger law enforcement study being conducted by the President's reorganization project. Staff advised the Office of Revenue Sharing in the preparation ofa request for proposal and selection of a private contractor to conduct a congressionally mandated study ofthe antirecession fiscal assistance program. OMO participated in the final research design, after the contract was let, and reviewed the final report. A senior analyst from OMO participated in the review of bullion refining at 117 118 1978 REPORT OF THE SECRETARY OF THE TREASURY the Mint's New York Assay Office; the purpose was to determine whether this activity should be continued or contracted out to private industry. OMO conducted a study in response to proposals to merge the criminal investigator training and police training faculties at the Federal Law Enforcement Training Center; the report recommended organization and staffing, as well as target workload goals for instructors. Office ofthe Secretary projects.—Early in fiscal 1978, Secretary Blumenthal directed the Assistant Secretary (Administration) to develop a more effective system for appraising employee performance and recognizing accomplishments through incentive awards. The OMO staff was given the charter to develop this system, drawing upon its own and other staffs in the Office ofthe Secretary, and upon an outside contractor. A system was developed to improve work planning and performance feedback between supervisors and subordinates, and to distribute incentive awards on the basis of documented performance. The Secretary launched the system at a meeting of top staff, and implementation will occur in fiscal 1979. OMO also led the following management studies within the Office of the Secretary during the year: 1. A review of the Office of Industrial Economics and the asset depreciation range system which it administers. The purpose was to determine the effectiveness of the office's operations, and whether it was in the proper organizational location within Treasury. 2. A review ofthe organizational placement ofthe Office of Foreign Assets Control. 3. A study ofthe structure, staffing, and workload ofthe Telecommunications Operations Branch, Office of Administrative Programs. 4. A review of the workload and responsibilities associated with the Freedom of Information and Privacy Acts, and the mechanisms for dealing with them in the Office of the Secretary. Zero-base budgeting objectives.—During fiscal 1978, most Treasury offices and bureaus went through initial participation in the zero-base budgeting objectives program, which replaced the management by objectives program. The object of the prograrri is to maintain and track a set of management objectives in a manner integrated with the budgeting process. Objectives and associated resources, initially identified in the zero-base budgeting process, are picked up, refined, and tracked into the current operating year by the system managed by OMO. Productivity management.—The departmental productivity management directive was issued, requiring bureaus, for the first time, to submit annual productivity plans. These plans cover projects to be undertaken to enhance productivity and efforts to be made to extend productivity measurement practices over an even-larger portion of bureau activities. Advisory committee management.—The Secretary established new procedures whereby he would personally approve the establishment or renewal of any Treasury advisory committees. Under these procedures, five committees were renewed during the year and no new ones established. In addition to its own committees. Treasury took on management of one new Presidential advisory committee, the United States Tax Court Nominating Commission. Assistance to international visitors.—The International Visitors Program office has provided orientation and specialized consultation and observational programs on a continuing basis to international visitors referred by the International Communication Agency, Agency for International Development, and other agencies, both governmental and nongovernmental. This ADMINISTRATIVE REPORTS 119 office handled appointments and programs for 118 visitors representing 5 1 countries, both industrial and less developed. In addition, the office arranged briefings at Treasury for five classes of junior Foreign Service officers. Financial management The major part ofthe Financial Management Division's (FMD) efforts in fiscal 1978 was devoted to the daily ongoing requirements of a budget, accounting, and payroll liaison operation for the Office of the Secretary. The major achievements in fiscal 1978 were: 1. Completed initial transfer of all accounting data to a computerized system. This is a culmination of a 3-year effort that resulted in tripling the available accounting data that forms the base for the budget execution system, provides reports in a timely and usable manner, and is cost effective by offsetting a rising workload through mechanization instead of increased accounting personnel. 2. Instituted a new budget execution system that provides monthly status reports to office directors, thus giving them more control and understanding of their expenditures. FMD also instituted new control procedures on, among other things, the use of consultants, personnel hiring, and promotions. 3. Completed efforts on the transfer of the payroll system from the IRS Data Center to the Treasury payroll/personnel information system and designed a computer program system for the automatic transfer ofthe payroll data into the accounting system, thus eliminating 3 days of manual input monthly. Emergency preparedness The Emergency Planning Staff directed primary emphasis to the continuing enhancement of the Department's overall emergency preparedness posture. Improvement was achieved through program review, evaluation, internal activities, and participation in interagency projects, task forces, and civil readiness exercises. It is essential that Treasury's contingency plans be developed in keeping with changing concepts and technologies, and in anticipation of potential crises. To this end, a close working relationship was maintained with the Federal Preparedness Agency and other departments and agencies with emergency preparedness responsibilities under Executive Order 11490. In April and May 1978, the departmental emergency planners participated in regional civil readiness exercises in San Juan, P.R., and Dallas, Tex., benefiting both regional and headquarters planners in improving organizational preparedness. Expanded participation in similar exercises is planned for fiscal 1979. For example. Treasury has commenced planning for nationwide civil readiness exercise REX-78 to be conducted in October 1978. REX-78 will permit Federal agencies to test and refine contingency plans and capabilities to support military mobilization and forces deployment, and to provide civilian resource agencies an opportunity to examine critical resource problems during a protracted period of conventional war. Treasury will be involved significantly because of its responsibility for developing policies, plans, and procedures applicable to emergency stabilization of the monetary, credit, and financial systems of the country. An extensive Department-wide review of emergency policy and planning documents was made in fiscal 1978 with departmental and bureau officials revising those documents pertaining to their functional responsibilities. 120 1978 REPORT OF THE SECRETARY OF THE TREASURY Renegotiation of interdepartmental agreements and understandings continues. Contingency planning for possible postal service disruption during the last half of fiscal 1978 was an active project, including interagency liaison, guidance to Treasury offices and bureaus, and close monitoring of the postal strike situation to avoid disruption of Treasury operations. Review of major national plans and procedures was initiated during fiscal 1978, and included the National Plan for Emergency Preparedness, Federal Civil Emergency Actions Guidelist, Presidential Emergency Action Documents, and Treasury regional plans. Most significantly. Treasury participated in the President's reorganization project. Federal Emergency Preparedness and Response Study, conducted by OMB. Establishment of the Federal Emergency Management Agency, with its expanded role in multifaceted preparedness planning and response, could impose increased requirements on Treasury and other agencies. In fiscal 1979, Treasury will participate in the implementation of Reorganization Plan No. 3, and in an interagency coordinating group conceming the National Earthquake Hazards Reduction Actof 1977. Treasury payroll/personnel information system The Treasury Employee Data and Payroll Division has been reorganized into the Treasury Payroll/Personnel Information System (TPPIS) Division. The accounting, payroll, and systems modifications functions previously performed by the Bureau of the Mint were transferred to the TPPIS Division. The reorganization essentially centralized authority and responsibility for the management and control of all aspects of the system and will result in greater efficiency and effectiveness of the system operation. The Mint will continue to provide computer and administrative support services for TPPIS. TPPIS has completed the conversion of all Treasury bureaus, with the exception of the IRS, to the system as well as three other organizations—the Executive Office of the President, Federal Trade Commission, and National Gallery of Art. Budget and program analysis The Office of Budget and Program Analysis continues to provide departmental leadership for developing, administering, and analyzing bureau budget estimates and short-term and long-range financial plans. In addition, it initiates selected analytic studies designed to systematically measure the achievement of bureau programs with stated objectives. For fiscal 1978, budget estimates totaling $56 billion were submitted to the Congress. The amount included $3 billion for the operating accounts, $6.9 billion for general revenue sharing and the antirecession programs, and $46.1 billion for public debt interest and miscellaneous accounts. During the period of this report, the staff— 1. Maintained controls on expenditures, number of personnel on roll, and motor vehicle fleet to comply with limitations and directives prescribed by OMB. 2. Obtained supplemental appropriations for the cost of pay increases authorized by Executive Order 11941, wage board actions, and administrative actions amounting to $132.2 million. 3. Maintained control of the Department's execiition of the approved budget levels which include the approval of certain rej^rogrammings. ADMINISTRATIVE REPORTS 121 4. Assisted in the preparation and presentation of budget requests totaling nearly $ 1.925 billion to be appropriated to the President for the U.S. share to the multilateral development banks of which the Secretary of the Treasury serves as a Governor. 5. Assisted in the preparation and presentation of the budget request of $1.8 billion for U.S. participation in the Supplementary Financing Facility of the International Monetary Fund. 6. Issued Department-wide zero-base budgeting directive updating the zero-base budgeting system within Treasury. 7. In conjunction with other staff offices in the Department, developed legislation to bring the Exchange Stabilization Fund administrative expenses on budget in fiscal 1979. 8. Coordinated a survey of Treasury program evaluation activities and a survey of Treasury information sources and systems for the General Accounting Office. 9. Evaluated the merits of contracting out or performing in-house the refining of the Bureau of the Mint's U.S. Assay Office, New York. 10. Prepared a report to the Congress on the utilization of Governmentowned vehicles by employees permitted to take those vehicles to their place of residence overnight. 11. Analyzed currency and stamp demand forecasts to determine the need for expanding the production capacity of the Bureau of Engraving and Printing. 12. Improved procedures for preparing the annual Geographic Outlay Report to increase its accuracy and timeliness. 13. Studied the feasibility of developing computer models to estimate IRS resource requirements given certain workload levels. 14. Analyzed relationships between the purchase and retention of U.S. savings bonds and such characteristics as the denomination of the bond, the method of purchase, and the geographic area where purchased. 15. Monitored overseas staffing levels of Treasury bureaus and coordinated requests for changes and increases with the State Department. 16. Monitored Federal agency compliance with Treasury Circular No. 1082, Notification to States of Grant-in-Aid Information. Internal auditing The Office of Audit provides leadership and professional assistance to Treasury bureaus on their systems of auditing and administrative accounting. The staff also furnishes audit service directly to the Office ofthe Secretary and to other organizations upon request. In fulfillment of a plan to make periodic reviews of the audit systems of Treasury bureaus, a formal review and appraisal was made ofthe internal audit activities ofthe U.S. Customs Service, which included field work in three of :he nine Customs regions. The report to the Commissioner of Customs •ecognized the importance of actions planned by Customs in response to a leed for more systematic audit planning. It also reenforced Customs efforts ;o improve audit coverage of ADP activities and to make more multiregional ludits of the same subject matter. An appraisal of the internal audit system of the Bureau of Govemment financial Operations is in progress to compare the audit staff, organization, )olicies, plans, reports, and related matters with Federal audit standards and >ther desirable requirements for an effective program. A substantial amount of assistance was provided to the Exchange Stabiliza- 122 1978 REPORT OF THE SECRETARY OF THE TREASURY tion Fund during the year. In addition to auditing work, the office, at the request ofthe Deputy Secretary, assisted in developing a memorandum issued by the Under Secretary for Monetary Affairs establishing procedures for theproper handling of Fund financial agreements. The office is also developing an operational accounting manual with specific emphasis on accounting principles and procedures for foreign exchange, special drawing rights, and other unique Fund transactions. Other special projects included reviews at the request of the Under Secretary of the contracting procedures and practices of the Bureaus of the Mint, and Engraving and Printing. Advisory service was continued in support of TPPIS. In particular, documentation of the system was monitored, and a directive developed for controlling audits. The office is responsible under the directive for the overall audit, but assistance of Treasury bureau audit staffs will be required and the plans and programs will be coordinated with them. Direct audit services were provided to the Federal Law Enforcement Training Center. Coverage included an examination of financial operations and an assessment of comphance with OMB Circular No. A-76 on acquiring commercial or industrial products and services. Also, reports were issued to the Director, Office of Revenue Sharing, on the audits of the trust funds and the administrative accounts, and on a special examination into revenue sharing payments made to certain cities. The office prepared the consolidated 1977 report to the Secretary on internal auditing in Treasury. Audit activities summarized showed that audits contributed to improved financial management, increased efficiency and effectiveness, and stronger controls over the varied Treasury activities. Savings and benefits susceptible to dollar measurement totaled $100 million. The staff participated regularly in the activities of Intergovernmental Audit Forums led by the Comptroller General to provide an orderly approach to improving audits of Federal programs. Regular meetings were held with Treasury auditors to help unify the audit system. Personnel management Treasury's labor relations program continues to have an increasingly significant impact on personnel management. Sixteen different unions represent nearly 102,000 employees in 9 Treasury bureaus and in the Office of the Secretary. Treasury keeps its lead among all Cabinet agencies in the extent to which its employees have organized. Unions have consolidated bargaining units at the national level in the IRS and the Customs Service. The Treasury labor relations program directive was extensively revised to meet current Executive order requirements. Pursuant to that directive. Treasury's labor relations staff has begun reviewing agreements negotiated at the bureau level and has been giving close scrutiny to cases appealed to the final arbiter in the program. The Department's Labor Relations Information Center, designed for research and case-handling informational resource requirements, has been used by the bureaus in preparing for negotiations. It permits access to a computerized retrieval system of Federal labor relations agreements and cases. Summer training in the Department for young men and women ranging from disadvantaged high school youths to college and graduate-level students was highly successful in achieving the goals and objectives ofthe Federal summei employment program. On-the-job training experience provided by the employing bureaus afforded the summer employees an excellent opportunit> ADMINISTRATIVE REPORTS 123 to find a workable balance between the academic world and the practical complex operations of the Federal Government. To complement the work experience, a series of seminars, panel discussions, workshops, and other related activities were conducted to inform summer employees of the many varied and complex issues now facing the Federal Government. The level of participation and interest shown by Secretary Blumenthal, members of his staff, and other high-ranking Federal officials who served as key speakers and discussion leaders was instrumental in making the sessions as productive arid successful as possible from the viewpoint ofthe summer employees participating. Bureaus are revising their old programs or developing new ones to increase the effectiveness of executive development. At the departmental level, efforts are being made to activate the Departmental Executive Resources Board as the first step in implementing the Senior Executive Service or a similar resources system. The Career Development Program for Lower Level Employees (CADE), formerly known as the upward mobility program, underwent substantial change in 1978. Substantive changes were necessary to ensure implementation of a results-oriented program that would accommodate both the needs of the Department and employees. The impreciseness was corrected by requiring accountability for growth in the formal program. As an additional assurance of having a good program, skills training (to include counseling) is being conducted at both local and field levels. The Personnel Security Manual (Chapter 732 TPMM) was revised and now provides meaningful guidance for the program Department-wide. Personnel security evaluations were conducted in seven bureaus during fiscal 1978. One hundred and twenty-nine employees representing most Treasury bureaus, as well as components ofthe Departments of Health, Education, and Welfare, Justice, and Transportation, completed training in the onsite method of personnel management evaluation during four presentations of the Treasury-developed course by that name during 1978. This training is expected to yield practical benefits by providing bureaus with increased capability of conducting much-needed internal personnel management assessments. Procurement and personal property management Total commercial procurements for the Department in fiscal 1978 amounted to $303 million, ofwhich $57 million in contracts was awarded to small business firms. This excludes contracts funded by the Saudi Arabian Government. Of the total, $218 million was expended through Treasury negotiated and advertised contracts. The balance was ordered under established General Services Administration and other agency contracts. The expenditures made to minority owned and operated businesses, to the extent identifiable, both through the Small Business Administration's " 8 ( a ) " program and other contracts, totaled $5.1 million, a significant increase over fiscal 1977's total of $2 million. During fiscal 1978, 44 blanket purchase agreements for use by all Treasury bureaus provided a savings in excess of $96,000 over standard unit prices under existing Government contracts. The Department-wide consolidation of Treasury requirements for 951 law enforcement vehicles procured through GSA and in excess of 16 million rounds of small-arms ammunition resulted in a significant dollar savings over separate procurement methods. Compacts, 124 1978 REPORT OF THE SECRETARY OF THE TREASURY intermediate- and full-size automobiles, and 31 types of ammunition were purchased. The Department issued a "Minority Business Contracting Handbook" to assist procurement personnel in taking positive steps to increase minority business contract awards. The program staff also held a training class for over 200 Treasury headquarters and field office personnel in minority business contracting procedures. Similar training was provided to all procurement personnel in the revised labor surplus area set-aside program, part of the administration's urban assistance efforts. The Department also continued its staff assistance visit program designed to help identify potentials for improvement in Treasury's overall contracting activities. Visits were made to three bureau headquarters and two regional cities. In support of the U.S. technical cooperation agreement with the Saudi Arabian Government, and using Saudi funds. Treasury contract specialists awarded and administered contracts in excess of $40 million in fiscal 1978. Contracted services and equipment were to improve several aspects of Saudi socioeconomic conditions. Treasury significantly increased its participation in vendor procurement conferences during fiscal 1978. Departmental personnel or bureau personnel designated as Treasury representatives attended seven conferences throughout the Nation to provide information to small businesses and minority vendors interested in selling to Treasury. During fiscal 1978, Treasury personal property transactions included the reassignment within Treasury of property valued in excess of $945,000. Personal property valued in excess of $11 million, no longer needed by the Federal Government, was transferred for use by State organizations and nonprofit groups. Treasury also obtained, without cost, personal property valued at over $22 million from other Federal agencies. As part of the vehicle management program, home-to-work driving authority for Government vehicles was successfully reduced from 940 to 558, meaning a significant cost savings. Real property management The Bureau of Alcohol, Tobacco and Firearms completed in June 1978 the relocation of its national laboratories from the IRS headquarters building to a new facility in Rockville, Md. On March 17, 1978, the Assistant Secretary (Administration) accepted 3 1 townhouse buildings at the former Glynco Naval Air Station, Brunswick, Ga., for Federal Law Enforcement Training Center student dormitories. This will result in a cost avoidance of about $3.7 million. The U.S. Customs Service completed its Washington, D . C , consolidation in August 1978, with the move of its computer facility into the headquarters building on Constitution Avenue. A study ofthe long-range space and facility needs ofthe Bureau of Engraving and Printing determined that the Bureau does not need a new facility to meet its projected production levels. Technological improvements and policy changes mean that the existing facihty can meet future production requirements. A new study in about 5 years will reevaluate this decision. On June 1 8, 1978, the Under Secretary released the Department's reservation ofthe south portal site, next to the Bureau's buildings, to its owner, the District ofColumbia Department of Housing and Community Development. On May 3, 1978, the Under Secretary approved a Bureau of the Mint decision on the future ofthe Park Hill (Denver, Colo.) site, acquired by the ADMINISTRATIVE REPORTS 125 Department in 1975 for a new mint. The Mint now plans to satisfy its expanding production levels by acquiring and adapting surplus Federal facilities. An assessment is being made to determine the most cost-effective way of fulfilling the Mint's nationwide facility requirements. Buildings at the Rocky Mountain Arsenal near Denver, and the former Frankford Arsenal near Philadelphia, are being evaluated as potential satellite production and storage sites. A formal proposal is expected by late calendar 1978. Several space planning initiatives continue, aimed at achieving consolidations of bureau headquarters activities. Treasury now has 51 locations in the metropolitan Washington, D . C , area. Studies ofthe long-range space needs of the U.S. Secret Service and the Fiscal Service have been made, and the resultant proposals will be the basis of facility acquisition actions by the General Services Administration. Partial consolidation of the Office of the Secretary, now scattered in 13 locations, is being planned. This will help limit the acquisition of new office locations and anticipate the long-range Fiscal Service consolidation plan, which returns the Treasury Annex Building to the Office of the Secretary. Approximately 11,000 square feet of nonoffice space in the Main Treasury Building is being reclaimed for office use to satisfy increasing space requirements without adding more locations, avoiding recurring annual space rental charges of about $90,000. The Main Treasury repair and improvement program is progressing: 1. Design work has been completed and construction contracts awarded for the first phase of structural repairs to the basement floors, chimneys, and fireplaces. 2. Design work is nearing completion on the project for primary electrical renovations, fire security alarms, and civil defense alarms. A contract should be awarded by January 1, 1979. 3. Design work on the project for air conditioning renovations, secondary electrical distribution, window repairs, and downspout and rain leader repairs is also nearing completion. Contracting will not be possible until next summer. 4. Studies of the balustrades and cornices are being done to identify potential safety hazards. Work on those elements will be done before the repointing of the exterior stonework begins. Printing management At the request of the U.S. Savings Bonds Division, Printing Management conducted a study of the Division's printing plant in Chicago and printing procurement function in Washington, D.C. The study included a detailed, onsite evaluation of the Chicago facility to determine the most efficient equipment to produce the promotional material required by the Savings Bonds operation. A recommendation was made to update two printing presses. The Division's internal procedures for procurement of printing were also evaluated and a recommendation was made to realign functions in its three branches in Washington. In February 1978, Printing Management acquired an electronic phototypesetting system which means full pages of camera-ready copy can be provided very quickly. A new compatible typesetter for headlines was also acquired. The departmental printing plant received about $50,000 worth of virtually new printing equipment from the U.S. Secret Service as the result of the breaking up ofa counterfeiting operation in Utah. The equipment includes a printing press, camera, platemaker, papercutter, and light table. The actual 126 1978 REPORT OF THE SECRETARY OF THE TREASURY cost to the Office ofthe Secretary for the equipment was $814 for shipping from Salt Lake City. A task force, proposed by Printing Management, was established to look into procuring alcohol tax stamps, currently produced at the Bureau of Engraving and Printing, from commercial printers. The task force, composed of members from Printing Management, the Government Printing (Office, Bureau of Engraving and Printing, and the Bureau of Alcohol, Tobacco and Firearms, wrote specifications and contacted commercial contractors for production cost estimates. Preliminary information points to a substantial savings with commercial production. A final determination will be withheld pending the outcome of legislation that might negate the need for sequentially numbered stamps. Physical security The Department-wide training, orientation, and briefing program for employees who handle classified documents was revised. The new program is pictorial so that employees are more likely to participate in and understand the presentation. Other agencies have seen the program materials and have requested Treasury's assistance in their own program development. To supplement the departmental defensive international travel briefing program, a booklet entitled "Overseas Assignment" was prepared for distribution to departmental personnel traveling or assigned overseas. It stresses awareness of the risks inherent in foreign travel and basic guidelines for protection to be followed by employees and immediate family members. Treasury, along with certain other Government agencies, is participating in an FBI crime resistance program to reduce thefts at Government facilities in Washington, D.C. It will provide background and statistical data and stress employee awareness. The first half of the program has been devoted to the collection of information on past losses of Government property which has been provided to the FBI for analysis. During the last half of the program, the FBI will provide recommendations to Treasury which should help bring about a reduction in property losses. Telecommunications Treasury automated communications system.—Substantial progress has been made on the contract awarded in August 1977 for the Treasury automated communications system (TACS). The implementation of TACS in 12 months will round out the Treasury communications capability by providing a modern message processing and dissemination facility which will increase productivity and efficiency. Treasury Centrex telephone system.—The Treasury Centrex system has been in service for nearly 2 years and now serves Treasury bureaus and 2 other Government agencies with over 18,000 telephone stations. An automated directory and information service is being designed and should be implemented in 1979. The use of the single line telephone in lieu of the more expensive multiline telephones or call directors is progressing well and is expected to result in significant savings. The new Centrex attendant service has permitted a reduction of seven telephone operators, one-third ofthe former staff Federal telecommunications system (FTS) cost reduction program.—Treasury met its goal of reducing long-distance telephone costs by $2 million in fiscal 1978. GSA rebated over $2 million in FTS costs to Treasury. Detailed calling data were collected and distributed and educational memoranda prepared on the proper use ofthe FTS for Treasury employees. Managers and supervisors indicated that the usage data proved to be valuable in controlling calls. This ADMINISTRATIVE REPORTS 127 program will be e n h a n c e d by a unique FTS off-net restriction capability now available on the Treasury system. Departmental audiovisual management program.—Based on O M B Circular A - 1 1 4 , a draft Treasury directive was circulated for c o m m e n t prescribing specific m a n a g e m e n t criteria for audiovisual programs. Agreement on its final form has not yet been reached, but the directive has stimulated m a n a g e m e n t thinking and activity in the reduction of audiovisual costs. Due in large part to the contributions of interested bureau audiovisual managers, a useful and economical audiovisual program will be in operation within the next fiscal year. Overseas communications support.—Telecommunications M a n a g e m e n t has b e c o m e deeply involved in providing a sophisticated satellite communications system between Riyadh, Saudi Arabia, and Washington, D.C. T h e system is supporting the Office of Saudi Arabian Affairs and n u m e r o u s projects established under the auspices of the United States-Saudi Arabian Joint Commission on E c o n o m i c Cooperation. T h e first phase of the project, which provides direct voice communications between the two cities, has been completed and the second, which will provide c o m p u t e r terminal access t o data bases in the United States, is u n d e r development. Initial users, besides Treasury personnel, will be the Saudi Ministry of Finance. O t h e r users are to be phased in as their communications requirements b e c o m e known. Radio frequency management.—During fiscal 1978, the D e p a r t m e n t doubled its capacity of radio frequency assignments and approximately 300 international negotiations were successfully undertaken. It is anticipated that the d e m a n d s in fiscal 1979 will be 75 p e r c e n t above present levels. Completed studies indicate that due to an upcoming major reorganization, the frequency requirements are projected to triple, but can be accompUshed with only a 50p e r c e n t increase in cost as a result of innovative data-handling techniques. Improvement of commercial carrier service to Treasury.—In 1978, the A m e r i c a n T e l e p h o n e & Telegraph C o . established a national a c c o u n t m a n a g e m e n t staff to serve Treasury, and the associated Bell System companies realigned their marketing staffs accordingly. As a result, response to Treasury requirements has improved significantly. For example, the new A.T.&T. m a n a g e m e n t team recently c o n d u c t e d a survey of U.S. Customs Service voice communications requirements along the United States-Mexican border and submitted its r e c o m m e n d a t i o n for improved service in this area. T h e project called for a coordinated effort a m o n g the three telephone companies serving the area and the national account m a n a g e m e n t staff. Departmental communications security.—Responsibility for the managem e n t o f t h e departmental communications security ( C O M S E C ) program was officially assigned to the Assistant Director (Telecommunications Managem e n t ) by Treasury D e p a r t m e n t O r d e r No. 254, dated August 12, 1977. T h e departmental C O M S E C staff is charged with ensuring that classified and sensitive voice, record (message), and data communications (including a u t o m a t e d data processing transmissions) are accomplished so that t h e information is not inadvertently disclosed by h u m a n or machine error, o r intercepted by an adversary. C O M S E C support is provided to the Office o f t h e Secretary and to those other offices and bureaus within the D e p a r t m e n t t h a t process or transmit sensitive or classified information. Paperwork management Departmental paperwork management program.—The staff continued developing programs in c o r r e s p o n d e n c e , forms, internal reports, and directives, and began a new program in the area of records maintenance and disposition. A 128 1978 REPORT OF THE SECRETARY OF THE TREASURY program directive was published to assure that only required records are maintained and disposition is timely. Treasury's part in the President's program to reduce the reporting burden imposed on the public was again a success. In fiscal 1978, the Department reduced its reporting burden by more than 25 million work-hours, a 5-percent reduction in time required by the public to complete Treasury reports. The forms management program established a central facility to store and distribute forms which allows for cost savings and better control. Office of the Secretary program.—A more efficient realignment of clerical functions in the Records Management Branch led to the expansion of services such as word processing and microfilm. Unneeded central files in the Office ofthe Assistant Secretary (International Affairs) were discontinued. A new filing system established official records locations at designated stations throughout the office to assure complete documentation and record accessibility. A new storage and holding facility was established, freeing hundreds of square feet of prime office space in the Main Treasury Building, to make it possible for program officials to store semiactive records for almost immediate access. Schedules to permit the orderly, legal destruction of thousands of cubic feet of Office ofthe Secretary records currently stored in the Washington National Records Center and the Main Treasury Building are about 80 percent completed. This will result in significant savings to GSA and Treasury. Disclosure program.—For the past 2 years, this program, which administers the Freedom of Information Act and Privacy Act provisions, had been staffed by people on temporary assignment throughout Treasury. Now it has a permanent full-time staff. The new Disclosure Officer is reviewing the systems before revising procedures and policies for disclosure. An orientation program has been developed to train new employees who will be associated with disclosure. New directions.—Rapidly developing technology has led to several new programs that promise to revolutionize information management at Treasury. Heretofore nothing had been done to coordinate word processing activities on a Department-wide basis. The Office of Paperwork Management organized a word processing task force of representatives of each of the bureaus, chaired by an analyst on the staff. Standard guidelines now exist for acquiring and using word processing equipment throughout the Department. The basis for a word processing system to allow originators, reviewers, and signers of correspondence to communicate almost instantly has also been established, eliminating the days or weeks of revision now associated with document preparation. A computerized correspondence tracking system developed for the Office of Public Affairs permits the user to instantaneously identify all correspondence within the system and obtain status reports immediately. Paperwork Management is developing an information locator system to prepare a number of reports required on a quarterly, semiannual, and annual basis. It will also identify sources of information throughout the Federal Government and eliminate most duplicative requests. The system, projected to save tens of thousands ofdollars each year in forms and reports management personnel costs, will, more significantly, reduce even more the reporting burden imposed on the public. ADMINISTRATIVE REPORTS 129 General services International support.—The IMF/IBRD annual meetings bring together the Finance Ministers, central bankers, and other top officials from around the world in discussions concerning international monetary and financial policies. The Office of General Services planned and coordinated all administrative requirements for Treasury's participation in the 1978 IMF/IBRD conference. Complete logistical support, including telecommunications, furniture and supplies, and pther office services, was provided in a major temporary office installation for top Treasury officials in a wing of the Sheraton Park Hotel, Washington, D.C. Numerous events were arranged for the Secretary and other officials, including a reception by the Secretary for approximately 1,300 guests. In addition, the Office of General Services continued to provide planning and coordination services for overseas travel by the Secretary and other top Treasury officials, as well as related protocol support services. Environmental programs Environmental quality.—The Assistant Secretary (Administration) approved the completed supplemental environmental assessment on the expansion of facilities at the Federal Law Enforcement Training Center. In addition, the first phase of environmental assessments was completed on the ATF explosives tagging program and the Customs Detector Dog Training Center expansion at Front Royal, Va. Assistance was provided to the Council-on' Environmental Quality in the formulation of new regulations implementing the National Environmental Policy Act. Historic preservation.—Treasury continued its participation as a statutory member of the Advisory Council on Historic Preservation (ACHP). This included review of impact studies on Federal projects involving historic properties, and representation on task forces such as the Interagency National Heritage Trust Task Force and the Economic Policy Group ofthe Council on Historic Preservation. A comprehensive directive was prepared to establish responsibilities, standards, and procedures for complying with the National Historic Preservation Act. A report was prepared for the ACHP summarizing the Department's historic preservation activities and the processing of several inquiries concerning the impact of Department activities on historic buildings. Energy conservation.—In order to facilitate preparation of the energy management plans required by Executive Order 12003, the Assistant Secretary (Administration) established a task force in March 1978. The task force completed the energy survey of 14 Treasury owned and operated buildings in order to determine actions to meet the President's stated goal ofa 20-percent reduction in energy consumption. In the area of agency operations, the task force identified eight energy conservation options; among them were vanpooling, use of electric vehicles, energy conservation in the use of ADP equipment, and a driver training course. The latter two programs are being initiated for the first time in the Federal Government. A study was begun to determine necessary departmental response to a weather/fuel shortage crisis. Pollution abatement.—In accordance with the Solid Waste Disposal Act of 1965 and the Resource Recovery Act, the Department completed a study on the feasibility of source separation of high-grade wastes. The study found source separation at the Main Treasury and Annex to be economically unfeasible, but advised the Environmental Protection Agency (EPA) that source separation will be done at the Bureau of Engraving and Printing. The 1 30 1978 REPORT OF THE SECRETARY OF THE TREASURY "Beverage Container Guidelines Non-Implementation R e p o r t , " concerning departmental implementation of E P A ' s guidelines under the Solid Waste Disposal Act, was submitted in final to EPA. Also submitted to E P A was a reply concerning compliance with the National Pollution Discharge Elimination System permit granted to the Customs dog training center and alleged violations of the permit by that bureau. Library T h e library expanded its automation program in two major areas, internal operations and public services. Internally, a m a n a g e m e n t information system for acquisitions and subscriptions control was implemented. For public services, the library acquired the a u t o m a t e d reference services " O r b i t " and the New York Times Information Bank, thereby expanding reference and bibliographic services. Safety Office of the Director of Safety.—The safety action plan project was completed on schedule in fiscal 1978. O n e bureau plan was unacceptable, however, and the project was extended until the plan is revised. A directive, " D e p a r t m e n t a l Occupational Safety and Health P r o g r a m , " was published. T h e basic directive has nine parts. Parts I and II are in force; parts III-IX have been released for coordination. They cover legislated requirements for the D e p a r t m e n t ' s occupational safety and health program. T h e criteria and evaluation p r o c e d u r e s governing the Secretary's bureau safety awards were revised and published in a directive, " D e p a r t m e n t of the Treasury Safety A w a r d s . " T h e highest award of honor went to the Bureau of Engraving and Printing in calendar 1977 and to the Bureau of G o v e r n m e n t Financial Operations in calendar 1978. The next highest award of excellence went to the IRS in calendar 1977 and to the Secret Service in calendar 1978. Treasury Occupational Safety and Health Council (TOSHC).—A T O S H C committee wrote a new organization and bylaws d o c u m e n t published as a directive. T h e d o c u m e n t reestabHshed the T O S H C as a forum for ( 1 ) discussion of departmental and bureau safety and health problems, ( 2 ) information on a regular basis on important safety and health topics, and ( 3 ) recommendations on departmental policy. Annual meetings of the Council, which included Office of the Secretary and bureau top staff, were held in N o v e m b e r 1977 and May 1978. T h e Assistant Secretary (Administration) chaired the May meeting. The annual meeting is now an established spring event. Treasury Historical Association In 1978 the Treasury Historical Association began having three membership meetings a year instead of only one. These were held February 2 at the Bureau of Alcohol, T o b a c c o and Firearms, April 12 in the Treasury Cash R o o m , and September 27 at the National Archives. Rex D. Davis, Vice President, was appointed to fill the vacated office of President and then agreed to stay on as President after he retired as Director o f t h e Bureau of Alcohol, T o b a c c o and Firearms. Continuing in their current offices are Charls E. Walker, Chairman of the Board of Directors; Abby Gilbert, Secretary to the Board; and Arthur D. Kallen, Treasurer. Sidney Sanders resigned as Executive Secretary and was replaced by Tacy Cook. By the end of fiscal 1978, the Association had 350 m e m b e r s . ADMINISTRATIVE REPORTS 131 BUREAU OF ALCOHOL, TOBACCO AND FIREARMS The responsibilities ofthe Bureau of Alcohol, Tobacco and Firearms (ATF) include: Reducing the criminal misuse of firearms and the misuse or unsafe storage of explosives; assisting other Federal, State, and local law enforcement agencies in reducing crime and violence in which firearms and explosives are used by helping enforce the firearms and explosives laws of the United States; collecting all revenue due under the Federal alcohol and tobacco tax statutes, and to achieve, to the maximum extent possible, voluntary compliance with those laws; eliminating the illicit manufacture and sale of nontaxpaid alcoholic beverages; and quashing commercial bribery, consumer deception, and other improper trade practices in the alcoholic beverage industry through administration and enforcement of the Federal Alcohol Administration Act. Originally, ATF, as a unit ofthe Internal Revenue Service, was responsible mainly for the reduction of the manufacture and sale of illicit alcohol. Criminal violence in the 1920's and 1930's prompted Congress to enact the National Firearms Act of 1934. ATF enforces and administers the law, which imposed a tax on, and required registration of, automatic and other gangstertype weapons. In 1942, Congress passed the Federal Firearms Act to regulate interstate commerce in firearms. Similarly, an upsurge in violence in the 1960's led to broader law enforcement responsibilities for ATF. Increased firearms crimes, spurred by assassinations of political and other leaders, prompted passage of the Gun Control Act of 1968. It encompassed existing Federal firearms laws and added new provisions, to be enforced by ATF. In 1970, enactment of title XI ofthe Organized Crime Control Act assigned explosives regulation and enforcement jurisdiction to ATF. Treasury Order No. 221, June 6, 1972, separated ATF from the IRS. ATF then became a separate Treasury bureau. In fiscal 1978, the Bureau expanded its explosives enforcement program to investigate arson-related crimes by setting up arson task forces in major metropolitan areas in the United States. A national pilot test was conducted in fiscal 1978 on the feasibility of adding microscopic, coded chemical particles, called taggants, to explosives during manufacture. When tagged dynamites, gels, and slurries are used in bombings, they can be identified at the bomb sites. Agents and inspectors continued to identify sources and channels through which firearms moved from areas with minimal or no firearms laws to areas with strict laws. This effort began in Boston, Chicago, and Washington, D . C , when ATF started its concentrated urban enforcement (CUE) program in fiscal 1976. Intensified enforcement efforts to suppress interstate and international movement of firearms and explosives intended for criminal use revealed new weapons sources. Complex criminal investigations were developed successfully and forwarded for prosecution. During fiscal 1978, ATF collected more than $8 billion in alcohol and tobacco excise taxes—the third largest source of U.S. revenue, following personal and corporate income taxes. ATF continued its efforts to investigate trade practice violations and to conduct compliance inspections of firearms and explosives industry members. Several steps were taken by ATF to modernize laws, regulations, and rulings. 132 1978 REPORT OF THE SECRETARY OF THE TREASURY including steps to deregulate while assuring the collection of tax revenue. Consumer protection was promoted by issuing regulations to strengthen winelabeling requirements, and by proposing regulations to require labels on alcoholic beverages to warn pregnant women ofthe dangers of alcohol to fetal development. Criminal Enforcement ATF agents investigate violations of Federal firearms, explosives, and alcohol laws. In fiscal 1978, as reports documented a rise in arson crimes in the United States, ATF agents developed investigative techniques for use in arson cases. Operation CUE continued to be an effective tool for charting the criminal misuse of firearms and explosives in metropolitan areas. The work of ATF special agents opened 24,670 investigations, and led to recommendations that 4,264 defendants be prosecuted. ATF agents were responsible for the seizure of 8,898 firearms, 15,108 pounds of explosives, and 252 illicit distilleries. Undercover techniques used during investigations resulted in the purchase of 3,924 firearms and 2,184 pounds of explosives destined for use by the criminal element. To enforce Federal explosives and firearms laws, the Bureau has developed special programs to meet the needs of its field agents and other law enforcement officers. Those programs include the stolen explosives and recoveries (SEAR) project, interstate theft project for firearms, international traffic in arms (ITAR), Operation CUE, arson task forces, and undercover storefront operations. Explosives enforcement program Explosives incidents involving death, injury, and property loss continued to rise in fiscal 1978. The illegal and improper use of explosives resulted in 116 deaths, 247 injuries, and more than $2 billion in property losses. Agents investigated 3,459 explosives incidents, ofwhich 1,075 were bombings, 342 attempted bombings, 63 accidental bombings, 409 incendiary incidents, and 85 arson bombings. ATF investigated approximately 77 percent of all reported explosives incidents in the United States last year. Investigations by the Federal Bureau of Investigation, the U.S. Postal Service, and State and local law enforcement agencies account for the remaining cases. To meet its explosives enforcement responsibility, ATF provides training for its agents and for other Federal, State, and local law enforcement officers. Training includes destructive device identification, explosives safety, security, bomb threats, bomb responses, and investigative techniques. ATF also stresses public awareness and cooperation with other law enforcement agencies. The stolen explosives and recoveries project and arson task forces are principal ATF explosives enforcement tools. Stolen explosives and recoveries.—In an effort to curb explosives thefts in the United States, ATF developed the stolen explosives and recoveries project to assist ATF agents and other Federal, State, and local law enforcement agencies in detecting and recovering stolen or lost explosives. After a public campaign advertising a toll-free explosives theft reporting number, 800-424-9555, ATF received an increase in explosives theft reports in 1978. Three hundred forty-eight explosives thefts involving 85,591 pounds were reported. ADMINISTRATIVE REPORTS 133 Through investigative efforts with other agencies, ATF recovered 59,662 pounds of explosives in undercover purchases, seizures, and abandonments. The detection and apprehension of individuals who steal explosives is an ATF priority, since many stolen explosives subsequently are used in bombings. Arson task forces.—Incidents of arson have increased in recent years and have placed a multibillion-dollar financial burden on business communities, municipalities, and insurance agencies. Arson is committed to defraud insurance companies by the destruction of insured property. Studies show that arson incidents have increased by 1,300 percent since 1950. Arson is the cause of more than 30 percent of building fires. Because of ATF's law enforcement responsibilities, the Bureau is in a unique position to investigate the arson problem at the national level and to assist State and local authorities simultaneously in their efforts to solve arson crime. ATF's authority stems from the Gun Control Act of 1968 and the Organized Crime Control Act of 1970, of which the Explosives Control Act is a part. ATF began its approach to arson with an experimental task force in Philadelphia. A task force is a combined strategy among law enforcement agencies in a geographical area. In the Philadelphia area, cases were perfected against a furniture store owner, an insurance adjuster, and two organized crime figures seeking to collect insurance on an arson-for-profit fire and a slum landlord who burned down several tenements to defraud underwriting insurance companies; other cases are under investigation. Because of the success of the Philadelphia task force, ATF formed 22 more task forces in major cities across the United States in conjunction with strike force operations. Explosives and arson investigations.—ATF agents investigated major explosives and arson cases in fiscal 1978. Many bombings occurred in Kentucky and West Virginia during the 1978 United Mine Workers strike. Typical ATF bombing investigations are illustrated by a train derailment in West Virginia during the coal-mine strike, in which ATF agents there conducted an investigation which resulted in the arrest of suspects 3 days later; or by the case in which six defendants were prosecuted in 1978 for blowing up a Letcher County, Ky., bridge which spanned the Kentucky River (the explosion caused $200,000 damage to the bridge); and by yet another in which two suspects were arrested for possession of 100 pipe bombs during an investigation in Bellaire, Mich. They were planning to sell the bombs to undercover agents for criminal use. Firearms enforcement program In fiscal 1978, ATF agents conducted 20,825 firearms investigations, which led to recommendations that 3,652 defendants be prosecuted. During the investigations, agents seized 8,988 firearms and, while working undercover, purchased another 3,924. The seizures and purchases prevented the weapons from being used in crimes. Because of ATF's ability to trace firearms used in crimes. Bureau analysts can identify sources and channels through which firearms illegally move from areas with minimal or no firearms laws to areas with strict laws. Local law enforcement officers are sometimes limited in their ability to curb the illegal flow because of jurisdictional restrictions or inadequate laws. ATF has recently focused its efforts toward stemming the illegal interstate and intrastate flow of arms. The approach is to identify and apprehend principal illegal firearms traffickers and their sources, distributors, and coconspirators. 1 34 1978 REPORT OF THE SECRETARY OF THE TREASURY While local law enforcement officers investigate firearms cases within their jurisdiction, ATF agents will now concentrate on Federal violations such as complex investigations of major, organized firearms suppliers. Two major programs in ATF firearms enforcement are the interstate theft project and the international traffic in arms project. Interstate theft project.—The Bureau started a firearms theft reporting program in 1973 to help prevent firearms stolen from interstate shipments from becoming a source of weapons for criminals. The trucking industry and other interstate shippers voluntarily have reported thefts or losses of firearms to ATF yearly. In fiscal 1978, ATF received 884 reports involving approximately 2,430 stolen or lost firearms. Seventy-four percent ofthe total, or 660 reports, were forwarded by United Parcel Service offices. ATF agents, working with local investigators, developed 6 criminal cases involving 14 defendants and recovered 332 stolen firearms. International traffic in arms.—The ITAR project provides information which assists agents in curbing illegal international trafficking of firearms. Smuggling firearms, ammunition, and explosives out ofthe United States into other countries is an area of concern for Customs and ATF agents. During fiscal 1978, ATF and Customs agents in several instances were successful in curbing the illegal flow of firearms and ammunition into other countries by perfecting cases against the U.S. suppliers of these weapons. Four suspects were arrested after ATF undercover agents met with the individuals, who wanted to purchase 600 semiautomatic pistols for illegal shipment to Rhodesia. A criminal lawyer and onetime Rhodesian mercenary from Dayton, Ohio, was a major suspect. The individuals were arrested and later convicted on Gun Control Act violations. Firearms destined for a South American country were seized in Miami after a 3-day surveillance. Agents arrested three suspects. The weapons were concealed in air conditioning units. Agents learned that an individual in another Miami case had purchased 175 firearms in a brief period. After the suspect was observed purchasing more firearms, agents arrested the individual and an associate. One hundred firearms, valued at $36,000 and destined for Colombia, were seized. In Texas, ATF agents worked with U.S. Customs Service and Texas Department of Public Safety officers in a joint undercover operation to curb illegal firearms trafficking into Mexico. As a result, eight defendants were arrested as principal suppliers to Mexico. Federal search warrants at 5 locations in the Rio Grande Valley resulted in seizures of 43 firearms and a quantity of ammunition. Firearms investigations.—ATF agents investigated major firearms cases in fiscal 1978 involving organized crime, illegal interstate transportation, and illegal possession. An individual was arrested in Tampa, Fla., for illegal manufacture of silencers and assassination kits, which were briefcases mounted with silencerequipped handguns, and were designed to fire at close range. The suspect was arrested after undercover agents purchased three silencers from him. Three assassination kits were seized later. ATF agents in Chicago, 111., and Mississippi worked together to uncover a Mississippi-to-Chicago gunrunning operation. A Chicago resident with associates in Mississippi illegally acquired about 300 firearms through a cooperating licensed dealer in Mississippi. The weapons were being sold to individuals ADMINISTRATIVE REPORTS 135 in high-crime areas in Chicago. Agents developed a successful conspiracy case involving the suspects. In Philadelphia, ATF agents worked with local police to investigate members of a group called MOVE„ Agents investigated one member of the group for Gun Control Act violations. Enforcement efforts culminated in the seizure of 10 firearms, 50 destructive devices, and a quantity of chemicals; which could be used to manufacture explosives. Alcohol enforcement program ATF investigations into illicit liquor violations continued to diminish in fiscal 1978 as local law enforcement officials conducted more investigations. ATF has encouraged local enforcement against illegal liquor production while the Bureau restricts its involvement to large-scale illicit liquor violations and concentrates its efforts in explosives and firearms investigations. ATF illicit liquor investigations resulted in seizures of 252 moonshine stills, 146,619 gallons of mash, and 5,686 gallons of illicit whisky. Agents developed 160 criminal cases for prosecution. Legal manufacturers of alcoholic beverages also were the object of ATF enforcement scrutiny. Ten investigations ended in recommendations for prosecution. Operation Concentrated Urban Enforcement ATF began Operation CUE in 1976 at Boston, Chicago, and Washington, D . C , in response to a congressional mandate to expand Federal enforcement against firearms crime. The Bureau concentrated enforcement resources in the three metropolitan areas to: Develop cases against individuals using firearms and explosives in criminal activities; reduce or eliminate illegal sources of street-type firearms and explosives; trace firearms seized in the metropolitan areas to determine type and sources of firearms used in crimes and to chart the flow of these firearms into the cities; and expand its firearms dealer inspection program to ensure compliance with Federal laws and regulations. Operation CUE continued in the three cities during fiscal 1978. ATF agents began 2,928 investigations and recommended 816 defendants forprosecution. A total of 1,308 firearms and 684 pounds of explosives were seized during these ATF investigations. Undercover agents purchased 816 firearms and 228 pounds of explosives. The Bureau traced 12,156 firearms to support CUE investigative efforts in identifying and cutting off illegal sources of firearms used in crime. ATF concentrated on tracing firearms used in major violent crimes such as murder, robbery, assault, and narcotics violations. Tracing results continue to show that handguns under 3 years of age are being used less frequently in Boston, Chicago, and Washington, D . C , than they were before ATF began CUE investigations into legal and illegal sources of firearms. Rates of violent firearm crimes in the CUE cities also have dechned markedly since CUE began. The reduction is measured by statistics of robbery and aggravated assault with a firearm. CUE investigations.—Agents investigated major firearms cases in the three CUE cities. A series of thefts from licensed firearms dealers in northern Virginia prompted a CUE investigation which uncovered an organized theft ring in Delaware, Maryland, and Virginia. The suspects were a principal illegal source 136 1978 REPORT OF THE SECRETARY OF THE TREASURY of firearms in Washington, and were involved in other activities, including burglary and contract killings. The investigations ended in the arrest of 12 individuals and the seizure of 64 stolen firearms. One stolen firearm was the murder weapon in a local contract killing. ATF agents referred information during the investigation to other law enforcement agencies, which was used to pursue violations outside ATF jurisdiction. In Chicago, information obtained in an explosives investigation helped solve two bombings in the city, and provided leads to other bombing and arson investigations in the area. ATF agents investigated a source believed to be supplying components for dynamite bombs in the Chicago area. Through undercover work and surveillance, ATF agents purchased five dynamite bombs from the principal suspect in Chicago, and followed him to Tennessee, where he falsified records for a large quantity of explosives and related materials. When the suspect returned to Chicago, agents arrested him with two associates, and seized explosives and materials sufficient to manufacture more than 200 dynamite bombs. In another CUE case, ATF agents investigated an exclusive yacht club in the Boston area. The club was visited frequently by known organized crime figures, and was identified as a source of illegal firearms. Agents infiltrated the club, purchased machineguns and handguns equipped with silencers, and developed leads about other illegal firearms sources in the Boston-Springfield area. The investigation led to the purchase and seizure of 22 firearms and the arrest of 21 suspects, including 5 prominent members of Boston organized crime. With search warrants, agents recovered stolen paintings, art objects, and china worth $250,000, and seized narcotics and explosives materials. Undercover storefront operations Storefront operations, popularly known as "stings," were developed by the law enforcement community to recover stolen merchandise and apprehend individuals who steal for profit. Those who steal often try to resell the merchandise through fences. The antifencing operations set up by law enforcement agencies generally are funded by the Law Enforcement Assistance Administration (Justice). In addition to the arrest of suspects and recovery ofmerchandise, the undercover operations also provide many leads which result in solving other crimes ranging from larceny to homicide. ATF participated in 27 undercover storefront operations in fiscal 1978 in major metropolitan cities throughout the United States. The Bureau's objective was to assist local law enforcement agencies and to develop leads which would help cut off the illegal sources of firearms into those cities. The 27 storefront operations ended in the recovery of more than $10 million in stolen property, and netted some 1,700 suspects. Regulatory Enforcement The Office of Regulatory Enforcement regulates the alcohol, tobacco, firearms, and explosives industries to ensure fair trade practices, consumer protection, compliance with Federal law, and the collection of Federal excise taxes. During fiscal 1978, the Bureau intensified efforts to investigate trade practice violations in the alcoholic beverage industry and to conduct compliance inspections of firearms and explosives industry members. ATF ADMINISTRATIVE REPORTS 137 also issued regulations involving wine labeling, offered proposals for an alcoholic beverage label warning of the effects of alcohol on fetal development, and began studies on powdered alcohol and on alcohol used as a fuel or fuel additive. Regulatory compliance program To ensure the accurate determination and full collection of more than $5.4 billion in alcohol excise taxes, ATF inspectors conducted 6,934 revenue protection inspections at distilleries, breweries, and wineries, 3,877 alcohol application inspections, and 1,549 consumer protection inspections. In fiscal 1978, Regulatory Enforcement issued 1,857 original alcohol permits, amended 1,373, and terminated 8. More than 41,600 tax refund claims for permittees were processed. The Bureau audited semimonthly tax returns of approximately 261 distilleries, 106 breweries, and 772 wineries. Also, by utilizing a more flexible approach to supervise distilled spirits plants operations, the Bureau was able to reduce the number of inspectors providing joint custody at these plants. The Bureau regulates and controls 335 tobacco permittees. To ensure the accurate determination and collection of more than $2.2 billion in Federal excise taxes. Regulatory Enforcement processed 837 claims for tax refunds, conducted 882 revenue protection audits, and inspected 122 tobacco applications. Infiscai 1978, ATF issued 144,161 firearmslicenses, of which 139,338 were renewals and 29,963 were new applications. Regulatory Enforcement inspected 8,361 new firearms license applicants to explain Federal laws and regulations. Approximately 1,531 licenses and applications were denied, withdrawn, or revoked. Inspectors conducted 22,130 compliance audit inspections at the premises of firearms licensees to ensure accurate recordkeeping and regulation compliance. ATF received and processed 8,287 explosives permit and license applications and issued 7,065 permits and licenses. Inspectors conducted 4,639 inspections to examine explosives licensees for compliance with applicable laws and regulations. Under a memorandum of understanding with ATF, the Mine Safety and Health Administration (Labor) assisted the Bureau by inspecting 13,000 explosives applicants, licensees, and permittees in fiscal 1978. Special emphasis was placed upon the safe and secure storage of explosives and the prompt reporting of losses and thefts. Alcohol regulation enforcement As part of its regulation of the alcoholic beverage industry, ATF develops programs to ensure consumer protection and compliance with Federal laws. Voluntary disclosure.—Since becoming a bureau in 1972, ATF has placed increased emphasis on the enforcement of unfair competition and unlawful trade practices provisions ofthe Federal Alcohol Administration Act (FAA). Industry members are encouraged to come forward under the Bureau's disclosure program, announced September 14, 1976. Industry members entering the program are advised that any information received may be used as evidence, that remedial action commensurate with the seriousness of the violation would be initiated against them, and that information received would be made available to other Federal and State agencies. At the end of fiscal 1978, two industry members had paid offers in 138 1978 REPORT OF THE SECRETARY OF THE TREASURY compromise and several other members were under investigation as a result of their disclosures. During the investigations, ATF cooperated with the Securities and Exchange Commission, which is interested in any disclosure made by a publicly held corporation, and with the IRS, which is interested in illegal expenditures claimed as business expenses. Consumer protection.—In addition to the voluntary disclosure program, ATF conducts investigations into complaints of unfair trade practices not voluntarily disclosed. In fiscal 1978, ATF accepted 30 offers in compromise, which totaled $898,250. There were also 4 suspensions and 28 revocations of basic permits. Many of these actions were the result of a task force approach in which a team of inspectors enters a market area to resolve complaints of unfair trade practices. To ensure compliance with Federal law and to prevent deceptive labeling and advertising, 74,928 applications for label approval were reviewed and 9,270 were disapproved. Of an additional 1,723 applications for special natural wines and rectified products, 452 were disapproved, returned, or withdrawn. ATF and the Food and Drug Administration continued a joint study on partial ingredient labeling of alcoholic beverages. In fiscal 1978, the Bureau began work with three other Government agencies on a study to determine the effects of alcoholic beverage advertising on the perceptions and attitudes of the consumer. The other agencies are the National Institute on Alcohol Abuse and Alcoholism, the Department of Transportation, and the Federal Trade Commission. Distilled spirits plant program.—ATF continued pilot operations at distilled spirits plants to measure the effectiveness of protecting Federal revenue while reducing or modifying Government supervision. Twenty-three distilled spirits plants, or 9 percent ofthe total, were involved in the pilot tests in fiscal 1978. Pilot operations offer greater flexibility for proprietors and an opportunity for ATF inspectors to use postaudits as alternatives to onsite supervision. Wine labeling.—After more than 2 years of proposals and alternative proposals for new wine-labeling rules, ATF issued new regulations on August 23, 1978 to revise the wine-labeling terms for appellations of origin, estate bottled, grape varietal designations, and viticultural areas. The new wine regulations will go into effect January 1, 1983. Metrication.—The Bureau began a program in fiscal 1975 and 1976 to require the wine and distilled spirits industries to convert containers to a metric system of standards of fill. During fiscal 1978, the Bureau extended the standards of fill for wine to include any container larger than 3 liters if the container was filled to a whole liter size. Previously, 3 liters had been the largest standard of fill allowed for wine under the regulations. By January 1, 1979, wine bottles will be in 100 ml., 187 ml., 375 ml., 750 ml., 1 liter, 1.5 liters, and 3 liters sizes. Metric standards of fill for distilled spirits is mandatory by January 1, 1980. The six approved metric sizes are 50 ml., 200 ml., 500 ml., 750 ml., 1 liter, and 1.75 liters. Advantages of metrication include aiding consumers by reducing the number of bottle sizes for comparative shopping and by promoting international trade through adoption of common standards. Metrication permits packaging and handling efficiencies, which result in a cost savings to industry. Cautions on fetal alcohol syndrome.—In fiscal 1978, the Food and Drug ADMINISTRATIVE REPORTS 139 Administration advised the Bureau that research showed possible danger of birth defects to fetuses when pregnant women consumed quantities of alcohol. There was evidence that it was possible for some children born of women who consumed alcohol to have severe physical and/or mental deformities. In response, the Bureau issued a notice of proposed rulemaking on January 16, 1978. The regulation proposed that alcoholic beverage containers bear labels cautioning women about the risks of fetal alcohol syndrome when alcohol is ingested during pregnancy. With the recommendation of the Office of Science and Technology Policy, Office of the President, ATF selected three consultants to assess the scientific evidence and public comments. The three consultants were chosen from the fields of medical genetics, biochemistry, and social policy. The consultants submitted their recommendations to ATF on September 25, 1978. Gasohol.—Interest in the production and use of alcohol as a fuel and fuel additive increased in fiscal 1978. "Gasohol" is a term most often used to describe alcohol fuel, and was copyrighted as "gasohol" by the Nebraska Agricultural Products Utilization Committee to describe a mixture of 90 percent unleaded gasoline and 10 percent alcohol. ATF took several approaches to the interest in alcohol fuels. The Bureau approved the operation of seven experimental distilled spirits plants to test materials and processes for producing alcohol as a fuel or fuel additive. ATF responded to citizen inquiries concerning alcohol fuel and the qualification requirements for producing it. Bureau officials attended interest group meetings, testified at hearings concerning alternative energy sources, and commented to Congress concerning proposed legislation involving alcohol fuels. ATF organized a task force to study statutes and regulations on the production and distribution of alcohol to simplify requirements for qualification and operation of alcohol fuel plants. The Bureau compiled a brochure to explain existing regulations on the establishment and operation of distilled spirits plants and the requirements for converting ethyl alcohol to a fuel or fuel additive. Powdered alcohol.