Borrowing and the Federal Debt

Federal Budget 101

If federal revenues and government spending are equal in a given fiscal year, then the government has a balanced budget. If revenues are greater than spending, the result is a surplus. But if government spending is greater than tax collections, the result is a deficit. The federal government then must borrow money to fund its deficit spending.

The federal debt – also referred to as the national debt – is the sum of all past deficits, minus the amount the federal government has since repaid. Every year in which the government runs a deficit, the money it borrows is added to the federal debt. If the government runs a surplus, it uses the extra money to pay down some of its debt.

Why Does the Federal Government Borrow?

The size of a budget deficit in any given year is determined by two factors: the amount of money the government spends that year and the amount of revenues the government collects in taxes. Both of these factors are affected by the state of the economy as well as by the tax and spending policies made each year in the federal budget process.

For example, during tough economic times like the Great Recession, government spending automatically increases because there is an upsurge in the number of people eligible for need-based programs like food stamps and unemployment benefits. At the same time, tax revenues tend to decrease because fewer people are employed and therefore pay less in taxes. Corporations also earn less profit, and they too pay less in taxes. What’s more, lawmakers may intentionally increase government spending during a recession in order to stimulate the economy, even though they know that the result will be a deficit. This line chart shows the size of the deficit or surplus in each fiscal year over much of the last century.

Annual Budget Deficits and Surpluses (as percentage of GDP)

How Does the Federal Government Borrow?

To finance the debt, the U.S. Treasury sells bonds and other types of securities.1 (Securities is a term for a variety of financial assets.) Anyone can buy a bond or other Treasury security directly from the Treasury through its website, treasurydirect.gov, or from banks or brokers. When a person buys a Treasury bond, she effectively loans money to the federal government in exchange for repayment with interest at a later date.

Most Treasury bonds give the investor – the person who buys the bond – a pre-determined fixed interest rate. Generally, if you buy a bond, the price you pay is less than what the bond is worth. That means you hold onto the bond until it matures; a bond is mature on the date at which it is worth its face value. For example, you may buy a $100 bond today and pay only $90. Then you hold it for five years, at which time it is worth $100. You also can sell the bond before it matures.

There are actually many different kinds of Treasury bonds, but the common thread between them is that they represent a loan to the Treasury, and therefore to the U.S. government. As citizens of a democracy, Americans collectively own the federal government, thus a big portion of the federal debt – the portion that was leant to the government by regular Americans – is actually money that we owe to ourselves!

If the Federal Government Has Lots of Debt, Who Does It Owe Money To?

The federal debt is the sum of the debt held by the public – that’s the money borrowed from regular people like you and from foreign countries – plus the debt held by federal accounts. Debt held by federal accounts is the amount of money that the Treasury has borrowed from itself. That may sound funny, but recall from above that trust funds are federal tax revenues that can only be used for certain programs. When trust fund accounts run a surplus, the Treasury takes the surplus and uses it to pay for other kinds of federal spending. But that means the Treasury must pay that borrowed money back to the trust fund at a later date. That borrowed money is called “debt held by federal accounts;” that’s the money the Treasury effectively lends to itself. One-third of the federal debt is debt held by federal accounts, while two-thirds of the federal debt is held by the public.2

Debt Held by the Public

Debt held by the public is the total amount the government owes to all of its creditors in the general public. That includes American citizens, banks and financial institutions as well as people in foreign countries, foreign institutions and foreign governments.

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As you can see in the pie chart below, nearly half of debt held by the public is held internationally by foreign investors and central banks of other countries who buy our Treasury bonds as investments. These countries include China, which holds the most ($1.3 trillion), followed by Japan ($1.2 trillion), Belgium ($310 billion), and Caribbean countries ($293 billion), among others.3

The next largest portion is held by domestic investors, which includes regular Americans as well as institutions like private banks. (A bank may invest some of its own assets in Treasury bonds.)

The U.S. Federal Reserve Bank and state and local governments also hold substantial shares of federal debt held by the public. (The Federal Reserve's share of the federal debt is not counted as debt held by federal accounts, because the Federal Reserve is considered independent of the federal government. The Federal Reserve buys and sells Treasury bonds as part of its work to control the money supply and set interest rates in the U.S. economy.)

Who Does the US Government Owe Money To

The Debt Ceiling

The debt ceiling is the legal limit set by Congress on the total amount that the U.S. Treasury can borrow. If the level of federal debt hits the debt ceiling, the government cannot legally borrow additional funds until Congress raising the debt ceiling.

Congress has the legal authority to raise the debt ceiling as needed. Doing so does not authorize new spending, but rather allows the Treasury to pay the bills for spending that has already been authorized by Congress.

Why Is There a Debt Ceiling?

The debt ceiling evolved from restrictions that Congress placed on federal debt nearly from the founding of the country. Legislation that laid the groundwork for the current debt ceiling was passed in 1917, and the first overall debt ceiling was passed in 1939. Since then, the debt ceiling has been raised more than 100 times, including more than a dozen times since 2000.

Raising The Debt Ceiling

In many years, the decision by Congress to raise the debt ceiling has not been controversial. Since 2011, however, due to political partisanship as well as debates about the size of the federal budget and deficit spending, the debt ceiling has become a highly contentious issue. Some members of Congress have pledged to allow the federal government to default on its debt payments rather than raise the debt ceiling.

Why Do Some People Worry About Budget Deficits and the Federal Debt?

There is an ongoing debate as to whether the government should limit its ability to borrow. Some consider deficit spending to be a hindrance to the government and the economy, arguing that a deficit only shifts the burden to future generations because it must be paid for eventually, just like any other loan.

Others see deficits as a crucial way for the government to stimulate the economy during an economic downturn. Proponents of this view believe that the role of government is not only to provide services that the private sector won’t, but also to stimulate the economy during economic crises. They argue that deficits are necessary in times of economic hardship, but that during economic booms, budget surpluses should be used to pay down the debt.


Endnotes

  1. U.S. Department of Treasury, “Monthly Statement of the Public Debt of the United States,” 30 June 2013. 14 April 2013 <http://www.treasurydirect.gov/govt/reports/pd/mspd/2013/opds062013.pdf>
  2. U. S. Department of the Treasury, “Ownership of Treasury Securities,” Table OFS-2. 14 April 2014 <http://www.fms.treas.gov/bulletin/index.html>
  3. U.S. Department of Treasury, “Major Foreign Holders of Treasury Securities.” January 2014 <http://www.treasury.gov/resource-center/data-chart-center/tic/Documents/mfh.txt>