Some are confused about what occurred in the late 90s regarding the budgetary surplus and the national debt. Some have argued that there was no surplus because national debt rose in the final years of the Clinton Presidency.
As has been demonstrated, this characterization is incorrect. The budget balance is the difference between government revenues and spending, nothing more. It does not include changes in the national debt.
Thus, the question is why did the national debt rise even though there was a surplus? And the next question is it a bad thing? The answers may surprise some people.
Why did the national debt rise when there was a surplus?
Counter-intuitively, the reason why the national debt rose was because the economy was doing well. When the economy is doing better than expected, payroll taxes flowing into the SS trust funds are greater than expected. The SS trust funds can only "buy" special issuance nonmarketable government bonds. Thus, when payroll tax revenues are greater than expected, issuance of these special issuance government bonds rises and the national debt rises. Likewise, when the economy is doing poorly, payroll tax inflows are less than expected. The amount of funds in the SS trusts is lower, the SS trusts buy fewer special-issue government bonds and the national debt is less than expected.
Understand, though, that this is merely an accounting function. It affects assets and liabilities of the government and trust fund recipients. It does not affect cash flows, and thus does not affect the budgetary balance.
So was rise in the national debt a bad thing?
It is true that in the last half of the 1990s, total government debt rose. But did it negatively affect the balance sheet of the United States government? In other words, was the rise in the national debt during the last 1990s a bad thing?
To help us understand this question, it is best to use an example.
Let us say that in the first year, the government has total debt of $1,000, including $100 of debt in the social security trust. This is the breakdown of the governmentÂ’s debt.
Total government debt, year 1
Social security debt -$100
All other government debt -$900
Total government debt -$1,000
Now, letÂ’s say that in the second year, the government runs a $20 surplus and payroll taxes are $30 all of which go into the SS trusts. Payroll taxes are used to buy government debt in the SS trusts and the surplus is used to pay down other government debt. There is no change in any other debt. The breakdown of the governmentÂ’s total debt is as follows.
Total government debt, year 2
Social security debt -$130
All other government debt -$880
Total government debt -$1,100
The debt has gone up even though the government has run a surplus.
This is bad, right?
In this case, no.
Why?
Because we are only looking at one side of the balance sheet.
What the critics fail to recognize is that they are looking only at gross debt.
What matters is not gross debt but net debt, which is total debt less total assets.
Critics who decry the governmentÂ’s total national debt rising in the last years under Clinton are only looking at total debt, not net debt. This is intellectually flawed. An analogy would be to look only at mortgage debt when assessing an individual's financial health without looking at the value of the house. According to the critics, if you take out a $200,000 mortgage, thatÂ’s bad. But it is not bad if the value of your house is $300,000.
It works the same way for the social security trusts. This is what the critics omit.
If you earn $100 and you buy a government bond for $100, your assets now include a government bonds worth $100. The SS trusts do the same thing. Money comes in and they buy bonds from the government.
LetÂ’s look at our example again. LetÂ’s say that in the first year, the government has assets worth $400. The SS trusts are government agencies, and government debt in the SS trust funds is an asset of the SS trust fund. Since the government has $100 in debt outstanding issued to the SS trusts, the SS trusts now have assets worth $100. Thus, the balance sheet of the government looks like this.
Government debt issued to the SS trusts is an asset of the SS trusts. The SS trusts are essentially buying government bonds. If you buy a government bond for $100, you now own a government bond. The SS trusts effectively do the same thing
Total government debt, year 1
Social security debt -$100
All other government debt -$900
Total government debt -$1,000
Total government assets, year 1
Debt issued by the government to the SS trusts $100
All other government assets $300
Total government assets $400
Net government debt, year 1 -$600
Net debt is total debt less total assets. In this case $1,000 in government debt less $400 in government assets means the governmentÂ’s net debt is -$600.
It is no different than you owning your house. If you own your house, your balance sheet looks like this.
House $300,000
Less: Mortgage -$200,000
Net equity $100,000
We do the same thing for the government.
What matters is not gross debt but net debt.
Now, letÂ’s look at the example above in year 2, where the government runs a $20 surplus with $30 in payroll taxes, which go directly into buying government debt in the SS trusts. The balance sheet of the government would look like this.
Total government debt, year 2
Social security debt -$130
All other government debt -$880
Total government debt -$1,100
Total government assets, year 2
Debt issued by the government to the SS trusts $130
All other government assets $300
Total government assets $430
Net government debt, year 2 -$580
As you can see, even though total debt rises, because there is a budgetary surplus, net debt declines when there is a surplus because the value of assets rises.
When one is assessing the fiscal health of the government, one must look at net debt, not total debt. This is what the conservative critics fail to understand.