—In fiscal 1978, the alcoholic beverage industry developed a powdered alcohol product which, when added to water, becomes beverage cocktails. The alcohol in the dry mixes is encapsulated within a material soluble in water. Changes in the alcohoHc beverage industry. Federal law, and regulations could occur if industry members apply to market powdered alcohol. Liquor bottle strip stamps.—The Bureau examined the feasibility of procuring strip stamps from commercial sources. With departmental assistance, and in conjunction with the Government Printing Office and the Bureau of Engraving and Printing, ATF developed stamp security specifications which could be included in a commercial contract. After soliciting stamp production and price estimates from the printing industry, ATF projected $1.2 million yearly savings from a commercial contract. Industry education.—ATF conducted two seminars for alcohoHc beverage control State administrators to explain Bureau policy on trade practice issues and to hear the problems of State administrators. The seminars were sponsored jointly by ATF and the National Alcoholic Beverage Control Association, Inc. Firearms regulation program As part of its policy to work with firearms Hcensees to ensure compliance with Federal law, ATF furnished licensees with "Your 1978 Guide to Firearms Regulations," which lists Federal firearms laws and regulations and excerpts 140 1978 REPORT OF THE SECRETARY OF THE TREASURY from State laws and local ordinances related to firearms and ammunition. ATF also prepared and distributed to licensees a pamphlet, "Federal Firearms Licensee Information," which is a general guide to Federal requirements. Proposed firearms regulations.—The Bureau issued a notice of proposed rulemaking on March 2 1 , 1978, to update several firearms regulations and to propose three major changes. The changes included a requirement that each firearm receive a unique serial number when manufactured or imported into the United States, that all thefts and losses of firearms by licensees be reported to ATF within 24 hours, and that licensees report quarterly the manufacture and disposition of all firearms. More than 340,000 comments were received from the public during a comment period extended to June 30, 1978. ATF submitted a summary report of the comments for departmental consideration at the end of fiscal 1978. Explosives regulation program In addition to permit, license, and premises inspection of explosives dealers, the Bureau developed other areas to improve explosives regulation. In fiscal 1978, the Department of Defense asked ATF to review a proposed military directive which would require individuals or groups obtaining military contracts to store explosives according to ATF regulations. ATF and Defense will formalize a memorandum of understanding on the proposed military directive in fiscal 1979. Federal explosives laws exempt from Federal requirements any individual or group manufacturing explosives for a military department. Pending approval in the Department are recodifications and amendments of the explosives materials regulations to allow ATF adoption of many standards of safety and security now generally recognized by the explosives industry and other regulatory agencies. The major amendments include revision of explosives storage and recordkeeping requirements, addition of new terms to conform to current industry terminology, and simplification of existing regulatory language to make regulations easier to understand. Interagency cooperation ATF continually cooperates with other Federal and State agencies in matters of mutual interest. The Bureau works with the Securities and Exchange Commission and the IRS in efforts resulting from voluntary disclosure of FAA Act violations by alcoholic beverage industry members. ATF cooperates with the Mine Safety and Health Administration on explosives compliance investigations at mines. Cooperative initiatives by the Bureau with State and local agencies have resulted in increased legal compliance across the entire range of regulated industries. ATF, the IRS, and the Justice Department refer violations or potential violations of law to each other and maintain access to investigative files. Technical and Scientific Services The Office of Technical and Scientific Services provides technical, scientific, and data processing services to the Bureau in its enforcement and regulation of Federal alcohol, tobacco, and firearms laws. Services are provided from Headquarters offices and five laboratories in Atlanta, Cincinnati, Philadelphia, San Francisco, and Rockville, Md. The National Laboratory Center in Rockville was opened in June 1978 to replace the inadequate ATF laboratory in downtown Washington. ADMINISTRATIVE REPORTS 141 Laboratories Bureau laboratories provide technical and scientific support to both Regulatory and Criminal Enforcement operations. The ATF National Laboratory Center and four field laboratories examine evidence without charge for State and local law enforcement agencies. This accounts for about 15 percent of the laboratory's workload. Both ATF special agents and local officers have Bureau laboratory support available for the analysis of physical evidence, using forensic sciences and identification technology. Because of ATF advances in specialized fields such as explosives tagging, ink tagging, voiceprints, and tape filtering techniques, several international scientists visited ATF facilities in fiscal 1978 to train in these fields. ATF implemented a voiceprint identification program in 1972. In fiscal 1978, 76 cases involving 1,904 exhibits were examined. The ATF examiner is the only court-qualified voiceprint expert in a Federal agency who holds international certification, and is 1 of 19 in the United States. In fiscal 1978, a National Science Foundation study concluded that voiceprint identification is scientifically valid. The study should help voiceprint identification gain acceptability in court. Laboratory scientists examined 7,769 exhibits in 1,205 arson and explosives cases in fiscal 1978. The recovery of a dynamite bomb under a car in California led to an ATF laboratory ink examination which linked the device to a member ofthe Hell's Angels motorcycle group in San Diego. A search ofthe suspect's house uncovered a pen used to punch holes in the dynamite device. Though nitroglycerine was found on the tip ofthe pen, it was the pen's ink formulation which was the significant link between the suspect, the device and some dynamite wrappers involved in an earlier attempted bombing. During the 1978 coal-mine strike in Kentucky and West Virginia, many samples from bombings involving dynamite and homemade devices were sent to the Atlanta Field Laboratory for analysis. Cooperation between agents and laboratory scientists helped lead to convictions. Firearms and toolmark examinations are an important part of many investigations. Laboratory scientists examined 1,163 exhibits in 465 cases during fiscal 1978. Bullet fragments dispersed in the brain of a victim in Montana were analyzed by forensic scientists to determine caliber. The scientists found the fragments to be from a high-velocity small-caliber bullet rather than from a large-caliber bullet, as originally suspected. The new information identified a different rifle, and pointed to a second suspect, who, as a result, pleaded guilty. Forensic scientists examined 8,122 exhibits in 1,211 cases requiring fingerprint examination. The IRS requested ATF examination of some questioned documents in a $1.5 million stock manipulation fraud case. An ATF fingerprint expert showed that some of the questioned documents were linked to five of nine defendants involved in the conspiracy. Laboratory scientists also examined 7,734 exhibits in 980 gunshot residue examinations, 802 exhibits in 59 serology analyses, 196 exhibits in 146 illicit distilled spirits cases, and 1,637 exhibits in 156 cases involving comparative analysis of hair, paint, metal, and chemical samples in law enforcement cases. Scientists examined 19,028 exhibits in 1,413 cases involving questioned documents and 1,221 exhibits in 120 cases requiring ink and paper analysis. Photographic service was provided for 169,992 exhibits in 5,519 separate requests. In fiscal 1978, the National Laboratory expanded its use of the computer 142 1978 REPORT OF THE SECRETARY OF THE TREASURY data base information search and retrieval system, which is part of the laboratory library. The data base service was used extensively by all Bureau offices. The headquarters Chemical Laboratory provides advisory and analytical services to Regulatory Enforcement operations for alcohol and tobacco products such as formula and label compliance, consumer protection, and analyses in connection with tax classification. It is concerned also with the accuracy of gauging instruments and the development of security devices to protect revenue. The field laboratories also provide many of these services. In fiscal 1978, as part of its consumer protection responsibility, the laboratory revealed that certain flavored vodkas contained levels of the artificial flavoring coumarin in excess of those allowed by law. Upon ATF recommendation, the products were removed from sale. The chemical and field laboratories examined 9,513 alcoholic beverages samples, 1,948 nonbeverage alcohol samples, and 4,845 specially denatured alcohol product samples. The laboratories also examined 962 exhibits in 82 investigative cases in which alcoholic beverage containers were refilled with beverages other than that indicated on the label. Training.—The Bureau laboratories train foreign scientists, officials from other agencies, and forensic intern students from several universities. As part of an expanded in-house training program, the ATF National Laboratory developed courses in fiscal 1978 for Bureau scientists from field laboratories. The programs were designed to develop analytical procedures, train new staff, allow exchange of ideas, and open new areas of expertise to Bureau specialists. Programs include specialized schools for gunshot residue, arson, ink and paper analysis, regulatory chemistry, forensic microscopy, and firearms examination. The Forensic Science Laboratory conducts proficiency tests to ensure accurate and reliable results on physical evidence examination by all laboratories. In fiscal 1978, as part of this effort, the Headquarters Forensic Laboratory began preparation of a manual of recommended methods of analysis. Similar testing is conducted by the Chemical Branch to ensure reliability. These interlaboratory studies involve both industry and ATF laboratories. From such testing and study, methodology is developed which is accepted as official and suitable for both routine use and in resolving questions arising among laboratories. Automated data processing The services provided by Automated Data Processing Services (ADP) Division have increased nearly 50 percent in fiscal 1978. The ADP Division issues 90 computer reports on a regular basis and is responsible for applying data processing techniques to all appropriate Bureau needs, streamlining existing systems, and providing efficient computer service. A file of Federal firearms licensees and explosives permittees were added to the computer systems in fiscal 1978 to provide monthly printouts on microfiche. The two programs have netted significant savings in time, computer paper, and storage space. In fiscal 1978, the ADP staff began studying microfiche formats for two other Bureau programs, the capital assets property system and criminal automated reporting system. Other systems—the automated inspection management system, the laboratory workload system, and the criminal automated reporting system—were combined with the ATF computerized financial management/planning system. ADMINISTRATIVE REPORTS 143 Firearms technology ATF firearms technicians examine, identify, classify, and test firearms for Bureau agents as well as for other Federal, State, and local law enforcement authorities. Technicians also examine and evaluate foreign-made handguns to determine if they are eligible for importation into the United States. In fiscal 1978, the Bureau opened a new vault to house its firearms reference library of more than 4,000 weapons. Technicians also provide training in the areas of firearms safety, handling, and identification for Treasury agents. Additionally, the technicians prepare replies to the general public, members ofthe firearms industry, and the Congress regarding technical matters dealing with the Gun Control Act of 1978. Firearms tracing.—ATF's National Firearms Tracing Center traces domestic and imported firearms to the point of first retail sale as an investigative aid for Federal, State, and local law enforcement agencies. Firearm trace information is also used in compiHng analytical data to study the flow of firearms into major cities. Since the center's inception in October 1972, more than 240,000 firearms have been traced either to an individual or to the last retail dealer. Approximately 5,500 trace requests are received each month, with more than 64,000 traces requested during fiscal 1978. The National Firearms Tracing Center can trace domestic firearms as well as firearms manufactured in 14 countries. Imports Under the International Security Assistance and Arms Export Control Act of 1976 (formerly the Mutual Security Act of 1954), import permits are issued for aU firearms, ammunition, and implements ofwar. During fiscal 1978, the Bureau approved and issued 13,299 import permits. Of these, 11,236 pertained to firearms, 600 covered firearms and ammunition, 651 were for ammunition only, and 872 covered other implements of war. Disapproved applications totaled 267. Importers of articles enumerated on the U.S. Munitions Import List are required to register with ATF. The registry is approved and maintained by the Bureau. Currently, there are 286 registered importers in the United States. Pursuant to agreement with the United States, certain foreign countries are entitled to request certification of legality of importation of articles on the U.S. Munitions Import List (27 CFR 47.51). During fiscal 1978, ATF issued 769 international import certificates. National Firearms Act weapons National Firearms Act (NFA) weapons, which include short-barreled shotguns and rifles, machineguns, silencers, and destructive devices, are controlled by ATF. In fiscal 1978, ATF processed 14,066 applications involving 202,695 firearms and destructive devices. This represents an increase of 2,720 firearms registered in the National Firearms Registration and Transfer Record during this period. During the year, 3,275 searches of the National Firearms Registration and Transfer Record were conducted in response to ongoing criminal investigations. This work resulted in the preparation of 2,146 certifications of registration status for use as evidence in Federal court proceedings. There are 808 firearms licensees registered to deal in NFA-type weapons. 144 1978 REPORT OF THE SECRETARY OF THE TREASURY Explosives technology Technicians in the Explosives Technology Branch offer a variety of services to ATF personnel and other Federal, State, and local law enforcement officers. ATF is responsible for the evaluation of new explosives developed for sale and distribution within the United States, and provides technical advice on Federal explosives storage regulations. The Bureau provides explosives training for State and local law enforcement officers. During fiscal 1978, explosives specialists provided onsite investigative technical assistance at 75 bombings and accidental explosions. Destructive device and explosive determinations were made for 300 incidents. Ninety-nine criminal cases were successfully prosecuted in which technical assistance was provided during the year. To support investigations involving destructive devices and explosives, technicians developed methodology helpful to field agents for classifying explosives and incendiary devices. Explosives specialists also expanded efforts to provide technical assistance in arson-related cases. The National Explosives Tracing Center increased service to law enforcement agencies with more than 1,500 traces in fiscal 1978. Traces have helped provide investigative leads in bombing and explosives theft cases. To assist in the Bureau's development of an explosives tagging program, the Explosives Tracing Center began providing distribution information concerning tagged explosives. The Bureau trained more than 200 ATF special agents in the handling, transportation, and destruction of explosives to increase the Bureau's ability to safely dispose of seized or abandoned explosives. Research and Development The explosives tagging program is a major ATF project to help investigators identify explosives at a bomb scene and detect the presence of bombs before detonation. New developments were achieved during fiscal 1978, the program's second year of funding. Tagging for identification One part of the explosives tagging program is the addition of microscopic, coded chemical particles to explosives during manufacture. To test this technique, called tagging for identification, ATF began a national pilot test in which 7 million pounds of dynamites, water gels, and slurries were manufactured with identification taggants and distributed to commercial channels. This has been completely successful in all quality and safety tests and if the facility for large-scale manufacturing was built, commercial identification tagging could begin today. Another crucial class of explosives to be tagged for identification are the black and smokeless powders, used more than any other class of explosives in bombings. Powders are more easily available than dynamites, water gels, and slurries, though they are generally less powerful and therefore usually less often the cause of deaths, injuries, and property damage. However, because of special considerations in adding taggants to smokeless and black powders, ATF began conducting tests to ensure compatibility ofthe taggants with powders and adherence to safety requirements. The taggants also must not degrade the powders' ballistic qualities, create a wearing effect on a firearm, or damage a firearm's mechanism. It is clear that the addition of identification taggants to commercial explosive ADMINISTRATIVE REPORTS 145 materials or their boosters will better enable law enforcement authorities to trace the explosive material from a bomb scene to its last recorded owner and, hopefully, to its ultimate user. The chances of solving more bombing crimes will be improved when identification tagging is introduced. In addition, many valuable investigative hours now necessarily spent attempting to identify the last legal owner of the explosives involved can be saved. To demonstrate the bomb-scene effectiveness of the explosives tagging method, ATF held a test at Fort Mac Arthur near San Pedro, Calif, in November 1977. Congressman Glenn M. Anderson of California, government officials, police department representatives, and the news media attended the demonstrations. The Fort Mac Arthur test was the third major test of explosives tagging for government officials and news media since the program began. Tagging for detection A second part of the explosives tagging program is the detection of bombs before detonation. Research scientists developed a method of injecting vapors into the plugs of electric blasting caps. The electric blasting cap was chosen for first priority research because it is used in most explosives crimes. ATF also discovered a way to place detection tags in microcapsules which appear to the eye as minute grains of sand. These microcapsules can be added to the outer surfaces of the electric blasting caps. At the end of the fiscal year, ATF was experimenting with the addition of microcapsules to bulk explosives. Substantial progress in developing a working capability to tag explosives so that they may be detected before exploding has recently been made. And it is this part of the tagging program from which the greatest direct benefits to the public safety can be expected. With detection taggants added to explosives materials and with detection devices placed at high target value locations, the Government can go beyond solving bombing crimes only after the destruction has happened and begin, through predetonation discovery, to prevent bombings from occurring. Inspection The Office of Inspection is responsible for protecting Bureau integrity, reviewing operational activities, auditing the Bureau's fiscal position, and implementing the ATF personnel and document security program. The staff also conducts all Bureau investigations into equal employment opportunity complaints, tort claims, and accidents. Office of Inspection statistics were included in the ATF computerized automated information management system during fiscal 1978. The result is a more accurate assessment of open and closed investigations. Integrity investigations The Operations Review Division began 119 new investigations into allegations involving employee conduct in fiscal 1978. Completed investigations involving 178 employees, some of which were started in fiscal 1977, ended in 5 resignations, 31 adverse actions, 140 clearances, and 2 referrals to other law enforcement agencies. Fifty-six investigations still were being conducted at the end of fiscal 1978. Operations review The operations of selected offices bf Criminal Enforcement, Regulatory Enforcement, and Technical and Scientific Services were reviewed. Manage 146 1978 REPORT OF THE SECRETARY OF THE TREASURY ment uses the reviews to improve field operations when necessary. Inspectors also supervised 45 accident investigations involving ATF personnel and property. Internal audits The Internal Audit Division assists management by furnishing information, analyses, appraisals, and practical recommendations concerning Bureau objectives. The staff began 34 audits, continued work on 25 audits started before fiscal 1978, and issued 36 reports. The audits appraised the financial and program management activities ofthe Offices of Administration, Criminal Enforcement, Regulatory Enforcement, and Technical and Scientific Services. Security The Security Division coordinated 810 new employee background and security update investigations. One thousand seventy-eight investigations, some ofwhich were started in fiscal 1977, were completed. One hundred fortythree still were being conducted at the close of fiscal 1978. Equal employment opportunity The Office of Inspection investigated nine equal employment opportunity complaints in fiscal 1978. Administration The Administration Office provides support services for Bureau personnel through its headquarters staff and seven regional offices. Support services include fiscal and personnel management. Bureau communications, training, facility improvement and maintenance, printing and distribution, forms management, and management analysis. Fiscal management The Bureau's fiscal 1978 budget totaled approximately $128.6 miUion. About 4,000 employees were employed during the year. Firearms and explosives programs accounted for almost two-thirds of ATF expenditures, and reflected the Bureau's priorities in investigating violent crime. Alcohol and tobacco enforcement comprised the remainder of the budget. To execute programs in alcohol, tobacco, firearms, and explosives enforcement and regulation, ATF spent 71.5 percent of its budget on salaries and benefits, 9.1 percent on communications and space, 4.2 percent on travel, 3.5 percent on printing, and 11.7 percent in miscellaneous areas. In fiscal 1978, the Administration Office implemented an automated allocation/obligation system. Expenditure data for each ofthe Bureau's major offices are stored in a computer, and may be compared with projected expenditures to ensure fiscal control. Automated monthly reports allow headquarters and field managers to monitor their budgets more easily. Personnel management To help improve the classification system for special agent positions, the Administration Office began a criminal enforcement investigation analysis system in July 1978. When agents complete an investigation, their supervisors assign a GS grade level to the work, based on its complexity. The system is a tool in determining the grades for special agent positions, and allows supervisors to participate in the position classification process. ADMINISTRATIVE REPORTS 147 The Office of Administration requested and received permission from the Civil Service Commission to appoint 58 criminal investigator candidates without examination on a nontenured basis who have special skills and abilities necessary for sensitive undercover assignments. The Employee Relations Branch continued refining the Bureau's agreement with the National Treasury Employees Union. The Bureau has avoided problems in executing the agreement by keeping supervisors of bargaining-unit employees regularly informed of interpretive decisions. Communications The Communications Center staff in Washington, D . C , spent 65 percent of its daily fiscal 1978 activity in support of law enforcement efforts. Communication helped in the apprehension of 534 suspects and the recovery of 197 stolen firearms. The remaining 35 percent ofthe center's work was made up of other communications and computer file maintenance. Fourteen cities were added to the Bureau's Treasury enforcement communications system (TECS) network. The additions expanded TECS coverage of ATF field offices by 27 percent, and required a redesign of transmission facilities. The redesign incorporated faster line speeds, onsite channel equipment, and a 4,800-word-per-minute printer to receive online reports from the computer. Teletype terminals at Criminal Enforcement district offices also were upgraded. The Administration Office estimated the new terminals would meet Bureau needs for 5 to 7 years. Training More than three-fourths of 3,092 Bureau employees who participated in 1 or more training courses in fiscal 1978 were from Regulatory Enforcement and Criminal Enforcement. Employees from other areas of the Bureau attended specialized training in management, administrative, and technical subjects. Criminal enforcement.—The ATF Law Enforcement Training Branch in Glynco, Ga., expanded its special agent basic training course 1 week to include instruction in hostage negotiation, stress management, radio communications, report writing, and practical courtroom procedures. One hundred sixteen new agents participated in the basic 7-week course during fiscal 1978. The Bureau broadened the scope of its specialized enforcement training, offered at Glynco, to include certified explosives-handling instruction, advanced explosives investigation, and arson investigation. Staff from the ATF laboratories taught classes in arson evidence analysis, gunshot residue, and firearms and toolmark examination. About 1,271 senior agents participated in specialized enforcement training. The Bureau continued to provide seminars in a number of law enforcement subjects for State and local police officers. Under a grant from the Law Enforcement Assistance Administration, 194 officers attended ATF-sponsored organized crime investigation seminars at various sites nationwide. Regulatory enforcement.—The basic training course was revised in fiscal 1978 and was attended by 30 new inspectors. A total of 475 senior inspectors attended a variety of courses including audit seminars, refresher training, and specialized instruction in the Federal Alcohol Administration Act and National Firearms Act. Other areas.—In fiscal 1978, 468 Bureau employees received specialized training offered by other government agencies, universities, and private industry. This represents a 9-percent increase over fiscal 1977. Supervisory/management training was provided for 95 personnel in super- 148 1978 REPORT OF THE SECRETARY OF THE TREASURY visory and management positions. As part of its instructor training efforts, the Training Division began a course design class to teach selected employees a systems approach to training course development. In the systems approach, selection of training techniques is determined by an analysis of the principal tasks of the job which require training. Printing and distribution The Administration Office added new photocopy equipment to the headquarters reproduction facility in March 1978. By meeting more in-house printing needs, the new equipment wiU save about $60,000 annually in reduction of outside printing and reproduction costs. The Bureau also issued an ATF series of alcoholic beverage revenue strip stamps in March 1978. These replace IRS issues the Bureau had continued to use until the supply was exhausted. Strip stamps are affixed to bottles of distilled spirits to show proof of Federal taxpayment. The ATF Distribution Center, located in Arlington, Va., stocks and distributes Bureau forms and publications. The center experienced a 6-percent increase in workload to almost 50,000 orders during fiscal 1978. The center shipped 58,495 packages and 101,257 envelopes at a cost of $142,275. The distribution workload has stabilized since fiscal 1976. Facility improvement As part of its responsibility to manage ATF office space, the Administration Office worked with the ATF National Laboratory in Washington, D . C , to open new laboratory facilities in Rockville, Md. Planning by the laboratory staff and the Administrative Programs Division began in fiscal 1976. The new laboratory allows ATF scientists to meet increasing demands and to offer a broader range of services to ATF field employees and to other Federal, State, and local officials. In fiscal 1978, ATF also moved its firearms reference collection from the IRS building in Washington, D . C , to Bureau headquarters offices. The move required a redesign of storage space to provide an expanded, climatically controlled weapons vault. The facility includes a work area for testing firearms involved in criminal investigations. Chief CounsePs Office Demands for services from the Chief Counsel's Office in Washington and its seven regional offices increased once again in fiscal 1978. More than 1,000 cases were referred for legal resolution each month. Legal assistance also was provided for Bureau testimony and legislative programs. Attorneys helped prepare testimony for the Treasury Assistant Secretary (Enforcement and Operations) and the ATF Director on proposed firearms regulations and the problems of cigarette smuggling. The testimony was presented to the House Judiciary Subcommittee on Crime. For the Senate Human Resources Subcommittee on Alcoholism and Drug Abuse, the staff authored testimony on the issue of alcoholic beverage labels warning pregnant women of the dangers of alcohol. Attorneys prepared the Bureau's legislative program, submitted draft legislation, and authored legislative reports for congressional committees on bills affecting the Bureau. Attorneys also appeared before the Joint Committee on Internal Revenue Taxation concerning distilled spirits, wine, and malt beverage tax proposals. ADMINISTRATIVE REPORTS 149 The Chief Counsel's Office participated in several studies involving the President's reorganization projects on law enforcement and attorney representation. Attorneys helped clarify aspects ofthe Federal Alcohol Administration Act by appearing before industry conferences. Under the Federal Tort Claims Act, the Chief Counsel's Office processed numerous claims alleging negligence of ATF employees. Claims exceeding $100,500 were reviewed and granted in fiscal 1978. The staff also made recommendations to the Department of Justice in the prosecution and defense of litigation involving the Bureau. Chief Counsel attorneys participated regularly on matters arising from employee-employer relationships involving equal employment opportunity and unfair labor practice complaints. As an outgrowth of positive working relationships between U.S. attorney's offices and the seven ATF regional counsel offices. Bureau attorneys received requests to prepare briefs, propose pleadings, propose court orders and other documents in litigation. At times, attorneys participated in the trial or oral arguments of civil and criminal cases. Regional attorneys represented the Bureau before an administrative law judge in hearings concerning violations of the FAA Act and firearms and explosives laws. Public Affairs Information services The Public Information Office services and materials included more than 100 news releases, factsheets, brochures, articles, speeches, news conferences, and media interviews. News releases explained ATF missions and programs relating to firearms, explosives, alcohol, and tobacco. Examples include a news article describing ATF's pilot program for arson control, releases about the deadly toll in lives and property taken by explosives, coverage of illegal firearms seizures, and actions to curb alcohol trade violations. Public information officers supported Bureau officials at 12 news events which took place away from Washington. Information officers answered more than 2,000 information requests received from throughout the United States and other nations. The Public Information Office published 12 issues ofthe ATF newsletter, "All the Facts," to inform employees of Bureau events and programs. A summary of ATF-related news articles, which appeared in newspapers and magazines, was distributed three times weekly. Congressional liaison The Congressional Liaison Office coordinated replies to 700 congressional inquiries about proposed firearms regulations. Other issues generating congressional interest were wine labeling, ingredient labeling and possible warning labels for alcohoHc beverages, explosives tagging, cigarette smuggling, and alcohol advertising. Liaison officers supported the Director and other ATF managers on 16 occasions when they testified before committees of Congress. The office responded to a total of 1,500 congressional letters in fiscal 1978, and an average 160 telephone inquiries each month. 150 1978 REPORT OF THE SECRETARY OF THE TREASURY Convention liaison Public Affairs officers participated at 12 conventions and meetings which served as contact points between ATF, law enforcement and industry representatives. Office of Disclosure The Disclosure Office responded to a 32-percent increase in Freedom of Information requests and a 15-percent increase in Privacy Act requests during fiscal 1978. Freedom of Information Act requests numbered 566. Four hundred ten requests were granted in full, 115 were granted in part, and 41 were denied. Of 16 administrative appeals, 2 were granted in full, 5 were granted in part, and 6 were denied. Two appeals still were being processed at the close ofthe fiscal year. Fees collected for Freedom of Information Act requests were $9,409. Privacy Act requests numbered 466. Forty were granted in fuU, 392 were granted in part, and 34 denied. Forty-two requests were being processed at the fiscal year's close. Of four administrative appeals, three were granted in full and one was denied. The Disclosure Office answered 95 percent ofthe requests within deadlines set by Federal regulation. Disclosure Office deadlines are 10 working days for Freedom of Information Act requests and 30 working days for Privacy Act requests. The staff asked for voluntary extensions in 5 percent of the requests, which often required review of thousands of pages. Six civil actions were filed against ATF under the Freedom of Information Act and the Privacy Act. To help Bureau employees better understand ATF disclosure policy, the Disclosure Office issued a comprehensive order describing the Freedom of Information Act and the Privacy Act. The office also changed accounting procedures to reduce use ofthe ATF Disclosure Accounting Form and to save the Bureau an estimated $220,000 in fiscal 1979. The Disclosure Office staff teaches ATF disclosure practices to Bureau agents and inspectors. Refresher training and course instruction for new agents and inspectors were expanded. OFFICE OF THE COMPTROLLER OF THE CURRENCY i The Office ofthe Comptroller of the Currency was established in 1863 by the National Currency Act, redesignated in 1864 as the National Bank Act (12 U.S.C. 38). The Comptroller, as Administrator of National Banks, is charged with regulating and supervising the national banking system, within the scope of existing statutes and in such a manner as to best serve the public interest. Operations of the national banking system reflected the continued growth • Additional information is contained in the separate Annual Report of the Comptroller of the Currency. ADMINISTRATIVE REPORTS 151 experienced by the U.S. economy. Total assets ofthe country's 4,655 national banks increased by 11.7 percent between yearend 1976 and yearend 1977. This increase is quite significant since it represents a change from the previous trend of asset growth evidenced by the previous year's increase of 5.4 percent. The Office was reorganized to consolidate management functions, strengthen the administration of regional activities, and accommodate changes in the banking industry. Of particular significance was the formal establishment ofthe Customer and Community Programs Department, which includes the Divisions of Community Development, Consumer Programs, and Civil Rights. In particular, the Customer and Community Programs Department coordinates implementation of the Community Reinvestment Act, recommends legislative proposals, helps train bank examiners in civil rights and consumer law compliance, and acts as a liaison to bring the banks together with the myriad governmental, institutional, public interest, and community groups concerned with redevelopment. International banking issues which confronted the Office ofthe Comptroller of the Currency during the year included the rapid growth in foreign assets/deposits/earnings, substantial lending to foreign public sector borrowers and the applicability of the statutory legal lending limit to such credits, and expanded international money market and foreign exchange activity. The three Federal bank regulatory agencies have developed and implemented a joint semiannual Consolidated Country Exposure Report that shows, by country, the foreign claims held by U.S. banks and bank holding companies. Information from that report permits the systematic monitoring of overseas lending by U.S. banks. The monthly Foreign Currency Report continued to be used by the International Operations Division to monitor the foreign exchange trading activities of national banks. Consumer affairs The Consumer Affairs Division is responsible for enforcing all consumer protection laws applicable to national banks. The Office conducts specialized examinations of each national bank on a continuing basis to enforce compliance with consumer laws and regulations. In addition to those examinations, consumers' rights are protected by requiring national banks to comply with consumer laws and by informing consumers of their rights and available remedies. Six more 2-week schools were conducted across the country this year to train bank examiners in consumer laws. The schools stress examination techniques and rely heavily on case studies to give the examiners a good functional background in consumer laws and regulations. Particular emphasis is placed on evaluating policies and practices to detect unlawful discrimination. Representatives from bank trade associations, consumer groups, and Federal and State regulatory agencies also attended the schools. Bank examinations and related activities The Office of the Comptroller of the Currency is required by statute to examine all national banks twice in each calendar year. However, the ComptroUer may, at his discretion, waive one such examination in each 2-year period, or may cause such examinations to be made more frequently, if 152 1978 REPORT OF THE SECRETARY OF THE TREASURY considered necessary. In addition, the Comptroller examines all banks located in the District of Columbia. For the year ended December 31, 1977, the Office examined 2,886 banks, 838 trust departments, and 96 affiliates and subsidiaries, and conducted 61 special examinations. The Office received 47 applications to establish new banks, and processed 721 applications for de novo branches and 2 applications to convert State banks to national banking associations. National bank examinations are conducted to determine the condition and performance of banks, the quality of their operations, and the capacity of management, and to enforce compliance with Federal laws. The Office has fully implemented new examination policies and procedures placing greater emphasis on analysis and interpretation of financial data and less on detailed verification. Also, considerable reliance is placed on systems for internal control and work performed by internal and external auditors. On December 31, 1977, the Office employed 2,082 examiners, 1,939 commercial and 143 trust examiners, or more than 70 percent of the total Office employment. A select group of examiners specially trained in computer operations and technology examine bank computer operations. This area of the examination function also has been updated to coincide with the new concepts employed by the Office in regular bank examination. Administration The Administration Department was reorganized during the year to consolidate the administrative and support functions of the Office. The Department now contains four divisions: Human Resources, Operations Planning, Finance and Administration, and Systems and Data Processing. Human Resources.—The Human Resources Division is responsible for administration and implementation ofthe Office's personnel programs. Those programs are managed by functional program groups. Under the group concept, the Office has been successful in establishing ongoing programs in staff analysis, national recruitment, compensation, employee relations, personnel development, and staffing and operations. To improve communications, regional directors of human resources were designated in each ofthe 14 regional offices. The Human Resources Division also instituted a computer-based information system which provides management with projections, personnel trends, and skill searches. Operations Planning.—The Operations Planning Division manages the process by which each functional and operational unit prepares resultsoriented operating plans for the oncoming budget year and the 3 years thereafter. Policy objectives set and updated by the Comptroller and operating goals established by functional unit heads in support of those objectives form the base for results-oriented, measurable performance targets and action programs. Unit plans are consolidated into an overall Office plan, and the performance of each unit is periodically monitored to determine the extent to which planned results are achieved. Finance and Administration.—The Finance and Administration Division is responsible for accounting and promoting optimum utilization ofthe Office of the Comptroller of the Currency's financial and physical resources. Its functions are accounting, budgeting, contracting, office space leasing and management, and publications control and distribution. During this year, the Division refined the financial information system which was developed in 1976 and became fully operational in 1977. The Division also further refined the budget monitoring system which identifies potential cost-saving areas. ADMINISTRATIVE REPORTS 153 Systems and Data Processing.—The Systems and Data Processing Division supports operations through the development and operation of computerbased systems and the provision of management analysis services. The Division processes statistical and accounting data and designs, programs, and maintains aH data processing systems, including data base management systems. During the year, the Division directed its efforts to the continued improvement and operation ofthe Office's information systems in three major areas: Regulation (national bank surveillance, enforcement and compliance, public disclosure); administration (human resources. Treasury payroll/personnel information); and finance (planning, budgeting, accounting). Bank organization and structure The Bank Organization and Structure Division is responsible for supervising the processing of bank structure applications. The first full year of operation under the Comptroller's revised corporate activity procedures, developed to improve efficiency and to expand the role of the regional offices in the decision-making process, particularly in the area of branching, has been completed. Initial review of the year's activities indicates that the new procedures have resulted in more expeditious processing of applications, more consistent application of policy, and improved analyses. It is expected that further improvement in those areas will continue. Law Department The Law Department, under the direction ofthe Chief Counsel, advises the Comptroller and his staff on legal matters arising in the administration of laws and regulations governing the national banking system. Attorneys in the Law Department deal directly with the management of national banks, with bank attorneys and accountants, and with the staffs of other Government agencies and congressional committees. The Department also participates in litigation involving the Office and exercises certain direct responsibility in enforcement and securities matters. On January 1, 1977, 56 lawsuits were pending involving the Office. During the year, 27 new cases were filed and 28 cases were closed. As of December 31, 1977,55 cases were pending. Fifty-five enforcement administrative actions were taken during the same period, and the Securities Disclosure Division reviewed the activities of the 340 national banks which have a class of securities registered pursuant to the Securities Exchange Act of 1934. The Legal Advisory Services Division processed 2,140 formal written inquiries during the year. Operations review The Operations Review Department, which functions as an internal inspector general in addition to its auditing duties, is responsible for reviewing, evaluating, and monitoring the quality and effectiveness of Office supervisory and regulatory functions. During the year. Operations Review activity was widened to include: (1) Development and use of programs designed to assess the effectiveness and efficiency of functions other than examinations; (2) performance of investigations of a special, nonrecurring nature; and (3) implementation of review procedures for solicitation of comments from national banks. Plans were developed to reemphasize the peer review concept through the conduct of onsite reviews to assess examiner compliance with revised examination procedures. 154 1978 REPORT OF THE SECRETARY OF THE TREASURY OFFICE OF COMPUTER SCIENCE The Office of Computer Science is the focal point for the ADP program in the Department. The Office has central management responsibilities for ADP planning, policy, and evaluation throughout the Department. Also, it furnishes computer processing and systems development services to the analytical, policy formulation, and administrative functions ofthe Office ofthe Secretary. An integrated ADP planning and budgeting system for Treasury was developed by the Office of Computer Science in conjunction with the Office of Budget and Program Analysis. The system, built around Treasury's financial resource management system, zero-base budgeting, and the ADP financial plan, reduces the workload on the bureaus since only one submission is required for both offices rather than separate ones. It requires reporting major initiatives in the spring, planned acquisitions of all equipment in the summer, and a complete plan with supporting narrative in the fall. The Office developed and implemented a departmental computer facility review program. One review has already been conducted in the Office ofthe Secretary, and the second is scheduled in the U.S. Customs Service in late 1978. Guidelines were issued to aid data processing managers in meeting their Privacy Act responsibilities. One of the bureaus is planning to utilize the guidelines as the nucleus for a major privacy/security program. ADP acquisition guidelines were developed to assist managers in obtaining the approval needed to acquire ADP computer equipment, software, and services. These guidelines, supplementing Treasury Directive 10-08 and Treasury's ADP Procurement Handbook, describe how to prepare feasibility studies, develop system requirements, and prepare the actual solicitation documents. The Office aided in obtaining approval from the General Services Administration and the House Committee on Governmental Operations in acquiring larger computer systems for the Secret Service, the Detroit Data Center, and the Office of the Secretary. The Office of Computer Science matched the processing needs of the Bureau of Government Financial Operations with excess ADP equipment from the Internal Revenue Service. This resulted in the transfer of an IBM 360/65 computer to BGFO, enabling it to release some obsolete equipment and postpone the acquisition of a new computer system for at least a year. A Treasury directive, "Management of Data Processing in the Office ofthe Secretary" (TD 10-08.A), was issued in January 1978. It states the policy and delineates responsibilities for the management of ADP in the Office of the Secretary, and specifically provides for the establishment of an ADP planning process to be accomplished by the Applications Planning and Development Division for the Office of the Secretary. The first plan was completed this year along with the procedures for collecting and updating planning information. Significant analytical and statistical support was provided to the Office of Equal Opportunity Program for the enforcement of the bank compliance program. Generalized software was utilized to provide statistical analysis on the affected class of employees of several large U.S. banks. Workload processed by the Office of the Secretary Computer Center increased 23 percent in fiscal 1978. To provide the support necessary for such growth, the service capability of the Center was extended by increasing its ADMINISTRATIVE REPORTS 155 usable floor space, introducing larger capacity and more reliable equipment, and installing updated and new state-of-the-art equipment. Included in this delegation was approval to install an interim computer so that growing workload requirements can be met without any degradation in service to the user community. OFFICE OF DIRECTOR OF PRACTICE The Office of Director of Practice is part of the Office of the Secretary of the Treasury and is under the immediate supervision ofthe General Counsel. Pursuant to the provisions of 31 CFR, part 10 (Treasury Department Circular No. 230), the Director of Practice institutes and provides for the conduct of disciplinary proceedings against attorneys, certified public accountants, and enrolled agents who are alleged to have violated the rules and regulations governing practice before the Internal Revenue Service. He also acts on appeals from decisions of the Commissioner of Internal Revenue denying applications for enrollment to practice before the IRS made under 31 CFR, section 10.4. During fiscal 1978, amendments to the provisions of Circular 230 goveming solicitation and advertising were proposed. The proposed amendments, which appeared in 43 Fed. Reg. 115 dated June 14, 1978, were promulgated in light of recent judicial decisions in the area of advertising and seek to permit the expansion of advertising by practitioners before the IRS consistent with those decisions. In addition, an amendment to Circular 230 was proposed permitting individuals enrolled to perform actuarial services under the Employee Retirement Income Security Act of 1974 (ERISA) to engage in limited practice before the IRS. Notice appeared in 43 Fed. Reg. 150 dated August 3, 1978. Publication ofthe final rule on both proposals was pending at the end of the fiscal year. On October 1, 1977, there were 166 derogatory information cases pending in the Office under active review and evaluation, 6 of which were awaiting presentation to or decision by an administrative law judge. During the fiscal year, 124 cases were added to the case inventory ofthe Office. Disciplinary actions were taken in 77 cases by the Office or by order of an administrative law judge. Those actions were comprised of 6 orders of disbarment, 36 suspensions (either by order of an administrative law judge or consent ofthe practitioner), 1 resignation, and 34 reprimands. The actions affected 32 attorneys, 34 certified public accountants, and 11 enrolled agents. Thirty-six cases were removed from the Office case inventory during fiscal 1978 after review and evaluation showed that the allegations of misconduct did not state sufficient grounds to maintain disciplinary proceedings under 31 CFR, part 10. As of September 30, 1978, there were 177 derogatory information cases under consideration in the Office. During the fiscal year, 10 attorneys, certified public accountants, and enrolled agents under suspension or disbarment from practice before the IRS petitioned the Director of Practice for reinstatement of their eligibility to resume practice. Favorable disposition was made on eight of those petitions and reinstatement was granted. Two petitions remained pending at the year's end. In addition, the Director of Practice granted the petition pending from 156 1978 REPORT OF THE SECRETARY OF THE TREASURY the previous year. There were 19 appeals from denials by the Commissioner of Internal Revenue of applications for enrollment to practice before the IRS. These appeals remained pending as of September 30, 1978. There were three decisions on appeal pending from the previous fiscal year. Two decisions reversed the denial; one appeal was pending at the year's end. Eighteen administrative proceedings for disbarment or suspension were initiated against practitioners before the IRS during fiscal 1978. Together with the 6 cases remaining on the administrative law judge docket on October 1, 1977, 24 cases were before the administrative law judge during the year. Five of those cases resulted in the acceptance of an offer of consent to voluntary suspension from practice before the IRS pursuant to 31 CFR, section 10.55(b) prior to reaching hearing. Initial decisions imposing disbarment were rendered in six of the cases. One complaint was dismissed. On September 30, 1978, 12 cases were pending on the docket awaiting presentation to or decision by an administrative law judge. During fiscal 1978, one case was appealed to the Secretary from the initial decision by an administrative law judge. The appeal remained pending at yearend. In addition, one decision was issued by the Secretary on an appeal from the initial decision of an administrative law judge pending October 1, 1977. In that appeal, the administrative law judge's order of suspension was changed to an order of disbarment. The Director of Practice is Executive Director of the Joint Board for the Enrollment of Actuaries. The Joint Board, formed pursuant to section 3041 of ERISA, is responsible for the enrollment of individuals who wish to perform actuarial services under the act and for the suspension and revocation of the enrollment of such individuals after notice and opportunity for hearing. BUREAU OF ENGRAVING AND PRINTING The Bureau of Engraving and Printing, the world's largest securities manufacturing establishment, designs and produces the major evidences of a financial character issued by the United States. It is responsible for the production of U.S. currency, postage stamps, public debt securities, and misceUaneous financial and security documents. Finances The regular operations of the Bureau of Engraving and Printing have been financed since July 1, 1951, by means of a revolving fund established pursuant to Public Law 656, August 4, 1950 (31 U.S.C. 181). Agencies which the Bureau serves are required to make reimbursement for all costs incidental to the performance of work or services requisitioned. Therefore, savings cited in this report mitigate the impact on those costs of generally rising labor, material, and other operating expenses. In fiscal 1978, in accordance with Public Law 95-81, July 31, 1977, the Bureau received an appropriation of $5 million in order to ease serious cash flow problems. This amount increased the appropriated portion of the revolving fund to a total of $14,250,000. It was only the third time that such an appropriated increase was necessary since the inception of the fund. By ADMINISTRATIVE REPORTS 157 means of this fund, the Bureau financed a program involving a total projected cost for sales and services of $130 million in fiscal 1978, as compared with $118,592,000 in fiscal 1977. Of long-range significance is the fact that Public Law 95-81 also authorized the Bureau to include in the charge for its products an amount to be accumulated for the acquisition of capital equipment and to provide future working capital. This authority should preclude the need to request future additional appropriations for those purposes. During fiscal 1978, the Bureau included in the price of its products surcharges totaling about $5,700,000—$4,730,000 earmarked for equipment and $970,000 recorded as additional working capital. Currency program Deliveries ofcurrency in fiscal 1978 totaled 3.3 bUlion notes, as compared with 2.9 billion notes delivered in fiscal 1977. During fiscal 1978, the Bureau negotiated a buy-out-for-cash agreement for four high-speed intaglio printing presses that had been acquired on a lease-purchase contract. These presses are fully operational, and the agreement to buy out resulted in a savings of $500,000. In addition, negotiations were initiated with other vendors supplying currency production equipment to the Bureau on a lease-purchase basis in an effort to produce similar savings by cash purchases of contracts. During this period, the 1977 currency series bearing the signatures of Secretary Blumenthal and United States Treasurer Morton was introduced. A revision in currency examining methods and procedures involving conversion to a single 16-subject examination, initiated during fiscal 1977, has been fully implemented. It is anticipated that $ 1,500,000 in annual savings wUl be achieved. Improvement of currency overprinting and processing methods, and refinement of production standards have contributed to a 14-percent increase in productivity, and will result in annual savings exceeding $500,000. Based on an economic evaluation of altemative processes, acquisition ofthe initial pieces of equipment that will constitute the next generation of security printing and processing equipment is proceeding. Initial procurement work is underway for the acquisition of two 50-subject currency presses which, because they represent a 56-percent increase in productivity over present 32subject equipment, are expected to save in excess of $1,500,000 annually. Ancillary numbering and processing equipment will also be acquired. Benefits in space and energy utilization will be realized as well. A system has been developed to economically salvage perfect currency notes located on partially defective currency sheets. Because implementation of this proposal will reduce the volume of notes requiring destruction, it is expected to generate significant ecological benefits through reduced disposal of security waste material. Replacement of chipboard trays and plastic bags, used for in-process transport and to secure currency, by a two-piece polypropylene box is expected to yield annual savings of $50,000, as well as improve product security. Typical printing errors with graphic illustrations of defective currency are described in an improved quality standard and updated training manual. The inspection accuracy program was improved to more definitively determine the effectiveness of currency examination. This program provides management quicker information for the retraining of examiners or other performance improvement. 158 1978 REPORT OF THE SECRETARY OF THE TREASURY A recently developed method of mechanical currency sheet examining has been expanded to include sheet counting and consolidating into a single operation. Plans for trimming and splitting 32-subject currency sheets are currently being formulated and will significantly increase productivity while providing greater note margin consistency. Expected savings cannot be determined without further experimentation. An identification system compatible with automatic currency handling equipment at Federal Reserve banks (including fitness determination and detection of counterfeit notes) has been jointly selected by the Bureau and the Federal Reserve System. A contract is being negotiated by the Federal Reserve System for delivery of the equipment to the Bureau during 1980. Postage stamp program Deliveries of U.S. postage stamps were 28.5 biUion units in fiscal 1978, as compared with 27.4 billion units in fiscal 1977. The program included production of a new series of 15-cent stamps issued in conjunction with the decision to change the prime postal rate. A supply of nondenominated stamps, some previously produced by the Bureau in anticipation of this situation, were also issued at the time of the rate change in order to meet the surge in demand for stamps at that time. To determine public acceptance of a small-size postage stamp, the U.S. Postal Service authorized the issuance of the 13-cent Indian Head Penny Special Issue Stamp as an experiment. These stamps were printed in 600subject sheet size (as opposed to normal 400-subject), and public reaction was favorable. Based on the results of the initial experimental issue, the Postal Service proposes to authorize additional issues of smaller size stamps in the future. Installation and acceptance trials of six postage stamp booklet-forming machines were concluded during fiscal 1978. AU machines are fully operational and are utilized for producing vending and over-the-counter postage stamp booklets. An automatic labeling system, designed to affix pressure sensitive labels to coils of lOO's, was installed in the CoU Manufacturing Section. The system, consisting of 9 machines, attains the same productivity as 12 machines previously required. A significant reduction in energy demands was realized since the new system requires no heating application. Additionally, methods improvements and the efficiency ofthe system will result in estimated savings of $270,000. The pile delivery on the L perforating machine was converted from a manual operation to a fully automated system, and is used to perforate approximately 25 percent of the annual postage stamp sheet production requirements. This system was developed from an in-house design and has reduced manpower requirement by 50 percent, resulting in annual savings of about $16,000. An innovative package for postage stamp booklets produced on the newly acquired booklet-forming machines was accepted and approved by the Postal Service. The design is a foldout tray containing popup divider panels made from inexpensive chipboard. This development enhances the integrity of the package and allows for improved security and accountabUity of its contents upon receipt at field post offices. InstaUation of a Bureau-designed system for the automatic subpackaging and overwrapping of postage stamp booklets is planned for fiscal 1979. Improved handling methods have been developed for reducing the personnel complement required to load postage stamp coils into trays for packaging. ADMINISTRATIVE REPORTS 159 Annual savings of approximately $310,000 are anticipated untU the next generation of coil manufacturing and packaging equipment is operational. Installation of a hydraulic roll splitter has significantly improved the operation for destruction of mutilated postage stamp rolls. Annual recurring savings of approximately $15,000 are anticipated. Improvement was made to the inspection accuracy program used to determine the effectiveness of postage stamp sheet examination. It provides more rapid management information for the retraining of examiners or other performance improvement. Quality standards have been developed for the newly installed postage stamp booklet-forming equipment. These are designed to provide ready reference to operating personnel for maintaining required quality standards. Research was conducted into the feasibility of reducing to one, from two or three, the number of sets of engraved cylinders currently required to produce a postage stamp issue by the gravure process. Studies revealed that a systematic method of dechroming and rechroming the original set of cylinders increased the lifespan so that the majority of commemorative issues required only one set of cylinders. Based on the average number of such issues printed by the Bureau by the gravure process, preliminary cost estimates indicate a recurring annual savings of approximately $120,000. Platemaking A study was initiated in 1976 to determine the feasibUity of reducing the 24hour time cycle required for platemaking operations. After considerable modification of the work processes and the platemaking equipment, the operation was accomplished on a two-shift basis in January 1977. The technology developed included automation of several aspects of electroplating such as automatic temperature control, tank level, and ampere-hour limiting of current flow. By January 1978, it was possible to complete the platemaking activity on a single work shift. Annual savings of $210,000 were realized. In addition, increased productivity and improved product quality and utilization of personnel were achieved. Inks Major formula variations have been made for the black and green currency intaglio inks in order to improve suitability and comply with environmental requirements. Similarly, a number of postage stamp inks have been reformulated to improve quality and to address changing raw material availability and environmental considerations. A trial is being conducted to determine the feasibility of purchasing currency intaglio ink bases from commercial sources. This will provide research referencing to state-of-the-art ink-making technology, possibly reduce costs associated with ink manufacturing, printing, and processing, and improve the ink-manufacturing work environment by some elimination of dry pigments handling. Efforts to develop water wipeable intaglio stamp inks have been successful and this expertise has been applied to a research and development program for water wipeable intaglio currency inks. Progress to date has been encouraging, and initial studies indicate resultant cost reduction in currency production by such conversion. Long-range studies are underway to determine whether alternative imaging systems could reduce costs and provide higher quality products. These areas 160 1978 REPORT OF THE SECRETARY OF THE TREASURY involve the use of an excitation source such as electron beam curing, to effect immediate drying ofthe imaging materials as printed on the various substrates. Food coupon program The Bureau continues to exercise responsibility for administering contracts awarded to two private banknote companies for the production of food coupons for the Department of Agriculture. During this period, the Bureau provided the Department of Agriculture with technical assistance and rendered services in the areas of quality control, security, contract negotiating, accountability procedures, and financial management. In addition, periodic unscheduled audits have been made at the contractors' plants to verify that the prescribed quality and security standards are maintained. Specifications were prepared, bids solicited, and a contract awarded for the production of a new $10 food coupon book containing six coupons (five $1 and one $5), to be issued early in the next fiscal year. Alien identification card On March 25,1977, production ofthe resident alien identification cards was begun for the Immigration and Naturalization Service. The central facUity for fabrication of the cards initially established at the Bureau was transferred to a new location in Arlington, Tex., in July 1978. Gasoline rationing program In conjunction with the congressional requirement that the Department of Energy prepare a contingency gasoline rationing program, the Bureau has provided technical advice regarding the design of a secure rationing document, and data regarding private and public sector capabilities to produce the volume of documents required to meet projected program demands. Forensic science research and development A cooperative effort with another Government agency has led to the development of new types of distinctive red and blue fibers used in the manufacture of currency paper. During the next fiscal year, subsequent to the scheduled production of the fibers, the contracting agency will continue in cooperative research efforts to develop other fiber variations. Bureau input is provided to contractual research being conducted by the National Bureau of Standards for defining parameters leading to extended currency circulation life. This can conceivably lead to the development of alternate paper fiber compositions more technically appropriate to end-use requirements and to raw materials cost reduction. Forensic laboratory techniques have included research and the acquisition of instruments to improve capability for associating evidentiary materials relative to counterfeiting for the U.S. Secret Service. Electronic processing programs The systems definition for the prototype currency examining machine has been completed. Hardware and software elements are being assembled by the contractor and the prototype machine is scheduled for delivery during 1980. The breadboard model and systems definition for an electronic counting system have been completed and the laboratory model for testing purposes wUl be ready for delivery to the Bureau in 1979. ADMINISTRATIVE REPORTS 161 An active development program is underway to apply the state-of-the-art electronic technology for (a) detection of inverted sheets at press, (b) identification and verification of numerical sequence of currency sheets, and (c) improved systems for drying security printings. Security program A new security access control system, replacing the pass-badge system, with perimeter card readers, provides for enhanced overall physical security control, restricts personnel movement into and within sensitive areas, and will eliminate the time-consuming system of handwritten logs for recording personnel movement. A compatible minicomputer to provide for incorporating anti-intrusion and fire alarms in the system is under consideration. A handbook of security measures for self-protection, and for safeguarding property and home, was developed and the proposed manuscript has been endorsed by the Under Secretary of the Treasury for pubUcation and distribution to all employees of the Department. Safety program About 5 percent of all Bureau employees have been trained in the techniques of cardiopulmonary resuscitation. In the area of industrial hygiene, the Bureau has expanded its hearing conservation program. Audiometric tests will be given to all employees to establish base data as to their present hearing capability, with periodic testing to ascertain possible hearing loss. The frequency of testing wUl be predicated upon the employee's work environment. In addition, the Bureau is acoustically treating areas where excessive noise levels cannot be reduced by engineering design. During fiscal 1978, lost-time cases associated with employee accidents were reduced by 15 percent from the previous fiscal period, reducing the Bureau's payment to the Office of Federal Workers' Compensation by $260,000. Internal audit program An intensive program of internal audit provides for the evaluation and reexamination of operational and financial efficiency, economy, and internal control adequacy, as well as audit reviews of the financial accounts and reports, and ensures compliance with prescribed regulatory directives. During fiscal 1978, 67 reports of audit were published. Three hundred and twentyseven recommendations for possible improvements were referred for management consideration. Coverage included fiscal and management-type audits and reviews of operations and programs conducted on a scheduled, special, and unannounced basis. Personnel management Traditionally, the position of plate printer has been filled in accordance with criteria prescribed by the Civil Service Commission and related Federal hiring requirements. In addition to the recruitment of qualified journeymen, an intensive 4-year apprenticeship program, including classroom and on-the-job training, is utilized to provide the required complement of journeyman plate printers. To augment these usual methods of selection and training, the position of intermediate plate printer was established. This will provide a recruiting supply of experienced press operators, and will reduce the period of time for a candidate to achieve journeyman plate printer's status from 4 years to 1. The position has been advertised with response from applicants 162 1978 REPORT OF THE SECRETARY OF THE TREASURY from all parts ofthe United States. Initial screening of applications wiU be made by a panel of experts approved by the CivU Service Commission, after which the potential candidates will be evaluated for final selection. Although the Bureau will continue to recruit and train candidates through the 4-year apprenticeship program, the establishment of the intermediate plate printer position will provide management with greater flexibility in filing these craft positions in order to meet short-term production requirements when an adequate supply of journeymen is unavailable. Reorganization of supervisory positions throughout the Plate Printing Division has resulted in the abolishment of the position of plate printer foreman and the establishment of the positions of plate printer assistant foreman and plate printer general foreman. Under the reorganization plan, the 23 foreman positions will be replaced with 20 assistant foreman positions charged with responsibility over operating sections, and the 3 general foremen will be responsible for overall coordination of division operations on each of the 3 work shifts. WhUe the salary rates ofthe former position of foreman and the newly established position of general foreman are identical, the salary rate for the position of assistant foreman wUl be 10 percent less than the prevailing rate for foreman. An annual recurring savings of $150,000 will result. Management development As part of an effort to improve management effectiveness, the Bureau initiated a team-buUding and action planning process within the top management staff as well as specific divisions. After a preliminary organizational assessment that identified factors inhibiting maximum effectiveness, participants shared concerns and ideas for improvement and engaged in group problem solving. Specific objectives were to enhance communications and to promote cooperation in order to clarify roles, functions, and responsibilities. Labor-management relations The Bureau continues to foster constructive and harmonious relationships with its employees and the 17 bargaining units which represent them. In keeping with the spirit and intent of Executive Order 11491, as amended, management deals with 16 AFL-CIO affiliate unions representing 25 distinct craft groups, a noncraft unit, and a guard unit. One independent union represents the GS clerical/technical unit. Fourteen substantive negotiated labor-management agreements are now in force. Training courses and seminars were held for each level of supervisory and management personnel to further improve the Bureau's record of effectiveness in negotiating with labor organizations and in dealing with labor relations matters. Awards During fiscal 1978, 1,222 employees received special achievement awards and 27 employees received high quality pay increases. Under the employee suggestion phase ofthe program, 150 suggestions were received, ofwhich 57 were adopted with tangible savings of $14,500. Twenty-nine summer employees were granted awards in recognition of their superior performance. Performance evaluation system The Bureau's performance evaluation system and incentive awards program are being redesigned to provide for regular dialog between supervisors and employees on factors germane to specific job performance. The redesigned ADMINISTRATIVE REPORTS 163 incentive awards plan relates directly to measurable individual or group contributions to improved organizational performance, and provides a more effective tool for recognizing such contributions. Equal employment opportunity program The Bureau continues to make progress in the advancement of minorities and women. One of several significant first accomplishments included the promotion ofa black woman to the top line management position of Assistant Director (Operations), GS-16. Numerical recruitment goals were established for occupations with underrepresented percentages of minorities and women. Nine ofthe 17 identified goals had been accomplished by July 1978. The composition ofthe Bureau's work force continued to remain close to the availability of minorities and women in the local recruitment area, with employment constituting 72 percent blacks and 38 percent women. Career development Thirty-seven employees applied for three new positions identified to be filled through the CADE (upward mobility) program. Applicants were evaluated by the assessment center process and supervisory ratings. Individual development plans are being formulated for the three successful candidates, and counseling was afforded to all applicants. Treasury payroll/personnel information system During fiscal 1978, the Bureau successfully transferred the computation and processing of its payroll and personnel information to the Treasury payroll/ personnel information system located at the Bureau of the Mint facility in San Francisco. Service to the public The Bureau continues to be one of the major attractions for visitors to the Washington area. During fiscal 1978, over 500,000 visitors utUized the selfguided tour facilities of the Bureau. During the fiscal year, exhibits of securities were provided for five scheduled phUatelic and numismatic events. OFFICE OF EQUAL OPPORTUNITY PROGRAM The Office of Equal Opportunity Program assists the Secretary and the Assistant Secretary (Administration) in the formulation, execution, and coordination of policies relating mainly to two programs: (1) The equal employment opportunity program for Treasury employees, and (2) compliance surveUlance of the equal employment policies and programs of those financial institutions that are Federal depositaries or issuing and paying agents of U.S. savings bonds and U.S. savings notes. The President has expressed his intention to sign an Executive order in October 1978 consolidating the contract compliance program under the Department of Labor, thus reHeving Treasury of the responsibility for this program. 