Deficits 101

Page Summary

Just like clockwork, we can predict that every four years we’ll be bombarded by speeches, sound bites, and accusations about the federal government’s budget. The debate could be useful in setting our national priorities, but in the frenzied campaign atmosphere, it’s rare that opposing points of view are presented in a way that helps us formulate thoughtful opinions. And if you think the candidates’ positions are confusing, wait until the commentators weigh in! Confusing or not, the fact remains that the federal government’s budget – whether in deficit or surplus — affects our lives and it’s to our benefit to understand the debate. Starting with the basics gives us a foundation for sorting out the rhetoric, so let’s call this lesson “Deficits 101.”

Update! (February 2005)

Updated graph

What is a budget deficit? Spending and taxation are determined by Congress and approved by the President. During any given year, if a government spends more than it collects in taxes and other revenues, it incurs a budget deficit.

What is the difference between a deficit and the national debt? The deficit is for one year, only. The debt is the total of all past deficits, minus any surpluses. Another way to think of the debt is as deficits piling up year after year.

How Big is the Deficit?

Read the May 12th, 2003 article, below, for the most recent deficit data. (2004 data is not yet available. However, forecasters project that the 2004 deficit will be at least as large as that of 2003.)

Deficit To Be Largest Ever, CBO Predicts

WASHINGTON (AP). . . According to the budget analysis, the federal deficit has reached an estimated $202 billion for the first seven months of the government's budget year, which began last Oct. 1. For the same six months last year, the deficit was $65 billion.

"CBO [Congressional Budget Office] now expects that the government will end 2003 with a deficit of over $300 billion," said the report, which was dated last Friday.

The budget office's figures do not reflect the tax bills Congress is debating. The House version, which would cost $550 billion through 2013, is expected to add $60 billion to this year's shortfall. The Senate's smaller $350 billion measure would deepen this year's deficit by an estimated $44 billion.

Some private analysts have an even bleaker view of the budget, with some envisioning red ink this year totaling $425 billion. The budget office forecast a $246 billion deficit for this year in March, before added defense spending was approved by Congress.

. . . Overall, revenue collections through April were an estimated $1.055 trillion, or $62 billion lower than a year earlier.

The government has spent $1.257 trillion through April, or $76 billion more than in 2002, with defense, Social Security and Medicare expenditures leading the way. The budget office said it expects defense spending to grow by 20% over last year's levels.

The highest deficit ever was $290 billion in 1992. But because the U.S. economy is much larger today than it was then, Republicans argue that today's projected shortfall will have less of an impact.

. . . Democrats plan to use that debate to argue that Bush's tax cuts - including a major one in 2001 - have caused the government's red ink problems. Republicans blame the weak economy and the costs of war and battling terrorism.

http://www.usatoday.com/news/washington/2003-05-12-deficit_x.htm

Simply put, the federal government is spending more than it is receiving in revenue, and thus a deficit exists. How big is it? Before you continue this reading, work through exercises #1 - 3 to answer to determine how big the deficit "really" is.

Who's to Blame?

While it's easy to determine whether or not a deficit exists, it's harder to figure out why and - more importantly in an election year - who's to blame. Predictably, the candidates are blaming each other's parties.

GeorgeWBush.com

Deficits matter and are rarely welcome--but some are necessary to keep America strong. The federal budget returned to deficit primarily because of the effects of the recession that started in 2000, the shocks of September 11th, corporate scandals, and the need to fight the war on terrorism and defend the Homeland.

Tax relief did not cause the deficit. We would have had deficits even if there had not been tax relief in 2001. In fact, the 2001 tax relief was perfectly timed to help sustain the economy, making the recession one of history's shortest and shallowest.

The deficit today at 3 percent of GDP is manageable and modest by historical comparison. Long-term interest rates have dropped to 40 year lows and interest on the debt is very low.

The President's budget restrains wasteful spending, holding the overall increase in government spending to just 4 percent because the President believes the federal government should not grow any faster than the paychecks of American families.
http://www.georgewbush.com/News/Read.aspx?ID=1849

JohnKerry.com:

"In a blink of history's eye, trillions in budget surpluses have been transformed into trillions in deficits over the next decade," Kerry said. "From missions to Mars to tax cuts for the wealthy to a Medicare bill that benefits drug companies and burdens seniors, the Bush administration has failed to pay for what it has proposed."

To repair the damage done by George Bush's failed economic policies, Kerry today pledged to restore fiscal discipline in the White House with a budget based on three principles: middle-class tax cuts, restoring "pay-as-you-go" rules and restraining spending growth, and closing corporate tax loopholes to cut the deficit. . . .

