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Economic Review FEDERAL RESERVE BANK OF ATLANTA MAY 1986 JOB GROWTH Tracing Employmen^^ains m u w o f p m l a d e u w a SPENDING CUTS Balancing the Budget DEFICITS Is Accommodation Inevitable? President Robert P. Forrestal Sr. Vice President and Director of Research Sheila L Tschinkel Vice President and Associate Director of Research B. Frank King Financial Institutions a n d Payments David D. Whitehead, R e s e a r c h Officer Larry D. W a l l Robert E Goudreau Macropolicy Robert E Keleher, R e s e a r c h Officer Thomas J. Cunningham Mary S. R o s e n b a u m Jeffrey A R o s e n s w e i g J o s e p h A. Whitt, Jr. Pamela V. Whigham Regional Economics G e n e D. Sullivan, R e s e a r c h Officer Charlie Carter William J . Kahley J o e l R. Parker W. G e n e Wilson Publications and Information D e p a r t m e n t Bobbie H. McCrackin Public I n f o r m a t i o n D u a n e Kline, Director Linda Donaldson Editorial Harriette Grissom, Publications Coordinator Melinda Dingler Mitchell Ann L P e g g Graphics Eddie W. Lee, Jr. Typesetting, W o r d Processing Cheryl B Birthrong Beverly Newton Belinda W o m b l e Distribution George Briggs Vivian Wilkins Ellen Gerber The Economic Review seeks to inform the public about Federal Reserve policies and the economic environment and, in particular, to narrow the gap between specialists and concerned laymen Views expressed in the Economic Review are not necessarily those of this Bank or the Federal Reserve System Material may be reprinted or abstracted if the Review and author are credited. Please provide the Bank's Research Department with a copy of any publication containing reprinted material. Free subscriptions and additional copies are available from the Information Center, Federal Reserve Bank of Atlanta, 104 Marietta Street, N.W., Atlanta, Ga 303032713 (404/521-8788). Also contact the Information Center to receive Southeastern Economic Insight a free newsletter on economic trends published by the Atlanta Fed twice a month. The Review is indexed online in the following data-bases: ABI/lnform, Magazine Index Management Contents, PAIS, and the Predicasts group ISSN 0732-1813 2 VOLUME LXXI, N O . 5, MAY 1986, E C O N O M I C REVIEW Whaf s Behind Patterns of State Job Growth? William J. Kahley Lower wages, inexpensive energy, and market size help to determine where both foreign and domestic firms will put people to work, according to this statistical study. Projecting Federal Deficits and the Impact of the Gramm-Rudman-Hollings Budget Cuts I i .J Thomas J. Cunningham and Rosemary Thomas Cunningham The authors explain how the spending cuts mandated by this legislation work to achieve a balanced budget by the required 1991. 19 The Long-Run Outcome of the Permanent Deficit Thomas J. Cunningham By examining debt-to-income ratios over the long term, the author shows that monetary accommodation may not be an inevitable outcome of government deficits—even large ones. 25 Statistical Summary Finance, Construction, General, Employment 35 FEDERAL RESERVE BANK OF ATLANTA 3 What's Behind Patterns of State Job Growth? Which state characteristics contribute to employment gains? This analysis suggests that both foreign and domestic firms are influenced by basic business considerations such as labor and energy costs William J. Kahley The quickening movement of jobs and people in recent decades from the northeastern and north-central Frostbelt of the United States to warmer southern and western locations has stirred widespread debate over the causes and consequences of the shifts. Observers generally agree that locational disparities in costs and benefits account for differences in regional growth rates; they see the Sunbelt phenomenon as the result of several primary forces and many contributing ones that favor the South. The The author is a regional economist for the Atlanta Research Department Brent Croce, a Research ment intern, provided valuable research assistance. 