164 1978 REPORT OF THE SECRETARY OF THE TREASURY Federal equal employment opportunity p r o g r a m This component of the Office's program is concerned with administering Department-level equal opportunity program efforts for all of Treasury's employees. See the following table for a breakout of this work force by grade groups. Department of the Treasury full-time employment by minority group status • 1968 1972 1974 1976r 1977 Comparison 1976-1977 No. Total employees* 82,155 102,813 114,686 122,003 123,472 Black Hispanic Native American Asian American Other GS 1-4: Total 11,777 1,052 79 482 68,765 15,619 18,216 19,430 19,904 2,247 3,437 3,657 4,417 128 175 196 194 813 1,230 1,219 1,330 84,006 91,628 97,501 97,627 19,120 24,126 25,526 27,531 28,051 Black Hispanic Native American Asian American Other 4,947 255 25 80 13,813 5,904 791 45 159 17,227 6,679 1,065 84 181 17,517 6,347 1,205 49 197 19,733 6,600 1,426 47 247 19,731 19,480 27,601 33,295 31,643 32,977 2,708 264 26 141 16,341 4,290 5,569 5,914 6,112 551 1,008 988 1,135 35 50 51 54 249 445 342 385 22,476 26,223 24,348 25,291 28,893 32,321 1,144 332 21 186 27,210 GS 5-8: Total Black Hispanic Native American Asian American Other GS9-12: Total ; Black Hispanic Native American Asian American Other GS 13-18: Total Black Hispanic Native American Asian American Other Percent Comparison 1968-1977 No. Percent 1,469 1.2 41,317 50.2 474 760 -2 111 126 2.4 20.7 -1.0 9.1 .1 8,127 3,365 115 848 28,862 69.0 319.8 145.5 175.9 41.9 520- 1.8 8,931 46.7 253 221 -2 50 -2 3.9 18.3 -4.0 25.3 -.01 1,653 1,171 22 167 5,918 33.4 459.2 88.0 208.7 42.8 1,334 4.2 13,497 69.2 198 147 3 43 943 3.3 14.8 5.8 12.5 3.8 3,404 871 28 244 8,950 125.7 329.9 107.6 173.0 54.7 37,960 - 1 7 6 -.4 9,067 31.3 1,587 2,050 2,693 2,920 227 519 803 881 956 75 34 44 58 59 1 222 368 391 409 18 29,959 32,315 34,113 33,616 - 4 9 7 8.4 8.5 1.7 4.6 -1.4 1,776 624 38 223 6,406 155.2 187.9 180.9 119.8 23.5 35,580 38,136 9,491 12,037 13,257 13,598 13,934 336 2.4 4,443 46.8 151 35 3 55 9,247 307 88 8 90 11,544 399 136 16 105 12,601 473 135 16 124 12,850 511 38 151 16 1 5 - 1 134 10 13,123 273 8.0 11.8 -6.2 8.0 2.1 360 116 12 79 3,876 238.4 331.4 400.0 143.6 41.9 r Revised. * The totals include wage board persoimel. Grade comparisons are for GS series only. Efforts are being focused on the development of a unified framework for achieving measurable EEO program results. These include: 1. The issuance of memoranda from the Secretary, Assistant Secretary (Administration), and bureau heads outlining top management commitment and support for the EEO programs and structuring a system of accountability at the highest levels in the Department. 2. The inclusion of EEO objectives in the overall zero-base budgeting objectives for each bureau, thereby utilizing the zero-base budgeting objectives system for the integration ofthe EEO program into the total departmental ADMINISTRATIVE REPORTS 165 management process. This provides for quarterly review at the highest management levels to track program progress and problems. 3. Organizational relocation of the EEO function in four of Treasury's largest bureaus, the IRS, Customs, Alcohol, Tobacco and Firearms, and Mint, so that the EEO officer has direct access to the bureau head and other top management officials. The Department has made considerable progress in the expanded usage of special hiring authorities in the cooperative education program. Also, there has been increased use ofthe bilingual certification program for public contact positions, particularly in the IRS, Alcohol, Tobacco and Firearms, and Customs, to increase Hispanic employment. A directives manual chapter outlining criteria for bureau nomination of employees and managers for a departmental EEO award has been developed. The award will be presented in January 1979. Six personnel management evaluations ofthe bureaus' EEO operations have been completed, and five are planned for the balance of calendar year 1978. These survey efforts amplify the personal commitment of the Secretary and provide a regular context for learning about the accomplishments of each bureau, thus closely monitoring progress against stated goals. Contract compliance program achievements Minority employment in the banking industry has increased from 4.4 percent to 17.4 percent since 1966. Women, who comprise 65.6 percent of the industry work force, have doubled their representation in the "officials and managers" category since 1971 from 13 percent to 26 percent. Though fiscal 1978 activities have been curtailed by the need to prepare for the upcoming move to the Department of Labor, the Office has conducted to date 102 reviews with 96 stUl in progress. Financial institutions have signed 67 conciliation agreements committing a total of $176,805 in major monetary adjustments, including backpay for relief of affected minority and women employees. The year's activities have produced 19,121 women and 4,887 minority hires and promotions. FEDERAL LAW ENFORCEMENT TRAINING CENTER The Federal Law Enforcement Training Center (FLETC) is an interagency training facility formally established as a Treasury bureau on March 2, 1970, and is under the supervision of the Assistant Secretary (Enforcement and Operations). The Department ofthe Treasury is the lead agency for operating the Center and supervises its administrative and financial activities. Training policy, programs, criteria, and standards are established by a Board of Directors comprised of eight members at the Assistant Secretary level representing the major agencies which have organizations participating in the Center. Five are voting members—1 each from the Departments of Interior, Justice, and Treasury; 1 from the General Services Administration; and 1 representing the several other participating organizations with less than 500 law enforcement officers. Three are nonvoting members—one each from the Office of Management and Budget, the U.S. Civil Service Commission, and the U.S. Capitol Police Board. 166 1978 REPORT OF THE SECRETARY OF THE TREASURY The Center conducts basic and common advanced courses in criminal investigator and police training for the participating organizations. In addition, facilities and support services are provided so that participating organizations may conduct advanced, inservice, refresher, and specialized (AIRS) training for their own law enforcement personnel. Currently, 36 enforcement organizations, representing most major executive departments, independent agencies, and the legislative branch, participate in FLETC programs. In fiscal 1978, the Public Safety Service and Land Between the Lakes Patrol ofthe Tennessee Valley Authority, and the Amtrak Northeast Corridor Police Department began participating in the Center's programs. The Center also furnishes training on a space-available, reimbursable basis to personnel from other Federal, State, and local agencies. The consolidation of Federal law enforcement training at the Center has resolved many ofthe difficulties previously encountered in the search for highquality, cost-effective, standardized training. The continuing growth of the Center and plans for additional consolidation have thrust the Center into a position of national leadership in law enforcement training. The Center is meeting the responsibilities inherent in this leadership position, as it provides the programs and facilities to ineet the changing law enforcement training needs of today, and prepares to meet the demands of the future. Training and support facilities In May 1975, the Congress authorized the expenditure of $30 million for the adaptation of the former Glynco Naval Air Station as the facility for the FLETC In September 1975, the Center relocated from the Washington, D . C , area to the former naval air station, located on the southeast coast of Georgia near the city of Brunswick. Many of the existing Navy facilities at the 1,500acre site were renovated or modified to accommodate various training and support activities such as administrative offices, classrooms, instructor offices, dormitories, dining hall, instructional services (photolab, graphic arts, and TV production), motor pool and garage, printshop, interim physical training and driver training areas, indoor and outdoor practical exercise areas, and outdoor firing ranges. Major construction projects started during fiscal 1978 include a new 96point indoor firing range, a new classroom buUding, an expansion and modernization of the physical training complex, an expansion of the dining hall, and a new energy distribution system. Construction projects completed during fiscal 1978 include conversion of former Navy family housing units to quarters for visiting instructors, renovation of the former Navy officers club for use as a student center and registration area, renovation of several existing buUdings to accommodate office space for representatives ofthe participating organizations, conversion of a former Navy barracks to a classroom building, and two new student dormitory buildings. In addition, 31 two-story townhouse buildings were transferred to Treasury from the General Services Administration, and are in use as student housing. Construction of a new driver training course will begin during fiscal 1979, with all master plan construction scheduled for completion by December 1979. Training programs Criminal investigator training.—During fiscal 1978, 19 basic 7-week criminal investigator classes were conducted and 824 students graduated. In addition, the Criminal Investigator Training Division (CITD) staff continued to provide instructional support as needed to the agencies conducting AIRS training at the Center. ADMINISTRATIVE REPORTS 167 Several texts and practical exercises used in the CITD program were revised to keep pace with changes and new developments in the criminal investigator field. A new felony car stop course with practical exercises and a new questioned documents course were developed and implemented. The CITD staff coordinated the planning and preparation of a white collar crime seminar for investigators. All training divisions at the Center, as well as participating organizations, contributed manpower and resources to the development ofthe curriculum for this seminar. It is expected to be offered for the first time during early fiscal 1979. Police training.—During fiscal 1978, the Police Training Division (PTD) conducted 55 classes and graduated 1,797 students—a 34-percent increase in the number of classes and a 46-percent increase in students graduated over the previous fiscal year. PTD staff members headed a task force to design and develop a training program to specifically meet the basic training needs of law enforcement agencies engaged in land management and recreation. The development of this program was completed during fiscal 1978. The first course will be conducted by PTD during early fiscal 1979. In addition, the PTD staff continued to review and revise existing programs with the objective of acquiring additional equipment and materials to increase the realism of practical exercises. Special training.—The special training programs in driving, firearms, and physical activities support the basic training divisions and the AIRS programs. During fiscal 1978, the number of students participating in Special Training Division (STD) programs increased substantially over fiscal 1977. The staff of each of the branches of STD continued to revise and update lesson plans and course outlines to incorporate the most recent teaching techniques and law enforcement procedures. The Physical Training Branch instituted changes in the standard first-aid course to conform to the American Red Cross procedural changes regarding airway obstructions and the saving of choking victims. The Driver Training Branch designed and began using a new and improved evasive maneuvering course to test the driving skill and dexterity of students. The Firearms Training Branch restructured the instinctive and decision reaction courses to allow more students to participate at one time, began the experimental development of three-dimensional targets to add additional realism to the training, and began planning for a firearms instructor course to be offered as a Center-conducted AIRS program. Advanced, inservice, refresher, and specialized training.—During fiscal 1978, AIRS training accounted for 27 percent of the man-weeks of training conducted at the Center. During the year, 4,100 students graduated from the various AIRS training programs, representing a 15-percent increase over fiscal 1977. A significant portion ofthe Center's services, facilities, and personnel was devoted to supporting these programs conducted by the participating organizations. The greater percentage of the AIRS programs was conducted by the Bureau of Alcohol, Tobacco and Firearms, National Park Service, Internal Revenue Service, U.S. Marshals Service, Federal Protective Service, and the U.S. Fish and Wildlife Service. Training support A word processing system has been developed and implemented to automate the preparation of student records, examinations, and certificates. The design ofa computerized student registration system was initiated during fiscal 1978, and wiU result in more timely service to students and a more efficient method of collecting student data. A student athletic and recreation program was funded and initiated for the 168 1978 REPORT OF THE SECRETARY OF THE TREASURY first time during fiscal 1978. It is designed to provide activities for students during nontraining hours. In addition to providing an outlet for student energies and contributing to their physical development, this program complements the instructional programs by creating a more complete living and learning environment. Audiovisual support for the training activities was improved substantially during fiscal 1978 by the installation of audiovisual projection booths and improved remote controls in classrooms. In addition, several films used in the judgment pistol shooting portion of firearms training have been converted to video tape, resulting in a 50-percent reduction in the time required for training. Several video tapes used as training aids were produced by the Center staff for the first time. The volume of other audiovisual, graphic, and photographic support activities provided during the year increased substantially to keep pace with the increase in the number of students trained. The Office of Research and Evaluation was created and staffed during fiscal 1978. This Office conducts research, program planning, program and curriculum analysis and evaluation, long-range planning, and faculty development courses of instruction. The Office has added significantly to the Center's capability to insure that training programs are of the highest quality and adequately meet the training needs of the participating organizations. Administration The impact of an increasing number of students made necessary the development of a supplement to the original environmental assessment of fiscal 1976. This supplement was prepared and approved in fiscal 1978. An audit ofthe Center's financial activities for fiscal 1977 was conducted by auditors ofthe Bureau of Alcohol, Tobacco and Firearms. The audit found that financial operations were being carried out in a satisfactory manner. The Center's outdated telephone system, originally installed by the Navy in 1942, was replaced by a new Dimension PBX system. The new system not only effects a 3 3-percent reduction in switchboard operator requirements, but also provides improved service. Data for the Treasury payroll/personnel information system can now be transmitted via telephone line. A comprehensive occupational safety and health action plan for the Center was developed and implemented during fiscal 1978. The Center's equal employment opportunity program received increased emphasis during fiscal 1978. A complete analysis ofthe work force resulted in a validation and revision of hiring and promotion goals. Graduate and undergraduate student intern-programs were developed and coordinated with regional colleges and universities, with the first interns being assigned to the Center during fiscal 1978. Management improvement The Center continued the trend of reducing the training cost per student during fiscal 1978. This fact is especially significant considering the simultaneous enhancements which occurred in training programs, support activities, and facilities. This cost reduction is due to economies achieved through the consolidation of programs and facilities, increased productivity by staff, and the Center's ability to obtain funding for student travel and en route per diem. A management information system was developed and implemented during the year. This system collates and organizes data reflecting all aspects ofthe Center's operations. It provides pertinent information necessary for management review of existing operations and improvement of the decisionmaking process. ADMINISTRATIVE REPORTS 169 FISCAL SERVICE Bureau of Government Financial Operations The functions ofthe Bureau are Government-wide in scope. It disburses by check, cash, or other means of payment for most Government agencies; settles claims involving loss or forgery of Treasury checks; manages the Government's central accounting and financial reporting system by drawing appropriation warrants, by maintaining a system of accounts for integrating Treasury cash and funding operations of disbursing and collecting officers and of Government program agencies including subsystems for the reconciliation of check and deposit transactions, and by compiling and publishing reports of budget results and other Government financial operations; provides banking and related services involved in the management of the Government's cash resources; under specified provisions of law is responsible for investing various Government trust funds; oversees the destruction of currency unfit for circulation; provides central direction for various financial programs and practices of Government agencies; and directs a variety of other fiscal activities. Disbursements and check claims During fiscal 1978, the Division of Disbursement operated 11 disbursing centers servicing over 1,400 Federal administrative offices throughout the United States and in the Philippines. The Division also rendered disbursing services for embassies located in Central America, South America, and the Far East. In addition to its disbursement activities, the Division prepared and distributed Federal tax deposit forms for the Internal Revenue Service. Management improvements and significant achievements.—The Division of Disbursement has been phasing in the presort program since November 1976. To obtain a 2-cents-per-item postage discount, checks are released to the Postal Service in ZIP code sequence permitting direct shipment to the delivery points. The Division is presorting each month an average of 35 million social security, supplemental security income, veterans compensation and pension, and railroad retirement checks, as well as approximately 45 million tax refund checks during the peak period of March through June. Since the inception of the program, there has been a postage discount of $4,979,390 with a net savings of $4,460,009 after operating costs. During fiscal 1979, the Division will begin presorting veterans education and civil service annuity checks, thereby adding approximately 1,360,000 to the monthly volume of presorted payments and increasing the net savings to a total of $8 mUlion. The conversion of income tax refund nonreceipt claims from a manual operation to a magnetic tape transmission system was an important accomplishment. Stop payment requests for the social security, supplemental security income, and income tax refund programs processed under the tape claims system totaled 578,828, or approximately 38 percent ofthe total stop payments requested during the year. Veterans Administration, Civil Service Commission, and Railroad Retirement Board claims are scheduled for conversion to the system in fiscal 1979. The Division also began to research payment-issue information by computer for approximately 80 percent of the social security claims. As a result, manual microfilm operations have been 170 1978 REPORT OF THE SECRETARY OF THE TREASURY significantly reduced, and the Division is able to accomplish initial identification of the specific payment involved in less than 24 hours. In fiscal 1978, 87,839,410 social security, raUroad retirement annuity, civU service annuity, veterans compensation and pension, miners benefit, and revenue sharing payments were issued using Treasury's electronic funds transfer recurring payment system (EFT). EFT, a major element ofthe direct deposit system, permits the rapid computer-assisted transfer of funds between the Treasury, Federal Reserve banks, and member banks. Extension of EFT system to Federal salary payments was begun in September 1978 for one agency office, the National Aeronautics and Space Administration, Langley, Va. Two more agency payroll systems have been selected to participate—the Small Business Administration beginning February 1979, and the Veterans Administration beginning by midsummer. A total of 5,671,627 payments were issued in fiscal 1978 using optical character recognition (OCR) equipment. In an OCR system, payment data typed on voucher schedules is captured electronically by an optical scanner and then transferred onto a magnetic tape for computer preparation of the checks. The eventual conversion of all manual payments to OCR processing is a primary goal of the Division of Disbursement. Beginning in mid-fiscal 1979, all social security payments will be issued from the disbursing center nearest the delivery point. Expected benefits from geographic disbursement of checks include expedited delivery of social security payments, a more equitable distribution of workload among the disbursing offices, an increase in the number of payments eligible for the presort program, and improved delivery of EFT payments. Under geographic disbursement, each disbursing office will service only those Federal Reserve banks that fall within certain geographic areas; therefore, fewer payment tapes will need to be created. Disbursing operations.—During fiscal 1978, a total of 687,455,206 checks, savings bonds, adjustments and transfers, and EFT payments were issued under Treasury's centralized disbursing system at an average cost of $0.0444. In addition, 128,782,057 Federal tax deposit forms were prepared and mailed. The following table is a comparison of the workload for fiscal years 1977 and 1978: Volume Classification Operations financed by appropriated funds: Checks and electronic funds transfers: Social security benefits Supplemental security income payments Veterans benefits Income tax refunds Veterans national service life insurance dividends Other Savings bonds Adjustments and transfers Operations financed by reimbursements: Railroad Retirement Board Bureau ofthe Public Debt (General Electric Co. bond program) Total workload—reimbursable items Total workload 1977 1978 379,493,103 51,957,379 77,772,027 68,005,540 2,956,546 71,593,135 7,896,031 243,986 390,317,774 52,050,282 76,410,883 69,399,321 2,278,299 73,115,661 7,966,722 249,471 659,917,747 671,788,413 13,705,160 1,684,412 13,871,202 1,795,591 15,389,572 15,666,793 675,307,319 687,455,206 ADMINISTRATIVE REPORTS 171 Settling check claims.—An a u t o m a t e d reclamation system was implemented in the Division of C h e c k Claims in mid-August. U n d e r this system requests for refunds from commercial banks, which cashed fraudulently endorsed checks, are c o m p u t e r generated and followup demands are automatically generated. It is expected that this will significantly improve the cash flow for such items. T h e check truncation system wherein the Federal Reserve banks microfilm Treasury checks and provide a magnetic tape o f t h e payment data has resulted in claims being processed m o r e quickly since the actual check does not have to be retrieved from a storage facility. Claims modernization project.—Substantial progress has been made in the project initiated in D e c e m b e r 1976 to improve and modernize the processing of claims for Treasury checks. A system developed in January 1977 to track claims-processing time has been refined to provide a more detailed indication of Bureau timeliness and effectiveness in taking settlement action on claims. The tracking system has also been expanded to cover other claims-processing functions which are now being reviewed for improvement. Negotiations are continuing with the Social Security Administration and other agencies with regard to improving the timeliness of claims processing under their control. A r r a n g e m e n t s were completed in January 1978 with the Internal Revenue Service whereby claim data on tax refund checks is submitted to disbursing offices on magnetic t a p e rather than paper d o c u m e n t s . This system also includes claims received through the Social Security Administration, and negotiations are continuing for coverage of claims for checks processed by other major program agencies. Plans call for additional automated systems designed to further s u p p o r t claims-related operations and to improve m a n a g e m e n t control. Public Law 9 5 - 3 8 0 , approved September 22, 1978, authorized issuance of substitute checks without undertakings of indemnity except as the Secretary of the Treasury may require. Implementation of this change will serve to protect the interests of the United States while avoiding any unnecessary delays and paperwork in issuing substitute checks to payees whose original checks have been lost or stolen. A comprehensive review of other statutes relating to claims processing has b e e n initiated to identify further legislative initiatives which could be taken to achieve more effective and efficient service to the public. Check claims operations.—During fiscal 1978, there were 1.5 million requests to stop p a y m e n t of G o v e r n m e n t checks or to obtain information about c h e c k status. This resulted in 452,314 paid-check claims acted u p o n , including 69,304 referred to the U.S. Secret Service for investigation because of forgery, alteration, counterfeiting, or fraudulent issuance and negotiation. Reclamation was requested from those having liability to the United States on 120,618 checks. During the year, 41,818 paid-check claims resulted in settlement checks t o payees totaling $ 12.8 million; 6,693 resulted in settlement checks to endorsers totaling $2.1 mUlion and 42,637 claims resulted in payments to other agencies of $10.3 million for death and nonentitlement cases. In addition, 541,088 substitute checks were authorized to replace checks that were lost, stolen, destroyed, or not received. Government-wide accounting Government accounting systems.—Prototype consolidated financial statements covering fiscal 1976 and the transition quarter were released early in fiscal 1978. Publication of the statements is the result of an experimental undertaking aimed at extending accrual accounting concepts to governmental accounting. This undertaking is intended to contribute to the improvement of 172 1978 REPORT OF THE SECRETARY OF THE TREASURY accounting at all levels of government and to the development of accounting standards for public financial reporting by government entities. The interagency Advisory Committee on Consolidated Financial Statements, consisting of top-level representatives from various Government agencies and headed by the Comptroller General, continues to work on developing practical solutions and implementation procedures for some of the major problem areas such as valuation of assets, retirement system liabilities, allowance for losses on accounts and loans receivable, accrual of taxes, and inflation accounting. The results of the work of the task groups for the problem areas will be reflected in the fiscal 1977 and future reports. A number of systems improvements were made to standardize and thus reduce the amounts of paperwork required for transactions flowing through the Treasury daily transcript and transit accounts. Changes have been completed to eliminate transactions involving transit accounts for the Bureau ofthe Public Debt's bond adjustments and for charges of food stamp coupons and postal money orders. Under the new system these items are charged directly to the appropriate agency location codes rather than transit accounts, resulting in a reduction of over 25,000 documents per year. A simUar procedure was developed for erroneously paid checks. This procedure alone produced a reduction from 14,000 to 300 documents per year. Previously, the reclamation refund tickets were treated as deposit tickets on the daily transcript. A system change was made so that the amounts on the tickets are totaled and deposited on one standard deposit ticket each day. The reclamation refund ticket forms are forwarded directly to the Division of Check Claims by the Federal Reserve banks to support the confirmed copy of the deposit ticket. This change reduced the processing of forms on the daily transcript from 144,000 to 7,200 documents per year. On January 1, 1978, a new procedure was implemented for agency transfers of withholdings and contributions for health benefits, group life insurance, and civil service retirement to the CivU Service Commission (CSC). Payment is accomplished by a journal voucher prepared by the Government agency which also reports the deposit to a CSC receipt account on its monthly statement of transactions. The agency forwards to CSC the completed journal voucher at the time the withholdings and contributions are collected during the month. At monthend, CSC reconcUes the document to the amount reported to its receipt account by the agency. This change eliminated the processing of approximately 30,000 checks each year. The functioning of checks through commercial banks costs the Federal Government $1.5 miUion per year in interest. Based on information provided on the journal voucher document, CSC invests the amounts in three trust funds. Under the check procedure the trust funds were losing $ 1.2 million per quarter of interest on their investments due to the timing lag of receiving and depositing checks. The BANK ON US promotional campaign that was first implemented in the Bureau in fiscal 1977 was expanded to a Department-wide campaign in fiscal 1978. The increase in the number of employees authorizing their salary checks to be sent directly to financial organizations as a result of that campaign will eliminate an additional 135,000 checks each year from the Treasury payroU alone. With the success of the Treasury campaign, BANK ON US was introduced Government-wide, and virtually every department or agency not already promoting this payroll option wUl be participating in a Governmentwide BANK ON US campaign early in fiscal 1979. Under regulations governing withholding of District of Columbia, State, city, and county income or employment taxes by Federal agencies (31 CFR 215), the Secretary of the Treasury has entered into tax withholding agreements with 41 States and 49 cities or counties. Public Law 95-365, ADMINISTRATIVE REPORTS 173 September 15, 1978, extends mandatory withholding to Federal employees who are residents of cities and counties where a withholding agreement is in force. Formerly, mandatory withholding was required only for employees regularly employed within the taxing jurisdiction. A deposit-in-transit maintenance plan was drafted disclosing procedures to achieve 100 percent Government-wide use ofthe SF 215 **Deposit Ticket" and the SF 5515 **Debit Voucher" by February 1, 1979. Salient features ofthe plan include the use of written correspondence, meetings, and personal contacts to reinforce the need for compliance and a program to retire stocks of unacceptable forms. In a related area, a study was made of various ways the Treasury could assist agencies in revising their procedures to limit the number of SF 215's submitted to one per day. In an ongoing effort to assist in the reduction of Government directives, the Bureau is codifying into the Treasury Fiscal Requirements Manual all Division of Disbursement circulars pertinent to the interests of Government departments and agencies. In addition, the Bureau is responsible for 175 Treasury Department circulars. A number of the Treasury circulars are being codified in the TFRM with the remainder classified as rescinded or inactive. The Fiscal Service Regulations were also reviewed and, as a result, an annual reporting requirement on financial accomplishments and plans was eliminated from Fiscal Service Regulation No. 5 ''Review and Approval of Fiscal Accounting Systems." It was determined that simUar information is available in other reports. These efforts further the goal of having the TFRM as the Bureau's sole prescribing document to be followed by agencies. The Treasury financial communications system (TFCS) has been in operation since September 1976, and during fiscal 1978 processed a monthly average of $2.7 billion for deposit transactions and $2.5 biUion for payment transactions. Utilizing a computer link to the Federal Reserve Bank of New York, this system provides access to the Federal Reserve Communications System and its associated financial data. TFCS automates the generation of nonrecurring payments and the receipt of Government deposits, and provides a comprehensive accounting and audit control mechanism for streamlining financial recordkeeping and reporting. During fiscal 1978, the deposit message retrieval subsystem was developed to allow agencies to receive immediate hardcopy notification of incoming messages by accessing the TFCS with a terminal device on the day that deposits are expected. Present efforts are devoted to developing a new subsystem of TFCS that can be utilized to accomplish letter-of-credit transactions. The implementation of this subsystem will provide the basis for the future expansion of the TFCS and the development of improved Government-wide financial management practices. Assets and liabilities in the account of the U.S. Treasury.—Table 53 in the Statistical Appendix shows the balances at the close of fiscal years 1977 and 1978 of those assets and liabilities comprising the account ofthe U.S. Treasury. The assets and liabilities in this account include the cash accounts reported as the "operating balance" in the Daily Treasury Statement. Other assets included in the account ofthe U.S. Treasury are gold bullion, coin, coinage metal, paper currency, deposits in Federal Reserve banks, and deposits in commercial banks designated as Government depositaries. Treasury's gold balance was $ 11,595.3 mUlion at the beginning ofthe fiscal year and $11,667.7 million at the yearend. Stocks of coinage metal stood at $282.2 mUlion at the beginning of fiscal 1978 and $261.9 miUion at yearend. Such stocks included silver, copper, nickel, zinc, and alloys of these metals which are not yet in the form of finished coins. 174 1978 REPORT OF THE SECRETARY OF THE TREASURY The number of depositaries of each type and their balances on September 30, 1978, are shown in the following table: September 30, 1978 Number of accounts' Depositaries Federal Reserve banks and branches Other depositaries reporting directly to the Treasury: Special demand accounts Other: Domestic Foreign3 ; Depositaries reporting through Federal Reserve banks: General..... Special (Treasury tax and loan accounts) Total : Balance 37 2 $16,904,511,658 3 275,450,000 17 40 217,851 94,042,608 1,170 14,063 52,024,835 5,796,586,685 15,330 23,122,833,637 1 Includes only depositaries having balances with the U.S. Treasury. Excludes those designated to furnish official checking account facilities or other services to Govemment officers but not authorized to maintain accounts with the Treasury. Banks designated as general depositaries are frequently also special depositaries, hence the total number of accounts exceeds the number of banks involved. 2 Includes checks for $257,326,624 in process of collection. 3 Principally branches of U.S. banks and of the American Express International Banking Corp. Government officers deposit moneys which they have collected to the credit of the U.S. Treasury at Federal Reserve banks or at designated Government depositaries, domestic or foreign. Certain taxes are also deposited directly by the employers or manufacturers who withhold or pay them. All payments are withdrawn from the U.S. Treasury account. Cash deposits and withdrawals affecting the Treasury's operating balance are summarized in the following table for fiscal years 1977 and 1978: Deposits, withdrawals, a n d balances in the U.S. Treasury account [In millions of dollars] Operating balance at beginning of period Cash deposits: Gross tax collections (selected) Public debt receipts Gas and oil lease sale proceeds Other Total cash deposits Cash withdrawals: Public debt redemptions Letter of credit transactions: Medicare HEW grants Unemployment insurance Other Total cash withdrawals Operating balance at close of period Fiscal 1977 Fiscal 1978 17,414 19,104 355,468 458,101 1,510 54,446 404,388 480,758 869,525 950,268 416,250 440,402 18,790 23,591 2,308 396,896 24,021 26,516 9,385 446,604 867,835 946,928 19,104 22,444 65,122 ADMINISTRATIVE 175 REPORTS Investments.—The Secretary of the Treasury, under specific provisions of law, is responsible for investing various Government trust funds. The Department also furnishes investment services for other funds of Government agencies. At the end of fiscal 1978, Government trustfunds and accounts held public debt securities (including special securities issued for purchase by major trustfunds as authorized by law). Government agency securities, and securities of privately owned Government-sponsored enterprises. See the Statistical Appendix for tables showing the investment holdings by Government agencies and accounts. Issuing and redeeming paper currency.—The Treasury is required by law (31 U.S.C. 404) to issue U.S. notes in amounts equal to those redeemed. In order to comply with this requirement in the most economical manner, U.S. notes are issued only in the $100 denomination. U.S. notes represent only a very small percentage of the paper currency in circulation. Federal Reserve notes constitute over 99 percent of the total amount of currency. The Bureau of Engraving and Printing prints and holds these notes in a reserve vault until needed by the Federal Reserve banks. The Bureau of Government Financial Operations accounts for Federal Reserve notes from the time they are delivered to the reserve vault by the Bureau of Engraving and Printing until redeemed and destroyed. A comparison of the amounts of paper currency of all classes, issued, redeemed, and outstanding during fiscal years 1977 and 1978 follows: [In thousands] Fiscal 1977 Outstanding beginning of period Issues during period Redemptions during period Outstanding end of period Fiscal 1978 Pieces Amount Pieces Amount 7,341,695 3,127,691 2,630,202 7,839,184 $86,189,614 22,714,508 14,538,870 94,365,252 7,839,184 3,823,271 2,620,030 9,042,425 $94,365,252 32,056,844 16,229,577 110,192,519 Details of the issues and redemptions for fiscal 1978 and of the amounts outstanding at the end of the year are given by class of currency and by denomination in a table in the Statistical Appendix. Other tables in that volume give further information on the stock and circulation of currency and coin in the United States. Data processing.—During fiscal 1978, 712.7 mUlion checks were paid and reconciled by the electronic check payment and reconcUiation system. These include all checks issued worldwide by civiHan and military disbursing offices. Additional improvements and further automation were incorporated into the central accounting system as part of an ongoing project. The system embraces all cash financial operations ofthe Government and is the data base for Federal budget results published in the Monthly Treasury Statement of Receipts and Outlays of the U.S. Government and in the annual Treasury Combined Statement of Receipts, Expenditures and Balances of the U.S. Government. Extensive support services were provided to the Division of Check Claims. New reporting and data collection procedures were implemented to support case tracking and status reporting through the check claims process. Additional automated services were implemented to facilitate the Treasury check truncation system. 176 1978 R E P O R T O F THE SECRETARY OF THE TREASURY Banking and cash m a n a g e m e n t Division of Currency C/a/m^.—Arrangements for the Federal Reserve branch bank at Baltimore to ship coin to, and receive deposits of coin from Washington, D . C , banks were completed September 30, 1978. The Treasury, which formerly provided these services, now performs no cash services with commercial banks or the general public except to redeem mutilated currency. During fiscal 1978, nearly 50,000 mutUated currency claims were received and $8.9 miUion was paid out in settlement thereof. At the end of the year, only 231 cases remained unprocessed. Nearly all of these are classified as "difficult" because considerable processing time is required due to the degree to which the currency has been burned or mutilated. Foreign currency management.—During fiscal 1978, the Foreign Currency Staff developed and published the foreign currency section, chapter 8000, of the TFRM which promulgates cash management policies and objectives for aU Government agencies. Included were procedures incorporating competitive bidding as part ofthe process for the selection of a commercial bank to provide the Government's required banking services overseas. As a result the Government has been able to obtain more favorable banking services with respect to the custody, purchase, deposit, and disbursement of foreign currencies. Through competitive bidding, the Govemment has entered into a 1-year contract with a commercial bank to purchase all U.S. Government Japanese yen requirements at a premium rate. This arrangement will result in a savings of $680,000. Federal depositary system.—The types of depositary services provided and the number of depositaries for each ofthe authorized services as of September 30, 1977 and 1978, are shown in the following table: Type of service provided by depositaries Receive deposits from taxpayers and purchasers of public debt securities for credit in Treasury tax and loan accounts Receive deposits from Govemment officers for credit in Treasury's general accounts Maintain cnecking accounts for Government disbursing officers and for quasi-public funds Maintain State unemployment compensation benefit payment and clearing accounts Operate limited banking facilities: In the United States and its outlying areas In foreign areas 1977 1978 14,029 859 5,387 44 14,063 741 5,395 (*) 191 215 156 (**) * The responsibility for compensating banks for handling unemployment accounts was transferred to the Department of Labor, effective Oct. 1, 1977. ** The management and funding of the overseas military banking facility program were transferred to the Department of Defense, effective Oct. 1, 1977. Paying grants through letters of credit.—At the close of fiscal 1978, 84 Government agency accounting stations were financing with letters of credit under the Federal Reserve bank system. During the period, the Bureau processed 145,945 withdrawal transactions aggregating $68,998 million, compared with 99,294 transactions totaling $60,420 mUlion in fiscal 1977. Treasury regulations governing advance financing under Federal grants and other programs that are contained in Treasury Department Circular No. 1075 have been revised to formally establish the letter of credit RDO system. At September 30, 1978, 61 Government agency accounting stations were financing with letters of credit under the Treasury RDO system. During the year. Treasury regional disbursing offices issued 75,507 checks totaling ADMINISTRATIVE REPORTS 177 $19,340 mUlion, in response to grantee requests, compared with 65,129 checks totaling $15,069 mUlion in fiscal 1977. Tax and loan investment program.—Public Law 95-147, October 28, 1977, provided the Secretary of the Treasury the authority to invest Treasury's operating cash in (1) obligations of depositaries maintaining Treasury tax and loan accounts and (2) obligations of the United States and of agencies ofthe United States. The funds maintained in Treasury tax and loan accounts will be invested with participating depositary financial institutions, enabling the Treasury to earn a direct return on its temporarily excess operating cash. In return for the services provided as depositaries, financial institutions will receive a fee for each Federal tax deposit processed. The financial institutions eligible to become depositaries will be expanded to include savings and loan associations and credit unions. The fiscal activities to carry out this investment program will be performed by Federal Reserve banks. Substantial progress was accomplished during this reporting period on the design and implementation phases of the program. Significant mUestones achieved were: The issuance of proposed and final rulemaking to accomplish regulatory changes; the issuance of procedural instructions to depositary financial institutions; the provision of procedural instructions to Federal Reserve banks; and the design and implementation of automated systems at Federal Reserve banks to carry out the fiscal activities required by this program. Net earnings from this program have been projected at between $50 mUlion and $100 mUlion annually. The Treasury is scheduled to start the investment program in fiscal 1979. Processing Federal tax deposits.—During fiscal 1978, the Fiscal Service regulation (31 CFR part 214) regarding the deposit of Federal taxes made by a taxpayer directly at a Federal Reserve bank was changed. The former provisions of this regulation were very liberal and permitted a tax depositor to make a tax deposit at any Federal Reserve bank with a check drawn on any commercial bank. The provisions governing commercial banks acting as depositaries for Federal taxes were more restrictive and required a commercial bank to accept as payment of a tax deposit a check drawn on and to itself. As compared with a deposit at an authorized commercial bank, the former provisions concerning tax deposits at Federal Reserve banks permitted, and generally resulted in, slow availability of funds to the Treasury. The regulation was changed to reflect the following: A Federal Reserve bank shall, through any of its offices, accept a tax deposit directly from a taxpayer when such tax deposit is in the form of cash or check drawn to the order of that bank and considered to be an immediate credit item by that bank. When a deposit of Federal taxes is not in accordance with this provision the bank will place a stamp impression on the FTD form reflecting the name ofthe bank and the date on which the proceeds of the accompanying payment instrument are collected by the bank. This date will be used to determine the timeliness ofthe Federal tax payment. Destruction of unfit currency.—Emphasis in fiscal 1978 was in working with the Federal Reserve banks in the development and installation of automated high-speed currency-processing equipment, specifically as it relates to the identification, counting, and destruction of Federal Reserve notes which are no longer fit for circulation. During the year, nine pieces of equipment were tested at five banks for their acceptability in disposing of unfit currency. This equipment shreds the unfit currency into 1/8-inch strips and supplants incineration at those banks which have only incinerators to destroy currency. 178 1978 REPORT OF THE SECRETARY OF THE TREASURY Consequently, much of the unfit currency is now being destroyed by the ecologically cleaner methods of pulverization at most of the banks which do not yet have high-speed equipment and shredding at the banks which have installed such equipment. This will increase substantially as additional banks install high-speed equipment. Cash management.—Chapter 8000, entitled "Cash Management," (included in part 6 of volume I ofthe Treasury Fiscal Requirements Manual) was issued on March 31, 1978. Chapter 8000 contains the detailed fiscal requirements which implement the provisions of Treasury Department Circular No. 1084 issued on December 29, 1976. This Circular established the policy governing cash management practices within the Federal Government. Chapter 8000 prescribes the procedures to be observed by all Government departments and agencies whose financial transactions affect the cash account ofthe Treasury through bUlings, collections, deposits, disbursements, advance funding operations, and cash held outside the Treasury to assure effective management ofthe Government's cash when these organizations are developing regulations, systems, and procedures. These fiscal requirements establish the regulations pursuant to which affected organizations are to conduct their financial activities in order to maximize the amount of cash avaUable to, this Department on a continuing basis for purposes of investment and to preclude unnecessary borrowing. Operations planning and research The Operations Planning and Research Staff is continuing its systems developmental activities for a number of fiscal functions, including the following major systems revisions: (1) Expansion of the direct deposit-electronic funds transfer program through which recipients of recurring Federal payments receive credit directly in their accounts at their financial organizations is well underway. In 1978, the program was extended to include recipients of Federal salary payments of one agency as a pilot program. Plans are to include other agencies with their Federal salary payments beginning in 1979. The staff is also coordinating the inclusion of payments made by other Federal disbursing activities, particularly those of the Department of Defense. Approximately 88.2 million Treasury payments were made by the EFT system during fiscal 1978. (2) The joint developmental efforts of the Treasury and the Federal Reserve to develop a check truncation system progressed to implementation within the Bureau and the Federal Reserve banks with approximately 85 percent of the checks being processed under the new system. Full-scale implementation of the system is scheduled for December 1978. Under this system, the flow of paid Treasury checks stops at the Federal Reserve bank level. Magnetic tapes and microfilm records are prepared for the hundreds of millions of checks formerly shipped by the Federal Reserve banks to Treasury for final payment and reconciliation. Miscellaneous fiscal activities Auditing.—During fiscal 1978 the Audit Staff issued 75 audit reports on financial, compliance, and operational matters. The audits ranged from small imprest funds to the accounting for multibillion-dollar Federal trust funds and the audit of U.S. Government-owned gold. Onsite examinations were made at several ofthe Bureau's disbursing centers throughout the United States. Also, onsite audits were made of the cancellation, verification, and destruction of unfit currency at virtually all of the Federal Reserve banks and branches. ADMINISTRATIVE REPORTS 179 Substantial improvement in operations and internal controls resulted from the audits. An auditor was assigned to the President's reorganization project. Office of Management and Budget, to assist in developing accounting and budgetary systems. An auditor also served on the audit improvement project ofthe Joint Financial Management Improvement Program. The work of this project involved the setting of audit policy on a Government-wide basis and developing ways to promote more effective use of Federal, State, and local audit resources. Another auditor served as a member of the Secretary's Committee for the Audit of the Exchange StabUization Fund. As a result ofthe annual Audit Staff examination ofthe financial statements and related supporting information of surety companies, 287 of these companies qualified for Certificates of Authority as acceptable sureties and reinsurers on bonds running in favor of the United States (6 U.S.C. 6-13). Certificates are renewable each July 1, and a list of approved companies (Departmental Circular 570, Revised) is published annually in the Federal Register for information of Federal bond-approving officers and persons required to give bonds to the United States. Loans by the Treasury.—The Bureau administers loan programs with those corporations and agencies that have authority to borrow from the Treasury. See the Statistical Appendix for tables showing the status of those Treasury loans at September 30, 1978. Federal Financing Bank.—During the period, loans outstanding were increased by $12.7 bUlion, resulting in a balance at the end of fiscal 1978 of $48.1 billion. Interest of $2.8 billion was collected from borrowers and $2.7 billion was paid on borrowings from the Secretary of the Treasury. See the Statistical Appendix for comparative financial data for the Federal Financing Bank. Liquidation of Reconstruction Finance Corporation assets.—The Secretary of the Treasury's responsibUities in the liquidation of RFC assets relate to completing the liquidation of business loans and securities with individual balances of $250,000 or more as of June 30, 1957, and securities of and loans to railroads and financial institutions. Net income and proceeds of liquidation amounting to $60 million have been paid into Treasury as miscellaneous receipts since July 1,1957.Totalunliquidatedassetsasof September 30,1978, had a gross book value of $1.8 million. Liquidation of Postal Savings System.—Effective July 1, 1967, pursuant to the act ofMarch 28, 1966 (39 U.S.C. 5225-5229), the unpaid deposits ofthe Postal Savings System were to be transferred to the Secretary of the Treasury for liquidation. As of June 30, 1970, a total of $65.1 million, representing principal and accrued interest on deposits, had been transferred for payment of depositor accounts. All deposits are held in trust by the Secretary pending proper application for payment. Payments for fiscal 1978 totaled $202,472. Cumulative payments amount to $58.5 mUlion plus pro rata payments to the States and other jurisdictions of $6 miUion. The undistributed funds balance as of September 30, 1978, was $597,811. Government losses in shipment.—Claims totaling $231,007 were paid from the fund established by the Government Losses in Shipment Act, as amended (40 U.S.C. 721-729). Details of operations under this act are shown in the Statistical Appendix. Donations and contributions.—The Bureau received "conscience fund" contributions totaling $ 120,499 and other unconditional donations totaling $805,450. Other Government agencies received conscience fund contribu- 180 1978 REPORT OF THE SECRETARY OF THE TREASURY tions and unconditional donations amounting to $16,926 and $212,276, respectively. Conditional gifts to further the defense effort amounted to $850. Gifts of money and the proceeds of real or personal property donated in this period for reducing the public debt amounted to $341,567. Foreign indebtedness World War I.—The Governments of Greece and Hungary made payments during fiscal 1978 of $328,898 and $78,576, respectively. For a complete status of World War I indebtedness to the United States, see the Statistical Appendix. Credit to the United Kingdom.—The Government of the United Kingdom made principal and interest payments of $85.8 mUlion and $67.6 mUlion, respectively, which were due on December 31, 1977, under the Financial Aid Agreement of December 6, 1945, as amended March 6, 1957. Indonesia, consolidation of debts.—The Government of the Republic of Indonesia made payments in fiscal 1978 of $6,097,360 in principal and $731,683 interest on deferred principal instaUments, in accordance with the Indonesian Bilateral Agreement of March 16, 1971. The normal payment of interest on principal is not due untU June 11, 1985. Payments of claims against foreign governments The 18th instaUment of $2 million was received from the Polish Govemment under the Agreement of July 16, 1960, and pro rata payments on each unpaid award were authorized. The sixth installment of $2,796,000 was received from the Hungarian Government under the Agreement of March 6,1973. The sixth instaUment was greater than the minimum installment of $945,000 because 6 percent ofthe dollar proceeds of imports into the United States from Hungary for the 12 months ending December 31, 1977, exceeded the minimum installment by $ 1,851,000, thereby raising the annual installment from $945,000 to $2,796,000. An additional pro rata payment has been authorized to all entitled awardholders, and payments are now being made. Administration Equal employment opportunity.—In an effort to reduce the heavy expenses incurred during the EEO complaint process, the Bureau's EEO Staff initiated a program of annual in-house refresher training for its EEO counselors. The training is specifically aimed at improving their effectiveness during the informal counseling process. Consequent financial savings to be achieved cannot yet be estimated, but the Bureau has already experienced a reduction in the number of formal discrimination complaints. Procurement activity.—Five new or upgraded word processing systems were installed with resulting annual savings estimated at almost $1.3 million during the next 5 years: In a somewhat related area, following a cost-effectiveness study, the Bureau obtained approval to purchase copier machines, with a projected savings of $131,000 over a 5-year period. Another development concerns efforts being exerted to widen the basis of Bureau procurement, with a view to stimulating economic growth, and assisting small, minority-owned business concerns. Records control.—A comprehensive records control schedule, providing retention and disposition standards for all Bureau records, has been approved by the National Archives and Records Service, GSA. A reduction in retention ADMINISTRATIVE REPORTS 181 periods for certain records is expected to result in savings of over $100,000 in filing and storage costs. Labor-management relations.—The National Treasury Employees Union (NTEU) was certified the official collective bargaining representative of headquarters employees. Four of the Bureau's subordinate field offices are represented by other unions, and NTEU has filed a petition for a residual unit composed of the remaining nonunion Bureau employees in the field. Training.—Labor relations training has been established for management and supervisors to acquaint them with management's rights and obligations under the above-cited Bureau headquarters agreement with NTEU. A supervisory course has also been implemented during the year; participation for non-Bureau personnel is possible, but on a space-available basis. Additionally, an individual learning center was opened during the year, permitting employees to participate at their own pace and convenience. Participation in the Co-op, summer employment, and stay-in-school programs continues. Further, the Career Development Program for Lower Level Employees (CADE) was highly successful; the CADE skUls inventory is being automated, providing for greater efficiency and effectiveness. Finally, the Bureau placed one intern under the Presidential Management Intern Program. Troubled employee program.—This program continues into its third year, including not only alcoholism and drug abuse, but all personal problems affecting an employee's job performance. Part-time employment.—The Bureau has affirmed its policy of maximum utilization of persons interested in and qualified for part-time employment, and has designated certain positions as appropriate for such employment. Bureau of the Public Debt The Bureau ofthe PubHc Debt is charged with the administrative functions arising from the Treasury's debt management activities. These functions extend to transactions in the security issues of the United States, and of the Government agencies for which the Treasury acts as agent. The Bureau prepares the offering circulars and instructions relating to each offering of public debt securities, and directs the handling of subscriptions and making of allotments; prepares regulations governing public debt securities and conducts or directs all transactions thereof; supervises the public debt activities of fiscal agents and agencies authorized to issue and pay savings bonds; orders, stores, and distributes all public debt securities; audits and records retired securities and interest coupons; maintains individual accounts with owners of registered securities and authorizes the issuance of checks in payment of interest thereon; maintains book-entry accounts of eligible securities for individuals; processes and adjudicates claims on account of lost, stolen, destroyed, or mutilated securities; maintains accounting control over public debt financial and security transactions, security accountability and interest costs; and prepares public debt statements. The Bureau's principal office and headquarters is in Washington, D.C. An office is also maintained in Parkersburg, W. Va., where most Bureau operations related to U.S. savings bonds, U.S. savings notes, retirement plan bonds, and individual retirement bonds are handled. Management improvement A new productivity and cost-effectiveness system, providing computergenerated monthly reports on volumes of work processed, costs, workyears consumed, unit costs, and productivity factors, was installed. These figures are also compared with budgeted and prior-year figures. The new report provides 182 1978 REPORT OF THE SECRETARY OF THE TREASURY earlier and better information to Bureau m a n a g e m e n t and serves as a basis for regular reviews of productivity and resource utilization. Four Federal Reserve banks and three branches began reporting their daily activity in securities transactions to the Bureau via magnetic tape. Fifteen banks and branches are now participating in this ongoing program. Magnetic tape reporting enables the Bureau to immediately introduce the daily public debt activity into the processing cycle without data conversion. Thus, processing is more timely and daily reporting is m o r e timely and complete. In addition, 23 banks and branches are now reporting all or part of their m o n t h e n d accountability balances via magnetic tape on a monthly basis. T h e Treasury and agency securities accounting system can now p r o d u c e Treasury, agency, and savings bond journals and ledgers in hard copy or on microfilm. T h e cash accounting system can also now p r o d u c e the cash journal on microfilm. Microfilming of these journals and ledgers has resulted in space reductions in the filing and storing of these records. T h e installation of systems furniture and mechanical file retrieval systems has also resulted in space savings. T h e use of these systems and a thorough analysis of current space configurations allows for the most efficient utilization of office space. T h e use of revised workflow p r o c e d u r e s and group dynamics resulted in a reduction in processing time for r e d e e m e d and retired securities. As a result, certified audit results and up-to-date information is being provided on a m o r e timely basis. T h e issues-on-tape program was expanded to include six additional issuing agents. Approximately 64 mUlion sales of series E savings bonds were reported on tape by 69 participating agents. A recurring annual savings of approximately $1,282,000 should be realized based on the volume of issues handled by these agents. T h e Bureau established an A D P m e m o r a n d a system which enables managem e n t to provide instructions related to the implementation of O M B , departmental, and Bureau policy and p r o c e d u r e s related to the effective management of A D P resources. Some of the areas covered this year were ( 1 ) development of a glossary of A D P terms so that users and data processing personnel have a c o m m o n ground of communication; ( 2 ) statement of policy regarding the review and disposition of excess A D P equipment; ( 3 ) installation of a formal A D P planning system which includes the requirement that longrange plans be m a d e in conjunction with the budget process so that p r o p e r funding can be m a d e ; and ( 4 ) establishment of a system to ensure that p r o p e r steps are taken in the acquisition of A D P and data/telecommunications equipment, and that inventories of Bureau equipment are effectively maintained. T h e following organizational and functional realignments were made to maximize work efficiency and improve personnel utilization: 1. A new Division of Investor Accounts was estabhshed to service and maintain the ever-increasing n u m b e r of book-entry securities accounts and to assume the responsibility of establishing and maintaining accounts for registered securities. 2. With the transfer of the functions for establishing and maintaining accounts for registered securities to the Division of Investor Accounts, the n a m e of the Division of Public Debt Accounts was changed to the Division of Public D e b t Accounting. A new Accounting Review Branch was established to review and evaluate internal operating procedures and accounting systems. ADMINISTRATIVE REPORTS 183 participate in Bureau-wide accounting system development projects, and test and implement new accounting systems and procedures. 3. The Division of Securities Operations transferred its functions relating to book-entry securities to the new Division of Investor Accounts. Also, similar-type functions within the Division were combined where possible. 4. The Division of ADP Management reallocated its personnel due to a tapering off of its responsibility to convert existing computer systems to a new Univac 1110 computer. Emphasis wiU now be placed on developing new computer systems. Bureau operations During the fiscal year, 169,000 individual accounts covering publicly held registered securities other than savings bonds, savings notes, individual retirement bonds, and retirement plan bonds were opened, and 98,000 were closed. This increased the number of open accounts to 509,000, covering registered securities in the principal amount of $37,449 miUion. There were 797,000 interest checks with a value of $1,545 million issued during the period. Redeemed and canceled securities received for audit, other than savings bonds, savings notes, and retirement plan bonds, included 2,642,000 bearer securities and 380,000 registered securities. Coupons totaling 7,578,000 were received. During the period, 45,000 registration stubs of retirement plan bonds, 33,000 registration stubs of individual retirement bonds, 2,591 retirement plan bonds, and 634 individual retirement bonds were received for audit and recordation. A summary ofthe public debt operations handled by the Bureau appears on pages 16-34 of this report and in the Statistical Appendix. U.S. savings bonds.—The issuance and retirement of savings bonds result in a heavy administrative burden for the Bureau of the Public Debt, including auditing and classifying all sales and redemptions; establishing and maintaining registration and status records for all bonds; servicing requests from bond owners and others for information; and adjudicating claims for lost, stolen, and destroyed bonds. Detailed information on sales, accrued discount, and redemptions of savings bonds will be found in the Statistical Appendix. There were 164 million registration stubs or records on magnetic tape and microfilm received, representing the issuance of series E savings bonds, making a grand total of 4,422 million, including reissues, received through September 30, 1978. All registration stubs of series E bonds are microfilmed, audited, and destroyed, after required permanent record data are prepared by an EDP system in the Parkersburg office. Ofthe 136 miUion series A-E savings bonds and savings notes redeemed and charged to the Treasury during the period, 132 million (96.8 percent) were redeemed by authorized paying agents. For these redemptions the agents were reimbursed quarterly at the rate of 15 cents each for the first 1,000 bonds and notes paid and 10 cents each for all over the first 1,000 for a total of $16,710,000 and an average of 12.70 cents per bond and note. Interest checks issued on current income-type savings bonds (series H) during the period totaled 4,222,000 with a value of $510 mUlion. New accounts established for series H bonds totaled 108,000 while accounts closed totaled 124,000. 