In contrast to George Bush's $6 trillion spending spree, Kerry will return the federal government to the principle of paying for new initiatives without increasing the deficit. Known as "pay-as-you-go," these common-sense budget rules were instrumental in creating the economic growth of the 1990s but were quickly abandoned by the Bush administration. In addition to reintroducing "pay-as-you-go," Kerry will take steps to ensure discretionary spending - excluding defense and homeland security - does not grow any faster than inflation.

http://www.johnkerry.com/pressroom/releases/pr_2004_0407a.html

Democrats blame tax cuts for the deficit and Republicans blame the recession. Who's right? Actually, they both are in the technical sense that 1) tax cuts do reduce government's income and 2) recessions do reduce taxpayers' income and therefore, the amount of tax they pay. It is also true that in 1999 and 2000, the United States did have a budget surplus, and the stock market downturn and terrorist attacks did pull the nation into the recessionary phase of the business cycle. The resulting decline in national income meant less tax revenue was collected. Finally, in an effort to stimulate economic growth and to wage the war on terror, the government did raise spending and reduce tax rates.

Is It Worth It?

So, both sides can point to the facts: Combining lower tax revenue and higher government spending is the perfect recipe for a budget deficit. On closer examination, however, it's clear that each part of the recipe - falling revenue, and especially rising spending - has many different ingredients. The Washington Times article excerpted below gives a plain English breakdown of the spending items in our national budget.

. . . and spenders

Frustrated taxpayers dutifully completing their 1040s frequently ask themselves an understandable question: Where is all this money going? And they deserve an answer.

The federal government is projected to spend $21,671 per household in 2004 - the most since World War II and $3,500 more than in 2001. Tax revenues will reach $16,981 per household through a combination of the income tax, payroll tax, gas tax, estate tax and assorted business taxes typically passed on through higher prices and smaller investment returns. The remaining $4,690 represents the deficit per household, which will be dumped in the laps of our children.

Here is a breakdown of where that $21,671 goes:

  •  Social Security and Medicare: $7,165. The 15.3 percent payroll tax, split evenly between the employer and employee, covers most of these costs. Contrary to popular belief, individuals' contributions are not set aside for their own retirement, but used to fund the benefits of current retirees. Although there were once 15 workers per retiree, the retirement of the Baby Boomers will leave only two workers to fund the benefits of each retiree. By 2030, the added costs of that burden are projected to reach what, in today's economy, would be $5,200 per household. In 2050, that additional tax would climb to $13,500 per household. The unpredictable costs of the new Medicare drug benefit could add thousands more to each household's tax bill.
  • Defense: $4,240. The defense budget covers everything from military salaries, to operations in Iraq and Afghanistan, to the research, development and acquisition of new technologies. Lawmakers drastically cut defense spending throughout the 1990s. The September 11 attacks reversed this trend, and the $1,300 per household increase since 2001 has returned defense spending to its historical levels.
  • Low-income programs: $3,479. Nearly half of this spending subsidizes state Medicaid programs that provide health services to poor families. In line with economy wide health-care trends, Medicaid costs are rising 10 percent per year. Other low-income spending includes: Temporary Assistance for Needy Families (TANF), food stamps, housing subsidies, child-care subsidies, Supplemental Security Income (SSI), and low-income tax credits.
  • Interest on the federal debt: $1,460. Washington is $7 trillion in debt. It owes $4 trillion to the public that owns its bonds and the rest to other federal agencies. Record-low interest rates have reduced the interest payments by $1,000 per household over the last six years. As interest rates climb back to normal levels, so will these costs to taxpayers.
  • Federal employee retirement benefits: $835. This funds the retirement and disability benefits of federal employees, including the military. Interest from federal trust funds covers part of this spending.
  • Health research and regulation: $619. Health-research spending has doubled since 1998, and nearly all of that spending growth has been concentrated in the National Institute of Health. This category also includes the Food and Drug Administration and dozens of grant programs for health providers.
  • Education: $583. Primarily a state and local function, 8 percent of education spending comes from Washington. Federal education spending has surged 76 percent since the 2001 enactment of the No Child Left Behind Act. Most federal dollars go to low-income school districts, special education, and college student financial aid.
  • Veterans benefits: $565. The federal government provides income and health benefits to veterans. Spending is up 34 percent since 2001.
  • Unemployment benefits: $451. Unemployment costs fluctuate based on the number of unemployed Americans. Recent costs have ranged between $220 per household in 2000 (when unemployment was low) and $526 per household in 2003 (when unemployment was higher). This year, unemployment costs are decreasing as job growth continues.
  • Highways and mass transit: $400. Most highway and mass transit spending is financed by the 18.4 cent per-gallon federal gas tax. Per-household costs have increased from $254 in 1998 to $400 this year, and the current highway reauthorization bill in Congress would boost them substantially.
  • Justice administration: $389. Justice spending includes federal attorneys and prisons, as well as law enforcement grant programs. New homeland security costs have added $100 per household to justice spending.
  • International affairs: $320. This includes foreign economic and military assistance, operation of U.S. Embassies abroad, and contributions to organizations such as the United Nations. International spending has doubled since the terrorist attacks of September 11, 2001.