4 Fed's Depart- precise way these forces are linked and the impact of the various determinants remains uncertain, though, because of several conceptual and practical difficulties in disentangling their separate effects. Understanding these determinants and how they influence a family's or firm's choice about location is important in two ways: first, as a theoretical investigation, it contributes to our knowledge about economic decisionmaking; and second, at a more practical level, this understanding can inform economic development planning. Gaining further insight into what lures people and business can help communities take action to enhance their attractiveness. Recently, media and scholarly attention has turned to the issue of why foreign investors MAY 1986, E C O N O M I C REVIEW have favored certain U.S. locations over others. The South and West appear to have been particularly successful at enticing domestic and foreign capital, according to available data, although some evidence suggests that the Northeast has been staging a relatively strong rebound in this period of economic expansion. It may not be obvious why a state or area would want to attract foreign investment and analysts concerned with the impact of this type of investment have debated its desirability.1 This article will not argue that point but simply assume foreign direct investment (FDI) benefits a local economy because it helps to create jobs. Explaining a foreign investor's choice appears even more difficult than explaining shifts within the United States, perhaps because the often subjective decisionmaking process involves assigning weights to influences that vary in importance with the investor's nationality, corporate culture, experience, and concerns. Moreover, some evidence suggests that site selection criteria and foreigners' investment strategies can shift dramatically over time. David McClain has even argued that, "the multinational character of firms can emerge from many different sets of circumstances that may have little else in common," so that "approaching an analysis FEDERAL RESERVE BANK OF ATLANTA of their behavior by exercises in pure theory or econometrics may not be a promising research strategy."2 Theoretical complexities and measurement difficulties notwithstanding, this article will present an analysis of the differences in factors that determine both overall and foreign affiliate employment shifts. The results of our analysis suggest that basic business considerations, such as the varying costs of producing goods and moving them to markets, as well as business environment and lifestyle conditions, explain significant variations in job growth from state to state due to foreign and domestic investment activity. Moreover, theoretical economic arguments appear to explain foreign investors' decisionmaking better than they explain internal job shifts. This rather interesting result will be discussed in some detail later in this article. Theoretical Model Industrial location theory traditionally has been concerned with the optimal siting of a plant, often with respect to transportation considerations, based on regional differences in potential profitability. Profit potential is determined by variations in supply and demand factors among regions. Costs of production, 5 based on supplies of labor, capital, land, and other materials, can vary from place to place due to differences in the relative endowments of these resources. These price differences mean that production costs and hence profitability will diverge among regions. Japanese and domestic auto makers, for example, are said to have located in Tennessee largely because of the relatively lower labor and transportation costs. The latter are attributable to In a dynamic economy, revenues and costs change as resources are discovered or depletedI as new technologies are introduced or as consumers' preferences develop. These regional shifts over time can be viewed as the cumulative