184 1978 REPORT OF THE SECRETARY OF THE TREASURY Applications received during the period for the issue of duplicates of savings bonds and savings notes lost, stolen, or destroyed after receipt by the registered owner or his agent totaled 60;000. In 37,000 of such cases the issuance of duplicate bonds was authorized. In addition, 20,000 applications for relief were received in cases where the original bonds were reported as not being received after having been mailed to the registered owner or his agent. OFFICE OF FOREIGN ASSETS CONTROL The Office of Foreign Assets Control administers five sets of regulations which implement the Department of the Treasury's freezing controls. The Foreign Assets Control Regulations and the Cuban Assets Control Regulations prohibit, unless licensed, all trade and financial transactions with North Korea, Vietnam, Cambodia, and Cuba and their nationals. South Vietnam and Cambodia were added to the schedule of blocked countries under the Foreign Assets Control Regulations following the takeover of these countries by Communist forces in AprU 1975. These regulations also block assets in the United States of the above-named countries and their nationals. Under a general license contained in the Foreign Assets Control Regulations, all transactions with the People's Republic of China are now authorized, except transactions abroad by foreign firms owned or controlled by Americans involving shipment to the People's Republic of China of internationally controlled strategic merchandise unless the transaction is appropriately licensed under the Transaction Control Regulations (see below). Also, transactions in Chinese assets blocked in the United States as of May 6, 197 1, remain prohibited. During the fiscal year, the Foreign Assets Control and the Cuban Assets Control Regulations were amended to authorize persons in the United States to remit limited amounts annually to Cuba and Vietnam for the support of close relatives and on a one-time basis to enable such relatives to emigrate. The Cuban Assets Control Regulations were also amended by the addition of a general license authorizing certain transactions ordinarily incident to travel to, from, and within the United States by certain Cuban nationals holding U.S. visas. These regulations were further amended by the issuance of an announcement of the availability of licenses for transactions involving participation by certain Cuban nationals in public exhibitions or performances in the United States and by U.S. nationals when participating in simUar events in Cuba. The Transaction Control Regulations supplement the export controls exercised by the Department of Commerce over direct exports from the United States to Eastern Europe and the U.S.S.R. by controlling certain goods of foreign origin not subject to Commerce control. These regulations prohibit, unless licensed, the purchase or sale or the arranging of the purchase or sale of strategic merchandise located outside the United States for ultimate delivery to Communist countries of Eastern Europe, the U.S.S.R., the People's Republic of China, North Korea, Vietnam, and Cambodia. The prohibitions apply not only to domestic American companies, but also to foreign firms ADMINISTRATIVE REPORTS 185 owned or controlled by persons within the United States. A general license permits sales of these commodities to the listed countries (other than North Korea, Vietnam, and Cambodia) provided shipment is made from and licensed by a Coordinating Committee (COCOM)-member country. (COCOM is a NATO entity.) The Office also administers controls on assets remaining blocked under the World War II Foreign Funds Control Regulations. Those controls continue to apply to blocked assets of Czechoslovakia, Estonia, Latvia, Lithuania, and East Germany and nationals thereof who were, on December 7, 1945, in Czechoslovakia, Estonia, Latvia, or Lithuania, or on December 31, 1946, in East Germany. I Finally, the Office administers the Rhodesian Sanctions Regulations which iniplement United Nations Resolutions calling upon member nations to impose [mandatory sanctions on Southern Rhodesia. The regulations include comprethensive controls on the importation ofmerchandise of Rhodesian origin. There jjS also a prohibition, except as licensed, on the importation of ferrochromium produced in any country from chromium ore or concentrates of Rhodesian Oirigin; on the importation of non-Rhodesian chromium ore, except when imported directly or on a through bill of lading; and on the importation from stray country of ferrochromium and of steel mill products in their basic shapes /and forms which contain more than 3 percent chromium. A general license in ' the regulations authorizes imports of ferrochromium and of steel mUl products ' that are certified by the govemment ofthe producing country not to contain any chromium or ferrochromium of Rhodesian origin. Under the Foreign Assets Control Regulations and the Transaction Control Regulations, the number of specific license applications received from October 1, 1977, through September 30, 1978 (including applications f reopened) was 190. During that period, 190 applications were acted upon. Applications for licenses and requests for reconsideration under the Cuban Assets Control Regulations totaled 484 during fiscal 1978. During this period, * 508 applications were acted upon, including carryover cases. During the period, 390 applications (including applications reopened) were received under the Rhodesian Sanctions Regulations; 389 applications were acted upon. Nine applications (including applications reopened) were received under the Foreign Funds Control Regulations; 10 were acted upon, including carryover cases. Certain broad categories of transactions are authbrized by general licenses set forth in the regulations, and such transactions may be engaged in by interested parties without the need for securing specific licenses. During the fiscal year, two criminal cases involving violations of the Foreign Assets Control Regulations were forwarded to the Justice Department. A payment of $2,844 for violation ofthe Cuban Assets Control Regulations, as i a mitigated penalty in lieu of forfeiture, was received by the U.S. Customs i Service. At the fiscal yearend merchandise was under seizure in three cases for having been imported in violation of the regulations. On September 8, 1978, the President made a determination that it was in ^^the national interest of the United States to continue for another year the emergency legal authorities of section 5(b) ofthe Trading with the Enemy Act Ibas a basis for the following: (1) The Foreign Assets Control Regulations, (2) [the Transaction Control Regulations, (3) the Cuban Assets Control Regula, tions, and (4) the Foreign Funds Control Regulations. 186 1978 REPORT OF THE SECRETARY OF THE TREASURY INTERNAL REVENUE SERVICE i The Internal Revenue Service administers the internal revenue laws embodied in the Internal Revenue Code (26 U.S.C.) and certain other statutes, including the Employee Retirement Income Security Act of 1974 (Public Law 93-406, 88 Stat. 829). Collecting The Revenue Returns processing IRS service centers received 136.7 million tax returns of all types in fiscal| 1978 compared with 133.5 million in 1977. Ofthe returns received in 1978,] over 89.1 million were individual and fiduciary income tax returns a^ compared with 87.3 million in 1977. After several years of increase up to 1977, the number of form 1040 filerjs decreased this year whUe the ranks of form 1040A filers continued to grov The shift from form 1040 to the shorter 1040A was due to the simpHficatiojn of the form and its increased availability made possible by the Tax Reduction and Simplification Act of 1977 and to the form 1040A being mailed te taxpayers who had used the 1040 in 1977 but were eligible to file the shorter! form. The Service received 53.2 miUion forms 1040 in 1978, 6.1 percent less •' than the 56.5 miUion received last year. More than 34 mUlion individual 1 taxpayers, 39 percent of all individual filers, used the form 1040A, compared with over 29 million in 1977, an increase of 17.3 percent. The IRS checked the mathematics on 87.6 million individual returns. As a result, 2 million taxpayers had decreases in the liabUity shown on their returns totaling $309 million, an average of $ 152 per return, resulting in larger refunds or smaller tax due. On 3.4 million returns, correction of taxpayers errors increased their tax liability by $791 million—an average of $235. Error rates for forms 1040A processed dropped dramatically from last year. In 1977, 12 percent of aU forms 1040A processed over the same period had mathematical errors, while in 1978 only 5.1 percent had such errors. Error rates for the redesigned form 1040 also fell, from 9.1 to 6.5 percent in a tally taken at the close of the annual filing period. The decrease in math errors was mainly attributable to changes made by the Tax Reduction and Simplification Act of 1977 and redesign ofthe forms 1040 and 1040A. The new forms eliminated the need for many taxpayers t o , calculate their taxes which was the cause of numerous errors in previous years. The Service also checked the estimated tax credit claimed on individual returns. The verification showed that taxpayers underclaimed $259 miUion in estimated tax credits and overclaimed by $474 million. Receipts Gross revenue collections amounted to $399.8 billion, an increase of $41.6' bUlion (11.6 percent) over 1977. AU major tax categories with the exception of estate and gift taxes showed an increase. Factors contributing to this year's collection picture were higher personal income, higher corporate profits, and increases in the social security tax rate and base. ! Income taxes accounted for over two-thirds of all tax receipts. Individualincome taxes amounted to $213.1 biUion, a gain of $26.3 billion (14.1 percent)' I Additional information will be found in the separate Annual Report of the Commissioner of Internal Revenue. ADMINISTRATIVE REPORTS 187 over the prior year. Corporation income taxes collected were $65.4 biUion— up $5.3 billion (8.9 percent). Employment taxes—social security, self-employment. Federal unemployment, and raUroad retirement—totaled $97.3 bUlion, advancing $11.2 bUlion (13 percent). This increase reflected a higher level of wage and salary payments, increases in the amounts subject to social security and unemploy' ment taxes, and an increase in the social security rate. Excise taxes registered the smallest advance of any major tax category, rising $800 miUion (4.7 percent) on collections of $18.7 bUlion. Much of the^ain was generated by excises related to autos and air transportation. A new excise tax on coal to finance the payment of black lung benefits to miners was effective AprU 1, 1978. I Estate and gift tax collections registered the only decrease, falling $2 billion I (27.5 percent). The decline was from last year's abnormaUy large gift tax I receipts caused by the pending estate and gift tax revisions of the Tax Reform ^ Act of 1976. Refunds i The IRS paid refunds totaling $39.6 biUion to 69 million taxpayers whose irficome tax withholding, estimated tax payments, or credits were shown on ^tHieir returns to have exceeded their tax liabilities. The average refund to iridividuals was $495. This year's individual refunds included 4.3 mUlion Checks totaling $900 mUlion for the earned income credit (EIC). In 1977, 67.9 million individual refunds totaling $36.5 billion were paid, with 4.4 mUlion checks for $900 miUion in EIC. Penalties and interest The IRS under the law can levy penalties such as those for failure to pay tax due, bad checks, delinquency, negligence, and fraud. More than 15 million •penalties totaling $1.3 billion were assessed with 1.4 million of these amounting to $336 million abated. Almost half of the penalties were for individual returns. The Service also is required to assess interest against taxpayers who fail to meet payment requirements. More than $85 million in interest was assessed on individual returns this year, ofwhich $4 million was abated. For business returns, interest assessed was $759 million with abatements of $95 million. ^ Interest paid this year amounted to $108 million for individual and employment taxes and $198 mUlion for corporations. Presidential election campaign fund A total of 24.9 mUHon individual income tax returns had designations for the Presidential election campaign fund in 1978—28.9 percent ofthe returns processed during that period. The amount designated was $39.1 mUlion. In J 9 7 7 , there were 23.2 million individual tax returns—27.5 percent of those processed—with designations totaling $36.5 million. The cumulative amount credited to the fund since it was initiated in 1972 is $171.5 mUlion. Information returns The IRS received nearly 484 million information returns from businesses and organizations required to report payments of wages, interest dividends, and other payments. Over 265 mUlion of these documents were submitted on magnetic media as a result ofthe Service's continuing program to encourage payers that have computer capability or computers to do so. 188 1978 REPORT OF THE SECRETARY OF THE TREASURY Ofthe information returns received, all of those filed on magnetic media that report income paid to individuals and approximately 15 percent of those on paper will be matched against the master file. Combined annual wage reporting Combined annual wage reporting (CAWR) is a new system for reporting, employee wage data which has been developed to reduce the reporting burden for employers. This new system wiU satisfy the reporting requirements of both the IRS and the Social Security Administration (SSA). CAWR became effective for all wages paid after December 31, 1977. Under CAWR, the requirement to file schedule A with employment tax forms 941 and 943 became obsolete and the form W-2 was redesigned to transmit the Federal Insurance Contributions Acti information formerly filed on schedule A. The forms W-2 are to be filed withl the SSA which will transcribe the information and supply it to the IRS.^ By eliminating schedule A, the President's Advisory Council estimated an annual savings to employers of $235 miUion. Assisting The Taxpayer Direct assistance The Service provides taxpayers with comprehensive information about tfie tax system and their responsibilities and rights under it. Aware that the process of determining income, exemptions, deductions, and correct tax can be difficult, the IRS provides direct assistance through personal contact, by telephone and by correspondence. During 1978, the IRS received about 93,000 written, 28 million telephone, and 9 million walk-in inquiries. More than 63 percent of these inquiries occurred from January 1 through AprU 29,1978—over 17 million phone calls,, more than 6 mUlion walk-in inquiries, and over 38,000 written inquiries— almost 24 mUlion requests for assistance. Over 196,000 ofthe responses to telephone calls and returns prepared after IRS assistance were reviewed as part of the quality review system, and an overall national accuracy rate of 97.5 percent was found. Filing period walk-in taxpayer assistance was offered at about 690 permanent offices and at 200 temporary offices set up for the filing period.. These offices were located in the inner city, business districts, and suburban and rural areas. When possible, hours of service were extended for taxpayers unable to call or visit during normal business hours. Most taxpayers were required to wait less than half an hour and more than half waited less than 15 minutes for assistance. The IRS continued to provide bilingual service to taxpayers who do not speak English. Of approximately 890 taxpayer service offices, 207 offices had tax assistors who spoke foreign languages. Spanish assistance was provided by 487 employees, and 515 employees assisted in other foreign languages. Bilingual taxpayer assistance also was provided through a questionnaire, translated into Spanish, Chinese, and Vietnamese, that was issued to taxpayers who could not communicate in English. IRS toll-free telephone service continues to reach more taxpayers with greater efficiency than any other method of assistance. Almost 97 percent— 17.2 million—ofthe telephone calls received during the 1978 filing period were on the toll-free system. This represented 72 percent of total taxpayei inquiries received during the same period. ADMINISTRATIVE REPORTS 189 The toll-free system makes IRS offices as close to taxpayers as their phones. By using this system, without paying a long-distance charge, taxpayers anywhere in the United States may call the IRS for assistance or clarification of bills or notices received. Toll-free numbers are listed in the tax packages and are also publicized to alert taxpayers to this service. During this filing period, calls answered by TV phones and teletypewriter service for the deaf increased by 4 percent. This special service has a nationwide toll-free number, excluding Alaska and ftawaii, staffed by the Indianapolis district. As a result, hearing-impaired taxpayers have access to services similar to those offered other taxpayers. This year marked the 10th year of the IRS volunteer income tax assistance (VITA) program. Under this program, the Service attracts, recruits, and trains volunteers to offer free tax assistance to low-income, elderly, or disadvantaged taxpayers at convenient locations and times. Approximately 30,000 volunteer assistors were trained by the Service as part of the VITA program—a 50percent increase over last year. While VITA assistance increased, a decline was noted in the quality of VITA-prepared returns. In 1979, the primary objective for VITA wiU be [improved program quality and management. \ The Service's taxpayer education program sponsored over 4,000 classes for labout 200,000 individuals. Additionally, in the school programs, **Under^standing Taxes" and "Fundamentals of Tax Preparation," about 5 million tax course books were distributed to high school and college-level students throughout the country. Media assistance The Service relies heavily on the mass media to inform the public about its operations and to explain tax laws, regulations, rulings, and procedures. During 1978, material was sent to 16,067 radio and TV stations, daily and weekly newspapers, magazines, and special publications. Additionally, Service personnel participated in 6,158 interviews and answered 18,568 media inquiries. The IRS issued 4,901 releases to the media covering substantive technical and procedural matters, tax forms and publications, statistics, speeches by IRS officials on important tax topics, and organizational changes. There also were releases to assist taxpayers in meeting due dates and properly filling out forms and in understanding their rights and responsibUities under the tax law. Four IRS half-hour color films presented information on the American tax system, audit and appeal rights and responsibilities, tax aspects of running a small business, and how to prepare a tax return. These films, two ofwhich also were released in Spanish, appeared 514 times on TV across the Nation and 3,045 times before professional, trade, civic, educational, and other groups. Earned income credit The Service continued to alert the public to the eamed income credit, which benefits low-income taxpayers. With the cooperation of other Federal agencies such as the Departments of Health, Education, and Welfare, Agriculture, and Labor special notices were sent to those considered eligible for the EIC. Also, nearly one million notices were sent to taxpayers whp filed returns without claiming the EIC who possibly qualified according to their tax return information. As a result, nearly 452,000 additional claims for the EIC were allowed. 190 1978 REPORT OF THE SECRETARY OF THE TREASURY January 1 through September 30, approximately 5.6 mUlion taxpayers claimed the EIC for a total of approximately $1.1 billion, averaging out to nearly $203 per taxpayer. Individuals who filed returns only to claim the EIC received almost 6 percent of these credits. Simplifying the forms The last-minute congressional preadjournment flurry of activity produced the year's most important legislation for the IRS, taxes and energy. The-very real resulting problem for the IRS was to reflect these late changes in the law, in the forms and instructions being designed and printed for 197 8 so they could be available for taxpayers in time. Despite problems created by legislative changes, simplification efforts continued. This year's efforts focused on rewriting and redesigning the instructions for forms 1040A, 1040 and related schedules. The instructions | now have a ninth-grade readabUity level compared with a 13-14 grade level 2 years ago. Graphic design changes were also made in an effort to improve the instructions. But simplification efforts were not limited to the form 1040 family. Th instructions for Form 941, Employer's Quarterly Federal Tax Return, wen rewritten and Circular E, Employer's Tax Guide, is being rewritten, both t improve readability. In addition, after the Service requested comments on |a simplifled Form 940, Employer's Annual Federal Unemployment Tax Return, a new form 940 was developed which eases the computation of unemployment tax for over 90 percent of its filers. Form 5329, Return for Individual Retirement Arrangement Taxes, and Form 5500-K, Annual Return/Report of Employee Pension Benefit Plan for Sole Proprietorships and Partnerships, also were revised. The 1978 form 5329 will be filed only by individuals who owe one of three individual retirement arrangement taxes on excess contributions, premature distributions, and ^ certain accumulations in IRA accounts or annuities. Form 5500-K no longer is required for plans in which an owner-employee is the only participant in 1978 and all previous plan years, nor is it required for partnerships when the only plan participants are partners who own more than a 10-percent interest in either the capital or profits of the partnership. In July the General Accounting Office issued a report entitled "Further Simplification of Income Tax Forms and Instructions Is Needed and Possible." The report stated that although the Service has progressed in making the forms'* and instructions easier to read and understand, more can be done. GAO suggested that the Service establish a high-level task force to improve the forms. This task force, consisting ofthe Commissioner, Deputy Commissioner, and several Assistant Commissioners, has met and is developing a plan of operation. Also, public hearings on the forms were held in Denver, Colo.; Des Moines, Iowa; Columbia, S.C.; and Columbus, Ohio. Although many ofthe suggestions-* wiU help to improve the 1978 tax forms under existing law, others require change in the law. Publications AU publications were revised to cover the many changes in the law and regulations, and continuing a policy adopted in recent years, the Service, distributed a number of publications free of charge. During the year, 3.r mUlion copies of Ptiblication 17, Your Federal Income Tax, were distributed, along with 1.1 million copies of Publication 334, Tax Guide for SmaU Business,^ ADMINISTRATIVE REPORTS 191 and 830 copies of Publication 225, Farmer's Tax Guide. Additional tax materials including tax return forms were furnished on request to over 6 million individual taxpayers, 600,000 tax practitioners, and 360,000 employers. Over 35,000 banks and Postal Service locations helped distribute more than 250 mUlion tax forms and instructions. Besides the three comprehensive tax guides, the Service issues over 80 small publications concerning such matters as income tax, excise tax, exempt organizations, pensions and annuities, and estate and gift tax. Three of the publications were written in Spanish—publications 597S, 556S, and 584S— explaining basic rules about preparing and filing a tax return, taxpayer rights if a return is examined, and the taxpayer's payment responsibUities if additional tax is due. Resolving problems Under the problem resolution program (PRP), the IRS attempts to resolve taxpayers' complaints not satisfied through normal channels and to identify systemic and procedural problems needing correction. During 1978, approximately 66,000 taxpayer problems were resolved through PRP. Review and evaluation was continued this year with procedures rewritten I to provide a more structured, uniform, and visible program and to expand PRP 4 o service centers. Many systems and procedural changes have resulted from PRP, improving Service efficiency and responsiveness to the public. A major success of the program has been the establishment of liaison with other Government agencies to assist in the resolution of taxpayer problems such as lost and stolen refund checks, and internal processing problems such as incorrect social security numbers. Making information available To reflect the Service's attitude that responding promptly to requests for information and documents under the disclosure laws and the Freedom of Information and Privacy Acts is an important part of service to the public, the Disclosure Operations Division and its field counterpart were moved from the Compliance function to the Office of the Assistant Commissioner (Taxpayer Service and Returns Processing). During calendar 1977, 7,913 requests were received for documents not available in IRS Freedom of Information Reading Rooms. Of these there were 5,438 full grants and 748 partial grants. In addition, the National Office Reading Room responded to 18,415 requests. Under the Privacy Act, 738 requests for access to records were received, ofwhich 475 were granted in full and 95 were granted in part. Only 10 requests were received to amend records. The Service accelerated efforts to protect the confidentiality of tax returns and return information by increasing disclosure training for employees, beginning an annual review of safeguards of other Federal agencies that are entitled under the law to obtain confidential tax information, and by implementing recordkeeping and reporting requirements for the disclosure of tax returns and return information. The Tax Reform Act of 1976 revised the disclosure provisions in the tax law by considerably restricting the methods by which Federal agencies may obtain tax information for nontax purposes, and requires that those who have access to such information maintain safeguards for its protection. Federal tax information received by States may be disclosed only to State agencies charged with administering State tax laws, upon request of the head of the State tax agency. A new provision permits disclosure of tax information to Federal, 192 1978 REPORT OF THE SECRETARY OF THE TREASURY State, and local child support enforcement agencies to collect chUd support obligations. Among disclosures made in this year were 3,148 to the Department of Justice, 35,249 to child support enforcement agencies, and approximately 80 million to State tax agencies. Efforts to maximize the exchange of tax information between the Service and State tax administrators were undertaken and the responsibility given to the Disclosure Operations Division. The exchange of confidential tax information with the States is intended to increase tax revenues, reduce duplicate audits, and increase taxpayer compliance. As part of this program, the Service, through its field disclosure officers, visits each State tax agency semiannually to determine that safeguards adequately protect the confidentiality of information provided. All Federal/State agreements on coordination of tax administration that were in effect before enactment of the Tax Reform Act of 1976 were amended. There are now 97 agreements in effect. ^ Helping other countries j In 1963 the Service, through the Tax Administration Advisory Services | Division and in cooperation with the Agency for International Development]! (AID), initiated a program to assist foreign governments in modernizing their I tax administration systems, emphasizing effectiveness, efficiency, and equityJ j IRS advisers have been assigned to 37 countries, the Caribbean Community^ and the Central American Secretariat for Economic Integration for periods of from 2 weeks to several years. Funding is provided by AID, the recipient countries, or international agencies. This year long-term assistance programs were completed in El Salvador, Uruguay, and Trinidad and Tobago and onsite projects were initiated in Egypt, Liberia, Jordan, the Northern Mariana Islands, and the Trust Territory ofthe Pacific Islands. New projects are pending for El Salvador, Sierra Leone, and the Caribbean. Also, diagnostic surveys were completed in Nicaragua, Egypt, and Jordan, and a followup assessment was made ofthe Trinidad and Tobago project. Since 1963 over 5,000 visitors from 127 countries have visited the Service for orientation and study observation programs. This year 387 officials from 66 countries participated. There was an increase in the number of representatives from European countries—France, Italy, United Kingdom—with programs that focused on IRS automation and organizational structure and the voluntary compliance, self-assessment system. In addition, there were frequent exchange visits between Canadian National Revenue and IRS officials. A 7-week middle-management seminar in tax administration for tax officials from six countries was presented, and a special 6-week intensive orientation in automatic data processing, sponsored by the Organization for European Community Development, was held for Turkish tax officials. Participants from Harvard's international tax program and two International Monetary Fund public finance groups visited the IRS. A group of high-level Nigerian civU servants, sponsored by Brookings Institution, received a special presentation by the Deputy Commissioner on the management structure of the IRS. The Service's participation in the 26 member country Inter-American Center of Tax Administrators (CIAT) featured a presentation by the Commissioner, "Developing Tax Laws, Administrative Rules, and Procedures for Resolving Taxpayers' Disputes," to the 12th general assembly in Port-ofSpain, Trinidad and Tobago, in May 1978. Assistance was provided to CIAT for automatic data processing diagnostic studies in the Dominican Republic j ADMINISTRATIVE REPORTS 193 and Honduras and for systems analyst guidance in Guatemala. The Director, Tax Administration Advisory Services Division, finished his term as a member of CIAT's Executive CouncU, and the Assistant Commissioner (Data Services) was a member of the ADP Advisory Committee. The Service's assistance to States, local governments, territories, and the Commonwealth of Puerto Rico includes the participation of their employees and officials in training courses conducted by the IRS, supplying training aids, and the assignment of IRS personnel for onsite technical assistance. The Intergovernmental Personnel Act of 1970 has been an important vehicle for the assignment of administrative expertise between the IRS and the States and territories. The Tax Administration Advisory Services Division has coordinated 32 assignments to 10 States, Puerto Rico, Guam, the Virgin Islands, and the University of Southern California, with emphasis on mutual benefit. In 1978, the Division received 11 requests and inquiries from States, territories, and a university for assignments of IRS personnel. Two employees were detailed to the Virgin Islands and one to Guam to prepare and present revenue officer training courses. A new dimension of the law was its use to bring a Yale University faculty member to the National Office for a year. Enforcing The Law The IRS has a delinquency prevention program to identify potentially delinquent taxpayers and to assist them in maintaining compliance and in preventing future delinquencies. Nonpayment of taxes withheld from employees' wages is the most serious delinquency problem facing the IRS Collection Division. The trust fund compliance program helps ensure that chronically delinquent taxpayers adhere to more strict filing and paying requirements, such as monthly rather than quarterly filing, and making deposits to a special bank account. Violations of certain requirements ofthe program can lead to criminal prosecution. Some 8,300 taxpayers were filing and paying their taxes monthly and 3,936 of these also were required to comply with the special bank account provisions as of September 30, 1978. During the first half of the year, 75 taxpayers were convicted of criminal violations for not maintaining separate accounting for certain collected taxes. The Service published "The Collection Process (Employment Tax Accounts)," a booklet explaining the rights and duties of business taxpayers and the IRS in the collection of employment taxes. The publication is sent to business taxpayers with their second delinquency notice or delivered by a Collection representative on initial contact. A similar booklet, "The Collection Process (Income Tax Accounts)," designed for individual taxpayers, was first published in 1974. Delinquent accounts and returns The Collection Division disposed of over 2.3 million accounts receivable, including some 342,000 notices sent taxpayers who contacted IRS field offices to resolve their delinquencies. Collection employees had to initiate contact on the remaining 1.97 million delinquent accounts. Over 1.3 million delinquent return investigations and 108,000 returns compliance leads were disposed of by Collection personnel in 1978. Approximately one mUlion delinquent returns were secured, involving nearly 989 million in additional assessments. 194 1978 REPORT OF THE SECRETARY OF THE TREASURY Criminal investigations The Criminal Investigation Division is responsible for investigating tax fraud and other criminal violations of the tax laws. The Division's enforcement activities are divided into the general program and the special enforcement program. The general program provides balanced criminal tax enforcement for various types of violations, geographical locations, and economic and occupational status. Several enforcement efforts such as the questionable refund program and the illegal tax protester project have been initiated to correct specific abuses of the tax laws. The special enforcement program covers the identification and investigation of persons who derive substantial income from illegal activities while violating the tax laws. The program includes strike force activities and a project on highlevel narcotics financiers and traffickers. In addition, the Criminal Investigation Division this year again began investigating violations of the Federal wagering tax laws. The Division completed 8,713 investigations and recommended prosecution of 3,439 taxpayers. Grand juries indicted or courts filed information on 1,724 taxpayers. Prosecution was completed successfully in 1,414 cases. Taxpayers entered guilty pleas in 1,056 cases; 133 pleaded nolo contendere, and 225 were convicted after trial. Acquittals and dismissals totaled 70 and 119, respectively. Ofthe 1,446 taxpayers sentenced during 1978, 681, or 47.1 percent, received jaU sentences. Organized crime The IRS cooperates in the fight against organized crime by participating in the Federal organized crime and strike forces program. Strike force units located in 13 major cities are headed by attorneys from the Department of Justice. The program objective is to coordinate the combined forces of Federal law enforcement agencies against organized crime. The IRS is responsible for detecting criminal tax violations and for ensuring that the income from illegal activities is reported correctly and taxed. The IRS contributed 417 staff years of direct investigative and examination time to the strike force effort during 1978. Under the program, 107 were convicted or pleaded guilty to tax charges during the year and 582 prosecutions were pending when the year ended. Since the inception ofthe organized crime program in 1966, some 941 organized crime members and associates have been convicted or have pleaded guilty to tax charges. As part of its special enforcement program, the Service continued to identify and investigate significant tax violations by high-level narcotics financiers and traffickers. During 1978, the IRS completed 323 criminal tax investigations, obtained 65 indictments, and achieved 56 convictions of financiers and traffickers. Examinations The IRS examines returns to help ensure a high degree of voluntary compliance. Additionally, when returns are filed they are reviewed also by IRS employees and computers. They are first checked manually for completeness and for such obvious errors as the claiming of a partial exemption or duplicate deductions. Then the Service's computers check the taxpayer's arithmetic and pick up other errors that may have escaped manual detection. ADMINISTRATIVE REPORTS 195 The primary method used by the IRS in selecting individual returns for examination is a computer program of mathematical formulas—the discriminant function system (DIF)—that measures the probability of error. Returns selected by DIF are screened manually and those confirmed as having the highest potential of error are assigned for examination. New DIF formulas for individual returns were developed in 1978 and will be used for returns filed in 1979. Since DIF was introduced in 1969, the number of individual taxpayers whose examinations resulted in no tax change has been reduced from 43 percent in 1968 to 24 percent, indicating the superiority of DIF over manual selection for most returns. Returns may also be selected for examination under the taxpayer compliance measurement program, a computerized system that makes a random selection of returns. Examinations under this program are more intensive because the results are used to develop information required for research purposes such as the measurement of compliance among various classes of taxpayers and to update DIF formulas. Compliance measurement is an important factor in determining audit coverage of different classes of taxpayers. Computer selection of returns is complemented by manual selection. For example, if the IRS examines a partnership return, the returns ofthe partners also may be examined. Returns of shareholders and executives may be examined in connection with the examination of their corporation. Other returns may be selected based on information documents filed by payers of wages, dividends, and interest. The IRS also screens returns with adjusted gross income above certain amounts and some returns of taxpayers who submit claims for refund or credit after filing returns. Examination results The IRS examined 2,328,812 tax returns of aU types in 1978. Of those, 169,390 were examined in service centers, compared with 150,730 last year, an increase of 12 percent. The remainder were examined in district offices by revenue agents and tax auditors. Examinations conducted by revenue agents at the taxpayer's place of business or residence covered 728,253 returns, or an increase of 27,450 returns, or 4 percent, from last year. There were 1,431,169 returns examined by tax auditors under office audit procedures—a decrease of 86,507 returns, or 6 percent, from last year. Examination coverage of income, estate and gift tax returns, excluding partnerships and forms 1120S, was 2.28 percent, compared with 2.46 percent in 1977. The coverage including partnerships and forms 1120S was 2.29 percent, compared with 2.44 percent in 1977. The Service's examination program resulted in approximately $6.3 billion in recommended additional tax and penalties. Assessments totaled $5 biUion, $4.1 billion in tax and penalties and $913 million in interest. In 1977, assessments were $3.4 billion in tax and penalties and $650 million in interest. Examiners are required to determine a taxpayer's correct liabUity and to ensure that taxpayers neither overstate nor understate their liabUity. Service examinations disclosed overassessments on 132,600 returns, accounting for refunds of $312 million. In 1977, there were 122,003 returns with refunds of $281 miUion. Service center program The IRS service center review program, begun in 1972, generally is limited to the verification or resolution of issues that can be handled satisfactorily by 196 1978 REPORT OF THE SECRETARY OF THE TREASURY service center personnel through correspondence with the taxpayer. There were 663,173 returns checked by the Examination Division in service centers in 1978, compared with 913,460 for 1977—a 27-percent decrease. Of those checked, 169,390 were examined; the remainder, a total of 493,780 returns, were verified and corrected, compared with 762,730 in the previous year. The decrease occurred primarily because of the continuing impact of the Tax Reform Act of 1976, which allows certain errors to be corrected during initial returns processing. Computer-assisted examinations The Service uses computer programs in the examination of automated accounting systems used by taxpayers. Both taxpayers and the IRS save time and expense since computer procedures take a fraction of the time required to do the same job manually. Over 12,000 computer applications were performed in 1978—an increase of 2,000 over 1977. The applications are done by computer specialists who are experienced revenue agents with intensive training in computer systems, hardware, programming languages, and examination techniques. Coordinated examinations Corporations whose gross assets exceed $250 million are included in the coordinated examination program. Financial institutions and utUities are included in the program if gross assets exceed $1 billion. Coordinated examinations involve complex accounting systems and the use of teams consisting of experienced revenue agents, economists, computer specialists, engineer agents, intemational and excise tax examiners, and employee plans specialists to examine these corporate returns. At the end of 1978 there were 1,300 corporations in this program, with 3.2 open years per corporation. During 1978, the IRS continued its practice of conducting industrywide examinations of major companies in a given industry. Ten industries currently are being examined by this approach and two more are in the planning stage. Joint Committee review The Internal Revenue Code requires that aU income, estate, gift, private foundation, and pension plan tax refunds and credits in excess of $200,000 be reported to the Joint Committee on Internal Revenue Taxation, This year 978 cases involving overassessments of $ 1.1 bUlion were reported to the Joint Committee, as compared with 997 cases and $984 million in 1977. United States-United Kingdom arrangement The Service developed a working arrangement with the United Kingdom Board of Inland Revenue for simultaneous examinations of multinational taxpayers. This is the second such arrangement between the United States and another country (the first was with Canada in 1977). Under this arrangement, the United States and the United Kingdom separately examine taxpayers under their respective jurisdictions. Before an audit begins, representatives ofeach country meet to plan and coordinate the examination. During each stage ofthe examination, information is exchanged in accordance with the tax treaty between the countries. ADMINISTRATIVE REPORTS 197 Oil industry The Service also implemented the oil industry program by forming an oil taxation unit in the Southwest regional office. Among the unit's principal functions are: Making determinations and recommendations on certain issues; negotiating letters of agreement on these issues; coordinating selected issues and examination activities; developing pricing methods and examination techniques unique to the oil industry; and making industry analyses. Enrolled agents The special enrollment examination enables individuals who are not attorneys or certified public accountants to demonstrate their competence in tax matters and become enrolled to practice before the IRS. The current examination, pattemed after the CPA examination, is divided into four parts and emphasizes Federal tax laws as they apply to business operations, sole proprietorships, partnerships, and corporations. The questions focus on the tasks enroUed agents must perform to complete forms and file returns and to represent taxpayers before the Service. Candidates are required to pass each part though they may retain credit for any part passed and need only retake those parts failed. In 1978, 5,425 candidates filed applications, compared with 5,090 in 1977. Appeals The Service encourages the resolution of tax disputes through an administrative appeals system rather than litigation. A taxpayer who disagrees with a proposed change in tax liability is entitled to a prompt, independent review of the case. The appeals system is designed to minimize inconvenience, expense, and delay to the taxpayer in resolving contested tax cases. Before October 2, 1978, district conference staffs were the first level of appeal in tax disputes between taxpayers and the IRS on issues arising from the examination of returns. If the dispute were not settled, the taxpayer could have requested a second appeal conference with the Appeals Division. District conference staffs reached agreement with the taxpayer in about 69 percent of the cases they considered this year. During 1978, all IRS appeals functions were consolidated into a single appeals body. Effective October 2, 1978, these activities will be conducted by the Office ofthe Regional Director of Appeals in each ofthe seven IRS regions. Proceedings in the appeals process are informal. Taxpayers may represent themselves or be represented by an attomey, a certified public accountant, or other adviser enrolled to practice before the IRS. If the disputed tax liability for each taxable year involved is $2,500 or less, the taxpayer may obtain a conference without filing a written protest. In most cases, the taxpayers and the district conferee, or regional appeals officer, reached mutually acceptable agreements, so few cases went to trial. In the past 10 years, 97 percent of all disputed cases were closed without trial. In 1978, the appeals function disposed of 54,715 cases by agreement. Cases considered by the Appeals Division fall into two broad categories, nondocketed and docketed. Nondocketed cases are those in which the taxpayer is protesting a proposed action by an IRS District Director involving additional taxes, a refund disallowance, or a rejection of an offer in compromise. These cases made up about 54 percent ofthe Division's workload 198 1978 REPORT OF THE SECRETARY OF THE TREASURY in 1978. Docketed cases involve situations in which taxpayers have filed a petition for a hearing before the U.S. Tax Court. In 1978, 70 percent of nondocketed cases and 73 percent of docketed cases were closed by the Division by agreement with the taxpayer. Other appeal options If a tax dispute cannot be resolved at the administrative appeals level, the taxpayer is advised of additional appeal rights to the courts. If the disputed tax does not exceed $1,500 in any tax year, a simple procedure is available under the U.S. Tax Court's small-case procedures that permit informal hearings where taxpayers may present their cases before a special trial judge. Since a knowledge of courtroom proceedings is not required, an inexpensive forum for the taxpayer is provided. However, there is not provision in the law for an appeal ofthe Tax Court's decision under the small-case procedure. If a taxpayer chooses to bypass the Tax Court, the tax deficiency may be paid and a claim for refund filed within 2 years from the date of payment. If the claim is denied or no action is taken by the Service on the claim within 6 months, the taxpayer may file suit for a refund in either a U.S. district court or the Court of Claims. A taxpayer may appeal an adverse decision ofthe Tax Court or district court to the U.S. Circuit Court of Appeals having jurisdiction. Adverse decisions of the Court of Claims or a Circuit Court of Appeals may be appealed to the U.S. Supreme Court, although not all such appeals are accepted. The Tax Court tried 1,742 cases, and the U.S. district courts and Court of Claims 447 cases. International operations IRS foreign operations are the responsibility of the Office of Intemational Operations (OIO). The Service maintains permanent foreign posts and Revenue Service representatives at these stations are involved in compliance and taxpayer assistance activities and maintain cooperative contacts with foreign tax agencies. Since OIO established its first office in Paris in 1948, the number of foreign posts staffed by Revenue Service representatives has increased to 14. Currently, posts in Bonn, London, Paris, and Rome cover Westem Europe and North Africa. Those in Mexico City, Caracas, and Sao Paulo are responsible for Mexico, Central America, and South America while Canada is serviced from Ottawa. Offices in Tokyo, Manila, Kuala Lumpur, and Sydney administer OIO activities in Japan, Southeast Asia, Australia, and New Zealand. A post in Tehran covers the Middle East, and the one in Johannesburg services Africa south of the Sahara. This marked the 25th consecutive year that U.S. taxpayer received tax assistance abroad. Twenty-two assistors were detailed abroad during the year, providing assistance in 145 cities in 80 foreign countries. Approximately 151,000 taxpayers were assisted overseas, and several hundred members ofthe Armed Forces attended 5 military tax schools held overseas. The Armed Forces participants then helped thousands of military personnel prepare their own tax returns. Toll-free telephone assistance was expanded to all U.S. taxpayers in Puerto Rico during 1978. Further, the Service entered into a tax administration agreement with Puerto Rico that, along with agreements with American ADMINISTRATIVE REPORTS 199 Samoa, Guam, and the U.S. Virgin Islands, allows the exchange of taxpayer return information and the development of mutual tax assistance programs. OIO is responsible for ensuring compliance with Federal tax laws by U.S. citizens residing in foreign countries and foreign entities doing business in the United States. It is also concerned with U.S. business controlled by foreign interests and assists in the overseas examination of multinational corporations. OIO examination and collection activities take place primarily in the United States. However, OIO does send revenue agents and tax auditors to the foreign posts to examine the retums of taxpayers living overseas. Those collection cases that cannot be settled through correspondence are sent abroad for personal contact. OIO also administers the social security laws in U.S. possessions and Puerto Rico and the income tax laws for Puerto Rican residents on income from sources outside of Puerto Rico. Under the reorganization of the Office of the IRS Chief Counsel, a District Counsel office was established to serve as principal legal adviser to OIO. Treaties Tax treaties with other countries are designed to eliminate double taxation, remove tax barriers to trade and investment, and help curb tax avoidance. The United States now has income tax treaties with 39 countries and estate tax treaties with 13 countries. In 1978, meetings were held with tax officials from several treaty countries to improve the administration of the treaties involved. These conferences improved working arrangements for more effective exchanges of information and for resolution of recurring problems that arise from conflict of U.S. and foreign tax laws. A limited number of tax treaties provide for mutual collection assistance and OIO is playing an increasing role on a reciprocal basis in collecting taxes of these treaty partners from aliens in the United States. Employee plans and exempt organizations The Office of Employee Plans and Exempt Organizations (EP/EO) administers the regulatory responsibilities of the Service for employee benefit plans and tax-exempt organizations. At the National Office, the functions are Employee Plans, Exempt Organizations, and Actuarial Divisions. EP/EO field staffs are located primarily in the 7 regional IRS offices and 19 key districts. The Employee Plans activity administers the Employee Retirement Income Security Act of 1974 (ERISA) with emphasis on developing regulations and procedures urgently needed by the public. The IRS continues to coordinate the implementation of ERISA with the Department of Labor and the Pension Benefit Guaranty Corporation. As part of an effort by the IRS to reduce the reporting burdens placed on taxpayers, plan sponsors and administrators are flling the 1977 annual retum/report (form 5500 series) only with the IRS. In addition, a single computer system has been developed to provide retum and data information needed by the three agencies. A questionnaire mailout was developed in 1978 to survey employers who received benefit plan determination letters before the enactment of ERISA but who failed to request a determination letter for their plans to conform to ERISA's requirements. The survey provides an estimate of the volume and 200 1978 REPdRT OF THE SECRETARY OF THE TREASURY expected receipt dates of determination letters and assists the Service in protecting the rights and benefits of plan participants. Taxpayers have been encouraged to take advantage of IRS-approvedl pattem, model, master, and prototype plans to reduce the expense andl paperwork in complying with ERISA. Some 7 regulations, 15 revenue rulings and procedures, and 25 news releases were issued, as well as 4,836 National Office opinion letters on master and prototype plans dealing with self-employed plans, corporate plans, andl individual retirement accounts and annuities. The Service devoted an average of 854 field professional positions tc> carrying out employee plans responsibilities. Advance determinatibn letters were issued on the qualification of pension, profit-sharing, and other employecj benefit plans. Examinations were conducted to determine the qualification of plans in operation and to verify plan contribution deductions. During the year, 214,672 determination letters were issued on corporate and self-employed plans, an increase of 40 percent from 1977. The prohibited transactions activity closed 155 exemption cases, including 23 published proposed and final exemptions covering 116 individual cases. On August 10,1978, the President submitted an ERISA reorganization plan to Congress. The plan essentially will eliminate overlapping jurisdiction ancl duplication of effort in the administration of ERISA by separating the authority of the Treasury and Labor Departments. The Exempt Organizations activity determines the qualifications of organizations seeking tax-exempt and private foundation status and examines retumjj to ensure compliance with the law. The number of active entities on the Exempt Organizations master file increased from 789,666 in 1977 to 810,048 in 1978. During 1978, 4 regulations, 55 revenue rulings and procedures, 264 technical advice memoranda, 19 announcements, 7 news releases, and 8 publications were issued or revised. An average of 379 field professional positions were devoted to the examination of 17,238 exempt organization retums. Also, field professional positions were devoted to applications, reapplications, and requests for rulings on proposed transactions from organizations seeking a determination of tax-exempt status or ofthe effect of organizational or operational changes on their status. In August 1978, a proposed revenue procedure was published providing more definitive guidelines to determine whether certain private schools claiming tax exemption operate on a racially nondiscriminatory basis as required by judicial decisions. The selection of exempt retums for examination (SERFE) system, designed to recognize certain retums based on specific selection criteria, was implemented. SERFE is used instead of manual classification to identify retums that may warrant examination. The decentralization ofthe processing of EO returns and related documents in 1977 from the Philadelphia Service Center to the Andover and Fresno Service Centers was expanded in 1978 to include the Atlanta, Austin, and Ogden Service Centers. Basic principles and rules for uniform interpretation and application of the Federal tax laws involving actuarial matters are provided by the EP/EO Actuarial Division. The Service devoted an average of 17 professional positions to carrying ou t actuarial responsibilities. The Division participated in public hearings on proposed regulations and serviced taxpayer requests for rulings. ADMINISTRATIVE REPORTS 201 Managing The Tax System Planning and research Planning, research, and analysis are integral, continuing management activities conducted throughout all IRS components. During 1978, planning activities included the preparation ofthe Service's long-range plan and work toward the development of a single, uniform program structure for use in planning and in zero-base budgeting. Service research activities included the testing of improved work technologies, the development of testimony and other materials for presentation to congressional committees, the analysis of pending legislation, and a number of statistical and analytical projects to identify optimum program designs and objectives. The Planning and Research function also initiated a new system for monitoring and coordinating studies, tests, and research projects throughout the Service to maximize the effectiveness of such activities, which account for nearly $10 million in annual expenditures. Reorganization During the past year. Planning and Research provided guidance and support for a number of organizational studies within such components as Employee Plans and Exempt Organizations, the IRS Data Center, the Criminal Investigation function, the IRS service centers, and the Intemal Security function. In addition. Planning and Research provided management, coordination, and analytical support to the IRS organization review group directed by the Deputy Commissioner. This group conducted a comprehensive assessment ofthe IRS that led to major revisions in operations, including the creation ofa single level of taxpayer appeal and the combination of all IRS public service and information activities into a single organization. The Accounts, Collection and Taxpayer Service (ACTS) organization has been redesignated "Taxpayer Service and Retums Processing." It now includes the taxpayer information activity, formerly assigned to the Public Affairs Division, and the Disclosure function, formerly a part of Compliance. The Collection function from the old ACTS organization has been shifted to the Assistant Commissioner (Compliance), consolidating all enforcement activities under a single authority. Another major change was the creation of a new unit at the district level to provide centralized technical and administrative support services. Before the organizational review, field operating functions commonly had staffed and equipped their own support units. The organization review group also recommended the redesignation of the Service's Administration organization as "Resources Management." In addition to retaining the traditional Administration activities, such as training, administrative services, and fiscal management. Resources Management also is responsible for the new district office Centralized Services unit and for a new Security function, formed to improve IRS safeguards of tax retums and other taxpayer records. To more accurately describe their actual roles. Audit and Intelligence activities have been redesignated "Examination" and "Criminal Investigation." Studies As a part of the Service's efforts to simplify tax retums and the tax filing process, a short questionnaire was included in a randomly selected sample of 1977 tax packages to identify aspects of the tax returns, instructions, and 202 1978 REPORT OF THE SECRETARY OF THE TREASURY schedules that taxpayers fmd difficult to understand. The questionnaire also sought to determine how taxpayers try to overcome their returns preparation problems and solicited suggestions for simplifying the forms. Among the 7,600 respondents, only 29 percent of 1040 filers and 11 percent of 1040A filers said that they had difficulty in understanding the tax returns or instructions. The tax computation portions of the tax forms were citedl as causing the most difficulty. Most respondents said they cope with their preparation problems by rereading the instructions. The survey results suggested that further simplification of the tax foQns and instructions would not significantly alter the proportion of respondents who seek professional assistance. In another effort to get direct information from the public, the Service contracted with the Opinion Research Corp. of Ann Arbor, Mich., to determine the potential demand for free IRS return preparation services. The results of this survey will be used in a comprehensive review of the Service's current retums preparation policy. The first thorough IRS examination ofthe economic, social, and behavioral factors that promote or discourage individual taxpayer compliance was undertaken in 1978. The Service awarded an 18-month contract to Westat Inc., of Rockville, Md., to conduct a study to develop methods for measuring the impact of factors identified as affecting individual taxpayer compliance. Once a working methodology is developed, further research will be conducted to obtain relevant data and to apply the study findings to tax administration program evaluation and planning. The Service initiated a long-term series of studies to determine how v/ell taxpayers understand and comply with the approximately 85 provisions in the tax law that permit the deferral of certain tax consequences to subsequent years. Some of the specific studies cover deferred gains on sales of personal residences, losses from activities not engaged in for profit, reductions of st<3ck cost basis, and the recapture of the new residence purchase credit where the residence is sold within 3 years of purchase. Other areas under consideration for examination include deferred gains on installment sales, changes in accounting methods, at-risk loss limitations for various business activities, and generation-skipping trusts. The results of these studies will be used to determine the need for a system to track and better enforce individual taxpayer obligations under the deferred tax provisions. There are civil penalties in the tax law for the violations of approximately 75 different rules governing the filing of tax retums, the timely payment of taxes due, and reporting Federal tax liability. The IRS began a review of these provisions to assess their fairness, effectiveness, and administrability. Upon completion ofthe study, scheduled for fiscal 1979, legislative recommendations will be developed to amend or repeal penalties provisions where changes are warranted. The study also will consider proposals for improving the administration of penalties and for monitoring their effectiveness. Planning and Research is responsible for analyzing legislative proposals affecting the IRS and for determining their administrative implications. Once legislation is enacted, a plan for implementing each provision is developed and coordinated with those functions responsible for administering the legislation. Approximately 55 bills were analyzed for their impact on Service activities, and implementation plans were developed and carried out for 11 new public laws. ADMINISTRATIVE REPORTS 203 Productivity A program was established to provide expanded incentives for promoting productivity at all IRS levels. The goal of this program is to improve efficiency by substituting investments in technology for staff, particularly in work processing, clerical, and other routine operations. An important part of the program is a productivity enhancement fund for financing projects that improve procedures, techniques, and equipment. Plans call for the Service to prepare an annual productivity plan, hold productivity management seminars, and improve work measurement systems. Measuring compliance The taxpayer compliance measurement program (TCMP) is a continuing enforcement and research effort by which the Service attempts to determine the nature and extent of tax law compliance. The TCMP data also are used to develop computer routines for selecting returns for examination. TCMP data are derived from examinations of tax returns selected on the basis of random probability samples. During 1978, work continued on the first TCMP survey of fiduciary retums and on the sixth survey of individual income tax returns. Field examinations also were initiated for the third corporate TCMP survey. For the first time, this survey was expanded to include corporate returns filed with no balance sheets, as well as those returns with assets up to $ 10 million. Plans are now being made to initiate the first TCMP survey of employee benefit plans in July 1979 and a second survey of tax-exempt organizations, beginning in January 1980. Optical scanning Recent developments in electro-optical technology have given rise to the possibility of using scanning equipment to record the data reported by ^ taxpayers on their returns. During the past 2 years, the Service tested the performance of this technology on machine-prepared tax documents such as I forms 1099 and 941 to determine what changes must be made in Service forms and procedures before optical character recognition (OCR) can be used. Meanwhile, plans are being made to test the feasibility of OCR processing of 1040A tax returns. Federal-Stote test The IRS is working with the National Association of Tax Administrators to promote the filing of forms 1099 and 1087 information documents on computer tape. Under the test program, which wiU begin in calendar 1979 using tax year 1978 information filed principally by institutional taxpayers in California, Minnesota, and New York, the Service wUl process the magnetic tapes, retaining information for Federal tax purposes and simultaneously producing information for use by the States in whatever medium and format they require. This arrangement wUl reduce recordkeeping and filing requirements for taxpayers and accelerate the use of more efficient electronic media by both the IRS and State tax administrators. If the test is successful, it wUl be a model for a similar arrangement among institutional filers, the IRS, the Social Security Administration, and the States in handling information from the form W-2 withholding statement. y Publishing statistics The annual Statistics of Income (SOI) publications provide the public and the Government with a variety of data reported on income tax retums without 204 1978 REPORT OF THE SECRETARY OF THE TREASURY violating taxpayers' rights to privacy. Nearly all ofthe data are estimates based on representative samples of returns. Preliminary SOI publications in 1978 covered individual income tax returns for 1976 and corporation and business retums for 1975. As required by the Tax Reform Act of 1976, the 1976 report for individuals included statistics on the tax liability of persons with high total income computed using several different concepts. Detailed statistics for 1975 and 1976 also were provided to the Office of Tax Analysis for a special pubUcation on high-income taxpayers. Publication of statistics on this topic is required annually by the 1976 act. An SOI supplemental report on individual income tax retums also was published, providing certain 1974 information for each county and for the 125 largest metropolitan areas. Special statistical studies included information on sales of capital assets reported on individual income tax retums, the new jobs tax credit introduced by the Tax Reduction and Simplification Act of 1977, and the foreign tax credit and tax-exempt income eamed abroad as reported on individual income tax returns. Data also were provided for inclusion in reports to Congress on domestic intemational sales corporations, U.S. taxpayers that participated in intemational boycotts, and the revised system of taxing domestic corporations on their operations in Puerto Rico and U.S. possessions. Statistics of Income publications may be obtained from the Superintendent of Documents, U.S. Govemment Printing Office, Washington, D.C. 20402. Tax models Developed in the early 1960's to meet Treasury's need for timely estimates of the impact and revenue effects of proposed tax legislation, tax models also have proved to be valuable tools for economic planning. Five basic models— individuals, corporations, sole proprietorships, partnerships, and estates—are updated each year to reflect changing levels and pattems of income. Each model consists of generalized manipulation and table-generating computer programs, used in conjunction with specially structured Statistics of Income files containing the most current available year's tax retum data. Planning throughout the Service is based on projections of the number of returns to be filed. The planning requirements of the various units of the Service require that workload projections be prepared for the entire United States as well as for service center areas, regions, and districts. Special projections also are made for research purposes. Work planning projections are updated each year to incorporate changes in the economic and demographic outlook as well as the effects of tax law changes and filing patterns. The number of primary returns and supplemental documents is expected to grow from 133.8 million in 1977 to 163.3 million in 1985. This increase of 22.1 percent reflects the expected growth in population and economic activity. Resources Management Resources Management—redesignated from Administration under the reorganization—is responsible for fiscal management, personnel, facihties management, training, centralized services, employment policy, security standards and evaluation, and management improvement. This office is also responsible for the functional supervision of Resources Management activities in the field. ADMINISTRATIVE REPORTS 205 Consistent with President Carter's commitment to improve the quality of public correspondence, participation in writing improvement workshops was increased this year. Nearly 700 IRS employees attended various workshops that stressed clarity and responsiveness in correspondence. Four different workshops are offered to accommodate employee needs. The training ranges from 8 to 40 hours of classroom work, plus some self-study exercises. It is designed for the executive, the legal or technical originator, the reviewer, and those persons needing refresher courses. A Security Standards and Evaluation Division was established, consolidating responsibilities previously placed in several different organizations. The Division directs the development, implementation, and evaluation of a comprehensive Service-wide security program. The program provides reasonable protection for employees and against loss, destruction or compromise of tax and other protected information, facilities and property, data systems, and other assets. Equal employment opportunity Total full-time regular employment from July 1977 through July 1978 increased by 2.9 percent, while the number of women increased by 5.9 percent and the number of minorities by 7.8 percent. Women and minorities made gains in 19 of the 20 most populous IRS occupations, including revenue agent, revenue officer, tax auditor, attomey, and criminal investigator. The number of women and minorities at GS-13 and above also increased—women increased from 3.8 percent to 4.5 percent, and minorities in these positions increased from 5.4 percent to 5.8 percent. During the year, the Service observed Black History Week as well as Hispanic Heritage Week and Women in Govemment Month. Training to instruct special emphasis program coordinators, including those for women, Hispanic employment, upward mobility, and blacks, was developed and piloted. In addition, about 100 EEO counselors received training in handling class discrimination complaints. Labor-management relations In mid-1977, the Assistant Secretary of Labor for Labor-Management Relations ruled in favor ofthe National Treasury Employees Union's petition to consolidate 11 center bargaining units into 2 nationwide units. One unit consists of all service centers—except Andover—the Data Center, and the National Computer Center. The second unit consists of all districts—except Anchorage—and all regional offices—except the North-Atlantic appeUate function and the Southeast regional office—and the National Office. As a result of this consolidation, the Service revised its labor relations casehandling procedures, strengthened its basic labor relations training courses to include a complete package in discipline, adverse actions, and appeals, and initiated new communications techniques between the field and the National Office. There has been an increase in the unfair labor practice caseload along with a continued upward trend in grievance activity. The Service republished the agency grievance procedure in handbook form and substantially revised its grievance examiner training course. Paraprofessional savings The IRS has established approximately 1,400 paraprofessional positions instead of as many higher graded professional and technical positions. This was 206 1978 REPORT OF THE SECRETARY OF THE TREASURY accomplished by identifying and splitting off the less complex work present in higher graded professional and technical positions and assigning it to paraprofessional employees at lower grades. This resulted in a savings of approximately $8 million in salary and benefit costs. In addition to the recurring dollar savings, establishing paraprofessional positions also increased the effectiveness and productivity of the Service's professional and technical employees, enabling them to spend more time on higher level work. Paraprofessional positions have been established in Examination, CoUection, Inspection, Criminal Investigation, and Resources Management. Similar positions are being considered for other occupational areas. Jobs for the handicapped The number of handicapped employees in the IRS increased from 1,667 in 1977 to 1,701 in 1978. The IRS nominee for Outstanding Federal Handicapped Employee ofthe Year was WiUiam J. Boucher, a tax auditor from the Austin district. Mr. Boucher also was selected as the Department's nominee for Outstanding Federal Handicapped Employee of the Year. Awards for incentive The IRS incentive awards program received special attention in 1978 with many employees receiving recognition for their outstanding contributions to the Service—including 2 Meritorious Service Awards, 15 Commissioner's Awards, 5 Special Achievement Awards of $1,000 or more, and 2 special recognition awards for exposing bribery schemes. Also, several IRS employees received recognition from organizations outside of the Service. Deputy Commissioner William E. Williams was the Department ofthe Treasury nominee for the 1977 Roger W. Jones Award for Executive Leadership. Sixty-five employees received Presidential Letters of Recognition for employee contributions that resulted in tangible benefits of $5,000 or more. Linda Molyneux ofthe Fresno Service Center was presented the 1977 John E. Fogarty Public Personnel Award for her outstanding efforts towards the hiring of the handicapped. This award, the highest given by the President's Committee on Employment ofthe Handicapped, was made on June 13, 1978, at the International Association of Personnel Employment Security convention in St. Louis. Yolanda Carrillo of the Fresno Service Center has had an exceptional year beginning with an award of $ 1,285 for a suggestion with a tangible benefit of $184,000. In addition to the cash award, Ms. Carrillo's accomplishment brought a Presidential Letter of Recognition and made her 1 of 11 recipients ofthe 1977 Presidential Management Improvement Award. This award was presented in the White House Rose Garden on May 23,1978, by the President. Internal Revenue Manual The Service adopted a new system to compose, print, and distribute its internal operating procedures in the Internal Revenue Manual. Using electronic technology, accurate copy is produced in 6- by 9-inch format at less cost and in less time than with the old method. Additional services, provided under a single contract, include filling orders for current parts or handbooks, comprehensive topical indexes and management summaries of recent functional or operational changes to any part of the Manual. ADMINISTRATIVE REPORTS 207 Training The coordinated examination training program was developed and piloted in early 1978. This course will provide a cadre of revenue specialists who can make determinations of areas of accounting systems to be isolated for more thorough auditing and reducing or eliminating the time expended on nonproductive auditing. This training also wUl increase the number of companies under the program, provide a greater degree of uniformity and consistency in resolving tax issues, simplify decisions on taxability, and eliminate duplication of effort. Some 325 senior agents are expected to be trained for the program in each future year. The Service continued to conduct basic training for the Criminal Investigation Division at the Federal Law Enforcement Training Center. Several new programs were produced to support the Division—new on-the-job training for recruit special agents was tested, all special agents received review training in the implication of the new disclosure provisions, and a TV tape test similar to the national driver's exam was used. A wagering tax course also was written and piloted this year. Tax shelters A 3-day program to train examination employees—revenue agents, tax auditors, estate tax attorneys—for detailed identification and examination of abusive tax shelters was developed this year. Tax shelter training is now an integral part of all new examiners' training courses. This training also is given to incumbent employees as part of the update courses, and a limited partnership portion serves to reinforce previous tax shelter training. The training provides examiners with the general tools needed to recognize the abusive elements of a tax shelter regardless of its business nature or reporting form. Data entry The IRS trained approximately 4,000 data transcribers using a 60-hour training program. In previous years the direct data entry training program was 80 hours in length. By using this new, shorter training program, the IRS saved approximately $404,000 in training, administrative, and instructor costs. The reduced amount of training had no adverse effect on the trainees' ability to reach the job standards for speed and accuracy. Instructing others More than 100 employees of State and local governments participated in IRS training activities. Financial investigative courses were held for the Maricopa County, Ariz., Sheriff's Association to train 20 participants from various local police and attorney general offices, and for 48 members of the Pennsylvania Crime Commission. Students in the 5-week IRS special agent course included revenue employees from the Colorado Department of Revenue, the New Jersey Department of Law and Safety, and the PhUippines, Dallas, Tex., and Phoenix, Ariz., governments. Participants in various revenue agent training courses included employees of the Government of American Samoa; the States of Alaska, New York, Maine, and Oregon; and the cities of Milwaukee, Wis., and St. Paul, Minn. 208 1978 REPORT OF THE SECRETARY OF THE TREASURY Special investigation employees of the St. Louis Police Department attended the 8-day wagering tax course. Instructor training and course assistance was provided to the Idaho State Tax Commission to enable it to train employees in auditing techniques. Logistics support The Service continued its efforts to eliminate unnecessary intemal reporting, canceling 21 reports in 1978 for annual savings of approximately $406,000. The IRS conducted an extensive study of the taxpayer assistance toll-free telephone system (TFTS) to determine if the efficiency of that operation could be improved. The study identified the best locations and the optimum number of sites to locate the TFTS answering operations. New procedures for planning and managing the telephone circuitry used in the toll-free system also were implemented to provide a better balance between incoming circuits and answering positions. The initial result of these efforts was a $2 mUlion reduction in the telecommunications cost for the toll-free program. Other actions to reduce communications costs included implementation of new procedures for transmission of written records, such as facsimile, teletype, and express mail, and more control over commercial long-distance and Federal Telecommunications System usage. These efforts saved approximately $1.6 million. An internal management reporting system has helped the IRS to monitor and control its space inventory and costs. Approximately $500,000 was saved by releasing space, using space-saving techniques, and closely reviewing utility and service charges. Continued implementation of multiple-occupancy work stations and open office planning concepts is resulting in more efficient utilization of property resources. During 1978, the Service reduced its field use of office space 4 square feet per person, saving 221,000 square feet at $7.78 per square foot, or approximately $ 1.7 million. A revised inventory management system for property accountability will consolidate reporting requirements of three inventory systems into a single system at an estimated annual savings of $100,000. The IRS continued to rate as one ofthe top Federal agencies in occupational safety and health. In calendar 1977, the Service reduced both disabling injuries and motor vehicle accidents at a time when most agencies realized substantial increases in rates. The IRS had a rate of 3.4 disabling employee injuries per million staff-hours worked. Service employees drove 119 million miles on official business with 671 accidents, 72 less than in calendar 1976. The accident frequency rate decreased from 5.8 to 5.6 accidents per million miles driven. A system of using unique service center ZIP codes was implemented for the 1978 filing season. This system reduced the average transit time of maU from the taxpayer to the service centers by 1 day. Because the Treasury has use of the tax revenue 1 day earlier, the Govemment saves some $5 million in interest annually. Records disposal resulted in the release of space and equipment valued at $3,809,000. A total of 208,273 cubic feet of records was destroyed and 592,570 cubic feet of records was retired to Federal Records Centers. Data services Data Services is responsible for the development, implementation, and evaluation of computer systems, programs, and hardware requirements. The ADMINISTRATIVE REPORTS 209 Office of Assistant Commissioner (Data Services) originally provided for three developmental areas—the Service and Design Division, the Systems Programming Division, and the Systems Analysis Division—and two computer facilities—the National Computer Center and the Data Center. Two areas have been added, the Systems Development office to develop and assess new computer systems to meet increasing IRS needs, and the Planning and Control staff to monitor Data Services personnel and hardware, to maintain an inventory of data processing requests and the resources to fill them, and to serve as Executive Secretary to the ADP Policy/Resource Board. The Service is implementing a remittance processing system (RPS) for quicker and more efficient handling of remittances. RPS processes the remittance, encodes the source document with an audit trail, and prepares documentation for forwarding to the bank with the checks. RPS handles retums, estimated payments, and subsequent payments, forwarding transactions to the appropriate master file to indicate receipt ofthe remittances before the source documents are processed, aiding in answering taxpayer inquiries. Automated information Control of partnership retums on the audit information management system was implemented on a test basis in the Salt Lake City district office and the Ogden Service Center on July 1, 1978. Under the system, the examiner of the partnership retum is able to requisition an unlimited number of partner returns for shipment and examination in the partner's district office. The examiner of the partnership retum receives a moilthly report showing all partners established on the data base. Each district office receives a cumulated monthly repoit showing income adjustments applied to a partner's retum in the district, resulting from partnership examination. National Computer Center The National Computer Center in Martinsburg, W. Va., plans, directs, and coordinates computerized master file operations of the integrated tax administration system. Eight large computers and three computerized microfilm systems are used in the testing and production processing ofthe individual, business, exempt organization, employee plans, and individual retirement account master files for the Nation. The Computer Center operates 24 hours a day, 7 days per week and maintains reciprocal accounting with each ofthe 10 service centers. Input of data to the Computer Center such as tax returns, tax payments, and adjustments is primarily on magnetic tape shipped from the service centers and other organizations by air. The output, also on magnetic tape, contains data for printing notices such as bills, refund checks, etc., and is air shipped to the service centers and other Federal and State agencies. During the year, the Computer Center received more than 84,000 input tapes and shipped more than 82,000 output tapes. As of August 1978 there were 121,063 magnetic tapes in the Computer Center library, with the individual master file containing 111,028,298 taxpayer accounts, the business master file, 17,106,712 accounts, the exempt organization master file, 1,007,496 accounts, the employee plans master file, 1,129,694 accounts, and the individual retirement account master file, 2,876,309 accounts. 