The programs listed above cover $20,506 per household. The remaining $1,165 is allocated to all other federal programs, including farm subsidies, environmental programs, space exploration, air transportation and community development.

Taxpayers themselves will have to answer a final question: Are they getting their money's worth?

Brian Riedl, "Commentary," The Washington Times, April 14, 2004
http://www.washingtontimes.com/commentary/20040413-090258-4884r.htm

We All Have to Decide

Even if you could point to particular items on the list and say, "Aha! That's it; that's where we spent too much money and ended up with a deficit !", there is certainly no chance that everyone would agree with you. Ultimately, all the campaign rhetoric boils down to Democrats and Republicans disagreeing on what the federal government's spending priorities should be.

As the campaign heats up, you'll be ready. Armed with your new understanding from your crash course in Deficits 101, you'll be able to analyze November's election as a referendum on that list of spending priorities.

What do you think? Is the current deficit worth it? Complete discussion exercises #4-6 below to have your say on the issue.

 

Small Group Discussion Exercises

1. How can we arrive at an objective answer to the question, "How big is the deficit?" Whenever we say something is "big," we are making an implicit comparison to something else. When we talk about heights or weights, the comparison is relatively straightforward and intuitive. We measure height in inches - and conveniently an inch is an inch is an inch, but we measure the deficit in dollars, and comparing one deficit to another is problematic because the value of the dollar changes over time. To compensate for this variation, we can measure the deficit as a percent of income.

For example, suppose that in a given year, Mary spends $10,000 more than she earns and John spends $5000 more than he earns. Who has the bigger "deficit"? Hard to tell, isn't it? In order to make a meaningful comparison, we need to know how much they make.

  • If Mary makes $200,000 a year, her "deficit" is 5% of her income.
  • If John makes $50,000 a year, his "deficit" is 10% of his income.

Now, suppose that in the following year, John's overspends his income by $6,000. Is his "deficit" bigger than last year's deficit? It depends, doesn't it?

  • If John's income remains at $50,000, his deficit in the second year is 12% of his income.
  • But, if John's income rises to $75,000 (for whatever reason), his deficit falls to 8% of his income. (Although, if he didn't pay back last year's deficit, his debt is now $11,000 !)

We can use the same reasoning that we used with John's and Mary's finances to get an objective picture of our government's finances. Use the 2003 data and the formulas below to figure out how big the deficit is as a percentage of national income.

  • U.S. total income (GDP) = $10983.90 billion.
  • U.S. deficit = $394.77 billion

Deficit =
Tax Revenue - Government Spending =
-$394.77 billion

(Notice that since a deficit only occurs when spending exceeds revenue; the deficit is a negative number. Therefore, the Def% is also noted as negative.)

Deficit ÷ GDP = Def%
-$394.77 ÷ 109832.90 = -____%

What % of U.S. total income is the 2003 deficit? _______%

2. How does the deficit percentage compare to earlier periods in U.S. history? Fill in the last column of Table 1.

Table 1 - Data for the United States

Year Deficit Surplus GDP Def %
1970 11.38   1038.50 -
1980 68.79   2789.50 -
1990 236.03   5803.10 -
1995 146.17   7397.70 -
1996 110.79   7816.90 -
1997 2.44   8304.30 -
1998   54.39 8747.00 NA
1999   156.66 9268.40 NA
2000   254.62 9817.00 NA
2001   92.43 10100.80 NA
2002 230.52   10480.80 -
2003 394.77   10983.90 -

U.S. Deficits and GDP in nominal terms (billions).
Def% is ratio of Deficit to GDP

The 2003 deficit is the largest in terms of sheer numbers, but not relative to the size of our economy, or relative to past deficits.