result of decisions by producers to expand or contract local area production in response to existing or emerging differences in profitability. A major historical shift in the post-World War II period benefited the southeastern states through the "migration" of textile and apparel firms to the region from New England. This movement was sparked mainly by the lower cost and abundant supply of labor in the Southeast Relative rates of employment growth among states or regions, then, can be traced to the producers' response to both existing differences and changes in comparative advantage.4 Varying wage rates across regions, for example, would constitute an existing disparity in profitability among areas, while unequal changes in wage rates would cause comparative advantage to shift In either instance, a firm might be motivated to choose a new location.5 The Shift-Share Technique the state's central location vis-a-vis parts suppliers and the availability of favorable interstate highway arteries. The location of foreign chemical manufacturers in Louisiana where abundant energy supplies and excellent port facilities create a lower cost environment for these producers, represents comparative regional advantage due to supply conditions. Revenue projections, which reflect demand, will also differ among areas depending on the size of the potential local market W h e n these projections are combined with estimates of local production costs, a projection of profitability results. Realistically, however, firms first survey markets broadly across regions or states and then select a specific site that will maximize profits. The research reported here, however, does not deal with specific decisions about plant sites but with how location choices by broadly defined industries affect state employment 3 The analysis and results should, however, be consistent with individual firm or plant locations. In a dynamic economy, revenues and costs change as resources are discovered or depleted, as new technologies are introduced or as consumers' preferences develop. Within a country, these revenue and cost changes will cause the regional location of economic activity to shift 6 The shift-share technique, originated by Daniel Creamer (1942), is used to isolate and identify precisely the sources of local employment change vis-a-vis relative changes nationally (see Box). For each area shift-share separates actual employment change over a period of time into three components, measuring how each affects overall local employment fluctuation. The first factor is the reference area component which measures local employment change that would have occurred had the local area gained its proportionate share of overall national economic growth. The second factor, the industrial mix component considers a local area's distribution of fast- or slow-growing industries relative to the national industrial growth mixture. The remaining element called the local share effect accounts for changes in a locality's competitive position in a particular industry. A positive number for the local share effect means an area's comparative advantage in that industry has improved in relation to other areas. If Florida's services sector employment growth, for instance, exceeds that of the nation as a whole for a given period, then Florida will have a positive local share effect for that period, because it has improved compared with other regions in providing employment in that sector. In this instance, the above-average MAY 1986, E C O N O M I C REVIEW growth may be the result of a favorable weather climate that attracts retirees and tourists who spend large fractions of their incomes on services. Box Mathematical Statement of Shift-Share Components Following John R. Gordon and others (1980), the shift-share components can be stated mathematically for industry i in region j as follows: where, E = employment R = reference area effect M = industrial mix effect L = local share effect E t = total