210 1978 REPORT OF THE SECRETARY OF THE TREASURY Data Center The Data Center in Detroit, Mich., is responsible for the performance of non-master-file data processing operations for the Service. In 1978 a new system was selected to replace the current computer systems. Installation ofthe replacement system is scheduled for early calendar 1979 with testing and acceptance expected by the middle of the year. Two new software systems were installed to monitor and report computer utilization and control development of new systems and produce reports of human resource utilization. The Data Center is processing up to 1 miUion employee benefit plan forms for the Department of Labor this filing season, with work started in late 1978. Processing involves the filming of retums with special cameras and producing output on microfiche. Output wiU be shipped to service centers, the National Archives, and the Department of Labor. Technical activities The Service's tax ruling program consists of letter rulings, technical advice, and published revenue rulings. A letter ruling is a written statement issued to a taxpayer by the National Office interpreting and applying tax law to a specific set of facts. Such a ruling provides guidance conceming the tax effects of a proposed transaction. Letter rulings are not precedents and may not be relied upon by taxpayers other than the recipient. Technical advice provides guidance on the proper application ofthe tax laws to specific facts issued by the National Office at the request of a district office in connection with the audit of a taxpayer's retum or claim for refund or credit. Frequently, the District Director's request is made at the suggestion of a taxpayer that technical advice be sought. A revenue ruling is an interpretation of the tax laws issued by the National Office and published in the Internal Revenue Bulletin to inform and guide taxpayers, practitioners, and IRS personnel. Tax shelter rulings During 1978, the Service continued an active program of publishing revenue rulings to answer significant issues with respect to tax shelters and other artificial tax devices. The goals of this program are to provide technical guidance to taxpayers and to Service personnel on the specific issues presented and to increase public awareness that the Service will carefully scrutinize taxmotivated transactions. A highlight of this program was the publication on October 31, 1977, of nine revenue rulings addressing a number of current tax shelter issues. Art Advisory Panel The Art Advisory Panel held three meetings at the National Office during its 10th anniversary. Since 1968 this unpaid, 12-member panel of art experts— museum directors, curators, scholars, and dealers—has helped the Service to review taxpayers' appraisals and to determine the value of works of art donated to charity or for gift or estate tax purposes. All appraisals of works of art claimed at $20,000 or more in audited tax returns must be referred to the National Office for review. The claimed value ofthe average item referred to the panel recently has been close to $ 100,000. Nearly half of all reviewed appraisals are found to be unacceptable. ADMINISTRATIVE REPORTS 211 The panel reviewed appraisals on 702 works of art with taxpayer-claimed values amounting to $67 million this year, resulting in valuation adjustments of $12 million. During its 10 years of operation, the panel has reviewed appraisals with claimed values of $276 million which resulted in valuation adjustments of $75 million. Internal Revenue Bulletin The weekly Internal Revenue Bulletin announces official rulings and procedures ofthe Service and publishes Treasury decisions. Executive orders, tax conventions, legislation, court decisions, and other items of general interest. Bulletin contents of a permanent nature are consolidated semiannually into Cumulative Bulletins, with weekly and semiannual issues distributed within the Service and available to the public through the Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402. During 1978, the Bulletin included 499 revenue rulings, 39 revenue procedures, 8 public laws relating to Internal Revenue matters and 10 committee reports, 58 Treasury decisions containing new or amended regulations, 50 delegation orders, 4 Treasury Department orders, 14 notices of suspension and disbarment from practice before the Service, 268 announcements of general interest, and 8 court decisions. The Bulletin Index-Digest System, with current supplements, aids in researching material published in the Bulletin after 1952. Making rulings public The Tax Reform Act of 1976 provided that IRS rulings and technical advice generally be opened to public inspection after the deletion of the taxpayer's identity, trade secrets, and confidential commercial and financial information. Rulings and technical advice requested after October 31, 1976, generally are made available within 90 days after they are issued to taxpayers. Of the approximately 80,000 issued in answer to requests made before November 1, 1976, 25,000 were made available to the public in 1978. The remaining rulings will be opened for public inspection in 1979. Publishing Services developed a computer-based system to produce microfiche indexes for the release of letter rulings. This dual system produces Code section indexes for the weekly release of current rulings. Nine monthly and cumulative indexes were developed to provide the ruling information in various formats based-on user needs. Inspection The Inspection Service's internal audit and security programs aid IRS managers in maintaining the highest levels of efficiency and integrity. The Internal Audit staff independently appraises the operations of the IRS to measure the extent of compliance with established management policies and to determine whether procedures are in accordance with law and regulations. Controls are reviewed in all IRS activities to ensure that both taxpayers' and the Government's rights are protected and that operations are carried out efficiently, effectively, and with integrity. Internal Audit reviews operations that have widespread impact on the Service or that are considered high risk. The review of controls for safeguarding tax information and assuring fair and equitable treatment of taxpayers also is stressed. 212 1978 REPORT OF THE SECRETARY OF THE TREASURY To improve the efficiency of Service operations, national coordinated audits are being used more often to provide uniform coverage in several offices and to evaluate the operation of a program better on a nationwide basis. These audits provide managers with a better perspective of their operations, permit nationwide corrective action if necessary, and require less staff. Abstracts of Internal Audit findings are prepared and distributed to Service officials nationwide to help identify operational areas that may need increased management attention. Internal Audit issued 241 reports to Service managers during the fiscal year. Management actions on these problems resulted in better service to taxpayers, strengthened controls, and improved operations. In addition, response to Internal Audit findings resulted in measurable savings and additional revenue estimated to total $157 million. Maintaining integrity Internal Audit gives priority to the detection of fraud, embezzlement, or other wrongdoing on the part of Service employees. During the year, Intemal Audit informed Internal Security of possible breaches of integrity by 161 employees and 38 other individuals. Some 97 investigations were completed in 1978. As a result, 84 employees and 8 others were cleared of allegations of improprieties, while actions were taken or were pending against 1 employee and 4 others. Internal Security The Intemal Security Division protects the integrity of the Service by investigating high-risk areas and alerting managers and employees to integrity hazards. The Division investigates complaints of criminal misconduct or irregularities affecting IRS employees or operations. It also conducts investigations of nonService persons who attempt to bribe, threaten, or assault Service personnel, the unauthorized disclosure of Federal tax return information, disclosure or use of information by preparers of retums, and charges against tax practitioners. In addition, the Division investigates IRS job applicants and conducts special investigations and inquiries for the Commissioner and the Secretary of the Treasury. During 1978, Internal Security inspectors arrested or were responsible for the indictment of 147 persons including 92 taxpayers and tax practitioners, and 55 employees or former employees. Ninety-five persons were convicted during the year, including 83 defendants who pleaded guilty. Forty-six of these convictions were for bribery, 11 were for assault, and the remainder involved such criminal charges as conspiracy to defraud the Govemment, obstruction of justice, subscribing to false returns, disclosure of confidential tax information, and embezzlement. In one case, two high officials of a nationally known company were convicted of authorizing gratuities of approximately $27,000 to IRS employees. The corporation also was convicted and fined $36,000. Earher an IRS audit manager was convicted of accepting free vacation trips from the company. Bribery awareness The Division increased the number of bribery awareness presentations to Service employees, expanding them to include video tapes that realistically portray bribery situations Service employees may encounter. The effectiveness of these presentations may be gauged by the facts: 186 ADMINISTRATIVE REPORTS 213 employees reported 252 possible bribery attempts resulting in 73 arrests or indictments and at the end of 1978, 31 persons were awaiting trial on bribery charges. Assaults and threats FBI statistics from last year show that 74 percent of all threats and 41 percent of all assaults on Federal employees were directed at IRS employees. Intemal Security responds promptly to protect IRS employees threatened or assaulted while performing their duties and seeks vigorous prosecution of these cases by the U.S. attorney. In instances where prosecution is declined— usually in verbal threat cases without physical assault—an inspector, with the approval ofthe U.S. attomey, contacts the alleged assailant to inform him or her of applicable Federal statutes concerning assaults or threats on Government employees. The person also is advised that repetitive acts could result in prosecution. The Division is conducting studies seeking better ways to ensure the safety of IRS employees in assault and threat situations. Checking the work force The Intemal Security Division completed 13,017 investigations of employees during the year and 15,674 police record checks on persons considered for temporary appointments. These investigations and record searches resulted in the rejection of 85 job applicants and disciplinary actions, including separations, suspensions, reprimands, wamings, or demotions, against 741 employees. Also, at the request ofthe Office ofthe Secretary ofthe Treasury, the Division conducted special investigations involving employees of other Treasury bureaus. While some investigations of IRS employees resulted in criminal prosecution or disciplinary action, in many other cases employees were exonerated of accusations of misconduct. Taking precautions In each region, 100 integrity development projects initiated by Intemal Audit and Intemal Security probed high-risk Service operations. As an altemative to merely reacting to complaints, allegations, or referrals, this approach is designed to identify and examine areas in Service operations particularly susceptible to corruption and fraud. BUREAU OF THE MINT i The Mint became an operating bureau of the Department of the Treasury in 1873,pursuanttotheCoinage Actof 1873 (31 U.S.C. 251). AU U.S. coins are manufactured at Mint installations. The Bureau of the Mint distributes coins to and among the Federal Reserve banks and branches, which in turn release them to commercial banks. In addition, the Mint maintains physical custody of Treasury stocks of gold and silver; handles various deposit transactions, including inter-Mint transfers of gold and silver bullion; and refines and processes gold and silver bullion. During fiscal 1978, functions performed by the Mint on a reimbursable basis 1 Additional information is contained in the separate Annual Report of the Director of the Mint. 214 1978 REPORT OF THE SECRETARY OF THE TREASURY included the manufacture and sale of proof coin sets and uncirculated coin sets, medals of a national character, and, as scheduling permitted, the manufacture of foreign coins. The headquarters ofthe Bureau of the Mint is located in Washington, D.C. The operations necessary for the conduct of Mint business are performed at seven field facilities. Mints are situated in Philadelphia, Pa., and Denver, Colo.; assay offices are in New York, N.Y., and San Francisco, Calif; 2 and buUion depositories are located in Fort Knox, Ky., (for gold) and West Point, N.Y. (for silver). The Old Mint, San Francisco, houses the Mint Data Center, the Mint Museum, and a numismatic order processing operation. The West Point Depository continued to produce coins during fiscal 1978. The Mint security program provides appropriate and continuous protection for all employees and assets under the jurisdiction of the Bureau of the Mint. This is accomplished by the Mint Security Force, supported by extensive and sophisticated alarm systems, closed-circuit television coverage, special vaults or other controlled locking devices, and the Bureau's personnel security clearance program. A total of 37 Mint security officers completed the 5-week police training course at Treasury's Federal Law Enforcement Training Center. The principal security supervisor from one of the mints completed the 7-week criminal investigator's course. The Hungarian-owned Crown of St. Stephen and other related relics had been in custody ofthe Mint at the Fort Knox Bullion Depository for a number of years. Extraordinary security measures were employed in January 1978 at Fort Knox during the inspection, packing, and shipping of these Hungarian treasures, which were handled by Department of State employees. The items were returned to the Govemment of Hungary during the fiscal year. The Mint's Laboratory continued to provide technical expertise on the authenticity of U.S. coins, examining 954 questioned coins submitted by the U.S. Secret Service and other law enforcement agencies. The coins involved 135 cases. Two hundred twenty-two counterfeit gold coins, the content of which is being returned to innocent collectors, were processed through the New York Assay Office. Gold granulations, valued at more than $ 10,000, were returned to collectors who had innocently purchased counterfeit gold coins. Following the upgrading of the electrostatic precipitator at the New York Assay Office, reported in the 1977 report, the Mint's refinery resumed gold production during fiscal 1978. Internal audits during the fiscal year contributed to: A further strengthening of internal controls and accounting and reporting systems; better utilization of personnel, materials, and equipment; improved safety; and reduced operating costs. The Continuing Committee for the Audit of U.S.-owned gold located at various depositories at appropriate intervals was established by the Fiscal Assistant Secretary during fiscal 1976. The Committee consists of one representative each from the Bureau of the Mint, the Bureau of Govemment Financial Operations, and the Federal Reserve Bank of New York, with representatives of the General Accounting Office invited to participate in the audits as observers. During fiscal 1978, gold audits were performed in three ofthe four Mint depositories where gold is stored (Fort Knox, Ky.; U.S. Assay Office, New York; and the Denver Mint). By September 30, 1978, more than 50 percent of the U.S.-owned gold had been audited and verified. The continuing audit is planned to provide for a complete audit of U.S.-owned gold over a 10-year cycle ending in 1984. A total of $414,432,568 was deposited into the general fund ofthe Treasury 2 The San Francisco Assay Office also operates as a mint. ADMINISTRATIVE REPORTS 215 by the Bureau of the Mint during fiscal 1978. Seigniorage on U.S. coinage accounted for $367,156,260 ofthe total. Domestic coinage In April 1978, Secretary Blumenthal transmitted to the Congress proposed legislation to authorize a smaller dollar coin to replace the current one. On August 22, 1978, the Senate approved S. 3036 which authorizes the Secretary to mint and issue the smaller doUar coin bearing the portrait of Susan B. Anthony on the obverse and the Apollo 11 eagle design on the reverse. An identical bill was approved by the House of Representatives on September 26, 1978. The legislation was awaiting the approval of President Carter at the end of the fiscal year. [Public Law 95-447 was signed October 10, 1978.] The Anthony dollar will be a clad coin. The cladding is an alloy of 75 percent copper, 25 percent nickel. It will constitute 50 percent ofthe total thickness ofthe coin. The core will be pure copper. The coin wiU weigh 8.1 grams and have a diameter of 26.5 millimeters. The design has an 11 -sided border on both sides of the coin within the outer circular configuration, which will make it distinguishable by touch, as well as sight. The accompanying photograph illustrates both sides of the new doUar coin, which will be minted and issued for the first time during fiscal 1979. The Susan B. Anthony dollar coin During the 1978 fiscal year, U.S. mints manufactured for general circulation cupronickel-clad dollars, half dollars, quarters, and dimes, cupronickel 5-cent pieces, and 1-cent pieces composed of 95 percent copper, 5 percent zinc. 216 1978 REPORT OF THE SECRETARY OF THE TREASURY Coinage strip for the manufacture of U.S. coinage was obtained from both in-house fabrication and outside sources. All 5-cent, 10-cent, and 25-cent strip and a portion of the necessary 1-cent strip for the Philadelphia Mint was fabricated in-house. Coinage strip used by the Denver Mint and the San Francisco Assay Office was purchased on the open market. Most of the annealed/cleaned 1-cent blanks for West Point were furnished by the Philadelphia Mint, with lesser quantities purchased. The PhUadelphia Mint produced 5,260,137,000 coins; the Denver Mint 5,149,519,090 pieces; the West Point Depository manufactured 1,560,852,000 coins; and the San Francisco Assay Office 92,730,000 1-cent coins for general issue. In this 12-month period, the Mint shipped approximately 13.4 biUion coins to Federal Reserve banks and branches, establishing an alltime record. The Bureau ofthe Mint maintained its close liaison with the Federal Reserve in determining coin requirements. Demand for coin, as measured by the net outflow from the Federal Reserve banks to commercial banks, totaled 13.1 billion coins. This represented an increase of approximately 14.5 percent over 1977. Joint Mint/Federal Reserve inventories of coins amounted to 5.9 billion on September 30, 1978, compared with 7 billion a year earlier. Direct shipments of coins from the Mint to commercial banks without their passing into and out of the Federal Reserve banks was initiated. Direct shipments were being made to four banks in the New York Federal Reserve District and to two banks in the San Francisco District by the fiscal yearend. This is benefiting the Government in a number of ways, including savings in transportation costs, labor costs at the Federal Reserve banks, and the conservation of energy (fuel). By June 1978, copper prices had become sufficiently stabilized and the 1cent inventory had become large enough for Treasury to revoke the regulations which had been imposed in April 1974 prohibiting the exportation, melting, or treatment of 1-cent pieces. The revocation became effective June 7, 1978, following signature by Under Secretary Anderson. ^ 3 See exhibit 24 U.S. coins manufactured, fiscal y e a r 1978 •General circulation Denomination I doUar: Cupronickel Silver-clad 50 cents: Cupronickel Silver-clad 25 cents: Cupronickel Silver-clad 10 cents 5 cents 1 cent Total Number of pieces Numismatic ' Total coinage Number of pieces Face value Number of pieces Face value 37,598,006 $ 37,598,006.00 3,096,815 131,908 $3,096,815.00 131,908.00 40,694,821 131,908 $40,694,821.00 131.908.00 33,588,506 16,794,253.00 3,096,815 131,908 1,548,407.50 65,954.00 36,685,321 131,908 18,342,660.50 65,954.00 2 792,886,378 198,221,594.50 3,096,815 131,908 993,856,628 676,286,872 3 9,529,021,700 99,385,662.80 33,814,343.60 95,290,217.00 3,0%,815 3,096,815 3,096,815 774,203.75 32,977.00 309,681.50 30,968.15 795,983.193 131,908 996.953,443 679,383,687 9,532,118,515 198.995,798.25 32.977.00 99,695.344.30 33,969,184.35 95,321,185.15 12,063,238,090 481,104,076.90 18,976,614 6,145,755.65 12,082.214.704 487,249,832.55 154,840.75 Face value ' All numisinatic coins were made at the U.S. Assay Office, San Francisco, and consisted of 1,046.259 1977 proof sets, 2,050,556 1978 proof sets, and 131,908 silver-clad Bicentennial sets (110,044 proof, 21.864 uncirculated). Production of Bicentennial coins ceased on Dec. 31. 1976; however, sets continued to be packaged and sold after that date. Bicentennial sets reported in this table were packaged and sold during fiscal 1978. 2 Includes 15,352,000 quarter dollars produced at the U.S. Bullion Depository at West Point. 3 Includes 1,545,500,000 1-cent coins manufactured at West Point and 92,730,000 made at the San Francisco Assay Office. NOTE.—Dollars, half dollars, quarters, and dimes for general circulation and regular proof sets are three-layer composite c o i n s outer cladding 75 percent copper, 25 percent nickel, bonaed to a core of pure copper. Dollars, half dollars, and quarters comprising the Bicentenmal proof and uncirculated sets are three-layer composite coins with an outer cladding 800 parts silver. 200 parts copper, bonded to a core approximately 209 parts silver. 791 parts copper. ADMINISTRATIVE REPORTS 217 Bureau ofthe Mint operations, fiscal years 1977 and 1978 Selected items Newly minted U.S. coins issued:! 1 dollar 50 cents 25 cents 10 cents Scents Icent Total Inventories of coins in Mints, end of period Electrolytic refinery production: Gold—fme ounces SUver-fme ounces Balances in Mint, end of period: Gold bullion-fine ounces Silver bullion—fme ounces Fiscal 1977 Fiscal 1978 50,600,000 75,200,000 729,200,000 814,500,000 673,700,000 8.362,600,000 10,705,800,000 50,000,000 78,400,000 997,900,000 1,184,600,000 971,300,000 10,185,800,000 13,448,000,000 4,611,700,000 3,227,600,000 3,331,771.75 2,040,848.525 3,257,560.10 266,169,764 39,401,062 266,393,521 39,208,331 For general circulation only. Reimbursable programs Foreign coinage.—The Bureau ofthe Mint is authorized to produce coinage for foreign govemments on a reimbursable basis provided that the manufacture of such coins does not interfere with U.S. coinage requirements. At the fiscal yearend Mint installations were processing coinage orders for the Dominican Republic and Panama. Afe^/5.—Public Law 95-229, February 14, 1978, authorized the Secretary to strike up to 104,000 medals for the U.S. Capitol Historical Society by December 31, 1978. The medals are to commemorate historic events and personalities ofthe 1777-1778 period. By September 30, 7,750 medals had been produced and delivered to the Society. Special coin programs.—On AprU 3, 1978, the Mint began offering the 1978 proof coin sets for sale to the public at $9 per set. These special sets, stmck at the U.S. Assay Office at San Francisco, contain one coin of every current denomination. By June 30,1978, when the ordering period closed, 3.1 mUlion sets had been purchased. Shipment ofthe sets began in May and was scheduled to continue through December 1978. During fiscal 1978, 1.7 million 1977 uncirculated 12-coin sets (consisting of one coin of each denomination struck at both the Philadelphia and the Denver Mints) were shipped to customers who had ordered them between September 1 and October 31, 1977. Administration Effective May 21,1978, the Office ofthe Secretary ofthe Treasury assumed operation ofthe Treasury payroll/personnel information system (TPPIS). The Bureau of the Mint transferred 54 positions and $400,000 to that Office to continue ongoing operations for the remainder of the fiscal year. The Bureau of the Mint embarked on a program during fiscal 1978 to develop an automated financial management information system. The General Ledger and Appropriation Accounting/Reporting System, the first module, was in the design stage at the fiscal yearend. 218 1978 REPORT OF THE SECRETARY OF THE TREASURY Labor relations Effective December 15, 1977, the Bureau of the Mint and Mint CouncU American Federation of Government Employees (AFGE) entered into the second national labor-management agreement. This agreement will remain in force for 3 years. OFFICE OF REVENUE SHARING i The Office of Revenue Sharing is located within the Office of the Assistant Secretary (Domestic Finance) for administrative purposes. The revenue sharing staff consists of approximately 200 professional and clerical positions,; with 30 of them designated for the antirecession fiscal assistance (ARFA) program. Offices are located at 2401 E Street, NW. in Washington, D.C. The Office of Revenue Sharing was made responsible for administering the ARFA program with the passage of title II of the Public Works Employment Act of 1976 (Public Law 94-369). Under the act, the Office had distributed more than $3 billion by the end of fiscal 1978. With the passage of the Intergovernmental Antirecession Assistance Act of 1977 (Public Law 9.5-30, May 23, 1977), the civU rights and audit requirements of the ARFA program were made identical to those of the general revenue sharing program. During fiscal 1978, $6.8 billion in revenue sharing funds was distributed to more than 38,000 States, counties, cities, towns, townships, Indian tribes, and Alaskan native villages which are recipients of shared revenues. This brought to $42 billion the amount of money retumed to States and local governments since the inception of the general revenue sharing program in 1972. The State and Local Fiscal Assistance Act of 1972 (31 U.S.C. 1221-1263) authorized the distribution of $30.2 bUlion for the 5-year period that ended December 31, 1976. The money was allocated according to formulas contained in the law which use data on population, per capita income, and general tax effort for each recipient unit of local govemment. The ninth entitlement period in the general revenue sharing program is the second entitlement period authorized by the State and Local Fiscal Assistance Amendments of 1976 (Public Law 94-488, October 13, 1976). These amendments extended general revenue sharing from January 1, 1977, through September 30, 1980, at higher annual levels of funding than had been authorized by the original act. The amendment for the ninth period authorizes $6.8 billion for distribution, bringing the total authorized for distribution to $42 biUion. Data improvement To ensure that aU funds are distributed equitably, consistent with the intent ofthe Congress, all data used by the Office of Revenue Sharing in the formula allocation process must be ofthe highest quality, both in terms of currentness and accuracy. To meet the first objective, all four data factors relating to local governments were updated by the Bureau of the Census for the allocation of funds for entitlement period 10, which extends from October 1, 1978, through 1 Additional information is contained in the separate Annual Report of the Office of Revenue Sharing for 1978. ADMINISTRATIVE REPORTS 219 September 30, 1979. The population and per capita income estimates were updated to 1976 and 1975, respectively, and the adjusted taxes and intergovernmental transfers data elements were each updated to fiscal 1977. The Bureau of Indian Affairs also developed updated population estimates as of 1976 for Indian tribes and Alaskan native villages. In addition, revised 1974 per capita income estimates were developed and used to compute adjusted allocations for all local govemments for entitlement period nine. The second objective, that of ensuring the accuracy of the data, is met in large part through the Office of Revenue Sharing's annual data improvement program. This administrative procedure consists of notifying each govemment ofthe individual data elements to be used in determining its allocation, as well as an estimated allocation amount based on the preliminary data. Each government is then asked to examine its data factors in light of established data definitions, and propose corrections for any data element considered to be in error, submitting appropriate documentation to support any challenge. These are thoroughly reviewed, and appropriate revisions are made when justified. Approximately 1,500 governments proposed challenges to 1 or more individual data elements believed to be in error, in response to the data improvement program for entitlement period 10, conducted in April 1978. Of this number, several hundred resulted in changes being made to the data in question. As a result of this program and the Census Bureau's ongoing data review, nearly 2,000 data revisions were made prior to the official entitlement period 10 allocations. In determining the allocations to govemments under the antirecession fiscal assistance program, the Office of Revenue Sharing uses updated unemployment data provided each quarter by the Department of Labor, Bureau of Labor Statistics, as required by statute. The Intergovemmental Antirecession Assistance Act of 1977 made it possible for Govemors of States to supply to the Bureau of Labor Statistics unemployment rates prepared according to that agency's methodology for local govemments for which the Bureau did not have local unemployment rates for the July 1978 payment quarter. In each calendar quarter, the Office of Revenue Sharing provides each of the approximately 39,000 potentially eligible govemments with notice of its antirecession data factors for review, as well as its quarterly allocation amount. The data can be corrected if a government notifies the Office of a processing error within 21 days after the mailing of the payment and allocation data notices. Approximately 125 govemments write during a typical quarter to question the data factors used. Such correspondence occasionally results in corrections to the data and adjustments to the antirecession payments. During 1978, a newly designed Actual Use Report, consolidating local government reporting of expenditures under both the general revenue sharing and antirecession fiscal assistance programs into a single concise format, was introduced by the Office in conjunction with the Bureau of the Census. This information, the collection of which is mandated by the enacting legislation, wUl be highly useful in periodically evaluating both programs' effectiveness. Technical assistance The Office of Revenue Sharing provides information and technical assistance to State and local govemments receiving general revenue sharing and antirecession fiscal assistance funds. The past year was an especially active one because of the many State and local officials who assumed public office for the first time. Technical assistance was provided in the form of more than 3,000 letters in response to written requests for specific information and guidance. In addition. 220 1978 REPORT OF THE SECRETARY OF THE TREASURY over 88,000 telephone contacts were made with recipient govemments, various organizations, and others interested in the revenue sharing and ARFA programs. Six technical papers were prepared on various aspects of both programs and over 7,500 individual mailings were made of these and other informational materials. The Office has established a network of liaisons within each ofthe 50 States and the 4 territories receiving ARFA funds. Over 60 technical assistance workshops were conducted during the year in cooperation with these liaisons and other cosponsors for the benefit of recipient governments. Quarterly, each of the more than 38,000 recipient governments in the general revenue sharing program and each of the more than 20,000 governments which have received ARFA funds has been sent a letter to provide information which wiU enable the recipient govemment to continue to participate and remain in compliance with the requirements of the legislation. Public participation Considerable time was spent during the year informing recipient governments and public interest groups ofthe new public participation requirements. These provisions require two public hearings to be held by State and local govemments receiving revenue sharing funds prior to the use of such funds, with attendant public notice and opportunity for examination of budget documents. A series of publications designed to assist recipient govemments to understand the new requirements was developed. Public participation compliance reviews were conducted in more than 100 recipient jurisdictions. Direction was provided to those governments which had failed to comply with public participation requirements. Civil and human rights Section 122 of the Revenue Sharing Act provides that: "No person in the United States shall, on the ground of race, color, national origin, or sex, be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity of a State govemment or unit of local government, which government or unit receives funds * * *. Any prohibition against discrimination on the basis of age under the Age Discrimination Act of 1975 or with respect to an otherwise qualified handicapped individual as provided * * * shall also apply to any such program or activity. Any prohibition against discrimination on the basis of religion, or any exemption from such prohibition, as provided * * * shall also apply to any such program or activity." Although the staff which has responsibility for monitoring and enforcing this section of the Revenue Sharing Act is small, it has been successful in investigating a significant number of civil rights complaints. Of even greater significance has been the success demonstrated by the Civil Rights Division in resolving most of the complaints, mainly through negotiation and efforts to achieve voluntary compliance. In those rare instances where recipient jurisdictions have been reluctant to take those steps necessary to come into compliance, the Office has demonstrated its mandated responsibility to enforce the law and has initiated action to fulfill its responsibilities through the route of administrative hearings to compel compliance. Shown below is a table that demonstrates the growth ofthe activities ofthe Division. 221 ADMINISTRATIVE REPORTS Discrimination complaints Year 1972 1973 1974 1975 1976 1977 1978 Received r Determinations/ findings Qosedr Carried over r 2 27 75 213 229 276 306 0 1 14 8 7 125 156 0 2 26 29 71 142 184 2 27 76 260 418 552 674 r Revised. Note.—The most significant unit of work measurement is the determinatioris/fmdings issued, rather than number of complaints closed. The major portion of the work process is completed upon the issuance of a determination/fmding. Usually, the closure of the case is dependent upon a review ana analysis of requested inlbrmation from a recipient govemment after the issuance of a noncompliance determination, or nnding. To assist in conducting field investigations and to help resolve discrimination complaints, the Office continues to work in a cooperative effort with several major Federal agencies. The Office is currently attempting to renegotiate cooperative agreements with the Federal agencies with which it has shared agreements. Audit procedures The 1976 amendments to the Revenue Sharing Act require that a recipient govemment receiving $25,000 or more annually in revenue sharing entitlements must have an independent audit of its financial statements conducted, in accordance with generally accepted auditing standards, not less often than once every 3 years. This requirement is applicable to more than 11,000 ofthe nearly 39,000 revenue sharing recipients. During fiscal 1977, the Office reviewed the professional practice of aU State auditors responsible for making financial and compliance audits of State and local governments and found the audits of 11 of these audit agencies to be unacceptable. Since State auditors audit about one-half of the recipients required by the 1976 amendments to have audits, the Office has given particular attention to those 11 agencies that were not doing an acceptable job. As of the end of the fiscal year, all 11 either had taken positive steps to bring their practice to an acceptable status or had decided to contract with independent public accountants to make the required audits. In December 1977, a new audit guide was issued which incorporated the changes in the Revenue Sharing Act made by the 1976 amendments in accounting and auditing requirements and included the compliance audit procedures of the Antirecession Fiscal Assistance Act. A program was prepared for reviewing audit reports submitted to the Office by independent public accountants and State auditors. Also, the review programs of State auditors and independent public accountants were revised in view of the enlarged requirements ofthe 1976 amendments. The Office definition of "independence" contained in its regulations was adopted by the American Institute of Certified Public Accountants (AICPA). In defining independence in relation to the auditing of govemmental entities previously, the AICPA recognized only practicing certified public accountants as being independent for this purpose. During the year, the Audit Division either received or was advised of the issuance of 2,700 audit reports of revenue sharing recipients. Copies of audit reports issued by independent public accountants for which a State auditor has 222 1978 REPORT OF THE SECRETARY OF THE TREASURY no legal responsibUity must be furnished to the Office. Also, copies of audit reports must be submitted to the Office if they disclose violations of the Revenue Sharing or Antirecession Fiscal Assistance Acts and regulations. State auditors provide the Office with a quarterly report listing audit reports which they issue or receive for review from independent public accountants that do not contain findings of violations of the Revenue Sharing or Antirecession Fiscal Assistance Acts or regulations. These reports are kept on file by the State auditors for review by the Audit Division as a part of the periodic reviews made of State auditors' performance. Considerable time was devoted during the year to the review of the professional practices of independent public accountants. During the year, 135 reviews were made involving 235 recipients. The practice of 65 of these independent public accountants deviated from generally accepted auditing standards to such an extent that they could not be considered to be in compliance with the requirements of the Revenue Sharing Act. The Audit Division also responded to 4,000 requests from independent public accountants for confirmation of entitlement fund payments. In fiscal 1978, 375 cases were opened ofwhich 260 resulted from findings of audit reports. Cases closed totaled 580. Thus, open cases were reduced from 390 to 185 or a decrease of 205 during the year. There was also progress made in closing cases more promptly. As of September 30, 1978, there were only 40 cases that had been open for a year or more. Legal issues During the fiscal year, the Chief Counsel participated in the initiation or defense of 14 legal actions including 3 administrative hearings. Several court suits involved discrimination charges against recipient govemments in which the Office was joined as a party defendant. In regard to alleged charges of discrimination against recipient governments in which the Office was joined as a party defendant, the case Committee for Full Employment v. Simon is on appeal in the U.S. Court of Appeals for the District of Columbia Circuit. The district court (U.S.D.C, D.C.) in this case decided for the Secretary of the Treasury, agreeing that plaintiffs lacked standing to sue. The individual complaints filed with the Office in relationship to this case are expected to be settled through the adoption of compliance agreements between the concemed recipient governments and the Office prior to the oral argument on the case. The Office was involved in several suits involving the application of adjusted tax data in the revenue sharing allocation formula, and the procedures of the Office in making downward adjustments to a recipient govemment's allocation. Board of Supervisors of Henrico County, Virginia \ . W. Michael Blumenthal et al. (U.S.D.C, W.D. Va.) concems the treatment of county highway funds with respect to the derivation of adjusted taxes in the revenue sharing allocation formula. Edward V. Regan v. Jeanna Tully (Bernadine Denning) (U.S.D.C, W.D. N.Y.) concerns whether the Office properly made a downward adjustment in Erie County, N.Y.'s seventh entitlement period allocation. The Office also obtained a favorable data decision in the U.S. District Court for the District ofColumbia in City of Newark, New Jersey, et al. v. Blumenthal, CivU Action No. 74-548 (January 17, 1978). In granting the defendant's motion for summary judgment and denying the plaintiffs' motion for summary judgment, the court held that the Secretary's discretion in adjusting revenue sharing allotments under S 109(a)(7)(B) is not reviewable (31 U.S.CA. S ADMINISTRATIVE REPORTS 223 1228(a)(7)(B) ). The cities of Newark and Baltimore had asked the court for a determination that their past and future allocations be increased to reflect an estimated black population undercount indicated in an updated analysis of the 1970 Census data originally relied upon by the Secretary. Other court and administrative actions involving Nottoway and New Kent Counties, Va., were settled before trial in conformance with the earlier case of Albemarle County, Virginia v. William E. Simon, Secretary of the Treasury, et al. (U.S.D.C, W.D. Va.). These actions concerned the proper derivation of adjusted taxes for those Virginia counties with general revenue or "commingled" fund accounting systems. An administrative proceeding against the town of Dover, N.J., was begun, founded on the Office's determination that the town had discriminated against Hispanics in its employment practices. A pretrial conference was conducted before an administrative law judge, and the action was settled before the date of the hearing on the merits. The town made lump-sum payments to the two individual complainants, and it submitted a satisfactory affirmative action plan pertaining to its employment practices. An administrative hearing against the city of Akron, Ohio, was begun based upon an Office determination that the city had discriminated against an individual on the basis of handicapped status in violation of S 122(a) of the amended Revenue Sharing Act (31 U.S.C. 1242(a) ). This action was settled at the commencement of the hearing on grounds favorable to the position of the Office. An Office legislative program for the First Session ofthe 96th Congress was developed. This program recommended amending the Revenue Sharing Act of 1976 to provide, among other things, (1) the Secretary, when necessary, with the authority to reserve (in accordance with S 102(c) of the act) more than 0.5 percent ofeach State's allocations in order to pay any later required adjustments to the aUocation of the State or any unit of local government within that State; (2) sanctions for noncompliance with the public participation requirements of S 121 of the act; (3) for deferral of Office jurisdiction to other Federal agencies. Federal or State courts when they are acting promptly and expeditiously on the same matter before the Office; and (4) for other technical amendments aimed at correcting drafting oversights in the act. During the fiscal year, the Chief Counsel issued approximately 70 letter rulings to recipient governments seeking guidance for the use of ARFA funds. A digest of these letter rulings has been prepared for the use of recipient governments. Antirecession fiscal assistance Treasury distributes antirecession funds to States and local general governments based on unemployment rates and general revenue sharing entitlements. These funds supplement the general revenue sharing payments. Appropriations of funds to be distributed and of money to be used to administer the new program were first made available in fiscal 1977. In May 1977, the Congress extended the ARFA program for four quarters beyond its original life, through September 1978, by enacting the Intergovernmental Antirecession Assistance Act of 1977. This legislation maintained the broad outlines of the original program. In excess of $3 bUlion has been distributed to over 25,000 State, general purpose local, and several U.S. territorial govemments. These funds are intended by the Congress for use to maintain basic services normally provided by governments and to help these units avoid actions which run counter to national economic policies. 224 1978 REPORT OF THE SECRETARY OF THE TREASURY OFFICE OF TARIFF AFFAIRS The Office of Tariff Affairs, which provides policy direction, review, and final action on recommendations by the Customs Service on administration of the Antidumping Act and the countervailing duty law, faced a radically increasing workload during the fiscal year, with antidumping cases rising to 247 percent of the 1977 level, and countervailing duty investigations increasing to 175 percentof the 1977 level. In February 1978, the Office began oversight of the trigger price mechanism for monitoring of steel imports for the purpose of determining when self-initiation of antidumping investigations of imported steel products might be appropriate. The Office also adopted a new antidumping regulation to deal more appropriately with imports from state-controUed-economy countries under the Antidumping Act. During fiscal 1978, the Treasury initiated 47 antidumping investigations and reached final determinations of sales at less than fair value in 11 cases. There were eight dumping findings during that time. Over the same period, the Treasury initiated 28 investigations under the countervaUing duty law, made 4 affirmative determinations and 8 negative decisions. Five waivers of countervailing duties were issued during that time. During the year, the Office also completed an investigation under section 232 ofthe Trade Expansion Act concerning an alleged threat to the national security arising from imports of metal fasteners, and provided assistance to Treasury participants in the multilateral trade negotiations insofar as they related to the negotiation of a countervailing duty code. UNITED STATES CUSTOMS SERVICE The principal missions ofthe U.S. Customs Service are to enforce customs and related laws against the smuggling of contraband; to assess, collect, and protect the levying of import duties and taxes; and to control carriers, persons, and articles entering or departing the United States by enforcing the Tariff Act of 1930 and numerous other statutes and regulations which govern intemational traffic and trade and protect the American public. To accomplish these missions, the Customs Service performs the following: 1. As the principal border enforcement agency and a protector of the American consumer. Customs administers and enforces over 400 laws and regulations of over 40 Govemment agencies, relative to international traffic and trade. 2. Detection and prevention of all forms of smuggling and other Ulegal practices designed to gain illicit entry into the United States of prohibited articles, narcotics, drugs, and all types of contraband. 3. Detection and investigation of illegal activities to apprehend violators and otherwise take effective action to reduce, prevent, and deter violations of laws and regulations enforced by Customs. 4. Examination and clearance of carriers, persons, and merchandise consistent with the requirements for the proper assessment and collection of ADMINISTRATIVE REPORTS 225 customs duties, taxes, fees, fines and penalties, and compliance with the customs laws and regulations applying to intemational commerce. 5. The most effective application of resources to carry out the total Customs mission, consistent with efficiency in Govemment and economy and service to the public. During fiscal 1978, Customs cleared over 273 million persons arriving in the United States. More than 82 million cars, trucks, and buses crossed the country's borders; an additional 211,000 ships and 441,000 aircraft also cleared Customs. This involved processing 16 mUlion customs declarations. Customs collected a record $7.5 billion in duty and taxes and processed $165 billion worth of imported goods which required over 4 million formal entries (those over $250 in value). In addition, there were 47 miUion foreign maU parcels processed in fiscal 1978, requiring over 2.3 mUlion informal maU entries. The Customs enforcement mission also produced tangible results during fiscal 1978. Merchandise seized, including illicit drugs, prohibited articles, undeclared merchandise, etc., was valued at over $2 billion. There were over 21,000 drug seizures. These seizures included 1,419 pounds of cocaine, 7.6 million units of polydrugs, and 2,308 tons of marijuana. There were 189 pounds of heroin seized. Merchandise Processing As part of its functions to examine and clear carriers, persons, and merchandise, in fiscal 1978, Customs processed 4 miUion formal entries; and collected $7.5 billion in revenue on merchandise valued at more than $165 billion. Quotas One of the principal uses of vital trade statistics is in the establishment of commodity quotas. Currently the Customs Service enforces more than 940 such quotas. Mail operations During fiscal 1978, Customs mail branches processed approximately 47 million parcels, prepared over 2 million maU entries, and coUected approximately $21 million in duty. Over 80 percent of the foreign mail is processed by Customs mail branches at locations in New York, Oakland, Seattle, Los Angeles, and Chicago. Streamlined procedures for revenue collection are being implemented with the aim of better servicing the public. Containerization program The container examination program was designed to separate containers of goods arriving from foreign countries into two categories, those on which an intensified examination was necessary and those which could be released upon a cursory examination. During fiscal 1978,1,603,210 empty and merchandisefilled containers arrived in the United States. Of this number, 154,606 (10 percent) were given an intensified examination. A total of 303,485 "empty" containers were screened for controlled substances and presence ofmerchandise. Reduced supervision of bonded warehouses In a continuing effort to reevaluate the risk factors and controls in cargo processing, Customs has embarked upon a program to reduce the supervision 226 1978 REPORT OF THE SECRETARY OF THE TREASURY of bonded warehouses. This reduction, for the most part, consists ofremoving the Customs locks from the warehouse and physically supervising only selected, high-risk activities. Automation of cargo control Nearly all merchandise that enters the United States must be reported on the manifest ofthe carrier that brings it into the country. Customs checks each manifest for merchandise verification. Customs reviewed its manifest controls during 1978 and decided to use the cargo manifest to initiate an audit trail for all goods entering the United States. The period covered wUl extend from the time they arrive until they finally leave Customs jurisdiction. This would include not only goods entered directly for consumption, but also the many shipments whose final entry or reexportation is delayed for transportation in bond to another port, entry for warehouse and subsequent withdrawal, unclaimed goods placed in general order, and similar situations. Military predeparture program There are over 150 predeparture inspection activities located overseas staffed by over 2,700 full- and part-time military customs inspectors (MCI's). MCI's perform inspections of cargo, passengers, crew, and their baggage; personal and household effects; aircraft; vessels; and mail. The purpose of this overseas program is to interdict narcotics, dangerous drugs, and other contraband prior to arrival in the United States, and thus expedite the movement of passengers, cargo, carriers, and mail. Although the major military commands are responsible for the establishment of predeparture inspection programs and the assignment, training, and supervision ofthe MCI's, six customs officers have to serve as advisers to the major commands and ensure that effective inspection procedures are being UtUized. Customs laboratories The Customs laboratories analyzed over 160,000 samples. Changes in classification occurred in over 12,000 of these samples as a result of laboratory analysis. Many of these changes involved high-risk merchandise such as metal, textiles, chemicals, and footwear (with a concurrent increase in revenue). Use ofthe National Commodity Sampling Information System (NCSIS—a report detailing classification change rates for imported commodities) was instrumental in increasing the sampling rates for high-risk imports. Further refinements and extensive dissemination ofthe NCSIS report will improve this ratio. Trade Antidumping and countervailing duty During fiscal 1978, 56 new antidumping and 28 countervaUing duty cases were initiated; 17 antidumping and 16 countervailing duty cases were published. Antidumping master lists on 77 manufacturers were circulated to field offices for their use in assessing dumping duties. Presently, 75 findings of dumping are in effect. Antidumping and countervailing duty investigations more than doubled from 1977 to 1978. ADMINISTRATIVE REPORTS 227 Antidumping.—Approximately 30 of the antidumping investigations conducted in fiscal 1978 concerned steel mUl products. The greatly increased volume of steel imports and the generally depressed condition ofthe U.S. steel industry appear to have accounted for so many investigations involving steel products. As the trigger price mechanism has begun to take effect, the domestic industry has been withdrawing its complaints of dumping and investigations are being terminated. Antidumping appraisement procedures.—The major accomplishment in this area during fiscal 1978 was the appraisement of televisions from Japan under the Antidumping Act. Approximately $46 mUlion has been assessed on entries of television receivers. However, accomplishing these appraisements required such a large amount of manpower that Customs has been unable to reduce the backlog of antidumping appraisements on other merchandise. Countervailing duties.—The majority of the countervailing duty petitions filed in fiscal 1978 related to various textile products. These primarily concerned exports from South America and the Far East. Common elements of these petitions concemed allegedly favorable tax treatment for export industries and various measures to encourage economic development in specified areas of individual exporting countries. The Supreme Court has upheld the Government's position on the Japanese electronics products case that noncollection ofthe Japanese commodity tax does not constitute a bounty or grant under the countervailing duty law. Accordingly, the entries of consumer electronic products from Japan, which had been subject to this litigation, will be liquidated without assessment of countervaihng duties. Trigger price mechanism (TPM) In 1977, the U.S. steel industry was experiencing financial difficulties which industry analysts attributed to unfairly priced steel imports. To help the steel industry, the President signed a comprehensive aid package, dealing with such matters as plant obsolescence, environmental controls, worker assistance, and imports. To alleviate the import problem and ensure free but fair competition, the report proposed a trigger price mechanism. TPM is designed to monitor imports of steel products and enable Treasury to expedite dumping investigations when warranted. Trigger prices are calculated and published for steel mUl products. During fiscal 1978, trigger prices had been published for 84 steel mill products covered by the program. These prices, which must be revised quarterly, consist of: A base price, a charge for "extra" specifications, ocean freight, handling, interest, and insurance. Generalized system of preferences (GSP) Customs participated in GSP in conferences in Malaysia, Singapore, the Philippines, and Hawaii to discuss verification procedures and other mutual problems concerning GSP implementation. Amendments to sections 10.172 and 10.173 ofthe Customs Regulations were effective in January 1977. These changes relaxed the rigid requirements concerning liquidated damages and written claims under GSP. Currently, 140 countries/territories and 2,750 major item numbers in the Tariff Schedules of the United States are eligible for GSP. During fiscal 1978, the number of GSP imports represented 6 percent of the total line items processed. Classification of exported goods Customs participated in an interagency effort to achieve statistical comparability between U.S. import, export and production data. As a result of this 228 1978 REPORT OF THE SECRETARY OF THE TREASURY project, a new schedule B encompassing the classification of exported goods, a revised manufacturing code, and revised tariff schedules were published for use in fiscal 1978. Enforcement Interdiction The tactical interdiction patrol program attempts to combat smuggling activity along the national borders by reducing the smugglers' options for choosing the method, time, and place for entering contraband into the United States. Customs seeks to accomplish this by maintaining a mobile interdiction force capable of operations on land, sea, and in the air. Air interdiction.—In fiscal 1978, there were six air support branches located at military airbases near San Diego, Tucson, El Paso, San Antonio, New Orleans, and Miami. These locations were selected because of their proximity to major air smuggling routes. However, since the southern border of the United States is more than 3,000 miles long, each air branch has responsibUity for protecting a corridor that, on the average, is 500 miles wide. This year, the air program entered into another agreement with the U.S. Air Force for the loan of four T-39 Saberliner high-performance jet aircraft. These aircraft will serve as the firstline interceptors for the airborne warning and control system (AWACS) operations. In addition to these aircraft. Customs continues to utilize the North American Radar Defense/Federal Aviation Administration (NORAD/FAA) long-range radar as weU as mobUe groundbased radar units for smuggler detection and tracking. In concert with sophisticated radar and aircraft. Customs also utilized— 1. Intelligence information on suspect aircraft available through the Treasury enforcement communications system (TECS). 2. Data from the private aircraft reporting system (PARS), which requires all private aircraft crossing the Southwest border to give at least a 15-minute advance report before penetrating U.S. airspace and land at 1 of 14 specially designated airports. 3. The private aircraft inspection reporting system (PAIRS), which automates the arrival reports of all general aviation-type aircraft arriving from foreign countries and clearing U.S. Customs. Such arrival information is entered in TECS. The combination of these elements enables Customs to concentrate on highrisk aircraft by screening out legitimate private aircraft. On July 29, 1978, air surveillance detected a suspect aircraft in the vicinity of Homestead General Airport located south of Miami, Fla. As the aircraft landed at the airport four large suitcases were tossed onto the side of the taxiway. Customs air officers attempted to intercept the aircraft, and on an attempted departure the suspect plane crashed. The pilot managed to escape but further investigation led to identification of the suspect and subsequent indictment. Customs officers successfully seized the 4 suitcases which contained over 200,000 quaaludes. During fiscal 1978, the air support program seized 62 vehicles, 56 aircraft, 596,428 pounds of marijuana, 74 pounds of hashish, 54.4 pounds of cocaine, 11 vessels, 27 weapons, and $172,940 in cash, and made 177 arrests. Border interdiction.—Customs land interdiction resources along our northem and southern borders consist of mobile tactical units which utilize border intrusion devices arranged into electronic sensor fields, night vision devices. ADMINISTRATIVE REPORTS 229 TECS and sector communications networks. At major ports of entry patrol officers search aircraft and vessels. On January 2, 1978, a Miami customs officer observed a suspicious person remove a box from a banana boat and transfer it into a waiting vehicle. The vehicle was stopped; the box was found to contain 17 pounds of cocaine and the suspect driver of the vehicle was arrested. Following a search of the area located near the banana boat, an additional 31 pounds of cocaine was also seized for a total of 48 pounds of cocaine. During fiscal 1978, the land program seized over 3 million pounds of marijuana and hashish. The program resulted in the arrest of 500 suspects. This is an increase of more than 200 percent over the number of seizures made during fiscal 1977. The seizures of hard narcotics increased more than 90 percent over the seizures for fiscal 1977. Marine interdiction.—Customs marine interdiction units detected and apprehended marine violators in many coastal, lake, and river boundary areas. The violations included many smuggling attempts and delinquencies in reporting and entry requirements. These units utilized Customs patrol boats, special reporting and inspection facilities, reports of legitimate traffic, and intelligence concerning illicit activities. Four new marine patrol stations were put into operation in fiscal 1978. On July 18, 1978, customs officers, on patrol off the coast of Florida, boarded two suspect 55-foot "Crawfish" vessels and discovered 35,000 pounds of marijuana. As a result, both vessels and the marijuana were seized along with a van and two 5-ton trucks. Twelve suspects were apprehended and arrested. In fiscal 1978, the Customs marine interdiction program seized over 1 million pounds of marijuana and 200 pounds of cocaine along with 146 vessels. The program resulted in the arrest of 500 suspects. Mail interdiction.