3. Another way to objectively evaluate the size of the U.S. debt and deficit is to compare it to other times and other places. Based on the data in Table 2, how do U.S. deficits compare to those of other developed countries?

Table 2 - Sample Comparisons to Other Countries

Year French Def% Italian Def% Canadian Def% German Def%
1960   -1.65%    
1970   -4.82%    
1980   -9.55%    
1990 -1.60% -10.50% -4.73% -2.10%
1991 -2.10%   -5.60% -3.10%
1992 -3.90%   -6.09% -2.60%
1993 -5.80%   -5.81% -3.20%
1994 -5.80%   -4.76% -2.40%
1995 -4.90% -6.86% -3.61% -3.30%
1996 -4.20% -7.15% -1.86% -3.40%
1997 -3.00% -1.56% 0.60% -2.70%
1998 -2.70% -2.31% 0.34% -2.20%
1999 -1.60%   0.93% -1.60%
2000 -1.30%   1.24% 1.20%
2001 -1.40%   1.30% -2.70%

Def% is ratio of Deficit to GDP

4. An economist will say that something is "worth it" if the benefit is greater than the opportunity cost. For example, the benefits of deficit-producing policies (lower taxes and increased spending) may be higher personal consumption, greater economic opportunity and increased national security, or increased employment and reduced poverty. On the other hand, there is a cost. Ultimately, the debt must be paid. And whether it is paid now or in the future, financing the debt means less money is available to spend on other things. Facing the opportunity cost means accepting the need for future tradeoffs.

What do you think? Are the items listed in the Washington Post article worthwhile additions to our national burden of debt?

5. Uncomfortable Question: Discuss the following quote from the WinterSpeak.com blog:

"I don't want to hear anyone complaining about the deficit unless they immediately begin to list ways of taking things away from old people and making them work harder and longer. Otherwise you aren't really bothered by the deficit at all."

Zimran Derkesen Ahmed, WinterSpeak.com http://www.winterspeak.com/108110213654890092

6. (Optional addition) Visit http://www.budgetsim.org/nbs/longbudget04.html and balance the budget yourself.

 

Teacher Guide

Note: In keeping with the "Keep It Simple" philosophy that cautions against the dangers of trying to pack too much into a single lesson, we'd like to emphasize that this Hot Topic is intended only to address the size and composition of the deficit. While the national debt certainly has economic implications - implications important enough to capture the attention of Fed Chairman Alan Greenspan - it has gone largely unmentioned in the campaign. The hot campaign topic, as evidenced by the candidates' websites, ads, and speeches, is the deficit.

This lesson is intended to give students an objective and useful way to answer the question: "How big is the deficit?" and thus to begin a discussion of national fiscal policy priorities. Teachers are encouraged to develop separate mini-courses - perhaps "Deficits 201", "301", and "401" - to delve into questions about the impact of deficits and the national debt that are not addressed here.

1. What % of U.S. total income is the 2003 deficit? -3.59 %

2.

Year Deficit Surplus GDP Def %
1970 11.38   1038.50 -1.10%
1980 68.79   2789.50 -2.47%
1990 236.03   5803.10 -4.07%
1995 146.17   7397.70 -1.98%
1996 110.79   7816.90 -1.42%
1997 2.44   8304.30 -0.03%
1998   54.39 8747.00  
1999   156.66 9268.40  
2000   254.62 9817.00  
2001   92.43 10100.80  
2002 230.52   10480.80

-2.20%

2003 394.77   10983.90

-3.59%

3. U.S. deficits, as a percent of income, are similar to those of the other countries shown.
4. Student answers will vary. Help students to realize that rhetoric that targets the size of the deficit may actually mask a greater concern for the composition of spending that resulted in the deficit than with the actual existence or size of the deficit..
5. Student responses will vary. Help them to focus the discussion on the tradeoffs implied in policies that result in deficits or surpluses.

Sources:

"Deficit to be largest ever, CBO predicts," USA Today (Online edition), May 12, 2003
http://www.usatoday.com/news/washington/2003-05-12-deficit_x.htm

International Monetary Fund - International Financial Statistics Database.
(A free trial account for this database is available at http://ifs.apdi.net/imf/logon.aspx )

The Public Debt Online. Website of The Bureau of the Public Debt, U.S. Treasury Department.
http://www.publicdebt.treas.gov/opd/opd.htm

Riedl, Brian, "…and spenders," The Washington Times, Commentary, April 14, 2004
http://www.washingtontimes.com/commentary/20040413-090258-4884r.htm

Statistics. The Bank of Japan
http://www.boj.or.jp/en/stat/stat_f.htm