employment in the reference area (such as the United States as a whole) during the terminal period, E q 0 = total employment in the reference area during the base period, Ejj = employment in industry i in area j (such as a particular state) during the terminal period, Em = employment in industry i in area j during the base period, e| q = employment in industry i in the reference area during the terminal period, and e£> = employment in industry i in the reference area during the base period (1) A Ejj = (Ejj - eJj) = R + M + L A cr t ' o o . Eb ^oo (2) R = l (3) M E oo ^ j " /V Eb\ S o -CIO E io V ( E y LE-b\ LU -0:=r (4) L = Ì FEDERAL RESERVE BANK OF ATLANTA f cF* 00 V f V E Et b V - cE00 °° . Eb E io y V ) Application of the Analysis Using the general shift-share framework to explain specific divergence in state employ ment due to comparative advantage factors requires two empirical procedures. First shiftshare analysis measures the components of the total change in state employment described above. The positive or negative amount of employment that is due to a state's comparative advantage position (that is, the amount of U see Mathematical Statement of Shift-Share Components) is calculated at this stage of the analysis. The question is what determines employment change due to comparative advantage? This employment figure, the amount of L is used as the dependent variable in a regression model that includes comparative advantage factors as independent variables expected to explain the employment change.6 The dependent variables in this study refer to (1) manufacturing, non manufacturing, and total employment change in multi-establishment foreign-owned firms between 1975 and 1982, and (2) manufacturing, non manufacturing, and total employment change in all U.S. establishments in those same years.7 The years 1975 and 1982 were chosen because they represent comparable positions in the business cycle, and 1982 is the most recent year for which relevant data are available. Table 1 shows the original employment data and calculated local share effects. States are ranked in the table according to how much comparative advantage contributed to employment growth between 1975 and 1982. Table 1 and the accompanying maps confirm the accuracy of media news headlines that for years have trumpeted the shift of job and population growth toward the Sunbelt and away from Frostbelt states. Even a cursory glance at the table shows the relative gains to warm-weather southern and western states and losses to colder states, particularly in the industrial heartland. This shift is reflected in employment growth attributed to both foreign-owned and U.S. firms. A close statistical association or movement between the two 7 Table 1 Comparative Advantage Employment Part 1. Total Establishment (Domestic and Affiliate) Employment (Thousands) Local S h a r e Effect Total, Manufacturing, and Nonmanufacturing 1975 State Texas California Florida Louisiana Colorado Oklahoma Arizona Georgia Washington Nevada Virginia N e w Hampshire Wyoming New Mexico South Carolina Utah Mississippi North Dakota Vermont Alaska North Carolina Kansas Idaho Hawaii Minnesota Oregon Arkansas Montana Maine Maryland Alabama Delaware South Dakota R hod e Island Connecticut Nebraska Tennessee W e s t Virginia Kentucky Wisconsin Missouri Massachusetts New Jersey Iowa Indiana Michigan Ohio Pennsylvania Illinois New York Total 1161.8 695.1 505.0 210.3 209.5 204.5 182.2 165.1 150.3 105.7 71.6 58.7 53.5 47.1 46.9 36.7 19.6 18.9 15.6 14.3 14.1 4.6 3.2 2.4 0.6 0.2 0.0 -5.8 -7.9 -9.9 -10.9 -11.0 -12.6 -13.7 -17.0 -42.2 -42.6 -48.8 -62.2 -74.0 -95.9 -97.7 -106.1 -122.1 -227.6 -427.0 -554.1 -589.0 -594.4 -824.9 United States — MFG 263.7 286.5 119.3 19.0 45.5 34.9 52.3 60.6 36.3 6.7 18.9 26.3 1.1 5.2 30.7 15.4 3.8 -1.4 7.6 1.7 25.3 5.4 -0.6 -2.4 20.5 -0.5 18.4 -3.3 9.0 -30.3 15.5 -1.0 5.0 4.2 4.1 -0.7 5.2 -26.8 -16.4 -25.6 -0.5 20.3 -53.1 -35.3 -78.2 -101.3 -203.1 -212.4 -250.4 -124.8 858.3 364.4 332.5 174.8 