—Customs mail facilities interdicted the smuggling of narcotics, weapons, explosives, stolen property, and other contraband, making over 6,000 seizures of illicit narcotics in both military and nonmilitary mail. On June 9, 1978, at the Chicago mail facility, customs officers, examining a letter-class envelope from the Netherlands, discovered films dealing with child pornography. A subsequent controlled delivery to Paducah, Ky., resulted in one arrest and seizure of the film. The suspect was later convicted of smuggling controlled contraband into the United States and sentenced to three consecutive 5-year terms. Enforcement Support Treasury enforcement communications system The Treasury enforcement communications system continues to be the major tool in Customs effective enforcement program through instant online communication. TECS makes available law enforcement information to enforcement personnel in ports of entry, to investigative offices in field and headquarters, locations within Customs, and to other Federal law enforcement activities. It has provided data instrumental in the arrests of thousands of fugitives; recovery of countless firearms, automobiles, and other stolen or missing property; seizure of thousands of articles of contraband and tons of narcotics and illegal drugs; and seizures of millions ofdollars ofcurrency and 230 1978 REPORT OF THE SECRETARY OF THE TREASURY negotiable instruments. Due to this effectiveness, and the flexibility of the Burroughs 7700 host computer and the redesigned TECS software. Customs is implementing a plan which has expanded the network to over 1,000 terminals with an integrated data base of almost 2 million records. The TECS redesign is being implemented as a system that will serve the needs of law enforcement officials within and outside Treasury with a minimum of cost to the taxpayers through the economies of sharing a computer and communication resources in the enforcement community. In addition, TECS provides enforcement-related management information indispensable to headquarters, field management and operations. It also serves as an index to all of Customs central files. This means rapid retrieval of supportive hard copy enforcement documentation. In fiscal 1978, a stolen vehicle index based on National Crime Information Center (NCIC) records has been entered into TECS. The national avaUability of this index has resulted in the recovery of over 400 stolen vehicles and 500 related arrests this fiscal year. The private aircraft inspection and reporting system was implemented on a national basis, providing for improved inspection, control, and reporting of private aircraft arrivals. A fines, penalty, and forfeiture system was designed and implemented to provide a national index for Customs field use in processing penalty cases. The system also provides improved regional and national management control for timely and consistent penalty processing. The Immigration and Naturalization Service (INS) Lookout Book was automated within TECS. This provided a base for increased Customs-INS cooperation resulting in the interception of about 80 individuals since implementation. Pilot tests of several passenger inspection configurations are underway at selected international airports. Emphasis focused also on development of productivity and effectiveness measurement. Initial output of this effort results in establishment of zero-base budget objectives for 1978 and 1979, greater focus on improving the reliability and utilization of TECS terminals, as well as improved computer system configuration management and planning. The first TECS telecommunications concentrator was installed in Washington. It is currently providing a $6,000 monthly cost savings in telecommunication costs. This savings is expected to grow to $ 12,000 monthly when all of the assigned terminals have been switched over to operation via the concentrator. The systems security and privacy compliance program was initiated to establish and implement guidelines, policies, and procedures to ensure the security and integrity of aU related TECS computer operational activities. The program addresses the objective, background, policies, responsibilities, and support action required to enhance the security of TECS. A security evaluation checklist has been produced which provides the program with a valuable reference document for use at Customs installations where TECS is in operation. In addition, a revised TECS Security Manual is being prepared for use and reference by Customs and non-Customs users of TECS. It wiU include informational guidelines regarding security procedures and records, personnel and data access controls, and physical security; recent developments regarding privacy and disclosure awareness are appropriately emphasized. TECS service was extended this fiscal year to the Freeport, Toronto, and Calgary preclearance facilities, Miami Satellite and Newark Airports, INS headquarters, and State Department headquarters and field units as well as to additional stations at JFK Airport. ADMINISTRATIVE REPORTS 23 1 Joint projects were initiated with INS to identify a common use terminal device for land border and airport facUities to accommodate the processing of machine-readable travel documents, and shared use ofthe TECS telecommunications network. Customs enforcement information system (CEIS) CEIS is designed to provide information from various enforcement systems. Its purpose is to support the interdictory and investigative missions of Customs by providing immediate information to customs officers in the detection of violations of customs laws; enforcement statistics to evaluate programs and performance and to identify deficiencies; statistics for projecting requirements and for determining the optimum allocation of equipment and dollars and the optimum deployment of personnel; and data for intelligence analysis of, among other things, violation patterns, latest modus operandi, and courier profiles. A computerized information system such as CEIS increases in value over the years as more data is fed into the system. During fiscal 1978, approximately 200,000 records were created or updated, bringing the TECS data base to more than 1.5 mUlion records. In fiscal 1978 the enforcement lookout system aided in the seizure of heroin with a street value of $ 16 mUlion; marijuana with a street value of $20 million; cocaine with a street value of $20 million; hashish with a street value of $4 million; dangerous drugs with a street value of over $1 million; numerous vehicles, vessels, and aircraft used to transport such contraband into the country; more than $560,000 in cash and bearer monetary instmments; and general merchandise valued at more than $1 mUlion. The TECS interface with the FBI's NCIC also produces impressive results. Forewarned by TECS-NCIC hits in fiscal 1978, customs officers apprehended 1,058 fugitives wanted by other Federal, State, and local law enforcement agencies. CEIS is continually being expanded and improved. The system is currently operational at Dulles Airport and the preclearance facUities in Nassau, Freeport, and Bermuda and is scheduled for implementation at additional preclearance ports in Canada. Customs central enforcement files have continued to experience tremendous growth. The number of records microfiched during fiscal 1978 was up 79 percent over fiscal year 1977. The number of aircraft reports received in support of the private aircraft inspection reporting system has more than doubled since fiscal 1977. A number of enforcement information systems designed to enhance Customs enforcement results were implemented or perfected in fiscal 1978. To support the Customs air interdiction program aimed primarily at drug smugglers, the private aircraft inspection reporting system was expanded nationwide. After a test period during fiscal 1977, PAIRS was brought on-line to all Customs and El Paso Information Center (EPIC) terminals. PAIRS charts arrivals from foreign countries by pilots in private aircraft. It also provides valuable information when used in conjunction with TECS records on individuals and aircraft. To counter narcotics smuggling via small vessels (as opposed to oceangoing commercial vessels with records in the Customs vessel violation profile system), the small boat program was implemented in fiscal 1977. Information sources have been expanded in fiscal 1978 and include Customs, Coast Guard, Drug Enforcement Administration, and State and local authorities. During fiscal 1978, the small boat program was 232 1978 REPORT OF THE SECRETARY OF THE TREASURY instrumental in the seizure of 189 pounds of cocaine valued at over $50 mUlion and approximately 3.5 million pounds of marijuana valued at over $1 billion. Detector dog program During fiscal 1978, the strength of the detector dog program rose to 142 teams assigned to 43 ports of entry throughout the United States. These dog handler teams facilitated the expenditious processing of the traveling public and played an important role in the screening of imported merchandise and international mail. Detector dog teams seized 57 pounds of heroin, 91 pounds of cocaine, 17,428 pounds of marijuana, and 1,768 pounds of hashish. Communications support program The communications support program consists of the nationwide radio system, the administrative teletype system, and the facsimUe system, as well as provides technical support for other Customs communiciations programs. The overall objective of the program is to provide modem and responsive systems to meet the communications needs of the Customs Service. As the Service grows to meet new mission responsibilities, communications growth must follow. Advances in technology and equipment development must be closely monitored and integrated into the system as they are justified on the basis of costs and user needs. More specifically, the objectives are to: (a) Implement and operate a nationwide radio communications system which provides substantially complete radio coverage around the perimeter of the United States and at all locations where customs officers operate in a mobile environment; (b) provide an electronics system for rapid intraservice distribution of administrative textual and graphic correspondence; and (c) provide technical assistance directed toward reducing costs and increasing reliability of Customs data communications systems. Significant accomplishments for fiscal 1978 included: 1. Regional communications centers were estabhshed in the Miami, New Orleans, and Houston regions. This was done by moving the Tampa sector to Miami, the Mobile sector to New Orleans, and merging the El Paso and San Antonio sectors into Houston. 2. A regional communications center was established in San Francisco and radio services were expanded to cover the border and coastal areas of this region. 3. A radio communications system was installed in the major cities and Great Lakes areas of the Chicago region. Plans were initiated with the Immigration and Naturalization Service to share a common radio system along the northern border of North Dakota and Minnesota. 4. Procurement of the Customs-designed two-position sector console was initiated. This new concept should greatly improve the productivity and services provided by the sector operators. The prototype unit will be installed in the Los Angeles center in the early part of calendar 1979. 5. A major modification of the administrative teletype system reduced annual costs by greater than 10 percent. 6. A new annunciator system was designed and installed at Dulles Airport to support the Customs-INS inspection test program. Enforcement systems development and evaluation Customs must cope with numerous and diverse ways of smuggling through ports and across miles of borders. In addition to having the opportunity to choose among many possible smuggling routes and methods, the smuggler ADMINISTRATIVE REPORTS 233 adds to his advantage by using modern equipment to carry out his illicit activity or to prevent its detection. To be effective in this situation. Customs needs equipment that will not only neutralize the smuggler's advantage, but also provide an advantage for the enforcement officer. The objective of the enforcement systems development and evaluation program is to support the enforcement officer, both in the port of entry and along the border, through the identification and provision of technical equipment that will improve the productivity of the individual officer and the overall performance of the Customs interdiction and investigative programs. Significant accomplishments for fiscal 1978 included: 1. In contraband detection. Customs continued to develop and evaluate a number of complementary approaches to the detection of narcotics and dther contraband concealed on people or in vehicles and merchandise, among other things. The principal utilization of these approaches will be at locations where a customs officer suspects the presence of concealed narcotics; e.g., at a private or remote airstrip, a marina, or along the border. Customs continued the development and the evaluation of the neutron backscatter device. This hand-held device is capable of detecting organic substances (i.e., narcotics) concealed in metal structures or sealed compartments on vehicles, aircraft, and vessels. 2. Radar systems are an essential element in the detection and tracking of aircraft and boats attempting to illegally cross the U.S. borders. Accordingly, Customs has continued its efforts to intelligently utilize either available Federal radar systems or its own equipment. One ofthe Nation's major radar resources is the Air Force airborne warning and control system. As the culmination of program efforts initiated in fiscal 1977, Customs has now signed an agreement with the Air Force permitting customs personnel aboard selected AW ACS flights and at the AW ACS base. 3. Customs continued its marine radar program by installing a second SPS-59 in a Miami patrol boat for evaluation purposes. A second installation of a similar radar was also completed in a small truck to provide a mobile shorebased radar for tracking boats operating within 2 to 3 miles of the coast or within harbors, rivers, and inland waterways. 4. In the area of day/night observation and surveillance systems. Customs began a joint program with the Immigration and Naturalization Service to test the utility of an infrared device mounted in a helicopter. The purpose of this device is to detect and help apprehend aliens and smugglers crossing the border on land or in small boats. The tests are being performed along the entire southwest border by INS Border Patrol and Customs patrol officers working as a team to operate, maintain, and evaluate the helicopter infrared system. Customs also conducted extensive tests at four sites ranging from Miami to Portland, Oreg., to determine the operational applications of the new handheld thermal viewers to be delivered early in fiscal 1979. Extensive orientation and training programs on the variety of night vision and long-range viewing devices now available to Customs were also conducted. Investigative Activity Customs maintains a force of 640 special agents stationed at 66 domestic and 8 foreign offices. The mission of the special agent force is to function as the professional investigative arm of the Customs Service with sole responsibility to conduct investigations of violations of customs and related laws and regulations. The agents conduct criminal, civil, and factfinding investigations 234 1978 REPORT OF THE SECRETARY OF THE TREASURY involving a broad spectrum of violations covering 33 separate categories of investigative cases. Of the 23,868 investigative cases closed during fiscal 1978, over threequarters consisted of investigations relating to: General smuggling, fraud, navigation violations, customhouse licenses, currency violations, petitions for relief, investigations for other departments and agencies, neutrality violations, and cargo theft. Currency reporting violations During fiscal 1978, a major organizational development occurred with the establishment of a Currency Investigations Branch at Customs headquarters. The Branch is the focal point of the effort to (1) investigate economically oriented crime, (2) enforce compliance with reporting requirements, and (3) pursue organized crime, white collar crime, and narcotics trafficking figures via their financial transactions. Results are achieved by bringing currency reporting charges against these figures by disrupting and/or eliminating their financial base through seizures of illicit proceeds/assets. The Branch will work closely with the newly established Treasury Reports Analysis Unit located in the Customs Building and staffed principally by Customs employees. The Unit was formed to improve the utilization of all information obtained from the three reports filed in compliance with the Bank Secrecy Act. Reports filed on Customs Form 4790, Report ofthe Intemational Transportation of Currency and Monetary Instruments, will be included among those analyzed by the Unit. A criminal fraud investigation conducted in Cleveland produced evidence of false invoicing (assists and rebates). Evidence was established that a large company had made rebate payments to a second company ofwhich $202,000, in the form of bearer bonds, was maUed into the United States from the Netherlands in violation of 31 U.S.C. 1101. On March 8, 1978, the Federal grand jury retumed an indictment charging one firm with violation of 31 U.S.C. 1059 (felony currency) and 18 U.S.C. 371 (conspiracy). Additionally, a criminal information was filed by the U.S. attorney charging an individual with violation of 18 U.S.C. 371 (conspiracy). On March 16, 1978, the individual and counsel for the corporation appeared in the U.S. district court and pleaded guilty to the violations charged in the information and indictment. On May 2, 1978, the defendant was sentenced and received 2 years' probation and fined $10,000. Sentencing for the firm is pending. On AprU 26, 1978, as a result of an investigation conducted by Customs' Multinational Task Force, Falls Church, Va., counsel for a large computer firm appeared in U.S. district court. District of Columbia, and pleaded the corporation guilty to a criminal information charging violation of 31 U.S.C. 1059 (felony currency reporting) and 18 U.S.C. 1343 (wire fraud). Investigation had identified both the unreported movement of $ 180,000 into the United States and the unreported movement of $200,000 out ofthe United States. The failure to report was in violation of the Bank Secrecy Act. The funds exiting the United States were subsequently utihzed to bribe a high-ranking foreign official. Immediately following the corporation's plea, the court imposed a criminal fine of $ 1,001,000 ($1 million for two counts 31 U.S.C 1059 and $ 1,000 for one count 18 U.S.C 1343), and directed the corporation to pay $380,000 as civU liabilities incurred under 31 U.S.C. 1103 (settlement agreed to by the firm and the Department of Justice with concurrence of the Deputy Assistant Secretary (Enforcement)). ADMINISTRATIVE REPORTS 235 Neutrality violations While the attempted smuggling of weapons and ammunition directly into foreign countries from the United States continues, violations of the Arms Export Control Act are evolving into a more complex and intricate character. On February 13, 1978, customs agents in Chicago seized 140 firearms at O'Hare International Airport for violation of the neutrality statutes. These weapons were shipped to Illinois from a firm in Michigan and destined for export to Zurich, Switzerland. Subsequent investigation disclosed that the Michigan firm had made 20 shipments of munitions that had been illegally diverted to South Africa. A Chicago grand jury has returned multiple indictments. Organized crime During fiscal 1978, Customs became the lead Federal agency in three major organized crime operations and in five separate investigations; special agents developed evidence for legal sanction against three organized crime members and three organized crime associates. Two undercover special agents in Newark, N.J., effected a deep covert penetration of organized crime cargo theft activity in the northern New Jersey waterfront area. As a result of their penetration, the agents were approached by a major crime figure to collect payments on shylock loans on his behalf. The operation expanded into a joint operation between Customs, New Jersey State authorities, and the Newark strike force, funded by a $350,000 Law Enforcement Assistance Administration (LEAA) grant. The operation had to be closed after the special agents were placed in a highly dangerous confrontation which suggested that their true identity was known. However, the agents had made various purchases of stolen merchandise and obtained other evidence of criminal violations. Subsequently, 20 Federal search warrants were executed which resulted in various seizures, including merchandise and 35 firearms. The Newark strike force is preparing numerous indictments against 20 to 25 persons. Cargo theft The Office of Investigations cargo theft action plan was fully implemented during fiscal 1978. The plan, which suggested a three-phase enforcement approach—response, target selection, and covert penetration in areas of high theft incidences—resulted in the creation of cargo theft squads in several major offices. These squads and individual agent cargo theft specialists have become the nucleus of four new LEAA-funded anti-cargo-theft/antifencing operations in which Customs is serving as the lead Federal agency. The implementation ofthe action plan has also resulted in increased development of sources of information. In early AprU a shipment of 3,450 men's suits from Romania, valued at approximately $300,000, were reported stolen from JFK International Airport. A confidential informant provided information to the Special Agent in Charge, JFK, as to the whereabouts ofthe stolen property. A search warrant was issued and on April 21, 1978, the warrant was executed at a warehouse where 1,972 of the suits along with a tractor-trailer and a container were recovered. Also, 79 sacks of Colombian coffee beans and a second tractortrailer rig, taken during an armed hijacking, were discovered and seized by special agents. Total domestic value of this seizure was $370,000. 236 1978 REPORT OF THE SECRETARY OF THE TREASURY Fraud Customs fraud is white coUar crime committed on an international scale. Violations of customs laws adversely affect significant segments ofthe national economy—balance of trade, domestic industry, the American labor market, and U.S. trade policies—and thus constitute an important investigative priority for Customs. Major fraud investigations continue to be concentrated on cases which have a high potential for civil/criminal prosecution and revenue recoveries of consequence. A Federal grand jury in Buffalo retumed a 13-count indictment against two Canadian businessmen and a Canadian trading company. The indictment charged that these individuals attempted to defraud the United States by entering woven polyethylene sheeting into the country and paying less than the amount of duty legally due on the sheeting. The product was made in Japan and the loss of revenue amounted to more than $523,000. The case involved the submission of various false documents including false Japanese laboratory reports. The submission of these false documents qualified the product for a lower tariff rate. If convicted, the defendants are facing prison terms plus substantial fines. On August 2, 1978, a firm was found guilty on seven counts of violating 18 U.S.C. 542 (criminal fraud) in Federal District Court for the Middle District of Florida. The convictions related to the fraudulent entry of 937,000 barrels of residual fuel oil at JacksonvUle during 1973-74 utilizing a fraudulently obtained fee-free import license issued by the Federal Energy Administration. The conviction culminated a 4-year investigation of the firm and resulted in a loss of revenue totaling $167,745. Modernization Customs Procedural Reform Act The Customs Procedural Reform Act (Public Law 95-410) was passed by the House of Representatives on October 17, 1977. The Senate passed an amended version of the bill on June 8, 1978, and a conference committee composed of members of the House Ways and Means Committee and the Senate Finance Committee met early in August 1978 to resolve the differences. A conference report was filed in late August 1978, and action by both House and Senate on final version of the bill resulted in passage of the bill in September 1978. The act provides greater flexibility in administering the customs laws while permitting the Customs Service to modernize and simplify customs procedures. It raises the personal exemption from $100 to $300 (and from $200 to $600 for U.S. citizens returning by way of American Samoa, Guam, and the Virgin Islands). In addition, the fraud and penalty provisions ofthe Tariff Act of 1930 were revised to provide due process safeguards and de novo judicial review in the Federal courts. Congressional authorization of Customs Service appropriations will create a new element of congressional review and oversight of Customs activities. As part of Customs continuing effort to serve the public, new border stations were opened at Alexandria Bay (Wellesley Island), N.Y., and Cannon Corners, N.Y. Mail facility A new maU facUity at Seattle was completed and occupied on June 19,1978. With consolidation of the Seattle mail branch into the facUity, both air and surface mail as well as registered mail will be processed together. ADMINISTRATIVE REPORTS 237 Automated merchandise processing system (AMPS) To meet the requirements of merchandise processing. Customs instituted AMPS. AMPS is designed to improve nationwide the Customs Service supervision and control of imported merchandise, and collection of duties and taxes. The program combines a variety of process improvements and modern computer and communications technology applications to entry and revenue processing. The process improvements are generally in the direction of standardizing procedures. Modern business techniques are also introduced for more efficient processing of import transactions. Use of AMPS is enabling Customs to meet the demands of increasing workload. In fiscal 1978, automated line-item processing of immediate delivery control, entry screening, and collection processing was maintained at Philadelphia, Baltimore, Chicago, Boston, Miami, and Los Angeles Airport. A revised automated coUection system was developed and implemented at Houston and Los Angeles Airport with implementation preparation for this new capability begun at New Orleans, San Francisco, Seattle, Newark, New York, Wilmington, Washington, Norfolk, Charleston, and Savannah. With these ports scheduled for operation in early fiscal 1979, 17 percent of aU customs entries and 65 percent of all customs collections will be automated. An automated interface which provides statistical data to the Census Bureau was developed and operationally tested prior to implementation in fiscal 1979. This automated interface eliminates the manual processing and keypunching required by the present Customs-Census interface operation. An automated manifest clearance system was designed and developed this year for pilot testing at Los Angeles Airport. This system is scheduled to become the standard manifest clearance system used by aU carriers nationwide. Improvements in passenger processing The Customs accelerated passenger inspection system (CAPIS) was developed to provide airport inspectors with an environment to selectively screen passengers, whose numbers swell at an annual rate of 12 percent. Approximately 80 percent of all arriving passengers are released from the area at "primary," where a brief interview, hand luggage inspection, and TECS/ NCIC check are made. The remaining 20 percent are referred to "secondary" for various reasons where complete baggage inspections are conducted. In 1978, additional CAPIS units were installed at Dulles, JFK, Miami, O'Hare, and Seattle-Tacoma Airports. Customs, in conjunction with the Immigration and Naturalization Service, installed a one-stop citizen inspection system at selected airports having CAPIS. This system was successfully tested and implemented at DuUes Airport. Regulatory Efforts Regulatory audit The regulatory audit program is part of a broad-based Customs effort to modernize and simplify the processing of commercial transactions. The purpose of the program is to improve the revenue-producing function in addition to protecting both the revenue and the importing public. Regulatory Audit's objective is to provide Customs with an external audit capability to verify transactions and claims of importers, carriers and exporters. This wiU 238 1978 REPORT OF THE SECRETARY OF THE TREASURY be accomplished by means of onsite audits of their records, accounts, statements, and operating facilities in lieu of more costly physical control or other means of verification. By application of scientific sampling methods and information quantified through computer analysis, companies can be selected for audit which are identified as most likely to provide Customs with high-payoff transactions. An analysis of importers transacting business with Customs has revealed that 15,000 importers represent 90 percent of the total dutiable entry workload. Audits of a relatively small percentage of selected persons and firms reduce the need for individual processing of millions of transactions. The resultant reduction of routine paperwork permits more cost-efficient utilization of manpower elsewhere in Customs. During fiscal 1978, approximately 80 field auditors in 9 regional offices completed audits of various types which resulted in recovered revenues for Treasury or the importing public in excess of $11 million. Type of audit Customhouse brokers TSUS 806.30/807 Drawback Agent assists Containerized importations Other Total Number Amount recovered 89 29 348 4 162 94 $1,807,200 4,542,800 2,043,800 31,500 77,800 2,916,500 726 11,419,600 I n t e r n a l security Working in coordination with other agencies, including the office ofthe U.S. attorney, 70 customs investigators closed and completed a total of 781 investigations. Of that total, 75 were either referred for criminal prosecution, or resulted in arrests and/or indictments. Also undertaken during fiscal 1978 were 109 investigations involving either administrative discipline (adverse action) or procedural change. The majority of these investigations refuted the original allegation or found that the allegation could not be substantiated. Full field investigations Due to an accelerated hiring program, 1,783 fuU field investigations were conducted in fiscal 1978 with each taking an average of 50 man-hours to complete. Security clearances Continued efforts on the part of Customs to reduce the number of security clearances have resulted in reducing the number to 220 issued in fiscal 1978. Internal a u d i t In fiscal 1978, 152 audits, surveys, and special reports were completed by headquarters and regional offices. During the year, increased emphasis was placed on servicewide multiregional audits for specific operational programs. Upgrading of audit potential was achieved during the year through the hiring of computer science specialists, and through the rotation of auditors between ADMINISTRATIVE REPORTS 239 regional and headquarters offices. Substantial savings were achieved, or monetary losses disclosed with appropriate recommendations for correction or improvement through Internal Audit disclosures during the year. These audits showed— 1. Consolidating drug and seizure facUities could result in annual savings of $1,175 million. 2. Review of appraisement procedures in connection with importation of turbines disclosed undervaluations resulting in underpayment of duties exceeding $630,000. 3. Review of vessel entrance in the Houston region disclosed that over $500,000 in tonnage taxes were never billed. 4. Disclosure ofthe loss of $ 142,000 at New York due to irregular delivery of merchandise by customs inspectors. 5. Annual savings of $56,300 have been achieved through improved maU operations in the New Orleans district. Other Activities International Customs Conference The First Intemational Customs Conference for cooperation in the control of narcotics trafficking took place in Vama, Bulgaria, September 11-16,1978. Participating were delegations of the customs administrations from Austria, Belgium, Bulgaria, Czechoslovakia, Denmark, the Federal Republic of Germany, Finland, France, the German Democratic Republic, Great Britain, Hungary, Italy, Morocco, the Netherlands, Norway, Pakistan, Poland, Spain, Sweden, Switzerland, Turkey, the United States, the U.S.S.R., and Yugoslavia, as well as representatives ofthe United Nations and the Customs Cooperation Council. The Conference was organized by the Bulgarian Customs Administration and the Customs Administration of the United States. The Conference brought together competent customs officials from the participating countries for an exchange of experience and to find new and more efficient ways for customs cooperation in the control of narcotics trafficking. In the course of the sessions the delegates unanimously emphasized the usefulness and the significance ofthe Conference as a new and important step in the common efforts to curtail drug abuse and to strengthen control of narcotics trafficking. The Conference completed its work with the adoption of recommendations concerning the improvement of contacts between customs administrations, increased efficiency of customs control, and improved training of customs officers in detecting narcotics smuggling. Throughout the Conference a series of bilateral meetings was arranged to enable participating countries to make a more profound examination and discussion of specific problems. Relocation of Customs National Data Center The Customs National Data Center, including all equipment and personnel, was moved from Silver Spring, Md., to the Customs headquarters building. Site preparation for the move commenced late in fiscal 1977. FuU implementation at the new site was accomplished by a relocation team in August 1978, with no delay in scheduled processing. 240 1978 REPORT OF THE SECRETARY OF THE TREASURY Revised work ticket system Culminating several years of effort, the revised work ticket system was implemented nationwide during the fiscal year. The work ticket system insures payment of overtime compensation to Customs employees and generates corresponding bUlings to parties-in-interest for inspectional services provided in accordance with the Customs overtime laws. The implementation was accomplished on a region-by-region basis and included training regional personnel in proper preparation and correction procedures. The revisions to the system were necessary to accommodate data processing equipment changes. As a result, revised work tickets and bUlings to parties-in-interest are now processed on a more timely and accurate basis. Foreign trade zones Foreign trade zones are geographical enclaves not considered part of the customs territory ofthe United States. Importers may bring merchandise into these zones for processing without the payment of customs duties and taxes. As of August 1978, there were 34 foreign trade zones and 4 special purpose subzones in operation. Applications are pending before the Foreign-Trade Zones Board for seven additional zones. In comparison, 10 years ago, 1968, there were 13 zones in operation. Labor>management relations On February 23, 1978, the Assistant Secretary of Labor for LaborManagement Relations granted a petition by the National Treasury Employees Union (NTEU) seeking consolidation of 12 Customs bargaining units for which NTEU and/or its local chapters were the exclusive representatives. The consolidation will permit NTEU to negotiate a single, nationwide collective bargaining agreement covering all professional and nonprofessional Customs employees in headquarters and regional offices who are exclusively represented by NTEU and/or its local chapters. Negotiations are expected to begin in 1978. International narcotics control and reimbursable assistance program The International Narcotics Control (INC) programs (formerly the Cabinet Committee on Intemational Narcotics Control) continue to provide assistance to foreign governments in narcotics enforcement areas. U.S. Customs continued to play an important role in this assistance. Emphasis in both international narcotics control and U.S. Customs centered around development of more self-sufficient customs services with narcotics control capabilities within the foreign govemments borders. U.S. Customs narcotics control programs involve help to foreign customs services in both advisory assistance and narcotics enforcement training programs. Under International Narcotics Control funding. Customs stations narcotics-oriented advisory teams in various countries. In fiscal 1978, two such advisers were stationed in Ecuador and three in Thailand. The narcotics enforcement training programs that are part of the Intemational Narcotics Control/U.S. Customs assistance to foreign governments involve several different programs. All are designed to train foreign enforcement officers and upgrade foreign customs services in border control activities and narcotics interdiction capabilities. Emphasis is placed upon narcotics identification, border surveillance, cargo and passenger control, and search and seizure methods. These programs include an executive-level observation Jour of U.S. Customs facilities for foreign heads of customs services; a midmanagement-level training program offered in the United States to foreign ADMINISTRATIVE REPORTS 241 officers who are supervisors or at the midmanagement level of their careers; a program offered in a foreign country to operational line officers in narcotics interdiction methodology; and a program designed to train handlers of narcotics detector dogs. Since the inception of these training programs, U.S. Customs has provided training to over 5,000 foreign officers representing some 60 different countries. In addition, two international conferences on the use of narcotics detector dogs were held in Singapore for the East Asian countries and in Miami for Latin American countries. Appropriate law enforcement officers from throughout these areas gathered to exchange information and ideas on the use of this proven tool which accounted for over half of all hard narcotics seizures in the United States last year. UNITED STATES SAVINGS BONDS DIVISION The U.S. Savings Bonds Division promotes the sale and retention of U.S. savings bonds, thereby encouraging individual thrift. Because the average life of series E and H savings bonds is about twice that ofthe marketable debt, this form of borrowing constitutes a long-term underwriting ofthe Treasury's debt structure and makes possible the widespread distribution of the national debt through its ownership by a substantial number of smaU savers. The program is carried out by a Treasury staff of less than 450 people with the active assistance of thousands of volunteers who are leaders in business, labor, finance, and the media. An estimated 670,000 people provide volunteer services of some kind for the program. In fiscal 1978, Americans saved $8 billion through savings bonds purchases, bringing the total value of outstanding savings bonds to over $80 billion. Savings bonds are held by one out of every three American households, and more than 16 million men and women buy them each year—9 1/2 miUion through the payroll savings plan. Office of the National Director In support of President Carter's Govemment reorganization efforts, the Savings Bond Division thoroughly reviewed its field structure and began to implement improvements which will allow the Division to operate more efficiently and effectively. The changes, which will be fully implemented by mid-fiscal 1979, reduced the number of regional offices from 7 to 6 and consolidated 42 State-level offices of varying size into 25 balanced sales districts. The benefits ofthe new organization include: Standardizing the role, grade level, and span of control of field supervisors; shortening the chain of command in key urban areas; better allocating staff resources and improving cost-effectiveness. In addition to directing the reorganization efforts, Mrs. Azie Taylor Morton, Treasurer of the United States and National Director of the United States Savings Bonds Division, began work on an updated and more specific role and mission for the Division which will stress the importance of savings bonds to the financing of the public debt. She and other senior officials ofthe Division also conducted active speaking schedules on behalf of the savings bonds program in addition to directing the divisions and programs discussed in the following sections. 242 1978 REPORT OF THE SECRETARY OF THE TREASURY Industrial payroll savings campaign The 1978 U.S. Industrial Payroll Savings Committee, appointed by Secretary Blumenthal, is chaired by Charles J. Pilliod, Jr., chairman ofthe board, Goodyear Tire and Rubber Co. The Committee is composed of top business leaders each representing either a major industry group or geographic area. Mr. Pilliod hosted a meeting of the Committee in Washington, D . C , on January 11, 1978. Secretary Blumenthal charged the Committee with its 1978 calendar year goal of signing up 2.6 million new or increased-allotment savers. Members of the U.S. Industrial Payroll Savings Committee conduct meetings of top management people, urge chief executives in their areas and industries to conduct payroll savings drives, and set strong examples by conducting campaigns in their own companies. Chairman Pilliod, in contributing much of his own time and effort to the program, traveled to 17 cities and addressed 20 meetings of business and community leaders on the importance of savings bonds to our economy. He also provided some excellent sales tools for savings bonds volunteers, including a brochure for top executives entitled "Take Stock in America," three newsletters to volunteers to publicize the campaign, and a fuU-page ad in the Wall Street Journal featuring the 1978 Committee members. The three Goodyear blimps added a special touch to the savings bonds program as they crisscrossed the country—120,000 mUes of America—displaying animated savings bonds messages. Volunteer activities State and county volunteers are the grassroots "mainstay" of the savings bonds program. Governors, appointed by the Treasury Secretary, serve as honorary chairmen of their States, while a working State chairman provides direction. At the local level, more than 3,000 county chairmen coordinate savings bonds activities for their areas. Richard B. Sellars, former chairman and chief executive officer, Johnson & Johnson Co., is both the State chairman for New Jersey and the National Chairman, Volunteer State Chairmen's Council. While presiding at the Council meeting in Washington, D . C , on October 3 and 4, 1977, Mr. Sellars encouraged the State chairmen to hold payroll savings campaigns in their own companies as the first step in an active 1978 program. Mr. Sellars also traveled extensively, early in 1978, to help kick off campaigns in Take Stock in America Centers throughout the country. To help identify important areas of activity during the year, he published for top volunteer leaders in every State a special brochure containing information on bond program history and sales since 1941, as well as an action plan for volunteers. A special kit of materials, "A Program for the Nation's Volunteers," also distributed, included suggested proclamations for State and local governments, sample speeches, radio and TV scripts, and other information materials. National organizations The National Organizations Committee, under the chairmanship of Valerie F. Levitan, executive director of Soroptimist International, continued its strong support for the savings bonds program. As part of the national organizations program, the national presidents of 41 civic, fraternal, service, and women's clubs sent letters to their members, sponsored advertisements, or placed articles in various magazines in support of savings bonds. The Division is investigating ways to improve and expand the involvement of these important voluntary organizations. ADMINISTRATIVE REPORTS 243 Labor support America's labor unions and their leaders continued to support the savings bonds program and the payroll savings plan. Through the labor press, more than 20 miUion union and independent employee association members were exposed to savings bonds advertising. Other union and employee associations published editorials and sent more than 3 million letters urging individual members to join the payroll savings plan where they work. The Division honored eight AFL-CIO-affiliated national labor organizations, at their conventions, for outstanding support to the bond program. They were: County and Municipal Employees; American Federation of Government Employees; Intemational Union of Electrical, Radio and Machine Workers; United Steelworkers of America; International Chemical Workers Union; United Brotherhood of Carpenters and Joiners of America; International Brotherhood of Electrical Workers; and United Rubber, Cork, Linoleum and Plastic Workers of America. The National Association of Postmasters of the United States was also honored. In addition, the AFL-CIO-affiHated Amalgamated Clothing and Textile Workers Union, and the National Association of Letter Carriers, received awards. Three State labor organizations. South Carolina AFL-CIO, Georgia State AFL-CIO, and the Ohio Conference of Teamsters, were also recognized. During 1978, 104,250 savings bonds leaflets were distributed at 9 major union conventions, and 230 national labor kits, part ofthe unions' educational and community services program, were sent to the AFL-CIO Community Services Department. Financial institutions support A major factor in the growth of savings bonds sales has been support from the Nation's financial institutions. Banks, savings and loan associations, and similar institutions provide more than 39,000 over-the-counter sales outlets. They also issue bonds for many companies offering the payroll savings plan. In 1978, American banks and bankers sent more than 10 million letters recommending bonds to their customers and maUed more than 53 million promotional leaflets as enclosures with bank statements. Banks and other financial institutions also sponsored many bond newspaper advertisements, and Secretary Blumenthal's "Message to Bankers" appeared in the industry's daily publication. This promotional effort was spearheaded by the American Bankers Association Savings Bonds Committee, chaired by John D. Chisholm, president ofthe Marquette Bank & Trust Co., Rochester, Minn. In 1978, Mr. Chisholm was the keynote speaker at numerous "Take Stock in America" campaigns and at several State bankers association conventions. For 1979, the ABA Savings Bonds Committee wiU continue to encourage bankers to support the savings bonds program through the five-point banking program of bank letters, bank leaflets, bank sponsorship of ads, bank teller training, and payroll savings programs established in banks. Federal Government savings campaign The 1978 savings bonds campaign for Federal workers, under the chairmanship of Secretary of Labor Ray Marshall, was the most successful of its kind in the last 15 years. The campaign resulted in more than 397,000 new or increased-allotment savers—66,000 more than the 1977 bond drive produced. Sixty-one percent of all civilian employees of the Federal Government are now on the payroll 244 1978 REPORT OF THE SECRETARY OF THE TREASURY savings plan. Dollar sales this year will meet or exceed last year's outstanding results of $ 1.1 billion. President Carter provided leadership from the top, with a strong endorsement of savings bonds. On February 1, a Presidential memo to White House employees said, in part, "I urge you to enthusiastically support this campaign. Our leadership * * * will greatly assist in meeting the very worthy goals of this program." On April 6, television star Arte Johnson, honorary chairman ofthe Federal savings bonds campaign, and Chairman Marshall kicked off the Federal campaign at a meeting with 1,800 Federal employees. Advertising support The public service advertising campaign for savings bonds, conducted in cooperation with The Advertising Council, was well received by all media. The council estimates that more than 29,000 ads were published in newspapers, 255,000 lines appeared in national magazines, and 4 billion home impressions resulted from television use of savings bonds announcements. The advertising campaign focused on ways in which savings bonds enrich the lives of Americans by helping them reach specific savings goals. Created by the Leo Burnett Co., a volunteer task-force agency ofthe council, the ads continue to use the general theme and tag line "Take Stock in America." Information activities included completion of an all-new copy kit for daily and weekly newspapers and several feature articles for newspapers, and continued publication of "The Bond Teller" for bank personnel and the "Savings Bond Salute" for volunteers. The pocket speech guide for volunteers, "In Which We Serve," was completely revised and updated. Public affairs The Office of Public Affairs provides information on the savings bonds program and encourages its use by newspapers, television stations, and other forms of media. During 1978, strengthened contacts with national media people resulted in increased coverage of the program. Direct assistance was given to the savings bonds industrial payroll savings campaign and to the Federal campaign for payroll savings through providing remarks and press releases, arranging for press coverage and photographic services, and similar activities. During the year, the office also provided speech material to government officials speaking on behalf of the program. The office handles a large volume of telephone and mail inquiries from the general public on savings bonds. UNITED STATES SECRET SERVICE The major responsibilities ofthe U.S. Secret Service are defined in section 3056, title 18, United States Code. The investigative responsibUities are to detect and arrest persons committing any offense against the laws ofthe United States relating to coins, obligations, and securities of the United States and of foreign governments; and to detect and arrest persons violating certain laws ADMINISTRATIVE REPORTS 245 relating to the Federal Deposit Insurance Corporation, Federal land banks, joint-stock land banks, and Federal land bank associations. The protective responsibilities includes protection of the President of the United States and the members of his immediate family; the President-elect and the members of his immediate family unless the members decline such protection; the Vice President or other officer next in the order of succession to the Office ofthe President, and the members of his immediate family unless the members decline such protection; the Vice President-elect, and the members of his immediate family unless the members decline such protection; a former President and his wife during his lifetime; the widow of a former President until her death or remarriage; the minor children of a former President until they reach 16 years of age, unless such protection is declined; a visiting head of a foreign state or foreign govemment; and, at the direction of the President, other distinguished foreign visitors to the United States and official representatives of the United States performing special missions abroad. In addition. Public Law 90-331 authorizes the Secret Service to protect major Presidential and Vice Presidential candidates, unless such protection is declined; the spouse of a major Presidential or Vice Presidential nominee, except that such protection shall not commence more than 60 days prior to the general Presidential election. Investigative operations Counterfeiting.—The Secret Service received $22.3 million in counterfeit U.S. currency during fiscal 1978. This represents a 49-percent decrease from fiscal 1977. Losses to the public decreased 18 percent, from $4.9 million in fiscal 1977 to $4 million in fiscal 1978. Seizures prior to circulation decreased 53 percent, with $18.3 million being seized. Of interest is the fact that 26 percent of the $4 million passed on the American public originated with overseas operations. In contrast, only 1 percent of the $18.3 million seized in the United States prior to circulation stemmed from overseas activities. Six percent, or $234,000, of the notes passed on the public involved tne violations of raising or altering genuine currency. The following case summary illustrates counterfeit investigations successfully concluded during fiscal 1978. On September 15, 1977,theSecret Service received information that a new counterfeit $50 note was being distributed by a Brooklyn, N.Y., bakery company route driver. At that time none ofthe new counterfeit notes had been passed. However, by October 6,1977, a sample ofthe new counterfeit note had been obtained, the suspect identified, and a meeting between the suspect and undercover Secret Service agents arranged. The following day agents purchased $25,000 of these new counterfeit notes. Ten days later a second meeting was arranged with the suspect. He was arrested and an additional $17,000 in counterfeit $50 notes was seized. When the suspect was interviewed, he identified a previously known counterfeiter as the printer of these new counterfeit notes. The suspect printer, owner of two legitimate printing concems, was immediately placed under surveUlance in order to locate the counterfeit plant. Numerous attempts to corroborate the printer's alleged involvement culminated in success on November 15,1977, when the printer and two others were arrested as they delivered over $30,000 in counterfeit notes. Postarrest 246 1978 REPORT OF THE SECRETARY OF THE TREASURY statements by the defendants enabled Secret Service agents to recover over $2.1 million in counterfeit notes. Check forgery.—During fiscal 1978, the Service received 85,286 checks for investigation. Treasury paid approximately 717 miUion checks during fiscal 1978. The Service received 119 checks per million paid, or 1 check for investigation for approximately every 8,400 checks paid. During fiscal 1978, the Service made 9,409 check forgery arrests, compared with 8,779 last year—a 7.2-percent increase. The backlog of pending check cases for fiscal 1978 decreased to 53,733, as compared with 81,488 last year. Any possible reduction in the check workload caused by the direct deposit or electronic funds transfer programs is considered minimal. A check forgery investigative summary follows. Between November 1977 and February 1978, special agents ofthe Secret Service New York field office and New York postal inspectors carried out a joint "sting" operation using the code name "Audubon Check Cashing Service." Checks were not actually cashed, but rather purchased at a percentage of the amount for which issued. Associates handed out business cards in preselected sections of New York City, providing a special telephone number to handle customer orders. When calls came in, a mobile unit responded for on-the-spot check purchases. The Audubon Check Cashing Service purchased checks with a face value of $135,000 within the first few months. When Operation Audubon was terminated, personnel of the Audubon Check Cashing Service surfaced as Government agents and the negotiables included stolen Treasury checks. State and county social security and welfare checks, and other obligations. The Audubon Check Cashing Service was the first mobile undercover fencing operation of its kind and culminated in the arrest of approximately 90 individuals. Bond forgery.—Bond forgery investigations decreased during fiscal 1978, with 10,399 bonds received for investigation, as compared with 12,189 last fiscal year. At yearend, there were 950,463 stolen bonds, representing a face value of $64.1 million, entered into the National Crime Information Center by the Secret Service. During fiscal 1978,164 persons were arrested for bond forgery, as compared with 152 persons in fiscal 1977. During the fiscal year, the Secret Service recovered, prior to forgery and redemption, 8,648 stolen bonds with a face value of $728,530 compared with fiscal 1977 when 14,631 stolen bonds were recovered with a face value of $ 1 million. The summary of a typical bond forgery investigation follows. The executor for the estate of a deceased registered owner removed 147 U.S. savings bonds from a safe-deposit box assigned to the deceased registered owner. The bonds, which were to be negotiated as part of a normal procedure in settling the estate of the registered owner, were stored in the office of the executor. A month later, the executor took the bonds to a bank for negotiation, unaware that approximately $8,500 worth ofthe bonds were now missing. The theft was discovered months later when the executor received payment for the bonds from the bank, short approximately $8,500. Subsequent investigation revealed that a janitor in the building where the office ofthe executor was located stole the missing bonds, opened a checking ADMINISTRATIVE REPORTS 247 account in the name of the deceased registered owner, and redeemed the stolen bonds by depositing them into that account and writing checks on those funds. Following investigation by the Secret Service, the janitor was arrested and pleaded guilty. Identification Branch The Identification Branch ofthe Special Investigations and Security Division serves all field offices by conducting technical examinations of handwriting, handprinting, typewriting, fingerprints, palmprints, striations on counterfeit currency, altered documents, and other types of physical evidence. During fiscal 1978, members of the Identification Branch conducted examinations in 10,986 cases involving 732,847 exhibits. This resulted in 3,291 identifications of persons and a total of 316 court appearances to furnish expert testimony. Organized crime The Secret Service provides special agents to each ofthe 14 organized crime strike forces located throughout the United States. All information is coordinated and disseminated to Secret Service field offices by the Special Investigations and Security Division at headquarters. The agent in charge of this Division, as a member ofthe National Organized Crime Planning CouncU, participates in the establishment of targets for the strike forces. This Council, made up of representatives of all Federal law enforcement agencies, meets monthly at the Department of Justice. f- Treasury Security Force The Treasury Security Force, a uniformed branch ofthe U.S. Secret Service, protects the Main Treasury and Treasury Annex Buildings and participates in providing security for the White House. It also enforces Treasury's restricted access policy and conducts investigations involving petty larceny cases, theft, and other improper actions which take place on Treasury premises. During fiscal 1978, the Force made 54 felony arrests and interviewed 58 persons for attempted unauthorized entry into the Treasury Building. Protective operations The Secret Service provided protection for the President and Mrs. Carter; their children. Amy, Jack, James, and Jeff; and grandsons, James and Jason. Protection continued for Vice President and Mrs. Mondale. Protection was also provided for former President and Mrs. Gerald R. Ford; former President and Mrs. Richard M. Nixon; and former First Ladies Mrs. Harry Truman, Mrs. Dwight Eisenhower, and Mrs. Lyndon Johnson. Protection was highlighted during the fiscal year by numerous foreign trips. The President and Mrs. Carter visited Poland, Iran, India, Saudi Arabia, Egypt, France, and Belgium during the period December 29, 1977, through January 6, 1978, and Venezuela, Brazil, Nigeria, and Liberia March 28 through AprU 3, 1978. Secret Service protective security arrangements were also made for President and Mrs. Carter's July trip to Germany, the President's June trip to Panama, and Mrs. Carter's visits to Costa Rica and Italy. The Vice President and Mrs. Mondale visited Mexico City in January, the Philippines, ThaUand, Indonesia, Australia, and New Zealand during May, and Israel and Egypt at the end of June and early July. The Vice President was in Canada in January and May. Mrs. Mondale visited Helsinki, Finland, and Leningrad, U.S.S.R., in December 1977. 248 1978 REPORT OF THE SECRETARY OF THE TREASURY Former First Lady Mrs. Lyndon Johnson made nine foreign trips during the past fiscal year, visiting Mexico, Venezuela, England, Jordan, Iran, Israel, and the Virgin Islands. The Secret Service continued to provide security for the Secretary of the Treasury on a limited basis—on all foreign trips, on some domestic trips, and, occasionally, in the Washington, D . C , area. During fiscal 1978, foreign dignitary protection continued to be a major effort with 126 foreign dignitaries receiving protection. These included 123 visits by heads of foreign states or govemments and 3 other distinguished foreign visitors to the United States. Included in the figures are 12 foreign dignitaries who received protection during the NATO Summit Conference in Washington, May 30-31, 1978, and 28 foreign dignitaries who received protection during the United Nations Disarmament Conference in New York City, May 20 through June 7, 1978. The U.S. Secret Service Uniformed Division continued to provide protection for the White House, Presidential offices, the official Vice Presidential residence, the Blair House when visiting heads of state or government are in residence, and foreign diplomatic missions of 136 countries at 405 locations in the metropolitan area of the District of Columbia. In addition, the Uniformed Division provided protection for the World Bank/International Monetary Fund meetings in Washington, D . C , in September 1978. Protective research During fiscal 1978, the Secret Service continued, and will complete in fiscal 1979, a major study to provide more comprehensive data for the evaluation of individuals suspected of threatening the life of the President and others protected by the Service. Protective research study groups completed a feasibility study for converting handwriting specimens and other graphic images to microforms for storage in an automated microform retrieval system. They also examined and identified the need to obtain secure computer equipment to facilitate the processing and retrieval of classified data of protective significance. A study to allow the application of geoprocessing technology to intelligence files continued. The Intelligence Division implemented and conducted formal training sessions for Division personnel and field office agents assigned to protective research in order to increase understanding between headquarters and the field. Division personnel received specialized training in handwriting examination and were trained in the use of supplemental data systems such as the New York Times Information Bank. The Division has implemented a number of engineering improvements to the protective intelligence and events automatic data processing system which will permit the efficient use of computers by more employees. The Technical Security Division implemented regulations for Executive Order 12036, section 1-1004, signed by the President in January 1978, regarding new audio countermeasures procedures. Communications During fiscal 1978, the Communications Division completed software and hardware enhancements on the teletype message switcher to improve and expedite the handling of message traffic. A high-speed terminal was installed in the Washington field office. ADMINISTRATIVE REPORTS 249 Installation of new radio systems in the resident agencies and upgrading of existing systems in the field offices continued. Protective communications support was provided for the Office of Protective Operations. Mobile command post units were employed on several occasions. Liaison Through fiscal 1978, the Liaison Division maintained personal liaison at the headquarters level with law enforcement, intelligence, and other governmental agencies to assure proper coordination, communication, and exchange of information in matters relating to protective and criminal investigation responsibilities. Increased visits by protectees, both domestic and foreign, resulted in much activity by the Division at the U.S. Capitol, State Department, foreign embassies. Department of Defense facilities, and numerous other Federal agencies. Creation and staffing ofthe Emergency Preparedness Branch in this Division resulted in better efficiency and operability of these programs. During fiscal 1978, the Freedom of Information and Privacy Acts Office processed 1,909 Freedom of Information Act requests and 268 Privacy Act requests. Administration An employee assistance program was established to assist employees with personal problems through counseling or referral services. Counseling is provided to aid the employee in recognizing the existence of a problem (especially those personal problems that affect job performance). Community agencies that can provide further counseling and/or treatment are recommended. A health maintenance program for Secret Service employees age 40 and over was established. The program provides for an optional annual physical examination for all eligible employees assigned to offices in Washington, D . C , or at field office locations. The employee performance evaluation program was rewritten to provide better guidance to both supervisors and employees, and additional documenting requirements were prescribed to enhance the quality of annual performance rating discussions. Overcrowded space conditions and increasing fragmentation of headquarters' offices to separate locations continue to reinforce the need for a consolidated building site. The contractor selected by the General Services Administration submitted a report projecting the Service's office space requirements over the next 10 years, supporting the need for a consolidated facility, and recommending the 1800 G Street building for that purpose. The report has been submitted for departmental approval. The safety program has realized greater visibUity with the addition of a fulltime safety staff. Employee safety awareness has been increased through the establishment of Occupational Safety and Health Committees and the distribution of safety promotional materials. In addition, environmental evaluations are being performed at the Service's indoor firing ranges, garages, and other facilities, and significant changes are being made. A substantial increase in the reuse of excess property was noted during the fiscal year. A program for managing the redistribution of surplus property among Secret Service offices, and the acquisition and distribution of excess property from other Federal agencies, has been implemented. 250 1978 REPORT OF THE SECRETARY OF THE TREASURY Efforts were made to increase the number of contract and purchase order awards to minority small businesses. The plan included establishing liaison with the Small Business Administration and the Office of Administrative Programs, in order to locate minority firms that could fulfill the Service's requirements. Special emphasis was placed on identifying minority contractors approved by the Small Business Administration for awards authorized by section 8(a) of the Small Business Act. A 2-year effort to identify future automated data processing needs is culminating in a procurement to replace current Secret Service computer hardware. The new equipment will be of larger scale and more technologically advanced, and is expected to be fully operational by the 1980 Presidential campaign. Management information systems continue to be improved, in order to be more responsive to a greater number of managers within the organization. Primary emphasis has been placed on increased flexibility in reporting collected data to enhance the Service's financial and man-hour accounting systems, workload measurement systems, and investigation control systems. During fiscal 1978, the Treasury payroll/personnel information system (TPPIS) became fully operational in the Secret Service. Substantial progress was made to maximize the benefits attainable from TPPIS. Enhancements to the automated accounting system resulted in automatic cost accounting distribution, improved financial records based on TPPIS-provided payroU information, and savings in processing time. The Service implemented the Government bill of lading method for moving employee household goods upon transfer during fiscal 1978. Under the method, the Service makes the arrangements with a carrier, monitors the shipment, and processes loss and damage claims. Since the method can be used only when a real savings to the Government exists, this method will be cost beneficial for the Service. The Presidential Protection Assistance Act of 1976, Public Law 94-524, provides that Federal agencies be reimbursed for providing .assistance in support of Secret Service protective duties. During fiscal 1978, the Service established written instructions for the submission of requests and provided them to other Federal agencies. Training There were 89,310 man-hours of training conducted by the Secret Service, Office of Training, during fiscal 1978. In addition, 14,927 man-hours of interagency and 20,258 man-hours of non-Government training were completed for a total of 124,495 man-hours. An inservice course, designed to update senior special agents in the state of the profession, was given to 150 agents. The 4-day advanced emergency care course graduated 125 participants to aid in the Service's protective and investigative mission. Reports have been received of lives saved because of care given by course graduates, both on and off duty. Technical operations briefings, designed to provide expertise in modern technical equipment, were given to 61 special agents. These agents are able to maximize the use of camera and surveillance equipment in accordance with the latest legal and organizational poHcies. There were 23 exercises simulating various attacks on a principal. These 1 day exercises were performed for temporary and permanent dignitary protective details. ADMINISTRATIVE REPORTS 25 1 The protective forces driving course, designed especially for the Service's protective function, was taken by 84 special agents. This course prepares the agent for safe operation of limousines and security vehicles under stress conditions. Improvement of normal driving skills is a collateral benefit. Protective research briefings were provided to 66 senior agents and 5 intelligence research specialists. The briefings updated agents working protective intelligence in the field and aided the inteUigence research specialists in the analysis and evaluation of intelligence data. A clerical orientation program, designed for lower graded employees outside the Washington, D . C , area, was developed and pUot-tested in one major field office. It is anticipated that the course will be offered to all field clerical personnel in the future. To ensure safe and proficient use of firearms, approximately 30,000 individual courses were fired by Service and other Federal law enforcement personnel who are required to carry a firearm. In addition, 1,432 uniformed personnel ofthe Service received specialized training in such areas as the Cuban Mission detail and protective details at the Blair House. Along with the specialized training, there were inservice courses designed to update the professional skills of captains, lieutenants, and sergeants. While providing formal training for its own personnel, the Service is committed to training other Federal, State, and local officials to the following extent. Eleven dignitary protection seminars were conducted to aid 213 command-level police officers. Protective operations briefings were given to 110 lower echelon police officials. These briefings, 2 days shorter than the dignitary protection seminar, are designed for generally the same purpose, but are directed toward the line officer. Numerous protective seminars were provided for Secret Service administrative personnel and other law enforcement agencies to improve skills and enhance coordination with the Service in the area of protection. SimUarly, 1to 3-day programs were offered in the area of criminal investigation. Firearms training was provided to 1,539 employees of 21 Federal law enforcement agencies. In addition, 32 employees from other Federal, State, and local agencies were trained to be firearms instructors. In addition to the programmed events, the Office of Training had conducted specialized security surveys for various police agencies, directed several intraorganizational research projects, and offered individual or small group briefings when the participants' inclusion in a programmed course was impractical. Inspection The Office of Inspection conducted 61 office inspections during fiscal 1978. In addition, 32 special investigations, and other in-depth studies and reviews were completed. Inspectors were diverted from their regular duties to serve as supervisors on several temporary protective details, including the NATO Conference, the Panama Canal Treaty signing, and the United Nations Disarmament Conference. One inspector is currently coordinating the planning of the candidate/ nominee protective details for the 1980 elections. Inspectors have been involved in the continuing maintenance of the classified document program and the headquarters and field emergency readiness plan. One inspector has served on a committee to develop an 252 1978 REPORT OF THE SECRETARY OF THE TREASURY improved merit promotion plan. A comprehensive in-house study of the inspection program was also made, and several inspection procedures and areas of emphasis were revised. The internal auditors issued several audit reports during fiscal 1978, including a feasibility study on using Government bill of lading for transporting household goods and personal effects of employees involved in permanent change-of-station transfers. Auditors also made preaward reviews of cost proposals, submitted by potential contractors concerning several procurements. These reviews have been used by contracting officers as a basis for contract negotiations. One auditor was also assigned to the ADP procurement team to assist in evaluating offers made by vendors competing for a contract to provide a new ADP system. Legal counsel During fiscal 1978, the Secret Service resubmitted a legislative proposal to the Secretary ofthe Treasury that would amend title 18, United States Code, section 871, "Threats against the President or successors to the Presidency," to cover threats made against most protectees of the Secret Service. The Secret Service proposed a new section 510 to title 18, United States Code, "Forgery of Government checks, bonds, and other obligations," which, in effect, eliminates the need to rely on title 18, United States Code, section 495, "Contracts, Deeds, and Powers of Attomey" and other Federal statutes in the investigation of any violations concerning Treasury check, bonds, and other obligations. EXHIBITS Public Debt Operations, Regulations, and Legislation Exhibit 1.