This is a follow-up to
last week's Ramble, with answers to a couple of questions from Brittany and Kathryn. Future editions likely won't be so close together!
First off, there are couple of terms that people mix up occasionally:
Government debt: The total amount of debt outstanding owed by a government.
Federal deficit: The difference between what the government brings in (via taxes) and what it spends in a given year. There is a deficit when spending is less than earnings, and a surplus when earnings are higher than spending.
So, having high deficits for many years leads to having a lot of debt, but the two aren't exactly equivalent. If there have been several years of surplus, the government could run a deficit in a given year and still not have any debt, since it can dip into its savings from previous years to cover the difference. I've often seen the press use these two terms interchangeably, but they aren't technically the same thing.
Okay, so here's the thing. Government debt isn't necessarily bad. In fact, it probably makes sense for the US government in particular to have a fair amount of debt. Why? Well, imagine that someone was willing to lend you $1 million for ten years at 2.5% annual interest. Imagine further that you could use that money to earn 6% annual returns. Would you do it? Of course you would. Each year you'd earn $35,000 on the deal ((6% - 2.5%)*$1,000,000), and at the end of the ten years you could pay back the million dollars and be over $400,000 richer than you started. Now, imagine that at the end of the ten years that same someone was willing to make the same deal. Would you do it again? Absolutely!
The US government is in much the same position. It can borrow money at lower interest rates than anyone else in the world, because it has developed a sterling reputation. It can then use the money for profitable investments, like health care, education, welfare, infrastructure, etc. It's hard to put a percentage return on those kinds of investments, but as long as they are higher than the interest rate that the government has to pay, it should be borrowing that money. And, since there is no foreseeable termination to the existence of the government, it can roll over its debt forever; it doesn't necessarily ever have to get out of debt.
But, too much government debt can start to be a drag on the country, because after a while the government is forced to spend a big portion of its tax revenues on paying interest, and it therefore can't spend that money on useful government functions like education or health care. How much is too much? That's obviously a difficult question without a really precise answer. Typically, economists look at the total amount of debt divided by nominal annual GDP. One study has found that when the debt-to-GDP ratio is above 90% the economy doesn't grow as quickly, but when it is lower than 90% debt has no effect on growth. So I take 90% as the point where we should start to get concerned, but keep in mind that it's just one estimate. Here is a graph of US Debt to GDP since 1966 to the present (click to enlarge):
You can see that we jumped big time in 2008 and that we're right around that 90% number right now. Brittany asked for a history of deficits, and you can see it in this graph. When the line is going down, the government is running surpluses, when it's going up they're running deficits. Actually, to be exactly precise, when the line is going up the government is increasing the deficit at a faster rate than GDP is growing, and vice versa, but the basic idea is the same. So, relative to how fast the economy was growing, Reagan and George H. W. Bush ran some big deficits, Clinton had mostly surpluses, and Dubya ran deficits. Obama so far trumps everyone by a mile in the largest-deficit contest. But the idea that Dubya "created" the deficit via two wars and tax cuts for the rich is false--there have been deficits and surpluses off and on over the history of the US--although he did run deficits for most of his 8 years. You can see from the graph that he really didn't increase the total debt by a huge amount. Reagan and Bush the First did more to raise debt levels than Bush the Second. More on this balancing act in a minute.
Okay, I promise I'm going to get to the point shortly, but first I have to say a quick word on the debt ceiling. The debt limit is simply a number which sets the maximum amount of dollars that the government can borrow. Up until July 31st, the limit was $14.3 trillion. Now I think it is $15.2 trillion. Kathryn asked a question about why we actually had to raise the debt ceiling. She linked to
an article that claimed that we really didn't need to raise the debt ceiling, and that instead we could just spend less money instead of borrowing more. The article used a very intuitive example of a credit card, arguing that a family who had a hard time with debt should not increase its credit limit, but should instead adjust spending to fit under its current credit limit. The problem with that analogy is that in the case of the US government we had already spent the money, and failing to raise the debt limit would force us to default on our obligations. Think of it this way: suppose a family has spent all the way up to their credit limit, and they know that a $300 utility bill is coming in two weeks for energy they used last month. They can either: (a) increase their credit limit by $300 in order to pay the bill, (b) not pay the utility bill or (c) not pay the credit card bill. Spending less on the utility bill isn't an option at this point! That's the situation we were in. In April, we knew that a bill was coming on August 2nd that we couldn't pay, due to obligations that Congress had already committed to. Our options were: (a) increase the debt limit, (b) not pay government workers or (c) not pay our debt bills. It was pretty clear that (b) wasn't going to happen for political reasons. Option (c) is a really bad option because it destroys that sterling reputation I mentioned earlier (although a lot of tea partiers were arguing for it) and would very likely send financial markets into a panic, so that really only leaves (a). I wanted to throttle everyone in Congress because it should have taken about 1 hour to figure out that (a) was what had to happen, and instead they argued about it for 4 months, costing us a fair amount of money in the process and ending up with a pretty poor bill in the process. What I wanted out of the debt ceiling confrontation was two-fold: an increase in the debt ceiling coupled with a credible plan to reduce the deficit (and total debt) in coming years. We got the increase in the debt ceiling, but did not get a good deficit reduction plan, and that's why S&P downgraded the US. Adios, sterling reputation!
What the heck does all of this have to do with the Bible, you ask? Well, I'm almost there! There have been some proposals that we pass a "balanced budget" amendment, which would force Congress to have neither a surplus nor a deficit. On the surface this sounds like a good idea, especially given the fact that it doesn't appear that we can trust Congress to be responsible with the budget. Like so many things, though, what at first appears to be a good suggestion turns out to be a terrible idea on further inspection. In particular, a balanced budget proposal would force the government to spend less when tax revenues are lower. And when are tax revenues low? When the economy is doing poorly, which is precisely the time that Keynesian economics tells us that the government should be spending more. Even disregarding Keynes completely, the government is likely to have to spend more during recessions because of unemployment insurance, more pressure on retraining programs, higher amounts of federal student loans, more reliance on Medicaid, etc. A balanced budget amendment would force the government to cut spending on all of these programs at exactly the wrong time.
But, couldn't we force Congress to cut spending at exactly the
right time? I think we should take our cue from
Joseph in Egypt who saved corn during the seven years of plenty in order to have enough during the seven years of famine. Joseph had the benefit of prophecy, but I think we could do pretty well with a simple rule that said something like, "When nominal GDP growth is higher than 4% congress must have a surplus, and when it is lower it can have a deficit." A Joseph-in-Egypt rule would keep that line in the graph above fluctuating around a certain level, but it wouldn't trend higher or lower overall. Congress would automatically save during good times and spend those savings during bad times. I'm not sure that 4% is the right number, but I'm that there are some smart people who could figure out what the right number is. The point is that a Joseph-in-Egypt rule would get rid of the need for debt ceilings, and would force the government to spend within our means in the long run, while allowing for stimulus in bad times when needed.
The trick is to get Congress to create such a rule, and then to prevent them from changing it when the going gets tough! Any ideas on how to do that?
As always, questions, comments, disagreements, and suggestions are all welcome!