Reaching The Debt Limit Background And Potential Effects On Government Operations

Treasury has yet to face a situation in which it was unable to pay its obligations as a result of reaching the debt limit. In the past, the debt limit has always been raised before the debt reached the limit. However, on several occasions Treasury took extraordinary actions to avoid reaching the limit and, as a result, affected the operations of certain programs. If the Secretary of the Treasury determines that the issuance of obligations of the United States may not be made without exceeding the public debt limit, Treasury can make use of 'extraordinary measures.' If financing options are exhausted and Treasury is no longer able to pay the bills, serious financial and economic implications could result that could have a lasting impact on federal programs and the U.S.'s ability to borrow in the future. According to Treasury, if the debt limit is not raised after that point, payment of other obligations and benefits would be discontinued, limited, or adversely affected. It is extremely difficult for Congress to effectively influence short-term fiscal and budgetary policy through action on legislation adjusting the debt limit. The need to raise (or lower) the limit during a session of Congress is driven by previous decisions regarding revenues and spending stemming from legislation enacted earlier in the session or in prior years. Nevertheless, the consideration of debt-limit legislation often is viewed as an opportunity to reexamine fiscal and budgetary policy. Consequently, House and Senate action on legislation adjusting the debt limit often is complicated, hindered by policy disagreements, and subject to delay.

This report examines the possibility of the federal government reaching its statutory debt limit and not raising it, with a particular focus on government operations. First, the report explains the nature of the federal government's debt, the processes associated with federal borrowing, and historical events that may influence prospective actions. It also includes an analysis of what could happen if the federal government may no longer issue debt, has exhausted alternative sources of cash, and, therefore, depends on incoming receipts or other sources of funds to provide any cash needed to liquidate federal obligations.2 Finally, this report lays out considerations for increasing the debt limit under current policy and what impact fiscal policy could have on the debt limit going forward.

The gross federal debt, which represents the federal government's total outstanding debt, consists of (1) debt held by the public and (2) debt held in government accounts, also known as intragovernmental debt. Federal government borrowing increases for two primary reasons: (1) budget deficits and (2) investments of any federal government account surpluses in Treasury securities, as required by law. Nearly all of this debt is subject to the statutory limit. The federal government's statutory debt limit is currently suspended through February 7, 2014.

This book examines the possibility of the federal government reaching its statutory debt limit and not raising it, with a particular focus on government operations. The nature of the federal government's debt is explained, as are the processes associated with federal borrowing, and historical events that may influence prospective actions. This book also includes an analysis of what could happen if the federal government may no longer issue debt, has exhausted alternative sources of cash, and, therefore, depends on incoming receipts or other sources of funds to provide any cash needed to liquidate federal obligations.

Contents: (1) Introduction: The Debt Limit and the Treasury; Why Have a Debt Limit?; (2) A Brief History of the Federal Debt Limit: Origins of the Federal Debt Limit; World War II and After; (3) The Debt Ceiling in the Last Decade: The Debt Limit Issue in 2002: Resolving the Debt Limit Issue in 2002; The Debt Limit Issue in 2003; The Debt Limit Issue in 2004; The Debt Limit Issue in 2005, 2006, and 2007; The Economic Slowdown and Federal Debt; Fiscal Policy Considerations; Raising the Debt Ceiling in 2008 and 2009; Revised Deficit Estimates; (4) Concluding Comments; (5) Further Reading. Charts and tables.