—Treasury notes A Treasury circular covering an auction for cash with an interest rate determined through competitive bidding is reproduced in this exhibit. Circulars pertaining to the other note offerings during fiscal 1978 are similar in form and therefore are not reproduced in this report. However, essential details for each offering are summarized in the table in this exhibit, and allotment data for the new notes will be shown in table 37 in the Statistical Appendix. During the year there were no offerings in which holders of maturing securities were given preemptive rights to exchange their holdings for new notes. DEPARTMENT CIRCULAR NO. 14-78. PUBLIC DEBT DEPARTMENT OF THE TREASURY, Washington, June 15, 1978. 1. INVITATION FOR TENDERS 1.1. The Secretary of the Treasury, under the authority of the Second Liberty Bond Act, as amended, invites tenders for approximately $3,000,000,000 of United States securities, designated Treasury Notes of June 30, 1980, Series Q-1980 (CUSIP No. 912827 HV 7). The securities wiH be sold at auction with bidding on the basis of yield. Payment will be required at the price equivalent of the bid yield of each accepted tender. The interest rate on the securities and the price equivalent of each accepted bid will be determined in the manner described below. Additional amounts of these securities may be issued to Govemment accounts and Federal Reserve Banks for their own account in exchange for maturing Treasury securities. Additional amounts may also be issued for cash to Federal Reserve Banks as agents of foreign and intemational monetary authorities. 2. DESCRIPTION OF SECURITIES 2.1. The securities will be dated June 30,1978, and will bear interest from that date, payable on a semiannual basis on December 31, 1978, and each subsequent 6 months on June 30 and December 31, until the principal becomes payable. They will mature June 30, 1980, and will not be subject to call for redemption prior to maturity. 2.2. The income derived from the securities is subject to all taxes imposed under the Intemal Revenue Code of 1954. The securities are subject to estate, inheritance, gift or other excise taxes, whether Federal or State, but are exempt from all taxation now or hereafter imposed on the principal or interest thereof by any State, any possession of the United States, or any local taxing authority. 2.3. The securities will be acceptable to secure deposits ofpublic monies. They will not be acceptable in payment of taxes. 2.4. Bearer securities with interest coupons attached, and securities registered as to principal and interest, will be issued in denominations of $5,000, $ 10,000, $ 100,000, and $ 1,000,000. Book-entry securities will be available to eligible bidders in multiples of those amounts. Interchanges of securities of different denominations and of coupon, registered and book-entry securities, and the transfer of registered securities will be permitted. 2.5. The Department of the Treasury's general regulations goveming United States securities apply to the securities offered in this circular. These general regulations include those currently in effect, as well as those that may be issued at a later date. 3. SALE PROCEDURES 3.1. Tenders will be received at Federal Reserve Banks and Branches and at the Bureau ofthe Public Debt, Washington, D.C. 20226, up to 1:30 p.m., Eastem Daylight 255 256 1978 REPORT OF THE SECRETARY OF THE TREASURY Saving time, Tuesday, June 20, 1978. Noncompetitive tenders as defined below wUl be considered timely if postmarked no later than Monday, June 19, 1978. 3.2. Each tender must state the face amount of securities bid for. The minimum bid is $5,000 and larger bids must be in multiples of that amount. Competitive tenders must also show the yield desired, expressed in terms of an annual yield with two decimals, e.g., 7.11%. Common fractions may not be used. Noncompetitive tenders must show the term "noncompetitive" on the tender form in lieu of a specified yield. No bidder may submit more than one noncompetitive tender and the amount may not exceed $1,000,000. 3.3. All bidders must certify that they have not made and wUl not make any agreements for the sale or purchase of any securities of this issue prior to the deadline established in Section 3.1. for receipt of tenders. Those authorized to submit tenders for the account of customers will be required to certify that such tenders are submitted under the same conditions, agreements, and certifications as tenders submitted directly by bidders for their own account. 3.4. Commercial banks, which for this purpose are defined as banks accepting dememd deposits, and primary dealers, which for this purpose are defined as dealers who make primary markets in Govemment securities and report daily to the Federal Reserve Bank of New York their positions in and borrowings on such securities, may submit tenders for account of customers if the names ofthe customers and the amount for each customer are fumished. Others are only permitted to submit tenders for their own account. 3.5. Tenders will be received without deposit for their own account from commercial banks and other banking institutions; primary dealers, as defined above; Federally-insured savings and loan associations; States, and their political subdivisions or instmmentalities; public pension and retirement and other public funds; intemational organizations in which the United States holds membership; foreign central banks and foreign states; Federal Reserve Banks; and Govemment accounts. Tenders from others must be accompanied by a desposit of 5% ofthe face amount of securities applied for (in the form of cash, maturing Treasury securities or readily collectible checks), or by a guarantee of such deposit by a commercial bank or a primary dealer. 3.6. Immediately after the closing hour, tenders wUl be opened, followed by a public announcement of the amount and yield rsmge of accepted bids. Subject to the reservations expressed in Section 4, noncompetitive tenders will be accepted in full, and then competitive tenders will be accepted, starting with those at the lowest yields, through successively higher yields to the extent required to attain the amount offered. Tenders at the highest accepted yield will be prorated if necessary. After the determination is made as to which tenders are accepted, a coupon rate will be established, on the basis of a 1/8 of one percent increment, which results in an equivalent average accepted price close to 100.000 and a lowest accepted price above the original issue discount limit of 99.500. That rate of interest will be paid on all of the securities. Based on such interest rate, the price on each competitive tender allotted will be determined and each successful competitive bidder will be required to pay the price equivalent to the yield bid. Those submitting noncompetitive tenders will pay the price equivalent to the weighted average yield of accepted competitive tenders. Price calculations will be carried to three decimal places on the basis of price per hundred, e.g., 99.923, and the determinations ofthe Secretary ofthe Treasury shaU be final. If the amount of noncompetitive tenders received would absorb all or most ofthe offering, competitive tenders will be accepted in an amount sufficient to provide a fair determination of the yield. Tenders received from Govemment accounts and Federal Reserve Banks will be accepted at the price equivalent to the weighted average yield of accepted competitive tenders. 3.7. Competitive bidders will be advised of the acceptance or rejection of their tenders. Those submitting noncompetitive tenders will only be notified if the tender is not accepted in full, or when the price is over par. 4. RESERVATIONS 4.1. The Secretary of the Treasury expressly reserves the right to accept or reject any or all tenders in whole or in part, to allot more or less than the amountof securities EXHIBITS 257 Specified in Section 1, and to make different percentage allotments to various classes of applicants when the Secretary considers it in the public interest. The Secretary's action under this Section is final. 5. PAYMENT AND DELIVERY 5.1. Settlement for allotted securities must be made or completed on or before Friday, June 30, 1978, at the Federal Reserve Bank or Branch or at the Bureau ofthe Public Debt, wherever the tender was submitted. Payment must be in cash; in other funds immediately available to the Treasury; in Treasury bills, notes or bonds (with all coupons detached) maturing on or before the settlement date but which are not overdue as defined in the general regulations goveming United States securities; or by check drawn to the order of the institution to which the tender was submitted, which must be received at such institution no later than: (a) (b) Wejdnesday, June 28, 1978, if the check is drawn on a bank in the Federal Reserve District ofthe institution to which the check is submitted (the Fifth Federal Reserve District in case of the Bureau of the Public Debt), or Monday, June 26, 1978, if the check is drawn on a bank in another Federal Reserve District. Checks received after the dates set forth in the preceding sentence will not be accepted unless tliey are payable at the applicable Federal Reserve Bank. Payment will not be considered complete where registered securities are requested if the appropriate identifying number as required on tax retums and other documents submitted to the Intemal Revenue Service (an individual's social security number or an employer identification number) is not fumished. When payment is made in securities, a cash adjustment will be made to or required of the bidder for any difference between the face amount of securities presented and the amount payable on the securities allotted. 5.2. In every case where full payment is not completed on time, the deposit submitted with the tender, up to 5 percent of the face amount of securities allotted, shall, at the discretion ofthe Secretary ofthe Treasury, be forfeited to the United States. 5.3. Registered securities tendered as deposits and in payment for allotted securities are not required to be assigned if the new securities are to be registered in the same names and forms as appear in the registrations or assignments ofthe securities surrendered. When the new securities are to be registered in names and forms different from those in the inscriptions or assignments ofthe securities presented, the assignment should be to "The Secretary ofthe Treasury for (securities offered by this circular) in the name of (name and taxpayer identifying number)." If new securities in coupon form are desired, the assignment should be to "The Secretary of the Treasury for coupon (securities offered by this circular) to be delivered to (name and address)." Specific instrnctions for the issuance and delivery of the new securities, signed by the owner or authorized representative, must accompany the securities presented. Securities tendered in payment should be surrendered to the Federal Reserve Bank or Branch or to the Bureau of the Public Debt, Washington, D.C. 20226. The securities must be delivered at the expense and risk of the holder. 5.4. If bearer securities are not ready for delivery on the settlement date, purchasers may elect to receive interim certificates. These certificates shall be issued in bearer form and shall be exchangeable for definitive securities of this issue, when such securities are available, at any Federal Reserve Bank or Branch or at the Bureau ofthe Public Debt, Washington, D.C. 20226. The interim certificates must be retumed at the risk and expense of the holder. 5.5. Delivery of securities in registered form will be made after the requested form of registration has been validated, the registered interest account has been established, and the securities have been inscribed. 6. GENERAL PROVISIONS 6.1. As fiscal agents ofthe United States, Federal Reserve Banks are authorized and requested to receive tenders, to make allotments as directed by the Secretary of the 258 1978 REPORT OF THE SECRETARY OF THE TREASURY Treasury, to issue such notices as may be necessary, to receive payment for and make delivery of securities on full-paid allotments, and to issue interim certificates pending delivery of the definitive securities. 6.2. The Secretary of the Treasury may at any time issue supplemental or amendatory mles and regulations goveming the offering. Public announcement of such changes will be promptly provided. PAUL H . TAYLOR, Acting Fiscal Assistant Secretary. SUPPLEMENT TO DEPARTMENT CIRCULAR NO. 14-78. PUBLIC DEBT DEPARTMENT OF THE TREASURY, Washington, June 2 1 , 1978. The Secretary of the Treasury announced on June 20, 1978, that the interest rate on the notes designated Series Q-1980, described in Department Circular—Public Debt Series—No. 14-78, dated June 15, 1978, wiU be 8 1/4 percent. Interest on the notes will be payable at the rate of 8 1/4 percent per annum. PAUL H . TAYLOR, Acting Fiscal Assistant Secretary. Summary of information pertaining to Treasury notes issued during fiscal y e a r 1978 Date of preliminary announcement 1977 Sept. 27 Oct. 12 Oct. 21 Oct. 21 Nov. 14 Nov. 21 Dec. 13 1978 Jan. 12 Jan. 25 Jan. 25 Feb. 10 Feb. 15 Mar. 15 Mar. 21 Apr. 12 Apr. 26 ]Vfayl7 May 22 June 14 July 12 July 26 July 26 Aug. 17 Aug. 22 Department circular Date No. 23-77 24-77 25-77 26-77 28-77 29-77 30-77 1-78 2-78 3-78 5-78 6-78 7-78 8-78 9-78 10-78 12-78 13-78 14-78 16-78 17-78 18-78 20-78 21-78 Concurrent offering circular No. Treasury notes issued (all offered for cash) 1977 Sept. 28 Oct. 13 Oct. 25 Oct. 25 Nov. 15 Nov. 22 7-1/8 7-1/4 26-77, 27-77 7-1/8 25-77. 27-77 7-5/8 7-1/8 7-1/4 Dec. 14 1978 Jan. 13 Jan.26 Jan.26 Feb. 10 Feb. 16 Mar. 16 Mar. 22 Apr. 13 Apr. 27 M&y 18 May 23 June 15 July 13 July 27 July 27 Aug. 18 Aug. 23 ..7-1/2 percent Series K-1980 3-78, 4-78 7-1/2 percent Series M-198I 2-78, 4-78 8 percent Series A-1985 ..7-5/8 percent Series L-1980 ..7-7/8 percent Series G-1982 ..7-1/2 percent Series M-19804 ..7-7/8 percent Series C-1983 ..7-3/4 percent Series N-1980 11-78 8-1/4 percent Series A-1988 ..8 percent Series P-1980 8-1/4 percent Series H-1982 8-1/4 percent Series Q-1980 8-1/2 percent Series R-1980 18-78, 19-78 8-3/8 percent Series N-1981 17-78, 19-78 8-1/4 percent Series B-1985 8-3/8 percent Series S-1980 8-3/8 percent Series J-1982 percent percent percent percent percent percent Series Series Series Series Series Series F-1982 V-1979 J-1980 A-1987 W-1979 L-1981 7-1/8 percent Series X-1979 Type of auction • Yield Yield Yield Yield Yield Yield 99.750 99.%3 99.695 99.552 99.991 99.776 Yield 99.863 Yield Yield Price Yield Yield Yield Yield Yield Yield Yield Yield Yield Yield Yield Yield Yield Yield 99.909 99.849 100.65 99.863 99.928 99.891 99.698 99.909 99.732 99.837 99.911 99.873 99.802 99.779 99.426 99.991 99.859 1 All auctions but one for issues of notes were by the "Yield" method in which bidders were required to bid on the basis of an annual yield; one issue of notes was by the "Price" method, in which case the interest rate is announced prior .to the auction, and bidders were requested to bid a price. After tenders were allotted in the "Yiela' method auction an interest rate for the notes was estabhshed at the nearest 1/8 of one percent increment that translated into an average accepted price close to 100.000. 2 Payment could not be made through Treasury tax and loan accounts. 3 Relatively small amounts of bids were accepted at a price or prices above the high shown. However, Accepted tenders Low Average High price price price Minimum denomination Issue date 99.666 99.927 99.668 99.415 99.972 99.741 1,000 5,000 5,000 1,000 5,000 1,000 3 99.936 99.808 5,000 1977 Oct. 17 Oct. 31 Nov. 15 Nov. 15 Nov. 30 Dec. 7 1978 Jan. 3 3 99.963 99.935 3 100.80 3 99.918 3 99.997 3 100.000 3 99.740 3 100.000 3 99.933 3 100.000 3 100.013 3 100.000 3 99.964 3 99.831 3 99.843 3 100.009 3 99.961 99.891 99.792 100.58 99.845 99.894 99.872 99.657 99.873 99.665 99.819 99.877 99.855 99.784 99.753 99.166 99.973 99.826 5,000 5,000 1,000 5,000 1,000 5,000 1,000 5,000 1,000 5,000 1,000 5,000 5,000 5,000 1,000 5,000 1,000 Jan. 31 Feb. 15 Feb. 15 Feb. 28 Mar.6 Mar.31 Apr. 5 IVfey 1 May 15 May 31 June 7 June 30 July 31 Aug. 15 Aug. 15 Aug. 31 Sept. 6 3 3 3 3 3 3 99.876 100.092 99.748 99.759 100.009 99.845 Maturity date Date tenders received Payment date 2 Nov. 15, 1982 Oct. 31, 1979 Nov. 15, 1980 Nov. 15, 1987 Nov. 30, 1979 Dec. 31, 1981 1977 Oct. 5 Oct. 18 Oct. 28 Nov. I Nov. 22 Nov. 30 1977 Oct. 17 Oct. 31 Nov. 15 Nov. 15 Nov. 30 Dec. 7 1978 Jan. 3 Dec. 31, 1979 Jan. 31, 1980 M a y 15, 1981 Feb. 15, 1985 Feb. 29, 1980 Mar. 31, 1982 Mar. 31, 1980 M a y 15, 1983 Apr. 30, 1980 N ^ y 15, 1988 M a y 31, 1980 June 30, 1982 June 30, 1980 July 31, 1980 Aug. 15, 1981 Aug. 15, 1985 Aug. 31, 1980 ' Sept. 30, 1982 Dec. 21 1978 Jan. 18 Jan. 31 Feb. 1 Feb. 16 Feb. 22 Mar. 22 Mar. 28 Apr. 19 May 2 M a y 23 M a y 31 June 20 July 20 Aug. 1 Aug. 2 Aug. 23 Aug. 29 Jan. 31 Feb. 15 Feb. 15 Feb. 28 Mar.6 Mar.31 Apr. 5 May 1 M a y 15 M a y 31 June 7 June 30 July 31 Aug. 15 Aug. 15 Aug. 31 Sept. 6 X X c/3 the higher price or prices are not shown in order to prevent an appreciable discontinuity in the range of prices, which would make it misrepresentative. 4 Since auction resulted in coupon rate of 7 1 /2 percent, this was considered an additional issue of the 4-year notes C-1980 issued Mar. 17, 1976, maturing Mar. 31, 1980. NOTE: The maximum amount that could be bid for on a noncompetitive basis for each issue was $1,000,000. to 260 1978 REPORT OF THE SECRETARY OF THE TREASURY Exhibit 2.—Treasury bonds A Treasury circular covering an auction of Treasury bonds for C2ish is reproduced in this exhibit. Circulars pertaining to other bond offerings during fiscal 1978 are simUar in form and therefore are not reproduced in this report. However, essential details for each offering are summarized in the table in this exhibit, and allotment data for the bonds wUl be shown in table 38 in the Statistical Appendix. During the year there were no offerings in which holders of maturing securities were given preemptive rights to exchange their holdings for new bonds. DEPARTMENT CIRCULAR NO. 31-77. PUBLIC DEBT DEPARTMENT OF THE TREASURY, Washington, December 20, 1977. 1. INVITATION FOR TENDERS 1.1. The Secretary of the Treasury, under the authority of the Second Liberty Bond Act, as amended, invites tenders for approximately $ 1,500,000,000 of United States securities, designated Treasury Bonds of 1993 (CUSIP No. 912810 CA 4). The securities will be sold at auction with bidding on the basis of yield. Payment wUl be required at the price equivalent of the bid yield of each accepted tender. The interest rate on the securities and the price equivalent of each accepted bid will be determined in the manner described below. Additional amounts of these securities may be issued for cash to Federal Reserve Banks as agents of foreign and intemational monetary authorities. 2. DESCRIPTION OF SECURITIES 2.1. The securities will be dated January 6, 1978, and wiU bear interest from that date, payable on a semiannual basis on August 15,1978, and each subsequent 6 months on February 15 and August 15, until the principal becomes payable. They will mature Febmary 15, 1993, and will not be subject to call for redemption prior to maturity. 2.2. The income derived from the securities is subject to all taxes imposed under the Intemal Revenue Code of 1954. The securities are subject to estate, inheritance, gift or other excise taxes, whether Federal or State, but are exempt from all taxation now or hereafter imposed on the principal or interest thereof by any State, any possession of the United States, or any local taxing authority. 2.3. The securities will be acceptable to secure deposits of public monies. They will not be acceptable in payment of taxes. 2.4. Bearer securities with interest coupons attached, and securities registered as to principal and interest, wiU be issued in denominations of $1,000, $5,000, $10,000, $100,000, and $1,000,000. Book-entry securities wUl be available to eligible bidders in multiples of those amounts. Interchanges of securities of different denominations and of coupon, registered and book-entry securities, and the transfer of registered securities wUl be permitted. 2.5. The Department of the Treasury's general regulations goveming United States securities apply to the securities offered in this circular. These general regulations include those currently in effect, as well as those that may be issued at a later date. 3. SALE PROCEDURES 3.1. Tenders wUl be received at Federal Reserve Banks and Bramches and at the Bureau ofthe Public Debt, Washington, D.C. 20226, up to 1:30 p.m., Eastem Standard time, Tuesday, December 27, 1977. Noncompetitive tenders as defined below will be considered timely if postmarked no later than Monday, December 26, 1977. 3.2. Each tender must state the face amount of securities bid for. The minimum bid is $ 1,000 and larger bids must be in multiples of that amount. Competitive tenders must ilso show the yield desired, expressed in terms of an annual yield with two decimals, EXHIBITS 261 e.g., 7.11%. Common fractions may not be used. Noncompetitive tenders must show the term "noncompetitive" on the tender form in lieu of a specified yield. No bidder may submit more than one noncompetitive tender and the amount may not exceed $1,000,000. 3.3. All bidders must certify that they have not made and will not make any agreements for the sale or purchase of any securities of this issue prior to the deadline established in Section 3.1. for receipt of tenders. Those authorized to submit tenders for the account of customers will be required to certify that such tenders are submitted under the same conditions, agreements, and certifications as tenders submitted directly by bidders for their own account. 3.4. Commercial banks, which for this purpose are defined as banks accepting demand deposits, and primary dealers, which for this purpose are defined 2is dealers who make primary markets in Govemment securities and report daily to the Federal Reserve Bank of New York their positions in and borrowings on such securities, may submit tenders for account of customers if the names ofthe customers and the amount for each customer are fumished. Others are only permitted to submit tenders for their own account. 3.5. Tenders will be received without deposit for their own account from commercial banks and other banking institutions; primary dealers, as defined above; Federally-insured savings and loan associations; States, and their political subdivisions or instmmentalities; public pension and retirement and other public funds; intemational organizations in which the United States holds membership; foreign central banks and foreign states; Federal Reserve Banks; and Govemment accounts. Tenders from others must be accompanied by a deposit of 5% ofthe face amount of securities applied for (in the form of cash, maturing Treasury securities or readily collectible checks), or by a guarantee of such deposit by a commercial bank or a primary dealer. 3.6. Immediately after the closing hour, tenders will be opened, followed by a publ ic armouncement of the amount and yield range of accepted bids. Subject to the reservations expressed in Section 4, noncompetitive tenders will be accepted in full, and then competitive tenders will be accepted, starting with those at the lowest yields, through successively higher yields to the extent required to attain the amount offered. Tenders at the highest accepted yield will be prorated if necessary. After the determination is made as to which tenders are accepted, a coupon rate will be established, on the basis of a 1/8 of one percent increment, which results in an equivalent average accepted price close to 100.000 and a lowest accepted price above the original issue discount limit of 96.250. That rate of interest will be paid on all of the securities. Based on such interest rate, the price on each competitive tender allotted will be determined and each successful competitive bidder will be required to pay the price equivalent to the yield bid. Those submitting noncompetitive tenders will pay the price equivalent to the weighted average yield of accepted competitive tenders. Price calculations will be carried to three decimal places on the basis of price per hundred, e.g., 99.923, and the determinations ofthe Secretary ofthe Treasury shaU be final. If the amount of noncompetitive tenders received would absorb all or most ofthe offering, competitive tenders will be accepted in an amount sufficient to provide a fair determinatioh of the yield. Tenders received from Govemment accounts and Federal Reserve Banks will be accepted at the price equivalent to the weighted average yield of accepted competitive tenders. 3.7. Competitive bidders will be advised of the acceptance or rejection of their tenders. Those submitting noncompetitive tenders will only be notified if the tender is not accepted in full, or when the price is over par. 4. RESERVATIONS 4.1. The Secretary of the Treasury expressly reserves the right to accept or reject any or all tenders in whole or in part, to allot more or less than the amount of securities specified in Section 1, and to make different percentage allotments to various classes of applicants when the Secretary considers it in the public interest. The Secretary's action under this Section is final. 262 1978 R E P O R T OF T H E SECRETARY OF THE TREASURY 5. PAYMENT AND DELIVERY 5.1. Settlement for allotted securities must be made or completed on or before Friday, January 6, 1978, at the Federal Reserve Bank or Branch or at the Bureau of the Public Debt, wherever the tender was submitted. Payment must be in cash; in other funds immediately available to the Treasury; in Tresisury bills, notes or bonds (with all coupons detached) maturing on or before the settlement date but which are not overdue as defined in the general regulations goveming United States securities; or by check drawn to the order of the institution to which the tender W2is submitted, which must be received at such institution no later than: (a) (b) Wednesday, January 4, 1978, if the check is drawn on a bank in the Federal Reserve District ofthe institution to which the check is submitted (the Fifth Federal Reserve District in case of the Bureau of the Public Debt), or Tuesday, January 3,1978, if the check is drawn on a bank in another Federal Reserve District. Checks received after the dates set forth in the preceding sentence will not be accepted unless they are payable at the applicable Federal Reserve Bank. Payment will not be considered complete whei^e registered securities are requested if the appropriate identifying number as required on tax retums and other documents submitted to the Intemal Revenue Service (an individual's social security number or an employer identification number) is not fumished. When payment is made in securities, a cash adjustment wUl be made to or required of the bidder for any difference between the face amount of securities presented and the amount payable on the securities allotted. 5.2. In every case where full payment is not completed on time, the deposit submitted with the tender, up to 5 percent of the face amount of securities allotted, shaU, at the discretion ofthe Secretary ofthe Treasury, be forfeited to the United States. 5.3. Registered securities tendered as deposits and in payment for allotted securities are not required to be assigned if the new securities are to be registered in the same names and forms as appear in the registrations or assignments ofthe securities surrendered. When the new securities are to be registered in names and forms different from those in the inscriptions or assignments ofthe securities presented, the assignment should be to "The Secretary of the Treasury for (securities offered by this circular) in the name of (name and taxpayer identifying number)." If new securities in coupon form are desired, the assignment should be to "The Secretary of the Treasury for coupon (securities offered by this circular) to be delivered to (name and address)." Specific instrnctions for the issuance and delivery of the new securities, signed by the owner or authorized representative, must accompany the securities presented. Securities tendered in payment should be surrendered to the Federal Reserve Bank or Branch or to the Bureau of the Public Dept, Washington, D.C. 20226. The securities rriust be delivered at the expense and risk of the holder. 5.4. If bearer securities are not ready for delivery on the settlement date, purchasers may elect to receive interim certificates. These certificates shall be issued in bearer form and shall be exchangeable for definitive securities of this issue, when such securities are available, at any Federal Reserve Bank or Branch or at the Bureau ofthe Public Debt, Washington, D.C. 20226. The interim certificates must be retumed at the risk and expense of the holder. 5.5. Delivery of securities in registered form will be made after the requested form of registration has been validated, the registered interest account has been established, and the securities have been inscribed. 6. GENERAL PROVISIONS 6.1. As fiscal agents of the United States, Federal Reserve Banks are authorized and requested to receive tenders, to make allotments as directed by the Secretary of the Treasury, to issue such notices as may be necessary, to receive payment for and make delivery of securities on full-paid allotments, and to issue interim certificates pending delivery of the definitive securities. 263 EXHIBITS 6.2. The Secretary of the Treasury may at any time issue supplemental or amendatory rules and regulations goveming the offering. Public announcement of such changes will be promptly provided. I PAUL H . TAYLOR, ' Acting Fiscal Assistant Secretary. SUPPLEMENT TO DEPARTMENT CIRCULAR NO. 31-77. PUBLIC DEBT | DEPARTMENT OF THE TREASURY, Washington, December 28, 1977. The Secretary ofthe Treasury announced on December 27, 1977, that the interest! rate ofthe bonds described in Department Circular—Public Debt Series—No. 31-77, dated December 20, 1977, will be 7 7/8 percent per annum. Accordingly, the bonds are hereby redesignated 7 7/8 percent Treasury Bonds of 1993. Interest on the bonds; will be payable at the rate of 7 7/8 percent per annum. PAUL H . TAYLOR, Acting Fiscal Assistant Secretary. \ as Summary of information pertaining to Treasury bonds issued during fiscal year 1978 Date of prelim^ nouncement 1977 Oct. 24 Dec. 19 1978 Jan. 25 Apr. 26 ^ S r f£ en circu ar circular No. Date No. 1977 27-77 Oct. 25 25-77,26-77 7 7/8 percent of 2002-2007 Yield 31-77 7 7/8 percent of 1993 Yield 8 1/4 percent of 2000-2005 8 3/4 percent of 1995-2000 Price Price 4-73 11-78 Dec. 20 1978 Jan. 26 2-78. 3-78 Apr. 27 10-78 Treasury bonds issued (all auctioned for cash) ^^^^ Issue Maturity tenders Payment date date received date 2 1977 1977 1977 99.261 3 99.487 99.148 Nov. 15 Nov. 15, 2007 Nov. 2 Nov. 15 1978 1978 99.315 399.575 99.228 Jan. 6 Feb. 15, 1993 Dec. 27 Jan. 6 1975 1978 100.13 100.73 100.01 May 2 4 May 15, 2005 Feb. 2 . Feb. 15 99.02 399.23 98.91 May 15 5 Aug. 15, 2000 May 3 May 15 1978 99.924 3 100.OO8 99.924 July 11 Aug. Ii5, 1993 June 28 July 11 99.402 100.055 99.079 Aug. 15 Aug. 15, 2008 Aug. 3 Aug. 15 the higher price or prices are not shown in order to prevent an appreciable discontinuity in the range of prices, which would make it misrepresentative. 4 Interest was payable from Feb. 15, 1978. 5 Interest was payable from May 15, 1978. Type of auction • Average price Accepted tenders High Low price price June 19 15-78 June 20 8 5/8 percent of 1993 Yield July 26 19-78 July 27 17-78,18-78 8 3/8 percent of 2003-2008 Yield 1 Some issues ofbonds were auctioned by the "Price" method, with the interest rate being announced prior to the auction, and bidders were required to bid at a price. Other auctions were held by the "Yield" method in which case bidders were reauired to bid at a yield. After tenders were allotted in the "Yield" method auction an interest rate for the Donds was estabUshed at the nearest 1/8 of one percent increment that translated into an average accepted price close to 100.000. 2 Payment could not be made through Treasury tax and loan accounts for any of the issues. NOTE: The maximum amount that could be bid for on a noncompetitive basis for each issue was 3 Relatively small amounts of bids were allotted at a price or prices above the high shown. However, $1,000,000. AU issues had a minimum denomination of $1,000. EXHIBITS 265 Exhibit 3.—Treasury bills During the fiscal year there were 52 weekly issues of 13-week and 26-week bills (the 13-week bills represent additional amounts of bills with an original maturity of 26 weeks), 13 52-week issues, 1 issue of 139 days, and 4 issues of short-dated ("cash management") biUs. A press release inviting tenders for 13-week and 26-week bills is reproduced in this exhibit and is representative of all releases except those for shortdated bills. The offering press release of March 1,1978, inviting tenders for 43-day bills is also included and is representative of all such releases. Also reproduced is a press release which is representative of releases announcing the results of offerings. Data for each issue during the fiscal year appears in table 39 in the Statistical Appendix^ PRESS RELEASE OF DECEMBER 6, 1977 The Department of the Treasury, by this public notice, invites tenders for two series of Treasury bUls totaling approximately $5,700 million, to be issued December 15, 1977. This offering will provide $200 mUlion of new cash for the Treasury as the maturing bills are outstanding in the amount of $5,516 miUion. The two series offered are as follows: 91-day bills (to maturity date) for approximately $2,300 mUlion, representing an additional amount of bills dated September 15, 1977, and to mature March 16, 1978; (CUSIP No. 912793 P3 4), originally issued in the amount of $3,377 million, the additional and original bUls to be freely interchangeable. 182-day biUs for approximately $3,400 million to be dated December 15, 1977, and to mature June 15, 1978 (CUSIP No. 912793 Q8 2). Both series of bills will be issued for cash and in exchange for Treasury bills maturing i December 15, 1977. Federal Reserve Banks, for themselves and as agents of foreign and intemational monetary authorities, presently hold $2,855 miUion ofthe maturing bills. These accounts may exchange bills they hold for the bills now being offered at; the weighted average prices of accepted competitive tenders. The bills will be issued on a discount basis under competitive and noncompetitive \ bidding, and at maturity theif par amount will be payable without interest. Except for I definitive bills in the $ 100,000 denomination, which wUl be avaUable only to investors who are able to show that they are required by law or regulation to hold securities in physical form, both series of bills will be issued entirely in book-entry form in a minimum amount of $ 10,000 and in any higher $5,000 multiple, on the records either of the Federal Reserve Banks and Branches, or of the Department of the Treasury. Tenders will be received at Federal Reserve Banks and Branches and at the Bureau ofthe Public Debt, Washington, D.C. 20226, up to 1:30 p.m., Eastem Standard time, Monday, December 12, 1977. Form PD 4632-2 (for 26-week series) or Form PD 4632-3 (for 13-week series) should be used to submit tenders for bills to be maintained on the book-entry records of the Department of the Treasury. Each tender must be for a minimum of $10,000. Tenders over $10,000 must be in multiples of $5,000. In the case of competitive tenders the price offered must be expressed on the basis of 100, with not more than three decimals, e.g., 99.925. Fractions may not be used. Banking institutions and dealers who make primary markets in Govemment securities and report daily to the Federal Reserve Bank of New York their positions in and borrowings on such securities may submit tenders for account of customers, if the names of the customers and the amount for each customer are fumished. Others are only permitted to submit tenders for their own account. ) Payment for the full par amount of the bills applied for must accompany all tenders submitted for bills to be maintained on the book-entry records of the Department of the Treasury. A cash adjustment will be made on aU accepted tenders for the difference between the par payment submitted and the actual issue price as determined in the auction. No deposit need accompany tenders from incorporated banks and tmst companies and from responsible and recognized dealers in investment securities for bills to be maintained on the book-entry records of Federal Reserve Banks and Branches, or for 266 1978 REPORT OF THE SECRETARY OF THE TREASURY bills issued in bearer form, where authorized. A deposit of 2 percent ofthe par amount of the bills applied for must accompany tenders for such bills from others, unless an express guaranty of payment by an incorporated bank or trust company accompanies the tenders. Public announcement will be made by the Department ofthe Treasury ofthe amount and price range of accepted bids. Competitive bidders wiU be advised ofthe acceptance or rejection of their tenders. The Secretary ofthe Treasury expressly reserves the right to accept or reject any or all tenders, in whole or in part, and the Secretary's action shall be final. Subject to these reservations, noncompetitive tenders for each issue for $500,000 or less without stated price from any one bidder will be accepted in full at the weighted average price (in three decimals) of accepted competitive bids for the respective issues. Settlement for accepted tenders for bills to be maintained on the book-entry records of Federal Reserve Banks and Branches, and bills issued in bearer form must be made or completed at the Federal Reserve Bank or Branch or at the Bureau of the Public Debt on December 15, 1977, in cash or other immediately available funds or in Treasury bUls maturing December 15, 1977. Cash adjustments wiU be made for differences between the par value of the maturing bills accepted in exchange and the issue price of the new bills. Under Sections 454(b) and 1221(5) of the Intemal Revenue Code of 1954 the amount of discount at which these bills are sold is considered to accrue when the bills are sold, redeemed or otherwise disposed of, and the bills are excluded from consideration as capital assets. Accordingly, the owner of these bills (other than life insurance companies) must include in his or her Federal income tax retum, 2is ordinary gain or loss, the difference between the price paid for the bills, whether on original issue or on subsequent purchase, and the amount actually received either upon sale or redemption at maturity during the taxable year for which the return is made. Department of the Treasury Circulars, No. 418 (current revision). Public Debt Series—Nos. 26-76 and 27-76, and this notice, prescribe the terms of these Treasury bills and govern the conditions of their issue. Copies of the circulars and tender forms may be obtained from any Federal Reserve Bank or Branch, or from the Bureau of the Public Debt. PRESS RELEASE OF MARCH 1, 1978 The Department of the Treasury, by this public notice, invites tenders for approximately $3,000 mUlion of 43-day Treasury biUs to be issued March 8, 1978, representing an additional amount of bills dated October 20, 1977, maturing April 20, 1978 (CUSIP No. 912793 P8 3). The bills will be issued on a discount basis under competitive bidding, and at maturity their par amount will be payable without interest. Except for definitive bills in the $ 100,000 denomination, which will be available only to investors who are able to show that they are required by law or regulation to hold securities in physical form, this series of bills will be issued entirely in book-entry form in a minimum amount of $ 10,000 and in any higher $5,000 multiple, on the records of the Federal Reserve Banks and Branches. Competitive tenders will be received at all Federal Reserve Banks and Branches up to 1:30 p.m., Eastem Standard time, Friday, March 3, 1978. Noncompetitive tenders will not be accepted. Tenders will not be received at the Department of the Treasury, Washington. Wire and telephone tenders may be received at the discretion of each Federal Reserve Bank or Branch. Each tender for the issue must be for a minimum of $1,000,000. Tenders over $1,000,000 must be in multiples of $1,000,000. The price on tenders offered must be expressed on the basis of 100, with not more than three decimals, e.g., 99.925. Fractions may not be used. Banking institutioris and dealers who make primary markets in Govemment securities and report daily to the Federal Reserve Bank of New York their positions in and borrowings on such securities may submit tenders for account of customers, if the names of the customers and the amount for each customer are fumished. Others are only permitted to submit tenders for their own account. 267. EXHIBITS No deposit need accompany tenders from incorporated banks and trust companies and from responsible and recognized dealers in investment securities for biUs to be maintained on the book-entry records of Federal Reserve Banks and Branches, or fori bills issued in bearer form, where authorized. A deposit of 2 percent ofthe par amounti of the bills applied for must accompany tenders for such bills from others, unless an: express guaranty of payment by an incorporated bank or trust company accompanies! the tenders. i Public announcement will be made by the Department ofthe Treasury ofthe amount: and price range of accepted bids. Those submitting tenders will be advised of the; acceptance or rejection of their tenders. The Secretary of the Treasury expressly! reserves the right to accept or reject any or aU tenders, in whole or in part, and the Secretary's action shall be final. Settlement for accepted tenders in accordance withl the bids must be made or completed at the Federal Reserve Bank or Branch in cashi or other immediately available funds on Wednesday, March 8, 1978. ' Under Sections 454(b) and 1221(5) of the Intemal Revenue Code of 1954 the! amount of discount at which these bUls are sold is considered to accrue when the bills are sold, redeemed or otherwise disposed of, and the bills are excluded from consideration as capital assets. Accordingly, the owner of these bills (other than lifel insurance companies) must include in his or her Federal income tax retum, as ordinaryl gain or loss, the differerice between the price paid for the bills on original issue or on subsequent purchase, and the amount actually received either upon sale or redemption' at maturity during the taxable year for which the return is made. i Department of the Treasury Circulars, No. 418 (current revision), Public Debt Series^Nos. 26-76 and 27-76, and this notice, prescribe the terms of these Treasury bills and go vem the conditions of their issue. Copies of the circulars may be obtained from any Federal Reserve Bank or Branch. PRESS RELEASE OF MARCH 3, 1978 I Tenders for $3,004 miUion of 43-day Treasury bills to be issued on March 8, 1978, and to mature April 20, 1978, were accepted at the Federal Reserve Banks today. The details are as follows: i Range of accepted competitive bids Price Discount rate 99.246 99.238 99.242 6.313 6.380 6.346 Investment rate i (equivalent coupoilissue yield) Percent High Low Average 6.45 6.52 6.48 NOTE. —Tenders at the low price were allotted 67 percent. , ; ! I •' j Total tenders received a n d accepted by Federal Reserve districts Location Boston New York Philadelphia Cleveland Richmond Atlanta Chicago St. Louis Minneapolis Kansas City Dallas San Francisco Total Received Accepted $15,000,000 5,845,000,000 — — 117,000,000 — 696,000,000 26,000,000 15,000,000 20,000,000 — 550,000,000 $3,350,000 2,566,850,000 — — 3,000,000 — 182,920,000 14,000,000 7,350,000 — — 226,700,000 7,284,000,000 3,004,170,000 268 1978 REPORT OF THE SECRETARY OF THE TREASURY Exhibit 4.—Department Circular No. 653, Ninth Revision, April 23, 1974, amended, offering of United States savings bonds, Series E DEPARTMENT OF THE TREASURY, Washington, February 27, 1978. SUMMARY: The purpose of this amendment to the current offering of United States Savings Bonds, Series E, is to revise the tables of redemption values and investment yields contained therein to reflect the entrance ofbonds of various issue dates into their first or next extended period. EFFECTIVE DATE: Upon publication. SUPPLEMENTAL INFORMATION: The tables contained in the offering circular for Series E savings bonds show the redemption values and investment yields for bonds of all possible issue dates. Each Table covers a particular consecutive group of issue dates. Whenever the earlier dated bonds covered by a particular Table reach the end of an original or extended maturity period, it is necessary to provide a supplemental Table to cover the extended maturity period those bonds will next enter. During 1978, earlier dated bonds in each of the following groups will begin a new extended maturity period. (1) Table 18—bonds dated June 1 through November 1, 1948; (2) Table 19—bonds dated December 1, 1948, through May 1, 1949; (3) Table 59—bonds dated June 1 through August 1, 1960; (4) Table 60—bonds dated September 1 through November 1, 1960; (5) Table 61—bonds dated December 1, 1960, through Febmary 1, 1961; (6) Table 62—bonds dated March 1 through May 1, 1961; (7) Table 94—bonds dated June 1 through November 1, 1972; (8) Table 95—bonds dated December 1, 1972, through May 1, 1973. Also, Table 97 covers bonds bearing issue dates of December 1, 1973, through August 1, 1976. Of those bonds, only those bearing an issue date of December 1, 1973, will enter their first extended maturity period during 1978. To reflect these new extended maturity periods. Tables 18, 19, 59, 60, 61, 62, 94, and 95 are being supplemented to show redemption values and investment yields for the first or next extended maturity period applicable thereto. It should be noted, however, that later dated bonds covered by these Tables will not enter their first or next extended maturity period untU after 1978. While these bonds have already been irrevocably granted such extension, the supplemental Tables will only be applicable thereto if there is no intervening interest rate change. With respect to Table 97, new Table 98 is being added to cover bonds dated January 1, 1974, through August 1, 1976, which wiU not enter their first extension untU a later time. Table 97, which will now only cover bonds dated December 1, 1973, is being supplemented at this time to show redemption values and investment yields of these bonds for their first extended maturity period. These are the only bonds covered by former Table 97 that wUl enter an extension during 1978. Accordingly, Department of the Treasury Circular No. 653, Ninth Revision, as amended, dated April 23, 1974 (31 CFR, Part 316), is hereby further amended by the deletion of current Table 97 and the issuance of new Tables 18-A, 19-A, 59-A, 60-A, 61-A, 62-A, 94-A, 95-A, 97, 97-A, and 98. The foregoing amendments were effected under authority of section 22 ofthe Second Liberty Bond Act, as amended (49 Stat. 2 1 , as amended; 31 U.S.C. 757c) and 5 U.S.C. 301. Notice and public procedures thereon are deemed unnecessary as the fiscal policy of the United States is involved. PAUL H . TAYLOR, Deputy Fiscal Assistant Secretary. TABLE 18-A BONDS BEARING ISSUE DATES FROM JUNE 1 THROUGH MOV. 1, 1948 Issue price Denoalnation . Period (years and manths after second extended maturity at 30 years 0 months) $7.50 10.00 $18.75 25.00 $37.50 50,00 $75.00 100.00 $150,00 200,00 $375.00 500.00 $750,00 1000,00 (1) Redemption values during each half-year period (values Increase on first day of period)* THIRD ETTENnKD MATTTRITY PERIOD** Approximate Investment yield (annual percentage rate) (2) From begin- (3) From begin- (4) From beglnning of each ning of current ning of each maturity period Jj-yr. period to S-yr. period to beginning of beginning of to 3rd extended maturity each %-yr, pd. next H-yr, pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 4-0 4-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 . . . l/( 6/1/78) to I-O . . . 7 (12/1/78) to 1-6 . . . . ( 6/1/79) to 2-0 . . . . (12/1/79) to 2-6 . . . . ( 6/1/80) to 3-0 . . . (12/1/80) to 3-6 . . . ( 6/1/81) to A-0 . . . (12/1/81) to 4-6 . . . ( 6/1/82) to 5-0 . . . (12/1/82) to 5-6 , . . ( 6/1/83) to 6-0 , . . (12/1/83) to 6-6 . . , . ( ^/l/84) to 7-0 . . . . (12/1/84) to 7-6 . , , . ( 6/1/85) to 8-0 . . . . (12/1/85) to 8-6 . . . . ( 6/1/86) to 9-0 . . . . (12/1/86) to 9-6 . . . . ( 6/1/87) tolO-0 . . . . (12/1/87) 2/ . . . . . ( 6/1/88) $24.56 25.30 26.06 26.84 27.64 28.47 29.32 30.20 31.11 32.04 33.01 34.00 35.02 36.07 37.15 38.26 39.41 40.59 41.81 43.07 44.36 $61.40 63.24 65.14 67.09 69.11 71.18 73.31 75,51 77.78 80.11 82.52 84.99 87.54 90.17 92.87 95.66 98.53 101.48 104.53 107.67 110.90 $122.80 126.48 130.28 134.18 138,22 142.36 146.62 151,02 155,56 160,22 165,04 169.98 175,08 180,34 185,74 191,32 197,06 202.96 209.06 215.34 221.80 $245.60 252.96 260.56 268,36 276,44 284,72 293,24 302,04 311,12 320,44 330,08 339,96 350,16 360,68 371.48 382.64 394.12 405,92 418,12 430,68 443,60 $491,20 505.92 521.12 536.72 552.88 569.44 586,48 604,08 622,24 640,88 660,16 679,92 700,32 721,36 742,96 765.28 788,24 811,84 836,24 861,36 887.20 $1228.00 1264.80 1302.80 1341.80 1382.20 1423.60 1466.20 1510.20 1555.60 1602.20 1650,40 1699,80 1750,80 1803,40 1857,40 1913,20 1970.60 2029.60 2090,60 2153,40 2218,00 $2456,00 2529,60 2605,60 2683.60 2764,40 2847.20 2932.40 3020.40 3111.20 3204.40 3300.80 3399.60 3501.60 3606.80 3714.80 3826,40 3941,20 4059.20 4181.20 4306.80 4436.00 5.99 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 3/ Percent 5,99 6,01 5,99 6,02 5.99 5.98 6.00 6.01 5.99 6.02 5.99 6.00 6.01 5.99 6.01 6.00 5.99 6.01 6.01 6.00 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.01 6.00 6.00 m X X 5H C/J 1/ Month, day, and year on which Issues of June 1, 1948, enter each period. For subsequent Issueraonthsadd the appropriate nunber of months. ?/ Third extended maturity reached at 40 years 0 months after Issue. 3 / Yield on purchase price from Issue date to 3rd extended maturity date Is 4.49 percent. * ** For earlier redenption values and yields see appropriate table In Department Circular 653, 9th Revision, as amended and supplemented. This table does not apply If the prevailing rate for Series E bonds being Issued at the tine the extension begins is different from 6.00 percent. to ON O TABLE 19-A BONDS BEARING ISSUE DATES FROM DEC. 1, Ipi+S, THROUGH MAY 1, 19l*9 Issue price Denomination Period (years andraonthsafter second extendedraaturityat 30 years 0 months) $7.50 "$18?75' 10.00 25.00 $37.50 50.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 (l) Redenption values during each half-year period (values increase on first day of period)* THIRD EXTENDED MATURITY PERIOD** Approximate investment yield (annual percentage rate) (2) Prom begin- (3) From begin- (U) From beginning of each ning of current ning of each raaturity period H-yr. i>eriod to H-yr. period to beginning of beginning of to 3rd extended maturity each *§-yr. pd. next is-yr. pd. S ^ 00 0 H Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U_6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 to 1-0 to 1-6 to 2-0 to 2-6 to 3-0 to 3-6 to U-0 to U-6 to 5-0 to 5-6 to 6-0 to 6-6 to 7-0 to 7-6 to 8-0 to 8-6 to 9-0 to 9-6 tolO-0 2/ . . . . 1/(12/1/78) . . . ( 6/1/79) . (12/1/79) ( 6/1/80) . (12/1/80) . . ( 6/1/81) (12/1/81) . . ( 6/1/82) (12/1/82) . . ( 6/1/83) . (12/1/83) ( 6/1/8U) . (12/1/8U) . . ( 6/1/85) . (12/1/85) . ( 6/1/86) . (12/1/86) . ( 6/1/87) . (12/1/87) . ( 6/1/88) . (12/1/88) $2U.90 25.6U 26. Ul 27.20 28.02 28.86 29.73 30.62 31.5U 32. U8 33. U6 3U.U6 35.50 36.56 37.66 38.79 39.95 Ul.15 U2.38 U3.66 UU.96 $62.2l4 $12U.U8 6U.11 128.22 132.06 66.03 68.01 136.02 lUO.lO 70.05 lUU.30 72.15 1U8.6U 7U.32 153.10 76.55 78.8U 157.68 81.21 162.U2 167.30 83.65 172.30 86.15 88.7U 177.U8 91. Uo 182.80 9U.1U 188.28 193.9U 96.97 99.88 199.76 205.7U 102.87 105.96 211.92 109.lU 218.28 112.Ul 22U.82 $2U8.96 256.UU 26U.12 272.ou 280.20 288.60 297.28 306.20 315.36 32U.8U 33U.6O 3UU.6O 35U.96 365.60 376.56 387.88 399.52 U11.U8 U23.8U U36.56 UU9.6U $U97.92 512.88 528.2U 5UU.O8 560.Uo 577.20 59U.56 612.Uo 630.72 6U9.68 669.20 689.20 709.92 731.20 753.12 775.76 799.OU 822.96 8U7.68 873.12 899.28 $12UU.80 1282.20 1320.60 1360.20 lUoi.oo 1UU3.OO 1U86.U0 1531.00 1576.80 162U.2O 1673.00 1723.00 177U.8O 1828.00 1882.80 1939.Uo 1997.60 2057.Uo 2119.20 2182.80 22U8.2O $2U89.60 256U.UO 26U1.2O 2720.Uo 2802.00 2886.00 2972.80 3062.00 3153.60 32U8.UO 33U6.OO 3UU6.OO 35U9.6O 3656.00 3765.60 3878.80 3995.20 U11U.8O U238.UO U365.60 UU96.UO 6.01 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 3/ Percent 6.01 5.99 6.00 6.00 6.00 6.02 6.00 5.98 6.01 6.01 5.98 6.01 6.00 6.00 6.01 6.00 5.99 6.01 6.00 5.99 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 5.99 1/ Month, day, emd year on which issues of Dec. 1, I9U8, enter each period. For subsequent issue raonths add the appropriate number of months. 2 / Third extended maturity reached at UO yecurs 0raonthsafter issue. 3 / Yield on piurchase price fron issue date to 3rd extended maturity date is U.53 percent. • For earlier redenption values and yields see appropriate table in Department Circuleu* 653, 9th Revision, as amended and suppleraented. •• This table does not apply if the prevailing rate for Series E bonds being issued at the tirae the extension begins is different fron 6.00 percent. 0 Tl H X PI c/3 0 po W > •< 0 Tl H X m H M > 05 G TABLE 59-A BONDS BEARING ISSUE DATES FROM JUNE 1 THROUGH AUG. 1, I960 Issue price DencKDination .... .... . . . Period (years and raonths after first extendedraat\irityat 17 years 9 nonths) $18.75 25.00 $37.50 50.00 $75.00 100.00 $150.00 • 200.00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO (1) Redenption values during each half-year period (values increase on first day of period)* ............. —.. SECOND EXTENDED MATURITY PERIOD** ....... Approxiraate investraent yield (annual percentage rate) (2) From begin- (3) From begin- ( U) From beginning of eeu;h ning of current ning of each maturity period S-yr. period to S-yr. period to beginning of beginning of to 2nd extended matxirity next *5-yr. pd. each H-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 . . . l/( 3/1/78) to 1-0 . . ( 9/1/78) to 1-6 . . ( 3/1/79) to 2-0 . . ( 9/1/79) to 2-6 . ( 3/1/80) to 3-0 . ( 9/1/80) . ( 3/1/81) to 3-6 . to U-0 . ( 9/1/81) to U-6 . ( 3/1/82) to 5-0 . ( 9/1/82) to 5-6 . ( 3/1/83) to 6-0 . ( 9/1/83) ( 3/1/8U) to 6-6 . ( 9/1/8U) to 7-0 . to 7-6 . ( 3/1/85) to 8-0 . ( 9/1/85) ( 3/1/86) to 8-6 . to 9-0 . ( 9/1/86) to 9-6 . ( 3/1/87) tolO-0 . ( 9/1/87) 2/ ... ( 3/1/88) $U3.18 UU.U8 U5.81 U7.18 U8.60 50.06 51.56 53.11 5U.70 56.3U 58.03 59.n 61.56 63.Ul 65.31 67.27 69.29 71.37 73.51 75.72 77.99 $86.36 88.96 91.62 9U.36 97.20 100.12 103.12 106.22 109.Uo 112.68 116.06 119.5U 123.12 126.82 130.62 I3U.5U 138.58 1U2.7U IU7.O2 151.UU 155.98 $172.72 177.92 183.2U 188.72 I9U.U0 200.2U 206.2U 212.UU 218.80 225.36 232.12 239.08 2U6.2U 253.6U 261.2U 269.08 277.16 285.U8 29U.OU 302.88 311.96 $3U5.UU 355.8U 366.U8 377.UU 388.80 U00.U8 U12.U8 U2U.88 U37.60 U50.72 U6U.2U U78.16 U92.U8 507.28 522.U8 538.16 55U.32 570.96 588.08 605.76 623.92 $863.60 889.60 916.20 9U3.60 972.00 1001.20 1031.20 1062.20 IO9U.OO 1126.80 1160.60 1195.Uo 1231.20 1268.20 1306.20 I3U5.UO 1385.80 IU27.U0 IU7O.20 I51U.UO 1559.80 $1727.20 1779.20 1832.Uo 1887.20 I9UU.OO 2002.Uo 2062.Uo 212U.UO 2188.00 2253.60 2321.20 2390.80 2U62.UO 2536.Uo 2612.Uo 2690.80 2771.60 285U.80 29UO.UO 3028.80 3119.60 $17272 17792 I832U 18872 19UUO 2002U 2062U 212UU 21880 22536 23212 23908 2U62U 2536U 2612U 26908 27716 285U8 29U0U 30288 31196 6.02 6.00 5.99 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 3/ Percent 6.02 5.98 5.98 6.02 6.01 5.99 6.01 5.99 6.00 6.00 6.00 5.99 6.01 5.99 6.00 6.01 6.00 6.00 6.01 6.00 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 1^/ Month, day, and year on which issues of June 1, I96O, enter each period. For subsequent issue months add the appropriate number of months. £/ Second extended naturity reached at 27 years 9 months after issue. 3 / Yield on purchase price frora issue date to 2nd extended naturity date is 5.20 percent. * •* For earlier redenption values and yields see appropriate table in Departnent Circular 653, 9th Revision, as araended and supplemented, This table does not apply if the prevailing rate for Series E honds being issued at the time the extension begins is different frora 6.00 percent. X X H c/3 to TABLE 60-A BONDS BEARING ISSUE DATES FROM SEPT. 1 THROUGH NOV, 1, I960 Issue price Denonination $18.75 25.00 Period (ye€u*8 and raonths after $37.50 50.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO (l) Rederaption values during each half-year period (values increase on first day of p e r i o d ) * SECOND EXTENDED MATURITY PERIOD** 17 years 9 months) Approxiraate investraent yield (annual percentage rate) (2) Frora b e g i n - (3) From b e g i n - (U) From beginning of each ning o f current ning of each maturity period S-yr. period to S-yr. period t o 2nd extendto beginning of beginning of next S-yr. pd. ed matxirity each S-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 to 1-0 to 1-6 to 2-0 to 2-6 to 3-0 to 3-6 to U-0 to U.6 to 5-0 to 5-6 to 6-0 to d~d to 7-0 to 7-6 to 8-0 to 8-6 to 9-0 to 9-6 tolO-0 2/ . . . , l/( 6/1/78) . . (12/1/78) . ( 6/1/79) . (12/1/79) . ( 6/1/80) (12/1/80) . . ( 6/1/81) . (12/1/81) . ( 6/1/82) . (12/1/82) . ( 6/1/83) . (12/1/83) . ( 6/1/8U) (12/1/8U) . . ( 6/1/85) . (12/1/85) . ( 6/1/86) . (12/1/86) . ( 6/1/87) . (12/1/87) . ( 6/1/88) $U3.57 UU.88 U6.22 U7.61 Uo.oU 50.51 52.02 53.59 55.19 56.85 58.55 60.31 62.12 63.98 65.90 67.88 69.92 72.01 7U.18 76.Uo 78.69 $87.lU 89.76 9 2 . UU 95.22 98.08 101.02 lOU.OU 107.18 110.38 113.70 117.10 120.62 I2U.2U 127.96 131.80 135.76 139.8U 1UU.02 1U8.36 152.80 157.38 $17U.28 179.52 18U.88 190.UU 196.16 202.oU 208.08 21U.36 220.76 227.Uo 23U.2O 2U1.2U 2U8.U8 255.92 263.60 271.52 279.68 288.OU 296.72 305.60 31U.76 $3U8.56 359.oU 369.76 380.88 392.32 U0U.08 U16.16 U28.72 UU1.52 U5U.80 U68.U0 U82.U8 U96.96 511.8U 527.20 5U3.0U 559.36 576.08 593.UU 611.20 629.52 $871.UO 897.60 92U.UO 952.20 980.80 1010.20 loUo.Uo 1071.80 1103.80 1137.00 1171.00 1206.20 I2U2.UO 1279.60 1318.00 1357.60 1398.Uo IUU0.20 1U83.60 1528.00 1573.80 $17U2.80 1795.20 I8U8.8O 190U.UO 1961.60 2020.Uo 2080.80 21U3.6O 2207.60 227U.OO 23U2.OO 2U12.UO 2U8U.8O 2559.20 2636.00 2715.20 2796.80 2880.Uo 2967.20 3056.00 31U7.60 $17U28 17952 18U88 190UU 19616 2020U 20808 21U36 22076 227UO 23U20 2U12U 2U8U8 25592 26360 27152 27968 2880U 29672 30560 31U76 6.01 5.99 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.0 0 6,0 0 6.00 6.00 6,00 6,00 6.00 3/ Percent 6.01 5.97 6.01 6.01 6.00 5.98 6.0U 5.97 6.02 5.98 6.01 6.00 5.99 6.00 6.01 6.01 5.98 6.03 5.99 5.99 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6.00 6,00 5.99 5.99 1_/ M o n t h , d a y , and year on which issues of Sept. 1 , I96O, enter each period. For subsequent issue months add the appropriate nuraber of months. 2 / Second extended raaturity reached at 2 7 years 9 months after issue. 3 / Yield on purchase price from issue date to 2nd extended naturity date is 5.2U percent. * •* F o r earlier rederaption values and yields see appropriate table in Departnent Circuleu* 6 5 3 , 9th Revision, as anended and supplemented. This table does not apply if the prevailing rate for Series E bonds being issued at,the tine the extension begins is different fron 6.00 percent. W 10 o po H O Tl H X w c/3 oPI?o PI H > po O Tl H X Pl H JO PI > C/3 C *< • ^ ~^.—^" TABLE 61-A BONDS BEARING ISSUE DATES FROM DEC, 1, I960, THROUGH FEB. 1, 1961 Issue price Denonination , . . , , , , , , , , Period (years and months after first extendedraaturityat 17 years 9 months) $18,75 25,00 $37.50 50.00 $75.00 100.00 $150,00 200,00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO (l) Redenption values during each half-year period (values increase on first day of period)* Approxinate investment yield (annual percentage rate) (2) Fron begin- (3) Frora begin- ( U) From beginning of each ning of current ning of each naturity period S-yr. period to S-yr. period ^n Pnrl ^'rt.t^nAmm to beginning of beginning of ed naturity next S-yr. pd. each S-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 . . . l/( 9/1/78). to 1-0 . . . ( 3/1/79) to 1-6 . . ( 9/1/79) to 2-0 . ( 3/1/80) to 2-6 . ( 9/1/80) to 3-0 . ( 3/1/81) to 3-6 . ( 9/1/81) to U-0 . ( 3/1/82) to U-6 . ( 9/1/82) to 5-0 . ( 3/1/83) to 5-6 . ( 9/1/83) to 6-0 . , ( 3/1/8U) to 6^6 . . ( 9/1/8U) to 7-0 . , ( 3/1/85) to 7-6 . , ( 9/1/85) to 8-0 . ( 3/1/86) to 8-6 . . ( 9/1/86) to 9-0 . . ( 3/1/87) to 9-6 . . ( 9/1/87) tolO-0 . . ( 3/1/88) 2/ ... ( 9/1/88) $U3.65 UU.96 U6.31 U7.70 U9,13 50,60 52.12 53,68 55.29 56.95 58,66 60. U2 62.23 6U.10 66,02 68.01 70.05 72.15 7U.31 76.5U 78.8U $87.30 89,92 92.62 95. Uo 98,26 101,20 10U.2U 107.36 110.58 113,90 117.32 120,8U 12U.U6 128.20 132.OU 136.02 lUO.lO lUU,30 1U8.62 153.08 157.68 $17U.60 179,8U 185.2U 190,80 196.52 202.Uo 208.U8 21U.72 221.16 227,80 23U.6U 2Ul,68 2U8.92 256.Uo 26U.08 272.OU 280.20 288.60 297.2U 306.16 315.36 $3U9.20 359.68 370.U8 381.60 393. OU UOU.80 U16.96 U29,UU UU2.32 U55.60 U69.28 U83.36 U97.8U 512.80 528,16 5UU.08 560.Uo 577.20 59U.U8 612.32 630.72 $873.00 899.20 926.20 95U.OO 982.60 1012.00 10U2,U0 1073.60 1105.80 1139.00 1173.20 1208.Uo I2UU.60 1282.00 1320.Uo 1360.20 lUOl.OO IUU3.OO IU86.2O 1530.80 1576.80 $17U6.00 1798.Uo 1852.Uo 1908.00 1965.20 202U.OO 208U.80 21U7.20 2211.60 2278.00 23U6.U0 2U16.8O 2U89.2O 256U.OO 26UO.8O 2720.Uo 2802.00 2886.00 2972.Uo 3061.60 3153.60 $17U60 1798U 1852U 19080 19652 202U0 208U8 21U72 22116 22780 23U6U 2U168 2U892 256UO 26U08 2720U 28020 28860 2972U 30616 31536 -__-, 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6,00 6.00 6.00 6.00 6.00 6.00 3/ Percent 6.00 6.01 6.00 6.00 5.98 6.01 5.99 6.00 6.00 6.01 6.00 5.99 6.01 5.99 6.03 6.00 6.00 5.99 6.00 6.01 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.01 6.01 Pl X X s H w 1^/ Month, day, and year on which issues of Dec. 1, I96O, enter each period. For subsequent issue nonths add the appropriate nuraber of raonths, £/ Second extendedraaturityreached at 27 years 9 months after issue, 3/ Yield on purchase price from issue date to 2nd extended nattirity date is 5.2U percent. * For earlier redenption values and yields see appropriate table in Departraent Circular 653, 9th Revision, as amended and suppleraented, •• This table does not apply if the prevailing rate for Series E bonds being issued at the time the extension begins is different from 6,00 percent. -J TABLE 62-A BONDS BEARIRG ISSUE DATES FROM MARCH 1 THROUGH ^ Y 1, 1961 Issue price Denomination Period (years and nonths after first extended naturity at 17 years 9 nonths) $18.75 25.00 $37.50 50.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO (1) Redemptior values during each half-year neriod (vsLLues increase on first day of period)* SECOND EXTENDED MATURITY PERIOD** Approximate investment yield (annual percentage rate) (2) Frora begin- (3) Fron begin- (U) Frora beginning of each ning of current ning of each raaturity period S-yr, period to S-yr. period ' frt 9nH ^'rf^nH. to beginning of beginning of ed raaturity next S-yr. pd. each S-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 , . , 1/(12/1/78) to 1-0 . . . ( 6/1/79) to 1-6 . . (12/1/79) . ( 6/1/80) to 2-0 . . (12/1/80) to 2-6 . to 3-0 . . ( 6/1/81) . (12/1/81) to 3-6 . . ( 6/1/82) to U-0 . (12/1/82) to U-6 . to 5-0 . . ( 6/1/83) to 5-6 . (12/1/83) ( 6/1/8U) to 6-0 . . (12/1/8U) to 6-6 . to 7-0 . ( 6/1/85) to 7-6 . (12/1/85) to 8-0 . ( 6/1/86) (12/1/86) to 8-6 . , to 9-0 . , ( 6/1/87) to 9-6 . (12/1/87) ( 6/1/88) tolO-0 . , (12/1/88) 2/ ... $UU.05 U5.37 U6.73 U8.13 U9.58 51,07 52.60 5U.18 55,80 57,U8 59.20 60.98 62.80 6U.69 66,63 68.63 70.69 72.81 7U.99 77.2U 79.56 $88.10 90.7U 93. U6 96.26 99.16 102.lU 105.20 108.36 111.60 llU.96 118.Uo 121.96 125.60 129.38 133.26 137.26 lUl.38 1U5.62 IU9.98 I5U.U8 159.12 $176.20 181.U8 186.92 192.52 198.32 20U.28 210.Uo 216.72 223.20 229.92 236.80 2U3.92 251.20 258.76 266.52 27U.52 282.76 291.2U 299.96 308.96 318.2U $352.Uo 362.96 373.8U 385.OU 396.6U U08.56 U20.80 U33.UU UU6.U0 U59.8U U73.60 U87.8U 502.Uo 517.52 533.OU 5U9.OU 565.52 582.U8 599.92 617.92 636.U8 $881.00 907.Uo 93U.6O 962.60 991.60 1021.Uo 1052.00 1083.60 1116.00 IIU9.6O II8U.OO 1219.60 1256.00 1293.80 1332.60 1372.60 1U13.8O IU56.2O IU99.8O I5UU.8O 1591.20 $1762.00 I81U.8O 1869.20 1925.20 1983.20 20U2.8O 2IOU.OO 2167.20 2232.00 2299.20 2368.00 2U39.2O 2512.00 2587.60 2665.20 27U5.2O 2827.60 2912.Uo 2999.60 3089.60 3182.Uo $17620 I81U8 18692 19252 19832 20U28 2IOUO 21672 22320 22992 2368d 2U392 25120 25876 26652 27U52 28276 2912U 29996 30896 3182U 5.99 5.99 5.99 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 3/ Percent 5.99 6.00 5.99 6.03 6.01 5.99 6.01 5.98 6.02 5.98 6.01 5.97 6.02 6.00 6.00 6.00 6.00 5.99 6.00 6.01 Percent 6.00 6.00 6,00 6.00 6.00 6.00 6.00 6,00 6,00 6,00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.01 1/ Month, day, and year on which issues of March 1, 1961, enter each period. For subsequent issue raonths add the appropriate number of months. 2 / Second extended raatxirity reached at 27 years 9 nonths after issue. 3 / Yield on purchase price Traax issue date to 2nd extended raaturity date is 5.28 percent. * For earlier rederaption values and yields see appropriate table in Department Circulair 653, 9th Revision, as amended and supplemented. *• This table does not apply if the prevailing rate for Series E bonds being issued at the tirae the extension begins is different from 6.00 x>ercent. , • vO -J 00 po PI "0 0 po H 0 5TlPI c/3 pl npo 3>90 < 0 Tl H X pl H po pl > c/3 po Hi G TABLE 9l»-A BONDS BEARING ISSUE DATES FROM JUNE 1 THROUGH NOV, 1, 1972 Issue price Denonination $18.75 25,00 Period (years and months after original naturity at 5 years 10 raonths) $37.50 50,00 $56.25 75.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO (1) Redenption values during each half-year period (values increase tm first day of period)* EXTENDED MATURITY PERIOD** Approxiraate investment yield (annual percentage rate) (2) From begin- (3) From begin- (U) From beginning of each ning of current ning of each maturity period S-yr. period to S-yr. period to extended to beginning of beginning of next S-yr. pd. raaturity each S-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6^6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 t o 1-0 t o 1-6 t o 2-0 t o 2-6 t o 3-0 t o 3-6 t o U-0 t o U-6 t o 5-0 t o 5-6 t o 6-0 t o 6-6 t o 7-0 t o 7-6 t o 8-0 t o 8-6 t o 9-0 to 9-6 tolO-0 2/ . . . . . . . , . . . . . . . . , . , . , . . . . . . . . . . . . . . . , , . . , , . , . . . . . . . . . . l/( U/1/78) , (10/1/78) . ( U/1/79) . (10/1/79) , ( U/l/80) . (10/1/80) , ( U/1/81) . (10/1/81) . ( U/l/82) , (10/1/82) . ( U/1/83) , (10/1/83) . ( U/1/8U) . (10/1/8U) . ( U/1/85) . (10/1/85) , ( U/l/86) , , (10/1/86) , . ( U/l/87) , . (10/1/87) , ( U/l/88) $26,28 27.07 27,88 28,72 29.58 3 0 , U7 31.38 32.32 33,29 3U,29 35,32 36,38 3 7 . U7 38,59 39,75 U0.9U U2.17 U3,UU UU,7U U6,08 U7,U6 $52,56 5U.IU 55.76 5 7 . UU 59,16 60.9U 62.76 6U.6U 66.58 68.58 70.6U 72.76 7U.9U 77.18 79.50 81.88 8U.3U 86,88 89. U8 92.16 9U.92 $78.8U 81.21 83.6U 86.16 88.7U 9 1 . Ul 9U.1U 96.96 99.87 102.87 105.96 109.lU 112,Ul 115.77 119.25 122,82 126.51 130.32 13U,22 138.2U IU2.38 $105.12 108.28 111.52 llU.88 118.32 121,88 125.52 129.28 133.16 137.16 1U1,28 1U5,52 IU9.88 I5U.36 159.00 163.76 168.68 173.76 178.96 18U.32 189.8U $210.2U 216.56 223.OU 229.76 236.6U 2U3.76 251.ou 258.56 266.32 27U.32 282.56 291,oU 299.76 308.72 318.00 327.52 337.36 .3U7.52 357.92 368.6U 379.68 $525.60 5U1.U0 557.60 57U.U0 591.60 609.Uo 627;60 6U6.U0 665.80 685.80 706.Uo 727.60 7U9.U0 771.80 795.00 818.80 8U3.U0 868.80 89U.8O 921.60 9U9.20 $1051.20 1082.80 1115.20 IIU8.8O 1183.20 1218.80 1255.20 1292.80 1331.60 1371.60 IU12.8O IU55.2O 1U98.8O I5U3.6O 1590.00 1637.60 1686.80 1737.60 1789.60 I8U3.20 1898.Uo $10512 10828 11152 IIU88 11832 12188 12552 12928 13316 13716 1U128 IU552 1U988 15U36 15900 16376 16868 17376 17896 18U32 1898U 6.01 6.00 6.01 6.00 6.01 6,00 6.00 6.00 6,00 6.00 6.00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 3 / Percent 6,01 5.98 6.03 5.99 6.02 5.97 5.99 6.00 6.01 6,01 6.00 5.99 5.98 6.01 5.99 6.01 6,02 5.99 5.99 5.99 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 5.99 5.99 5.99 Pl X X S H C/3 1./ M o n t h , d a y , arid year on which issues of June 1. 1 9 7 2 , enter each period. For subsequent issue months add t h e appropriate number of months. 2 / Extended raatui•ity reached at 15 years 10 raonths after issue. 3 / Yield on purchase price frcMB issue date to extended maturity date is 5.95 percent. * •• For eeurlier redemption values and yields see appropriate table in Department Circular 653, 9th Revision, as eunended and supplemented, This table does not apply if the prevailing rate for Series E bonds being issued at the time the extension begins is different from 6,00 percent. to ts) -J OS TABLE 95-A BONDS BEARING ISSUE DATES FROM DEC. 1, 1972, THROUGH MAY 1, 1973 Issue price Denoalnation $18,75 25.00 Period (yeaors and months after original naturity at 5 years 10 months) $37.50 50,00 $56,25 75,00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 $7500 IOOOO Approximate investment yield (annual percentage rate) vO (l) Redenption values during each half-year period (valueii increase on first day of period)* MATURITY PERIOD** (2) Frora b e g i n - (3) From begin- (U) Frora beginning of each ning of current ning of each raaturity period S-yr. i>eriod to S-yr. period to extended t o beginning of beginning of maturity next S-yr, pd. each S-yr, pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7-0 7-6 8-0 8-6 9-0 9-6 10-0 to 0-6 to 1-0 to 1-6 to 2-0 to 2-6 to 3-0 to 3-6 to U-0 to U-6 to 5-0 to 5-6 to 6-0 to 6-6 to 7-0 to 7-6 to 8-0 to 8-6 to 9-0 to 9-6 tolO-0 2/ . $26.3U $52.68 . . . 1/(10/1/78) 5U.26 , 27,13 , ( U/l/79) 55.88 27,9U . (10/1/79) 57.56 28,78 . ( U/l/80) 59.30 (10/1/80) . 29.65 61.08 30,5U ( U/i/81) . (10/1/81) . 62.90 31, U5 6U,78 . ( U/l/82) 32,39 66.7U (10/1/82) . 33,37 68.7U . ( U/1/83) 3U.37 70.80 35, Uo . (10/1/83) 36, U6 ( U/1/8U) 72.92 . (10/1/8U) . 75.10 37,55 77.36 38,68 . ( U/l/85) 39,8U 79.68 . (10/1/85) UI.OU 82,08 . ( U/l/86) 8U,5U (10/1/86) . U2,27 87.08 . , ( U/l/87) . U3.5U UU.8U- 89.68 . (10/1/87) 92.38 ( U/l/88) /U6,19 . . 95.lU (lO/l/88>^ U7.57 $79.02 81,39 83.82 86.3U 88.95 91.62 9U.35 97.17 100.11 103.11 106.20 109.38 112.65 116.oU 119.52 123.12 126.81 130.62 13U.52 138.57 IU2.7I $105,36 108.52 111.76 115.12 118.60 122.16 125.80 129.56 133.U8 137.U8 1U1.60 1U5.8U 150.20 15U.72 159.36 16U.16 169.08 17U.16 179.36 I8U.76 190.28 $210,72 217.ou 223.52 230.2U 237.20 2UU.32 251.60 259.12 266.96 27U.96 283.20 291.68 300.Uo 309.UU 318.72 328.32 338.16 3U8.32 358.72 369.52 380.56 $526,80 5U2.6O 558.80 575.60 593.00 610.80 629.00 6U7.8O 667.Uo 687.Uo 708.00 729.20 751.00 773.60 796.80 820.80 8U5.UO 870.80 896.80 923.80 951.Uo $1053.60 1085.20 1117.60 1151.20 1186.00 1221.60 1258.00 1295.60 133U.8O 137U.8O IU16.OO 1U58.UO 1502,00 I5U7.2O 1593.60 I6U1.60 1690.80 17U1.60 1793.60 I8U7.6O 1902.80 $10536 10852 11176 11512 11860 12216 12580 12956 I33U8 137U8 1U160 1U58U 15020 15U72 15936 16U16 16908 17U16 17936 18U76 19028 6.00 5.98 5.99 6.01 6,01 6,00 6,00 6,00 6,00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6.00 3/ Percent 6,00 5.97 6.01 6.05 6.00 5,96 5.98 6,05 5.99 5.99 5.99 5.98 6.02 6.00 6.02 5.99 6.01 5.97 6.02 5.98 Percent 6,00 6,00 6,00 6,00 6,00 6,00 6,00 6,00 6,00 6.00 6.00 6,00 6,00 6.00 6,00 5,99 5,99 5,99 6,00 5.98 1 / Month, day, and year on which issues of Dec. 1, 1972, enter each period. For subsequent issue months add the appropriate number of months. 2/ Extended naturity reached at 15 years 10 months after issue. 3 / Yield on piirchase price fron issue date to extended naturity date is 5.97 percent, • For earlier redenption values tuid yields see appropriate table in Department Circular 653, 9th Revision, as anended and supplemented. •• This table does not apply if the prevailing rate for Series E bonds being issued at the time the extension begins is different from 6,00 percent. -J 00 :fi pl "fl 0 po H 0 T Hl X Pl Vi Pl 0 5W Pl H > po > < 0 Tl H X Pl H 5fl Pl > C/3 cpo TABLF. 97 BONDS BEARING ISSUE DATE DEC . 1 , 1973 IsMie p r i c e Denomination . Period (ymara aad montha a f t a r U M « ) $18.75 25.00 $37.50 50.00 $56.25 75.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 (1) Rmdemptlon v a l u e s d u r i n g ea ch h a l f - v e a r p e r i o d ( v a l u e s on f l r a t day of p e r i o d ) Approximate i n v e s t m e n t y l a l d (annual p e r c e n t a g e r a t a ) $ 7500 IOOOO Increaae (2) From I s s u e (3) From b e g i n - (4) Prom b « t i a d a t e t o b e g i n - n i n g of each n i n g of a a c h S-yr. porlod S-yr. period t o n i n g of e a c h S-yr. period t o moCurUy b e g i n n i n g of next S-yr. pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 4-0 4-6 5-0 t o 0-6 . t o 1-0 . t o 1-6 o t o 2-0 . t o 2-6 . t o 3-0 . t o 3-6 . t o 4-0 • to 4-6 • t o 5-0 . 2/ . . . . , , , . . . 1/(12/1/73> . ( 6/1/74) (12/1/74 ) ( 6/1/75^ (12/1/75 ) ( 6/1/76) (12/1/76 > ( 6/1/77 > (12/1/77 ) ( 6/1/78 (12/1/78 1 $18.75 19.10 19.61 20.10 20.60 21.14 21.71 22.31 22.97 23.67 25.20 $37.50 38.20 39.22 40.20 41.20 42.28 43.42 44.62 45.94 47.34 50.40 $56.25 57.30 58.83 60.30 61.80 63.42 65.13 66.93 68.91 71.01 75.60 $75.00 76.40 78.44 80.40 82.40 84.56 86.84 89.24 91.88 94.68 100.80 $150.00 152.80 156.88 160.80 164.80 169.12 173.68 178.48 183.76 189.36 201.60 $375.00 382.00 392.20 402,00 412.00 422,80 434,20 446,20 459.40 473.40 504,00 $750.00 764.00 784.40 804.00 824.00 845.60 868.40 802.40 918.80 946.80 1008.00 $ 7500 7640 7844 8040 8240 84 S6 86R4 8924 9188 9468 10080 3.73 4.54 4.69 4.76 4.86 4.95 5.03 5.14 5.25 6.00 Percent 3.73 5.34 5.00 4.98 5.24 5.39 5.53 5.92 6.09 12.93 Porcoac 6.00 6.25 6.37 6.57 6.83 7.15 7.59 8.29 9.48 12.93 Pl X X S H C/3 — 1 / Month, day and year on tihlch laauea of l>«ce«b«r 1, 1973,. enter each period. 2/ Maturity value reached at 5 years and 0 months after issue. •-a to (X) TABLE 0 7 - A 3 0 I D S BEARING ISHIIE DATE DEC Issue price Denomination $10.75 25.00 $37.50 50.00 I56T25" 75.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 1, 1973 $750.00 1000.00 $7500 IOOOO Approximate investnent y i e l d ( a n n u a l percentage r a t e ) sO Period ( y e a r s and n o n t h s (>,"<iT-lno1 5 (1) after n o - f iiT.-t'l-ir R e d e n - o t i o n v a l u e s d u r i n g e a c h h a l f -- y e a r o e r i o d c r e a s e on f i r s t d a y o f p e r i o d ) * (values in- a* E:(TEIiDED y e a r s 0 ncj n t h s ) lATURITY PERIOD ( 2 ) F r o m b e g i n - ( 3 ) From b e g i n -• (U) From b e g i n n i n g o f c u r r e n t n i n g of each n i n g of each m a t u r i t ; ' - o e r i o d H-yr. period t o S-yr. period t o b e g i n n i n g o f hfaf't'^'^'!'^'* ' ^ ^ t o extended Def e a c h '5-?^-. p d . Ct S - y r . pd naturity ne: Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 U-0 U-6 5-0 5-6 6-0 6-6 7.0 7-6 8-0 8-6 9-0 9-6 10-0 t o 0-6 t o 1-0 t o 1-6 t o 2-0 t o 2-6 t o 3-0 t o 3-6 t o U-0 t o U-6 t o 5-0 t o 5-6 t o 6-0 t o 6-6 t o 7-0 t o 7-6 t o 8-0 t o 8-6 t o 9-0 t o 9-6 tolO-0 2/ . . . . . . . . . . . . . . . . . . . . . . . . 1/(12/1/78) 7 ( 6/1/79) (12/1/79) ( 6/1/80) (12/1/80) ( 6/1/81) (12/1/81) ( 6/1/02) (12/1/82) ( 6/1/03) (12/1/03; ( 6/1/OU) (12/1/QU) ( 6/1/05) (12/1/05) ( 6/1/06) (12/1/06) ( 6/1/07) (12/1/87) ( 6/1/00) (12/1/00) $25.20 25.96 26.73 27.5U 20.36 29.21 30.09 30.99 31.92 32.00 33.07 3U.OO 35.93 37.01 38.12 3Q.26 UO.UU Ul.65 U2.90 UU.19 U5.51 $50.Uo 51.92 53.U6 55.00 56.72 50.U2 60.10 61.00 6 3 . OU 65.76 67.7U 69.76 71.86 7U.02 76.2U 70.52 00.00 03.30 05.00 00.30 91.02 $75.60 77.00 80.10 82.62 85.08 87.63 90.27 92.97 95.76 90.6U 101.61 10U.6U 107.70 111.03 llU.36 117.78 121.32 I2U.05 120.70 132.57 136.53 .-^lOO.OO 103.OU 106.02 110.16 113.UU 116.OU 120.36 123.96 127.60 131.52 135.U8 139.52 IU3.72 lUO.OU 152.U8 157.OU 161.76 166.60 171.60 176.76 102.OU $201.60 207.60 213.OU 220.32 226.00 233.68 2U0.72 2U7.92 255.36 263.OU 270.96 270.ou 207.UU 296.00 30U.96 31U.OO 323.52 333.20 3U3.2O 353.52 36U.0O $50U.00 519.20 53U.6O 550.00 567.20 58U.20 601.80 619.00 630.Uo 657.60 677.Uo 697.60 710.60 7U0.20 762.Uo 705.20 QoO.00 833.00 050.00 803.80 010.20 $1008.00 1038.Uo 1060.20 1101.60 II3U.UO 1168.Uo 1203.60 1230.60 1276.00 1315.20 135U.80 1395.20 1U37.2O 1U80.UO 152U.8O 1570.UO 1617.60 1666.00 1716.00 1767.60 IO2O.UO $10080 IO38U 10692 11016 II3UU 1168U 12036 12306 12768 13152 135U8 13952 1U372 IU80U 152U8 1570U 16176 16660 17160 17676 I820U .... 6.03 5.98 6.01 5.99 5.99 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.003/ Percent 6.03 5.93 6.06 5.95 5.99 6.03 5.98 6.00 6.02 6.02 5.96 . 6.02 6.01 6.00 5.98 6.01 5.98 6.00 6.01 5.97 Percent 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 5.99 6.00 5.99 6.00 5.99 5.97 -a 00 po Pl 0*v 70 H 0Tl H X Pl c/3 Pl 0 ?3 H > 73 *< 0 Tl H X Pl H po Pl > C/3 G 7i 1 / Honth, do;/-, and year on uhich issues of Dec. 1, 1973 enter each period. 2/ Extended naturity reached at 15 years 0 nonths after issue. 3/ Yield on purchase nrice fron issue date to extended naturity date is 6.00 percent. * ** For earlier redenption values and yields r.ee appropriate table in Departnent Circular 653, 9th Revision, as amended and supplenented. This table does not apply if the prevailinj; rate for Series E honds being issued at the tine the extension begins is different fron 6.00 percent. TABLE 98 BONDS BEARING ISSUE DATES FROM JAN. 1, 197U , THROUGH AUG. 1, 1976 Issue price Denomination , $18.75 25wOO . Period (years and months after Iasue) $37.50 50.00 $56.25 75.00 $75.00 100.00 $150.00 200.00 $375.00 500.00 $750.00 1000.00 $ 7500 IOOOO (1) Redemption values during each half-year period (values increase on flrat day of period) Approximate investment ylold (annual percentage rate) (2) From Issue (3) From begin- (4) From bog Indate to begin- ning of each ning of oach ning of each S-yr. period to S-yr. porlod beginning of S-yr, period to maturity next S-yr, pd. Percent 0-0 0-6 1-0 1-6 2-0 2-6 3-0 3-6 A-0 4-6 5-0 to 0-6 to 1-0 to 1-6 to 2-0 to 2-6 to 3-0 to 3-6 to 4-0 to 4-6 to 5-0 2/ . 1/(1/1/7U) . (7/1/7U) . (1/1/75) . (7/1/75) . . (1/1/76) . (7/1/76) . (1/1/77) . (7/1/77) . (1/1/78) . (7/1/78) . (1/1/79) $18.75 19.10 19.61, 20.10 20.60 21.14 21.71 22.31 22.97 23.67 25.20 $37.50 38.20 39.22 40.20 41.20 42.28 43.42 44.62 45.94 47.34 50.40 $56.25 57.30 58.83 60.30 61.80 63.42 65.13 66.93 68.91 71.01 75.60 $75.00 76.40 78.44 80.40 82.40 84.56 86.84 89.24 91.80 94.68 100.80 $150.00 152.80 156.88 160.80 164.80 169.12 173.68 178.48 183.76 189.36 201.60 $375.00 382.00 392.20 402.00 412.00 422.80 434.20 446.20 459.40 473.40 504.00 $750.00 764.00 784.40 804.00 824.00 845.60 868.40 892.40 918.80 946.80 1008.00 $ 7500 7640 7844 8040 8240 8456 8684 8924 9188 9468 10080 3.73 4.54 4.69 4.76 4.86 4.95 5.03 5.14 5.25 6.00 Percent 3,73 5.34 5.00 4.98 5.24 5.39 5.53 5.92 6.09 12.93 Porcont 6.00 6.25 6.37 6.57 6.83 7.15 7.59 8.29 9.48 12.93 1 / Month, day and year on t/hich Issues of January 1, 197U, enter each period. Tliese are representative dates. For subsequent Issue dates, substitute the month, day and year of Issue on the first line, and the appropriate six-month accrual date on each succeeding line. For example: If the issue date of the bond is October 1, 1974, the entries on succeeding lines in this column would be 10/1/74, 4/1/75, 10/1/75, 4/1/76, 10/1/76, etc., to the maturity date of 10/1/79; if. the issue date of the bond is July 1. 1976, the line entries %*ould be 7/1/76, 1/1/77, 7/1/77, 1/1/78, 7/1/78, etc., to tlie maturity date of 7/1/01. 2 / Maturity value readied at 5 years and 0 months after issue. Pl X X S H c/3 280 1978 REPORT OF THE SECRETARY OF THE TREASURY Exhibit 5.—Department Circular No. 905, Sixth Revision, April 19, 1974, amended, offering of United States savings bonds. Series H DEPARTMENT OF THE TREASURY, Washington, Febriuiry 27, 1978. SUMMARY: The purpose of this supplement to the current offering circular for United States Savings Bonds, Series H, is to show the schedule of interest payments and investment yields for bonds of various groups of issue dates, which will be applicable to their first or next extended maturity period. EFFECTIVE DATE: Upon publication. SUPPLEMENTAL INFORMATION: The Tables contained in the offering circular for Series H savings bonds show the schedule of interest payments and investment yields for bonds of all possible issue dates. Each ofthe Tables covers a particular consecutive group of issue dates. When the earlier dated bonds in any of these groups reach the end of an original or extended maturity period it is necessary to publish a new Table to reflect the interest payments and investment yields that will be applicable to the first or next extended maturity period those bonds will enter. During 1978, the earlier dated bonds in each of the following groups will enter their first or next extended maturity period: (1) Table 15—bonds dated June 1 through November 1, 1958; (2) Table 16—bonds dated December 1, 1958 through May 1, 1959; (3) Table 35—bonds dated June 1 through November 1, 1968; and (4) Table 36—bonds dated December 1, 1968, through May 1, 1969. It should be noted, however, that in some cases, later dated bonds in each ofthe above groups will not enter their first or next extended maturity period until after 1978. Since such extension already has been irrevocably granted to them, the supplemental Tables to be published below will be applicable to them so long as there is no intervening change in the interest rate paid on savings bonds. Accordingly, Department of the Treasury Circular No. 905, Sixth Revision, as amended, dated April 19, 1974 (31 CFR, Part 332) is hereby supplemented by the addition of Tables 15-A, 16-A, 35-A, and 36-A. PAUL H . TAYLOR, Deputy Fiscal Assistant Secretary. TAHLE BONOS H E A k l ^ c ocrcLrMf^**.* . . . . . . . ^-l'll!Il!!l!!!!l ' 15-A ISSUE DATES FRnM JyNE *S00 H,00n ^"" *'°"° "^^"^^ »S,n00 ^ ' " ° " I THWOUOM N U V . 1 » 1958 *10,000 APPWnxT'iATh ^^'^^^ (?) DKL^inn nc TTUC AC.io r . Irl <?0 Y E A W 5 , n ^'"^ n ^ ' ^ AMOliNTS HF I M E « E S T ChfcCKS F(l» EACH OENOMINATIOS • ^^ "'^'-'-'^ MONTHS SECONip p^Mino** c • . ' • ' . • . ' . • . Fn» (U) J-WijM MALF-YEAW EACH QF CURHEM MATURITY PO. P^E- I ^ T E >* E S T CEl-jNG P ^ T . OATE INTE«EST P M T , OATE PAY^tNT OATE E*TE'-(?eJ MATI.IPITV PFMCFNJT PF»^CM" PE»CFNT tlSO.OO 150.00 150.00 150,00 150.00 150.00 t300.00 300.00 300.00 3or*.00 300.00 300.00 6,00 6.00 6.00 6,00 6.00 6,00 b.UO 6,00 ^.00 '>,00 6.00 h.oo 6.00 6.nu 6,00 6,o() 6.00 6 00 '' n?/l/7H) , ( e/l/7P) • (5^/1/79) . ? 6/1/flO) • n?^'/**'^) . ( 6/1/M1) *1S.00 15.00 IS,00 15,00 15.00 15,00 130.00 30.00 30.00 30.00 30.00 30.00 a r t !5Jn • • • • n?/i/8n 15.00 50.00 150,00 300.00 6.00 'i.oo 6.*o-j u Q vcAo ^ rt VCAO ^ Q VCAO I n CA I'l ly.^l 7 n vciD. 7 Q vr!o! H O vcAo! I'l vcAoe I n I l l l l • • • • • • • • • • f 6/1/**?) ^^?/l/**?) f h/1/*'^) f'?/1/P5) ' ^yi/6U) f'?/'/^'^) f- ^/1/fl'^) f'^/l/^*^^ f 6/1/86) f»^/'/«»«>) 15.00 15.00 15.00 15.00 ,5.00 15.00 15.00 15.00 15.00 15.0.) 30.00 30.00 30.00 30.00 50.OU 30.00 30.00 30.00 30.00 30.00 -150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 300.00 300.00 300.00 300.00 300.00 300.00 300.00 300.00 300.00 500.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 ^.00 •>.00 6.no ^.00 ^.00 6.00 h.OO 6.00 6.00 h.OO 6.00 6,00 6 O', 6,0U ^,00 O.OO 6.00 6.0U O.OO 6.00 • • f'^/^/^7) • • ^ ^"''^S^J I''.00 1^.00 30.00 30.00 150.00 150.00 300.00 300.00 6.00 3/ 6.00 h.OO 6.00 6 00 •-•- • • • • • • • • • • in rt vcAoe ^ Z - - - I - , . . . . .! • . • . • . (3) HEGINSING MATUBITV wfAo. I I I YEARS vcAD. l l . l l l l t l l YFARS ffffJM YTrLO HATE) ExTE'^'DEO ^ 1 rt .0 i n 3 c x'n 3.U PiVtSTM^NT ( A K ^ U A I . Pt^CENTA&t • • . • • • • • • • . • . • . • • • • • m X X s 1/ MONTH MAY AhT, vPAP ON i« H I c H T \ T K - K 5? T "c Hf c K ' 7 S'p A Y A WL E'oN ' TS S U F S'HF " J U N F ' " ' " ^5fl^ MONThS Arn APPROPRIATE ^JuMHtH .IF MRNTHS. ly vrfPl^^.f*!^'"'-^" "*T""ITY WEACHED AT 30 YFARS ANO 0 MONTHS A F T F R ISSUE O A T E . 3/ YIFLO ON Pu^rHASE PPICE F P O H ISSUE DATE Tf) SECOND bXTENOED MATURITY IS «.73'*. * Fnw EARLIER INT^BFST CHECKS A N D Y I E L H S AM£NDFO ANr SUPPLEi-ENTED. " SEE APPROPRIATE TAHLE IN DEPAKTMENT CIRCULAR 905. 6 T H ^ V E V I S I U N , A S " ^ ' H u t ' s S n i F r ' ^ P F r F R n i V ; ; ^ PERCENT."' " " ' " '"" ' " " ' ' " ' ^ " ^ ^ " ' " ' ' " " " " '"^ ''"^^ '"^ f Tt^S„M 00 to TAbLE BONDS BEARING ISSUE PRICE REDEMPTION ANO MATURITY VALUE PERIOD OF TIME BOND IS MELD AFTER EXTENDED MATURITY AT 20 YEARS, 0 MONTHS ,5 1,0 1,5 2,0 2,5 3,0 3,5 a,0 a,5 5,0 5,5 6,0 6,5 7,0 7,5 8,0 8,5 9,0 9,5 10.0 YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS YEARS 'EARS iARS ^EARS EARS YEARS ^EARS . . .1/ , , . , , . . . ,.,"•. • , . . , , , , , , . . . . . . , , , , , . , . • . , , , , . , , . , . , . , . . • . . , , . , , . , . , , , , . . . . 2/. , , ( 6/1/79) (12/1/79) ( 6/1/80) (12/1/80) ( 6/1/81) (12/1/81) ( 6/1/82) (12/1/82) ( 6/1/85) (12/1/85) ( 6/1/80) (12/l/8a) ( 6/1/85) (12/1/85) ( 6/1/86) (12/1/86) ( 6/1/87) (12/1/87) ( 6/1/88) (12/1/88) 00 U-A. ISSUE DATES Ff<OM DEC. I t l<»58 THROUGH $ 5 0 o " ' $ ' ' o o o ' "'is'ooo' '$'0^000 500 1,000 5,000 10,000 (1) AMOUNTS OF INTEREST CHECKS FOR EACH DENOMINATION * SECOND EXTENDED MATURITY PERIOD** $15,00 15,00 15,00 15,00 15,00 15,00 15,00 15,00 15,00 15,00 15,00 15,00 15.00 15.00 15,00 15,00 15.00 15,00 15,00 15,00 SJO.OO 50.00 50.00 50,00 50,00 50.00 30,00 30,00 50.00 50,00 30,00 50.00 50.00 30.00 50,00 50,00 50.00 50.00 50.00 30.00 $150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150,00 150.00 150.00 150.00 $300.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 300.00 500.00 500.00 500.00 300.00 500.00 500.00 500.00 300.00 500.00 300.00 HAY I, 1«*59 APPROXIMATE INVESTMENT YIELD (ANNUAL PtRCENTAGE KATE) (?) FROM (3) FOR BEGINNING HALF-YEAK UF CURRENT V O . PRE* MATURITY CEDING PO, To EA, INTEREST INTEREST PAYMtNT PMT. DATE •DATE PERCENT 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6.00 6,00 6.00 6.00 6.00 6,00 6,00 6,00 6.00 6.00 6.00 6,00 3/ 6.00 PERCENT 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6,00 6.00 6,00 6.00 6.00 6.00 6.00 6.00 («) FROM EACH INTEREST H M T , DATE TO 2 N 0 EXTENDED MATURITY PERCENT 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6.00 6.00 6,00 6.00 6,00 6,00 6.00 6.00 6.00 .-.. 50 m n3 O 7S H O H X w c/5 w n ?o w H > •< O -n H X w H ?0 PI > C/l 1/ MONTH, DAY AND YEAR ON WMJCM INTEREST CHECK IS PAYABLE ON ISSUES OF DEC. 1, 1958. FOR SUBSEQUENT MONTHS ADO APPROPRIATE NUMBER OF MONTHS, 2/ SECOND ExTENOED MATURITY REACHED AT 30 YEARS AND 0 MONTHS AFTER ISSUE DATE. 3/ YIELD ON PURCHASE PRICE FROM ISSUE DATE TO SECOND EXTENDED MATURITY IS 0.78*. ISSUE • FOR EARLIER INTEREST CHECKS AND YIELDS SEE APPROPRIATE TABLE I N DEPARTMENT CIRCULAR 9 0 5 , 6TH NEvISlON, As AMENDED ANO SUPPLEMENTED. •* TKIS TABLE DUES NOT APPLY IF THE PREVAILING RATE FOR SERIES H B O N Q S B E I N G ISSUED'AT THE TjHt THE EXTENSION BEGINS IS DIFFERENT FROM 6,00 PERCENT. C BONDS HEARINr, ISSUE DATES FROM JUNE >«•• PRICE ISSUE REOEM PTION 'ANn MATURITY VALUE 450 0 50 0 *l,000 1,000 i THROUGH 45,000 5,000 N U V . i, i96« 410,000 10,000 APPROjtTMATE INVESTINENT YlFLi' (ANNUAL PERCENTAGE K A T F ) 1fl) AMOUNTS PERIOD OF 'TIME HOMO IS H E L O Af^Tc o r t l3 CT MATURITY AT 10 YEARS, 0 MONTHS .5 YEARS 1 .0 YEARS 1.5 YEARS ?.o YEARS ?.5 YFARS 3.0 YEARS 3.5 YEARS «.0 YEARS «.5 YEARS 5.0 YEARS 5.5 YFARS 6.0 YEARS 6.5 YEARS 7.0 YEARS 7.5 YFARS P.O YEARS ti.5 YFARS *'.o YEARS 0.5 YFARS 1 0.0 YEARS .1/ . . . . . . . . . . . . . , fl?/l/7fl) ( 6/1/79) (l?/l/79) ( 6/1/flO) (i?/i/eo) ( 6/1/61) (i?/i/fln ( 6/1/fl?) . , n?/i/H?) ?/.* . , ( 6/1/85) . . (i?/i/e5) . . ( 6/1/8U1 . , Cl?/l/^o) . . ( 6/1/6S) . . n?/i/ps) . . ( 6/1/86) . . (1?/l/86) . . ( 6/1/87) . . (l?/l/87) . . ( 6/1/88) OF INTEREST CHfCKS FOR EACH nENQHINATlPN * • EXTENDED •.*15.00 15.00 15.00 15.00 15,00 15.00 15.00 15.00 15,00 15.00 15.00 15.00 15.00 15.00 15.00 15.00 15.00 15.00 15.00 15.00 *50.0 0 30,uO 50.00 50.0 0 50.0 0 50.00 50,00 50.00 50.0<) 30.0 0 50.00 50.00 50.00 50.00 50.00 50.0 0 50.00 50.00 50,00 50.00 MATURITY PERinn«<» 4 150.00 150.00 150.00 15 0.00 150.00 150.00 150,00 150.00 150.00 15 0.00 150.00 150.00 150.00 150,00 150,00 15 0.00 150.00 150.00 150,00 150,00 4500.00 500,00 500.00 300.00 500.00 500.00 500.00 300.00 300 .00 500.00 300.00 300.00 300.00 500.00 500.00 300.00 30 0.00 500.00 300.00 300.00 (3) ^ n » (?) FROM BEGINNING OF CURRENT MATURITY PO TO F A INTEREST PMT, DATE PP. PRECtUiNG IfjTEKfsT PAYMENT DATE PERCENT 6.00 6,00 6,00 6.00 6,0 0 6,00 6, 00 6.00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 5/ 6.00 Ptf*C*- NT 6,0 0 6.O0 6.00 6.O0 ^.0 0 6.00 6,00 6.00 6.00 e.OO 6.00 6.00 6.0 0 6.0 0 6.00 6.0 0 6. 00 6,00 6.U0 6.00 MALF-YEAR 1/ MONTH, OAf AND YEAR ON WHICH INTfkFST CHfCK IS P A Y A P L E ON ISSUES OF JU'>'E 1, 1968, FOR SUBSEQUENT MONTHS Ann APPROPRIATE NUl^^^EW OF MONTHS, ?/ EXTENOED MATURITY R E A C H E O AT ?0 YEARS AND 0 MONTHS AFTER ISSUE O A T F . i/ YIELD ON PURCHASE PRICE F R Q M ISSUE DATE TO EXTENDED MATURITY IS 5.57X. • FOR EARLIER INTEREST CHECKS AND YTFLHS SEE APPROPRIATE TABLE IN O F P A R T M E N T AMENDED ANU SUPPLEMENTED. ** ^""^fJt!o\?"^'^ "'^^ ^ ^ ' ' ^ ' ^ ^^ ^^^ PReVAlLiNG RATE FUP SERIES H H O N O S B E I N G BEGINS IS niFFERENT FROM 6.00 PE^^CE^T, CIRCULAR ISSUED (a) FRUM EACH INTEREST PMT. DATE TU FIRST EXTENOED HATUWITY PERCFNT 6,00 6.00 6.00 6.00 6,00 6.00 6.00 6,0 0 6.0 0 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 6,00 6,0 0 m X X 2 H Vi .... ISSUE 905, bTH REVISIUN, AS AT ThE TIMf T H E tXTtNSION 00 00 TABLE 56-A BONDS BEARING ISSUE DATES FROM DEC. 1, 1*>e8 THROUGH ISSUE PRICE REDEMPTION AND MATURITY VALUE PERIOD OF TIME BONO IS HELD AFTER FIRST MATURITY AT 10 YEARS, 0 MONTHS *^00 500 $1,000 1,000 $5,000 5,000 $10,000 10,000 (1) AMOUNTS OF INTEREST CHECKS FOR EACH DENOMINATION * EXTENDED MATURITY PERIOD** FiAY I, 1969 APPROXIMATE INVtSTMENT YIELD (ANNUAL PERCENTAGE RATE) (2) FROM BEGINNING OF CURRENT MATURITY PD, TO EA, INTEREST PMT. DATE (3) FOR (<*) FROM HALF-YEAR EACH PO. PRE-.INTEREST CEDING PMT, DATE INTEREST TU FIRST PAYMENT EXTENDED DATE MATURITY m S H ,5 1,0 1,5 2.0 2.5 3.0 3.5 <i.O «.5 5.0 5.5 6,0 6.5 7.0 7.5 8.0 8.5 9.0 9.5 10.0 YEARS YEARS YEARS YEARS YEARS YEARS YEARS YE-.RS YEARS YEARS YE^RS YEARS YEARS YEARS YEiRS YEARS YEARS YEARS YEARS YEARS , , , 1 / ( 6/1/79) , . . (12/1/79) , , ( 6/1/80) , . (12/1/80) , ( 6/1/81) , . (12/1/81) , , ( 6/1/82) , . , (12/1/82) , ( 6/1/83) , (12/1/85) , , ( 6/1/8U) . , , (12/l/8a) ( 6/1/85) , , (12/1/85) ( 6/1/86) . (12/1/86) , ( 6/1/87) , (12/1/87) , ( 6/1/88) , (12/1/88) 2/ $15,00 $50,00 i5.00 30,00 15,00 30.00 15,00 30.00 15.00 30.00 15,00 30.00 15,00 . 30.00 15.00 30.00 15,00 30.00 15,00 30.00 15,00 30.00 15,00 30.00 15,00 30.00 30.00 15,00 30.00 15.00 30.00 15,00 15,00 30.00 15,00 30.00 15,00 50,00 15,00 30.00 $150,00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 150.00 $500,00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 500.00 300.00 300.00 300.00 500.00 500.00 500.00 500.00 PERCENT 6,00 6,00 6,00 6,00 6,00 6,00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 3/ 6.00 PERCENT 6,00 6,00 6,00 6,00 6,00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6.00 PERCENT 6,00 6.00 6,00 6,00 6,00 6.00 6.00 6.00 6.00 6.00 6.00 6,00 6,00 6,00 6,00 6.00 6.00 6.00 6,00 .... •.a 1/ MONTH, DAY AND YEAR ON WHICH INTEREST CHECK IS PAYABLE ON ISSUES OF DEC, l# 1968. FOR SUbSEOUENT MONTHS ADO APPROPRIATE NUMBER OF MONTHS, 2/ EXTENDED MATURITY REACHED AT 20 YEARS AND 0 MONTHS AFTER ISSUE DATE, 3/ YIELD ON PURCHASE PRICE FRQM ISSUE DATE TO EXTENDED MATURITY IS 5.6aX. ISSUE • FOR EARLIER INTEREST CHECKS AND YIELDS SEE APPROPRIATE TABLE IN DEPARTMENT CIRCULAR 9 0 5 , 6TH REVISION, AS AMENDED ANO SUPPLEMENTED. •* THIS TABLE DDES NOT APPLY IF THE PREVAILING RATE FOR SERIES H BONDS B E I N C ISSUED AT THE TIMF T H E EXTENSION BEGINS IS DIFFERENT FROM 6,00 PERCENT, o H m X C/) m n JO > 7i o H X m H 73 m > c/3 G 73 < EXHIBITS 285 Exhibit 6.—An act to increase the (temporary debt liinit, and for other purposes [Public Law 95-120, 95th Congress, H.R. 9290, October 4, 1977] Public debt limit. Temporary increase. 31 U.S.C. 757b note. Repeal; effective date. 31 U.S.C. 757b note. Be it enacted by the Senate arul House of Representatives of the United States of America in Congress assembled. That during the period beginning on the date ofthe enactment of this Act and ending on March 31,1978, the public debt limit set forth in the first sentence of section 21 of the Second Liberty Bond Act (31 U.S.C. 757b) shall be temporarily increased by $352,000,000,000. SEC. 2. Effective on the date ofthe enactment of this Act, the first section ofthe Act of June 30, 1976, entitled "An Act to increase the temporary debt limit, and for other purposes" (Public Law 94-334), is hereby repealed. SEC. 3. The last sentence of the second paragraph of the first section ofthe Second Liberty Bond Act (31 U.S.C. 752) is amended by striking out "$17,000,000,000" and inserting in lieu thereof "$27,000,000,000". Exhibit 7.—An act to extend the existing temporary debt limit [Public Law 95-252, 95th Congress, H.R. 11518, March 27, 1978] Public debt limit. Temporary increase. 31 U.S.C. 757b note. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled. That the first section of the Act of October 4, 1977, entitled "An Act to increase the temporary debt limit, and for other purposes" (Public Law 95-120), is amended by striking out "March 31, 1978" and inserting in lieu thereof "July 31, 1978". Exhibit 8.—An act to provide for a temporary increase in the public debt limit [Public Law 95-333, 95th Congress, H.R. 13385, August 3, 1978] Public debt limit. Temporary increase. 31 U.S.C. 757b note. Repeal; effective date. 31 U.S.C. 757b note. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled. That, during the period beginning on the date ofthe enactment of this Act and ending on March 31,1979, the public debt limit set forth in the first sentence of section 21 oftheSecondLiberty Bond Act (31 U.S.C. 757b) shall be temporarily increased by $398,000,000,000. SEC. 2. Effective on the date ofthe enactment of this Act, the first section ofthe Act of October 4, 1977, entitled "An Act to increase the temporary debt limit, and for other purposes" (Public Law 95-120), is hereby repealed. SEC. 3. The last sentence of the second paragraph of the first section ofthe Second Liberty Bond Act (31 U.S.C. 752) is amended by striking out "$27,000,000,000" and inserting in lieu thereof "$32,000,000,000". Domestic Finance Exhibit 9.—Statement by Assistant Secretary Altman, February 6, 1978, before the Subcommittee on Taxation and Debt Management of the Senate Finance Committee, on the public debt limit I am pleased to be here today to assist you in your consideration of the public debt limit. The present temporary debt limit of $752 billion will expire on March 31, 1978, 286 1978 REPORT OF THE SECRETARY OF THE TREASURY and the debt limit will then revert to the permanent ceiling of $400 billion. Legislative action by March 31 will be necessary, therefore, to permit the Tresisury to borrow to refund securities maturing after March 31 and to raise new cash to finance the estimated deficits in the budget, as submitted to Congress by the President last month. In addition, to permit the Treasury to continue borrowing in the long-term market, it will be necessary to increase the $27 billion limit on the amount of bonds which we may issue without regard to the 4 1/4-percent interest rate ceiling on Treasury bond issues. Finally, we are repeating our earlier request for authority to permit the Secretary of the Treasury, with the approval of the President, to change the interest rate on U.S. savings bonds if that should become necessary to assure a fair rate of retum to savings bond investors. Debt limit Tuming first to the debt limit, our estimates of the amounts of debt subject to limit at the end of each month through the fiscal years 1978 and 1979 are shown in the attached tables. The tables indicate that the debt subject to limit will increase to $778 billion on September 30, 1978, and to $868 billion on September 30, 1979, assuming a $12 billion cash balance on those dates. These are the debt estimates and cash balances assumptions included in the President's January budget proposals. The usual $3 billion margin for contingencies would raise these amounts to $781 billion on September 30, 1978, and $871 billion on September 30, 1979. Thus the present debt limit of $752 billion would need to be increased by $29 billion to meet our financing requirements through the remainder of fiscal 1978 and by an additional $90 billion to meet the requirements in fiscal 1979. Our $781 billion estimate ofthe debt subject to limit on September 30, 1978 (which includes the $3 billion margin for contingencies) is $6 billion higher than the $775 billion approved in the second concurrent resolution on the Federal budget for fiscal year 1978, which was adopted by Congress on September 15, 1977. The $90 billion increase in FY 1979 reflects the administration's current estimates of a fiscal 1979 unified budget deficit of $60.6 billion, a tmst fund surplus of $13.9 billion, and a net financing requirement for off-budget entities of $ 12.5 billion. The tmst fund surplus must be reflected in the debt requirement because the surplus is invested in Treasury securities which are subject to the debt limit. The relevant debt of off-budget entities consists largely of obligations which are issued, sold, or guaranteed by Federal agencies and financed through the Federal Financing Bank. Since the Federal Financing Bank borrows from the Treasury, we are required to increase our borrowing in the market by a corresponding amount. This, of course, adds to the debt subject to limit. Bond authority I would like to tum now to our fiscal 1979 need for an increase in the Treasury's authority to issue long-term securities in the market without regard to the 4 1/4-percent statutory ceiling on the rate of interest which may be paid on such issues. To meet our requirements next year, the Treasury's authority to issue bonds (securities with maturities over 10 years) should be increased by $10 billion from the current ceiling of $27 billion to $37 billion. The 4 1/4-percent ceiling predates World War II but did not become a serious obstacle to Treasury issues of new bonds until the mid-1960's. At that time, market rates of interest rose above 4 1/4 percent, and the Treasury was precluded from issuing new bonds. In 1971, Congress authorized the Treasury to issue up to $ 10 billion of bonds without regard to the 4 1/4-percent ceiling. This limit has since been increased a number of times, and in the debt limit act of October 4, 1977, it was increased from $17 billion to the current level of $27 billion. EXHIBITS 287 The Treasury, to date, has used almost $20 billion of the $27 billion authority, including the $11/4 billion bond auctioned last week, which leaves the amount of unused authority at about $7 billion. While the timing and amounts of future bond issues will depend on prevailing market conditions, $ 10 billion increase in the bond authority would permit the Treasury to continue its recent pattem of bond issues throughout fiscal year 1979. Thus, the Treasury would be able to make further progress toward achieving a better balance in the maturity structure of the debt and reestablishing the market for long-term Treasury securities. We believe that such flexibility is essential to efficient management of the public debt. Savings bonds In recent years. Treasury has recommended frequently that Congress repeal the 6percent ceiling on the rate of interest that the Treasury may pay on U.S. savings bonds. Prior to 1970 the ceiling had been increased many times, but the current 6-percent statutory ceiling was enacted by Congress in 1970. As market rates of interest rose, it became clear that an increase in the savings bond interest rate was necessary to provide investors in savings bonds with a fair rate of retum. Mr. Chairman, we do not feel that an increase in the interest rate on savings bonds is necessary today. Yet, we are concemed that the present requirement for legislation to cover each increase in the rate does not provide sufficient flexibility to adjust the rate in response to changing market conditions. The delays encountered in the legislative process could result in inequities to savings bond purchasers and holders as market interest rates rise on competing forms of savings. Furthermore, Treasury relies on the savings bond program as an important and relatively stable source of long-term funds. On that basis, we are concemed that participants in the payroll savings plans and other savings bond purchasers might drop out of the program if the interest rate were not maintained at a level reasonably competitive with comparable forms of savings. Any increase in the savings bond interest rate by the Treasury would continue to be subject to the provision in existing law which requires approval of the President. Also, the Treasury would, of course, give very careful consideration to the effect of any increase in the savings bond interest rate on the flow of savings to banks and thrift institutions. Debt limit procedure Mr. Chairman, I would also like to take this opportunity to suggest that your committee consider a more effective procedure for controlling the size of the public debt. We do not think that the present statutory debt limit is an effective way for Congress to control the debt. In fact, the debt limit may actually divert public attention from the real issue—control over the Federal budget. The increase in the debt each year is simply the result of earlier decisions by the Congress on the amounts of Federal spending and taxation. Consequently, the only way to control the debt is through firm control over the Federal budget. In this regard, the Congressional Budget Act of 1974 greatly improved congressional budget procedures and provided a more effective means of controlling the debt. That act requires congressional concurrent resolutions on the appropriate levels of budget outlays, receipts, and public debt. This new budget process thus assures that Congress will face up each year to the public debt consequences of its decisions on taxes and expenditures. Moreover, the statutory limitation on the public debt occasionally has interfered with the efficient financing ofthe Federal Govemment and has actually resulted in increased costs to the taxpayer. For example, when the temporary debt limit expired on September 30, 1977, and new legislation was not enacted on the new debt limit until October 4, Treasury was required, in the interim, to suspend the sale of savings bonds and other public debt securities. The suspension of savings bonds sales, in particular, resulted in considerable public confusion, and indignation, as well as additional costs 288 1978 REPORT OF THE SECRETARY OF THE TREASURY to the Government. The cost of printing and distributing notifications to about 40,000 savings bonds issuing agents was $ 16,775. A much greater, but incalculable, cost is the loss of public confidence in the savings bond program and in the management of the Govemment's finances. Accordingly, we believe that the public debt would be more effectively controlled and more efficiently managed by tying the debt limit to the new congressional budget process. We simply put this proposal on the table, Mr. Chairman, for you and the other members of the subcommittee to consider in the hope that we can work together to devise a more acceptable way to control the debt. Public debt subject to limitation, fiscal year 1978, based on budget receipts of $400 billion, budget outlays of $462 billion, unified budget deficit of $62 billion, off-budget outlays of $12 billion [In billions of dollars] 1977 With $3 biUion margin for contingencies Public debt subject to limit Operating cash balance ACTUAL Sept 30 Oct.31 Nov. 30 Dec.31 700.0 698.5 709.1 720.1 19.1 7.7 5.5 12.3 1978 Jan.31 722.7 12.5 ESTIMATED Feb. 28 Mar.31 Apr. 19 Apr.30 May 31 June 21 June 30 July 31. Aug.31 Sept. 30 738 747 750 740 753 753 746 756 772 778 12 12 12 12 12 12 12 12 12 12 741 750 753 743 756 756 749 759 775 781 Public debt subject to limitation, fiscal year 1979, based on budget receipts of $440 billion, budget outlays of $500 billion, unified budget deficit of $61 billion, off-budget outlays of $12 billion [In billions of dollars] Operating cash balance 1978 Sept 30 Oct 31 Nov. 30 Dec.31 Pubhc debt subject to hnut With $3 billion margin for contmgencies ESTIMATED ; 12 12 12 12 778 789 801 806 781 792 804 809 12 12 12 12 12 12 12 12 12 12 12 809 824 837 841 828 846 852 839 848 864 868 812 827 840 844 831 849 855 842 851 867 871 1979 Jan.31 Feb. 28 Mar.31 Apr. 18 Apr.30 May 31 June 20 June 30 July 31 Aug.31 Sept 30 EXHIBITS 289 Exhibit 10.—Statement by Assistant Secretary Altman, June 27, 1978, before the Subcommittee on Domestic Monetary Policy of the House Committee on Banking, Finance and Urban Affairs, on extension of the authority of Federal Reserve banks to purchase public debt obligations directly from the Treasury I welcome this opportunity to assist in your oversight of the authority of Federal Reserve banks to purchase directly from the Treasury up to $5 billion of public debt obligations. As you know, the most recent extension of this authority expired on April 30, 1978. On April 19, 1978, this subcommittee favorably reported House Joint Resolution 816, to extend this authority to April 30, 1979. The resolution was adopted by the House of Representatives on May 1, but the Senate has not yet acted. The purpose ofthe direct-purchase authority is to facilitate the efficient management of the public debt. It was first granted in its present form in 1942, and it has been renewed for temporary periods on a number of occaisions. The authority has lapsed, however, on five occasions in recent years—from July 1 until August 14, 1973; from November 1, 1973, until October 28, 1974; from November 1 to November 12, 1975; from October 1 until November 7, 1977, and the current period. Borrowings from the Federal Reserve System under this authority have been for very short periods, the average length being from 2 to 7 days. Only twice in the past 35 years has the Treasury had to draw funds in this manner for periods exceeding 13 consecutive days. I have appended a table which lists the instances of actual use. Borrowings under the authority are subject to the public debt limit, and its use is reported in the Daily Treasury Statement, the weekly Federal Reserve Statement, and in the Federal Reserve Board's Annual Report to the Congress. The existence of the direct-purchase authority provides us with a margin of safety which permits us to let our cash balance fall to otherwise unacceptably low levels preceding periods of seasonally heavy revenues. This, in tum, results in balances that are not as high as they otherwise would be during the periods of high revenues that follow, allowing the public debt to be kept to a minimum and thus reducing interest costs to the Govemment. Moreover, there is always the possibility that unforeseen swings in our cash flows may suddenly deplete our cash balance and require a sudden borrowing. The direct-purchase authority is available to provide an immediate source of funds for temporary financing in the event of a natural emergency on a broader scale. While this has never happened, it is conceivable that financial markets could be disrupted at a time when large amounts of cash had to be raised to maintain govemmental functions and meet the emergency. Consequently, the direct-purchase authority has for many years been a key element in the Treasury's financial planning for a national emergency. I want to emphasize that the direct-purchase authority is viewed by the Treasury as a temporary accommodation to be used only under unusual circumstances. The Treasury fully agrees with the general principle that our debt obligations should be floated in the market and that purchases of Trezisury obligations by the central bank should normally be made through that same public market. The Treasury agreed also that the direct-purchase authority should not be considered a means by which the Treasury may independently attempt to influence credit conditions by usurping the authority of the Federal Reserve to engage in open market operations in Govemment securities. In that connection, it is important to emphasize that any direct recourse by the Treasury to Federal Reserve credit under this authority is subject to the discretion and control of the Federal Reserve itself. 290 1978 REPORT OF THE SECRETARY OF THE TREASURY Direct borrowing from Federal Reserve banks, 1942 to date Days used Maximum amount at any time (millions) Number of separate times used Maximum number of days used at any one time 1942 1943 1944 1945 1946 1947 1948 1949 19 48 None 9 None None None 2 $422 1,302 — 484 — 220 4 4 — 2 — 1 6 28 1950 1951 1952 1953 1954 1955 1956 1957 1958 1959 2 4 30 29 15 None None None 2 None 180 320 811 1,172 424 207 - 2 2 4 2 2 — 1 - 1 2 9 20 13 1960 1961 1962 1963... 1964 1965 1966 1967 1968 1969.... None None None None None None 3 7 8 21 — 169 153 596 1,102 — — 1 3 3 2 1970 1971 1972 1973 1974 1975 1976 1977 None 9 1 10 1 16 None 4 610 38 485 131 1042 2,500 1 1 3 1 4 1 Calendar year 3 3 6 12 7 1 6 1 7 NOTE.—Federal Reserve direct-purchase authority expired on Apr. 30, 1978. Exhibit 11.—Statement by Assistant Secretary Altman, April 3, 1978, before the House Budget Committee, on the administration's urban policy proposals I am pleased to appear today to discuss with you certain of the President's urban policy initiatives. The administration has worked hard this past year to analyze social, economic, and fiscal conditions in American cities, the effectiveness of existing Federal policies and programs aimed at cities, and, then, to determine the need for new program initiatives. The culmination of this process was announced by the President last Monday. His urban policy proposals are worthy of your support, and we join with the other departments in urging you to include the related funding in the first concurrent budget resolution. The President's message presented the conceptual framework of his urban policy. Over this next month we will be drafting legislation on the various program initiatives in consultation with the Congress. So today I will not describe the specific details of initiatives, but I will address the general thrust of three components ofthe President's urban policy proposals: The National Development Bank, supplementary fiscal assistance, and the tax proposals—the industrial revenue bonds, the differential investment tax credit, and the employment tax credit. These initiatives address the following principles of the President's urban policy: EXHIBITS • • • • 291 Involving all levels of govemment and the private sector. Leveraging significant private sector resources. Increasing access to opportunities for disadvantaged people. Providing flexibility to respond to diverse needs of all cities and communities while recognizing that certain localities will require strategic targeting of resources. The National Development Bank It is clear to us that a crucial cause of urban decay has been the decline ofthe private sector employment base in central cities. This has resulted in a smaller tax base and higher fiscal strain for city govemments. While fiscal and monetary policies are effective instruments for improving the overall level of economic activity, we have leamed that they are not precise enough tools to address the interrelated problems of slow growth, chronic economic decline, and the resulting high levels of unemployment among certain groups in many of our cities. We believe, therefore, that new Federal incentives for the private sector to expand job opportunities in distressed areas should be undertaken. The National Development Bank represents a long-range economic development strategy to rebuild the private economies of distressed areas. Its key objective is to help create permanent jobs. This strategy includes a set of financing incentives to influence businesses to remain and expand or to locate in distressed areas. The effect of these incentives would be to improve business and job opportunities, by lowering one element of the costs of doing business—the cost of capital. The package of incentives includes: 1. 2. 3. 4. A program of "up-front" capital grsmts involving up to 15 percent (or a maximum of $3 million) of an eligible firm's capital costs for rehabilitation or fixed-asset expansion. EDA and HUD grants would be used. In coordination with the grants, a program of loan guarantees to cover 75 percent of the remaining capital costs at interest rates representing a slight premium above Treasury rates. In special circumstances the bank could subsidize the interest rate down to 2.5 percent. The business or project could only receive this package of a grant and loan guarantee if it obtained the balance of its needed financing from private sources. An increase in the limit from $5 to $20 million of tax-exempt or taxable industrial revenue bonds that can be issued in an economically distressed area. A new secondary market for (a) private loans made directly to eligible smalland medium-sized businesses to finance capital expenditures, and (b) the private loans made to businesses receiving Federal financing assistance through the Development Bank. A "private market test" will place the initial credit decision not in the Federal bureaucracy, but in the private market. This test will differentiate between economically viable projects which can provide permanent private sector jobs and those which will fail. It will also help ensure that the bank will be financially self-sustaining. Hence, we think that the bank can leverage significant private sector investment in distressed areas with relatively small Federal exposure. Successful local economic development requires public and private cooperation and careful planning at the local level. We have designed this Development Bank as a catalyst for promoting public and private sector cooperation in distressed areas and one which will leave maximum flexibility for economic development planning at the local level. This proposed Development Bank, Mr. Chairman, is the result of an intense analysis of current Federal economic development programs and a series of consultations with mayors, Govemors, academicians, economic development practitioners, and representatives of the business, labor, and financial communities. It will not duplicate existing Federal programs but, rather, fill a gap among Federal tools aimed at local economic development. Specifically, there is no major Federal program involving tmly long-term 292 1978 REPORT OF THE SECRETARY OF THE TREASURY financing incentives to affect business locational decisions. Mr. Chairman, our combination of long-term financing incentives are strong enough to influence locational decisions. They can reduce long-term business borrowing costs significantly and impact job creation. Local practitioners have confirmed that it is a proposal which can be combined with other resources to seriously attack the continuing losses of private investment and jobs. A crucial question in considering this proposal, of course, is why the Federal Govemment should influence locational decisions at all. We think that the answer is clear. For years, through a variety of programs, the Federal Govemment has directly and indirectly encouraged certain developmental pattems. It is only logical that rebuilding distressed areas must be an object of Federal policy. The costs of doing nothing are too high—they include the tremendous human suffering and capital waste of permitting these areas to continue to decline. They include increased costs for welfare, health and unemployment compensation for the unemployed—those who cannot move to find new jobs in growing areas. They include the inefficient use of scarce national economic resources which flow into new areas to build new private facilities and public infrastructure while the old and valuable infrgistmctures are underutilized. Supplementary fiscal assistance program Let me tum now to discuss the fiscal relief component of President Carter's urban policy—our proposed supplementary fiscal 2issistance program. This would replace the expiring antirecession fiscal assistance program (frequently called countercyclical revenue sharing), and would use the $ 1.04 billion already contained in the President's fiscal 1979 budget for the countercyclical program. The new program, Mr. Chairman, would provide relief to local govemments experiencing fiscal strain because of underlying and long-term economic decline. We are recommending it because there are a series of local govemments which cannot withstand the impact of losing their current countercyclical funds. These are not govemments, however, which are experiencing temporary recession-induced fiscal strain. Instead, their fiscal difficulties reflect shrinking urban revenue baises caused by the long-term outmigration of taxpayers, investment, and jobs or by underdevelopment. During the past year, the Treasury Department studied carefully the fiscal conditions of our largest municipalities. Indeed, as part of this eff'ort, some of you may be familiar with a report we made available to Congress conceming the fiscal impact on these municipalities of President Carter's 1977 economic stimulus program. In that report, we developed an index of "municipal fiscal strain" and ranked the 48 largest municipal govemments according to that index. It became clear to us that certain local govemments are experiencing considerable fiscal strain. Their revenues are stagnant, and the combination of inflation, high local unemployment, and high concentrations of low-income persons are exerting upward pressure on their expenditures. The loss of countercyclical funds would require these "high strain" localities to implement severe fiscal austerity programs, which would have highly negative effects on the provision of municipal services to their citizens. These high-strain localities are precisely those who are least able to afford the loss of monies available under the current countercyclical programs. Many simply would be unable to balance their budgets without it. Their only choices would be to cut expenditures or raise taxes by the amounts of countercyclical funds lost. Yet, in these areas, taxes already are at high levels and raising them further would be counterproductive to economic redevelopment. Conceming service reductions, many of the largest cities would be forced to cut services such as police and fire which are vitally needed. In addition, they are already experiencing high unemployment levels, and further layoffs could only worsen their economic plight. Tax proposals Industrial development bonds. Let me now address the three tax portions of the President's urban policy. As part ofthe Development Bank proposal, the President has recommended changes in the small issue exemption goveming the use of tax-exempt industrial development bond (IDB) financing. Under current law, small issue IDB's can be issued on a tax-exempt basis for financing investment in depreciable property or land EXHIBITS 293 by private business firms. The use of such tax-exempt financing within any county is limited to the first $ 1 million of any project or, altematively, to $5 million if total capital expenditures by the firm over a 6-year period, beginning 3 years before the date of bond issue and ending 3 years after, do not exceed $5 million. In the tax reform program, the administration proposed that the use of tax-exempt small issue IDB's be repealed except for distressed areas and that for such areas the $5 million limit be increased to $10 million with the capital expenditures limitation applying at this higher level. The original IDB proposal reflected the concem of this administration that preferential tax-exempt financing be channeled to areas of most urgent need. The current proposal extends the IDB recommendations in the tax reform package. The increase of industrial development bond financing to $ 10 million in the tax program will be further increased to $20 million. The urban policy IDB proposals leave intact the recommendations in the tax reform program to remove tax-exempt industrial development bond financing in areas which do not qualify as distressed. Thus, while the dollar limitations are liberalized, there is still a strong commitment to limit the use of tax-exempt IDB financing to those areas of the country which are having difficulty in attracting private capital. Also these IDB's will be eligible for the administration's taxable bond option proposed as part of the tax reform program. Under the taxable bond option, State and local govemments will have the choice of issuing tax-exempt or subsidized taxable bonds. The Federal subsidy on taxable bonds will be 35 percent of the taxable rate for bonds issued during the first 2 years and 40 percent thereafter. The urban policy IDB's may also be issued on either a tax-exempt or a subsidized taxable basis. Differential investment tax credit. In addition, the administration is proposing, on a 2-year trial basis, a program ofa differential investment tax credit for private investment (including the construction and rehabilitation of industrial buildings) for the improvement of distressed areas. These tax credits would be administered by the Commerce Department except that the income tax system would be employed as a clearing mechanism for final payment to the investor. Authority to grant the additional 5-percent investment credit would total $200 million for each of the next 2 years. To become eligible, a company would apply to the Commerce Department for a "certificate of necessity" basing its request on financing need and employment potential for the particular project in the distressed area. The certificate would be attached to a firm's tax retum, thus making the firm automatically eligible for the additional 5-percent investment tax credit for the specified amount of the project. This program would be similar to that which was used and administered by the Defense Production Board during World War II and the Korean war. The Treasury Department would be responsible to audit the firm's net tax liability and not its eligibility for the certificate of necessity. Employment tax credit. The administration proposes a targeted employment tax credit that would substitute for the new jobs tax credit in the present law that is scheduled to expire at the end of this year. A tax credit for employment is desirable because of persistent problems of structural unemployment, but the existing jobs credit addresses the unemployment problem in a very unfocused and uncertain way. That credit has been available for the employment of workers generally and only for firms whose employment is growing. The credit is uncertain in application because an employer needs to predict the rate of growth of his unemployment tax base to the end ofthe year in order to judge whether a credit will be allowed. In the case of slow-growing industries and regions, the credit is denied to most employers simply because the demand for their products does not justify an increase of the wage base by more than 2 percent over the previous year. No employment incentive is provided to large employers that expect to grow by more than about 50 employees in a year. Preliminary results from a recent survey of taxpayers conducted by the Census Bureau for an interagency task force show that less than 3 percent of employers report any conscious effort to increase their employment in response to the credit. These preliminary results also suggest that at least 80 percent ofthe dollar amount ofthe credit will be received by employers who report no conscious effort to increase employment. The administration proposal would focus the employment incentives ofthe tax credit on the most serious stmctural unemployment problem: The high incidence of 294 1978 REPORT OF THE SECRETARY OF THE TREASURY unemployment among disadvantaged youth and handicapped workers. The categories of individuals who would be aided under this proposal have a recent rate of unemployment of about five times that of the remaining labor force. This proposal would not discriminate against slow-growing or declining firms nor against firms with rapidly expanding employment opportunities. It would, however, require that all ofthe benefits be targeted at a demonstrated special problem area of unemployment. As compared with the present jobs credit, this proposal would provide a larger dollar amount of incentive to employ each worker over a 2-year period, but at less than onehalf of the total revenue cost of the present program in a typical year. According to the administration proposal, a tax credit would be allowed to employers of eligible handicapped and disadvantaged individuals for 2 full years. The major identifiable source of structural unemployment is minority and disadvantaged youth. Most other groups within the labor market do not suffer from perv2isive structural unemployment. There are approximately 2.3 million young Americans between the ages of 18 and 24 who live in low-income households. The recent unemployment rate among this group is 26 percent; and this does not count the large number of such persons who wish to work full time but can find only part-time work or who have not been seeking work because they believe it is futile. This program will provide strong incentives for employers to offer employment opportunities to those disadvantaged young people who have found it most difficult to gain the important experience of working in the private sector. Because the tax credit is continued for up to 2 years for each employee, there is an incentive for employers to retain these employees long enough for them to gain sufficient work experience and training to become a part ofthe regular work force. Therefore, this program will provide the necessary extra help to bring into our country's work force mzmy young persons from low-income backgrounds, who might otherwise be denied entrance into the regular private job market. I appreciate this opportunity today to present the broad outlines of some ofthe urban initiatives. We look forward to working with you and the other Members of Congress to achieve the President's urban policy goals. Exhibit 12.—Statement by Assistant Secretary Altman, October 12, 1977, before the Senate Committee on Energy and Natural Resources, on the financing of an Alaska natural gas transportation system I am pleased to have this opportunity to assist you in your consideration of the President's decision on an Alaska natural gas transportation system, and, in particular, the financing aspects of the decision. The Treasury Department has participated in the Alaskan gas decision process from its initial stages. Among other activities, the Department led an interagency task force, which on July 1, 1977, delivered a public report to the President on financing a transportation system. The President has designated the Alcan system to transport Alaskan gas across Canada for delivery to consumers in the lower 48 States. The President's report discussing the reasons for that decision was forwarded to Congress. It included a detailed discussion of the financing issues. Let me begin, Mr. Chairman, by summarizing the discussion of financing contained in that report. The President observes that "the Alcan project will be one ofthe largest—if not the largest—privately financed intemational business ventures of all time." Obviously, the amount of financing required for such an undertaking is enormous and raising it is a complex task. Indeed, certain financing issues still remain unresolved. My central conclusion, however, is that the Alcan project can be privately financed, assuming equitable participation of those parties who will benefit directly from its constmction. Federal regulation The Treasury Department has consistently argued that an Alaska natural gas transportation system could be privately financed given a proper Federal regulatory climate. The President's decision, with the accompanying terms and conditions, would EXHIBITS 295 eliminate much ofthe potential uncertainty of Federal regulation and ensure that such regulation will be conducive to both an efficient project and a private financing. To be specific, the President has recommended a modified form of incremental pricing for Alaskan gas to assure marketability to consumers. He has recommended the creation of an Alaiska Natural Gas Office directed by an appointed Federal Inspector to coordinate the Govemment's involvement in constmction of the project and to ensure the project proceeds efficiently. He has prepared 2m agreement with the Govemment of Canada which largely eliminates binational regulatory problems. The President has recommended establishing a rate of retum on equity which discourages cost overruns. He has discouraged the use of new and controversial tariff arrangements that would be subject to time-consuming litigation with uncertain results. Finally, the President has recommended that the field price to the producers of Alaskan gas be established in accordsmce with his national energy plan, thus eliminating a lengthy price proceeding before the Federal Energy Regulatory Commission and subsequent litigation. By adopting these recommendations, the Carter administration expects to resolve much of the uncertainty which earlier characterized the Federal regulatory environment for this project. This should eliminate what had been perceived to be a major risk of the project. In effect, the President's recommendations go far to encourage an economically viable Alaskan gas project, which is the key to a private financing. One of the issues mentioned above, the form of the tariff paid by gas consumers, is particularly central to financing the project privately. The project applicants originally requested a novel form of tariff referred to as the "all events, full cost of service" tariff. This tariff would have reimbursed the project company for its costs, including the retum on and of equity, under any and all possible circumstances, including noncompletion. It was argued such a tariff was necessary to induce sufficient private lending for this project. Alcan's financial advisers have recently concluded that such a tariff will not be necessary. Alcan is prepared, instead, to finance its project with a more conventional tariff commencing only after the project has been completed. Such a tariff would assure that the project's debt would be serviced upon completion and should satisfy lenders that principal and interest payments on the project's debt will be met. Essentially, our anticipation of an economically viable project coupled with this assurance of debt service leads me to believe that the Alcan project can be financed in the private sector. Alcan financing plan Alcan's financing plan, which is included in the President's report, estimates the total capital requirements ofthe project at $9.7 billion in escalated dollars, most ofwhich is to be raised over a 3-year period beginning in 1980. Of this total, 22 percent will represent equity investments and 78 percent will be in the form of debt capital. Alcan expects approximately 82 percent of this $9.7 billion total ($7.9 billion) to be raised in the United States and the remaining 18 percent ($1.8 billion) to be raised in Canada. The U.S. and Canada private capital markets combined represent the largest and most resilient capital markets in the world and have the inherent capacity to supply these amounts. As an example, Alcan plans to raise approximately $5.5 billion during 3 years in the U.S. corporate long-term debt market. Overall long-term borrowing by nonfinancial corporations in that market is projected to reach $300 billion this year. In 1982, the final year of Alcan's borrowing, it is projected to increase to $466 billion. Alcan's borrowings would represent only 1.2 percent of this total. The Alcan financing plan should be viewed as tentative because several important issues must be resolved before funds will be committed to it. These currently unresolved issues include— 1. The final determination of the field price of Alaskan gas; 2. The completion of sales contracts for the gas; 3. The final determination of the rate of retum that will be allowed on the equity investment in the project. A small group of the largest U.S. insurance companies will provide the bulk of the U.S. debt capital required. Accordingly, their perceptions of the risks will be critical. 296 1978 REPORT OF THE SECRETARY OF THE TREASURY At this initial stage, we cannot be sure how these key lenders will assess the risks or even which risks they will perceive as dominate, e.g., the risks of marketability and noncompletion. It will take more than a year before we will know with certainty whether the financing can be arranged. Participants in a private financing One important aspect of our conclusion on the private financing is that the parties who benefit from the project can and should participate in its financing. The major and direct beneficiaries of this project are natural gas transmission corporations, the producers of North Slope natural gas, and the State of Alaska. Their participation will increase the overall private financeability by reducing the amounts which must be raised on the strength ofthe project's credit alone. I will discuss each of these parties briefly. Natural gas transmission and distribution corporations. Natural gas transmission and distribution corporations comprise the Alcan consortium and they must provide the necessary equity for the project as well as the equity portion of any cost overrun financing. The strength of this sponsoring consortium, therefore, is a key element of the financing. Our analysis shows that the firms currently involved in the Alcan project have the capacity to provide these required equity investments. Furthermore, we expect that the consortium will continue to expand and eventually will include a large portion of the entire natural gas transportation industry. In addition, the Alcan project has the advantage ofthe substantial equity investment of Canadian transmission corporations, which will total at least $800 million. Producers of Alaskan natural gas. The owners and producers of Alaskan natural gas are major U.S. energy companies. This group is primarily composed of Exxon, Atlantic Richfield, and the Standard Oil Co. of Ohio. These companies will benefit substantially from the sale of their natural gas reserves and obviously require a transportation system to sell them. These three companies had total assets of $51 billion in 1976 and net income in excess of $3 billion. They clearly have the capacity to participate in the financing of a transportation system, especially as full retums from their North Slope oil and related pipeline investments are realized. These companies have demonstrated varying degrees of interest and have not yet agreed to participate in the project. It seems in their interest, however, and they should be encouraged to do so. We think that financial participation by the producing companies can be structured so as to avoid anticompetitive practices, a continuing concem ofthe Department of Justice. This issue is specifically addressed in the report which has been forwarded to you with President Carter's decision. The State of Alaska. The State of Alaska will realize substantial revenue in the form of royalty payments and taxes from the sale of North Slope gas. The State will also benefit from use of the pipeline for natural gas distribution and resulting commercial development within the State. The State of Alaska can use a portion of its revenues from the sale of Alaskan oil to assist in the financing of this project. Originally, the State offered to assist in the financing of the El Paso project by guaranteeing $900 million of project debt. Similar State of Alaska support for the Alcan project is considered advantageous and is encouraged. Federal Govemment financial assistance Possible Federal Government support to the project, viz., loan guarantees or insurance, has been evaluated intensively by the Treasury Department because certain parties earlier claimed that it was necessary. These parties asserted that Federal financing support was necessary to finance the project in the uncertain regulatory environment which then existed. They argued that only such assistance would assure lenders of repayment in the event the project was not economically viable and only this would assure their participation. In particular, the Arctic Gas consortium, which withdrew earlier, claimed that financing assistance by both the Canadian and United States Governments was required for the financing of their project. In addition, the El Paso proposal incorporated approximately $1.5 billion in loan guarantees under the EXHIBITS 297 existing Maritime Administration shipbuilding program. On the other hand, no Federal financial assistance has been requested for the Alcan project. Alcan's investment banking advisers do not believe that Federal financing assistance is necessary for the Alcan project. The administration shares this conclusion. In addition, the administration believes that Federal assistance to this project would be undesirable for several important reasons. 1. Federal financial support substitutes the Govemment for private lenders in the critical risk assessment function normally performed by the private lenders. 2. Financial assistance also reduces incentive for efficient management of the project. 3. Serious questions of equity would result from the transfer of project risks to taxpayers, many of whom are not gas consumers or will not receive additional gas supplies as a result of the Alaskan project. 4. A subsidy in the form of lower interest rates yields an artificially low price for the gas. 5. Other large energy projects might not be undertaken without similar Federal assistance. The Govemment of Canada also opposes Canadian govemmental financial assistance to a binational project. Transfer of financial risks to consumers The issue of a new mechanism by which gas consumers bear some or all of the financial risks of this project also has received careful study by the executive branch. The most frequently discussed mechanism for consumer support would entail a consumer financial guarantee by means of an all-events tariff with noncompletion arrangements. The noncompletion features would provide for a consumer guarantee of at least debt service in the event of noncompletion. The Alcan sponsors and financial advisers have stated that the Alcan project can be financed without such a consumer guarantee prior to completion and without Federal financial assistance. The administration has concluded that the bearing of financial risks by consumers prior to completion is unnecessary for this project. Furthermore, the administration believes that consumer guarantees are undesirable for many ofthe same reasons that Federal financing assistance is undesirable. Conclusion The Alcan project is the largest construction project ever contemplated by private enterprise. The requisite financing is uniquely large, complex, and most difficult. Let me emphasize, however, that the administration currently believes that this project can be financed privately—that is, without Federal financing assistance or consumer guarantees. We encourage appropriate and equitable financial participation by the parties benefiting directly from the project. In conclusion, I urge congressional approval of the President's decision recommending the Alcan project. Exhibit 13.—Statement by Assistant Secretary Altman, August 1, 1978, before the Subcommittee on Economic Stabilization of the House Committee on Banking, Finance and Urban Affairs, on the proposed National Development Bank I appear before you today to present the President's proposal for a National Development Bank, which is embodied in H.R. 13295. This innovative proposal is the product of extensive work within Treasury, HUD, Commerce, and other agencies, and of consultations over more than a year with representatives of State and local govemments, local development authorities, financial institutions, businesses, and the academic community. This project has been one of the administration's highest priorities during that time. These are the reasons why we are proposing this legislation: 1. The key to this country's economic future is our private sector. Four of every five jobs are private jobs. The primary reason that national unemployment fell from 7.4 percent to 5.7 percent in the period from January 1977 toJune 1978 is that more than 5.5 million new private jobs were created. 298 1978 REPORT OF THE SECRETARY OF THE TREASURY 2. Many areas of this country, urban and rural, have not fully participated in this recent growth. Particularly during the 1970's, certain areas have lost population, jobs, and important parts of their tax base. 3. These trends are costly for those places. They experience high unemployment, unused public facilities, a growing concentration of less skilled and less educated groups, and increasing welfare and other social support costs. At the same time, their fiscal bases shrink, and their ability to maintain an appropriate level of social services becomes strained. 4. Land, construction, and operating costs in distressed cities are disproportionately high and have led American businessmen to invest elsewhere. Furthermore, small and medium-sized businesses already located in distressed urban and rural areas frequently cannot obtain long-term financing to expand or rehabilitate. 5. In the past, the Federal Govemment has influenced, directly and indirectly, these business and job location trends. 6. The National Development Bank represents a private jobs strategy. It is aimed at increasing private investment and related jobs in distressed areas. We believe that a new economic development tool of this type is needed. It does not presently exist. 7. Specifically, the National Development Bank will provide a combination of grants, loan guarantees, and interest subsidies to reduce financing costs for business in distressed areas. These reduced financing costs will relate to acquiring, constructing, and rehabilitating facilities. The combination ot Development Bank incentives can lower the cash invested in such projects, on a present value basis, by over 60 percent. In addition, the bank also will provide a liquidity facility to incre2ise the flow of private credit to small and medium-sized companies located there. 8. It would be inefficient to give the bank's powers to existing agencies. This would mean building a separate long-term, private financing staff in each agency—two or more staffs instead of one. Chronic economic distress Numerous rural and urban areas are experiencing chronic economic distress—low levels of investment, a lack of jobs, loss of population, poverty, and a shrinking tax base. The health of most central cities has declined relative to the suburbs. The cities ofthe Northeast and Midwest have not shared in the growth ofthe South and West. And many rural areas in all parts of the Nation continue to be isolated from growth. There is no single cause of this distress; firms leave an area or go out of business; the loss of jobs and skilled people increases the concentration of unemployment and poverty among those who remain; a greater proportion of the unemployed are structurally unemployed persons; the physical and social environment deteriorates; crime increases, insurance costs rise and the cost of attracting and retaining skilled workers increases; the tax base deteriorates and taxes rise; and then investment declines more and there is a further loss of jobs and skilled workers. The resulting social cost grows at the very time the local govemment's tax base is eroding; so services deteriorate further, which accelerates the trend. The Nation's level of economic activity may pick up, but it does not reverse the long-term decline in these places. Rural distress is less visible than urban distress because it is not geographical 1> concentrated; but it is no less serious. Low incomes and chronic poverty caused both by unemployment and underemployment characterize economically weak mral areas Rural America may need infrastructure beyond what now exists to successful 1> attract the private investment necessary to diversify its economy. In addition, rural development needs should be planned across geographic areas large enough to provide sufficient labor for a variety of basic economic activities. Urban distress The characteristics of chronic distress in urban areas can be highlighted b) comparing the economic indicators for distressed places with those of healthy places Employment and unemployment.—It is well known that many of our larger cities have EXHIBITS 299 not shared in national growth. During the period 1970 to 1975, overall growth in employment was 7.8 percent. In contrast, in St. Louis, employment fell during that period by over 19 percent, and in New York City by 16 percent. Central cities showed major declines in manufacturing jobs between 1970 and 1975. Jobs lost, largely through ordinary attrition, were not being replaced. In addition, looking at the 10 American cities with the largest number of headquarters of "Fortune 500" companies in 1956, we find that the number of headquarters had declined from 293 to 236 in 1971. In large measure, the cities' loss has been the suburbs' gain. Looking at the unemployment side ofthe equation, we again see clear geographical disparities. One study has compared the average unemployment rates of 14 declining cities with those of 8 growing cities. On an unweighted basis, the rate of unemployment in the declining cities was 41 percent greater in 1976 than in the growing cities. Within regions, there are further disparities between central cities 2md their suburbs. Investment.—The imbalance among different regions and cities is also highlighted by differences in investment per employee. According to a recent Urban Institute study, the average capital investment per production employee during 1970-76 was 66.7 percent greater in a group of growing cities as compared to distressed cities. For the same distressed cities, the ratio of wages to value added per production worker was 35 percent less favorable than in the group of growing cities. Shifts in population.—Population loss is also both a cause and an effect of chronic distress. During the 1960's, the Nation's central cities lost 3.5 million residents through population movements; in the first half of this decade the pace quadrupled. In some individual cases, this loss has been staggering. Detroit has shrunk from a city of 1.85 million in 1950 to a city of 1.3 million in 1975.Thepopulationof St. Louis has declined by more than 15 percent since 1970. Those who leave tend to be young and have above-average skills and income. Employers fmd the relatively more unskilled job pool less attractive than before. Thus, it is even more difficult to find jobs for those who remain. Between 1970 and 1976, 1.2 million skilled workers left the central cities for the surrounding suburbs, while only a half million skilled.workers moved in the opposite direction. In addition, the more affluent tend to leave distressed cities. For example, 25 percent of the households that moved from the Pittsburgh area between 1965 and 1970 had 1970 incomes of $15,000 or more, while only 18 percent of all Pittsburgh area households had incomes at that level. Individuals who left Pittsburgh also tended to be young, with a median age of 24 compared to the city's median age of 35. Rural distress Rural areas have consistently had a lower standard of living and a larger share of poverty-stricken residents than urban areas. While rural America has shown signs of some turnaround in its economic prospects since 1970, nationwide data conceals the continuing decline in population which some rural areas are experiencing,