149.8 160.0 118.1 105.7 106.8 91.4 43.9 34.9 48.4 32.7 30.6 15.4 20.9 15.6 8.2 8.3 27.1 -4.9 1.1 -4.4 -25.3 -2.8 -14.8 -7.9 -15.4 4.2 -20.4 -8.1 -22.2 -13.8 -4.2 -48.5 -33.5 -23.8 -45.0 -31.2 -97.7 -110.8 -36.1 -87.3 -120.4 -293.2 -302.6 -330.8 -315.9 -732.2 — S o u r c e : B u r e a u of the Census, County 8 NONMFG — Business Patterns, 1982 Total MFG NONMFG Total MFG NONMFG 4367.8 7748.0 2797.3 1198.3 932.3 875.6 723.6 1705.8 1197.4 252.0 1726.2 790.3 1570.3 329.5 161.5 6332.4 9867.2 3816.4 1105.0 1958.2 470.1 212.2 186.0 192.3 156.4 503.5 292.0 19.4 398.1 113.7 8.8 33.6 369.4 87.2 206.3 14.9 49.2 9.2 5227.4 7909.0 3346.3 1416.6 1127.2 1048.7 882.4 1680.9 1275.8 384.6 1717.0 273.3 204.4 437.3 798.9 470.4 591.5 229.9 152.1 6777.0 19.0 106.7 396.9 85.5 443.0 121.5 251.2 499.3 389.5 590.8 743.0 230.1 638.5 940.8 1254.6 1336.6 1229.0 1415.7 3577.5 6177.7 2467.8 1016.8 800.3 727.7 625.8 1289.8 957.2 240.1 1370.0 195.2 127.7 331.3 629.1 372.6 467.2 175.5 117.8 136.1 1253.9 622.6 213.1 316.3 1125.3 637.3 439.5 209.1 251.7 1174.7 813.9 159.4 183.0 231.6 814.6 459.8 1027.2 436.6 776.7 1131.9 1304.5 1698.8 1912.3 742.9 1259.6 2126.9 2701.5 3029.3 3163.2 5361.3 75410.3 18026.6 57381.7 277.3 134.9 358.0 947.3 440.0 657.4 190.8 156.9 143.1 1968.4 783.8 257.2 339.0 1434.4 808.1 607.2 229.6 343.5 1407.3 1119.6 225.8 202.0 338.3 1211.5 545.3 1470.2 558.1 1027.9 1631.2 1694.0 2292.6 2655.3 973.0 1898.1 3067.7 3956.1 4365.9 4392.2 132.0 147.9 97.8 416.0 240.2 11.9 356.2 82.1 7.2 26.7 318.2 67.4 190.2 15.3 39.1 7.0 714.5 161.2 44.1 22.7 309.1 170.8 167.7 20.5 91.8 232.6 305.7 66.4 1628.8 1313.2 1241.0 1038.8 2184.4 1567.8 404.0 2115.1 387.0 213.2 470.9 1168.3 557.6 797.8 244.8 201.3 183.7 2344.3 932.5 307.7 403.7 1698.6 956.8 718.8 266.0 398.7 174.5 1558.4 755.5 261.4 381.9 1349.0 775.5 521.9 247.5 292.0 1438.8 973.6 186.6 201.3 269.0 990.6 513.0 1221.0 509.4 903.6 1351.1 1495.4 1963.9 2299.3 1656.1 1314.5 256.3 226.5 386.8 1417.2 603.3 1697.8 611.9 1154.6 1857.0 1909.5 2616.3 3037.2 1029.7 2019.4 3204.5 4129.1 4579.3 4605.1 7197.7 785.9 177.0 46.3 21.8 349.6 181.3 196.9 18.5 106.7 217.3 340.9 69.7 25.2 117.8 426.6 90.3 476.8 102.5 251.0 505.9 414.1 652.4 737.9 209.7 601.5 900.2 1132.5 1210.5 1057.9 1382.3 820.0 1417.9 2304.3 2996.6 3368.8 3547.2 5815.4 89270.6 19192.5 70078.1 1975 and 1982. MAY 1986, E C O N O M I C REVIEW Table 1 (continued) Comparative Advantage Employment Part 2. Foreign-Owned Multi-Establishment Employment Local S h a r e Effect Total, Manufacturing, and Nonmanufacturing 1982 1975 State Texas California Florida Georgia Tennessee South Carolina North Carolina Arizona Oklahoma Maine Utah Virginia Missouri Washington Minnesota Louisiana R hod e Island Kansas Mississippi New Mexico Colorado Nevada Alaska Wyoming Oregon Alabama South Dakota W e s t Virginia Delaware North Dakota Montana Nebraska Iowa Vermont Idaho N e w Hampshire Indiana Maryland Hawaii Massachusetts Arkansas Connecticut Kentucky Michigan Wisconsin Illinois Pennsylvania Ohio New Jersey New York 51897 26278 20065 19276 17260 16457 13002 12060 11883 11172 10902 8916 8587 6769 6112 5462 5367 3450 3160 3088 2483 2324 1475 958 953 406 232 7901 17329 8308 -1325 7236 6898 -5767 812 4251 6576 7514 -617 3427 747 11097 -2683 4710 -152 449 — -3538 731 -904 — 1343 -683 — — — — — -432 -546 -705 -855 -915 -1375 -4008 -7374 -7471 -7537 -10661 -10805 -13801 -17844 -18852 -19134 -21586 -27015 -27357 -53941 -55970 United States NONMFG MFG Total — 280 -511 -1846 796 -1810 -3841 -3845 -4694 -894 1173 -11014 -536 -18765 -10300 10693 -5390 -5896 -4867 -35698 -2243 — — 43438 -1551 10014 21743 13207 14278 24297 10343 7570 4999 3104 11474 4970 6135 -6979 7526 981 4121 3179 — 5897 1413 2413 — -765 2806 — 12358 3781 — -1043 -202 1677 -2060 722 591 -1203 -1734 -8832 -11893 2489 -13869 4354 -6220 -32509 -18864 -18686 -20976 -12780 -70670 — Total MFG NONMFG Total MFG NONMFG 39788 80319 17046 17757 12354 15314 25184 5366 5101 1920 1542 14530 10819 6155 8671 13794 20024 19764 53438 10639 6810 1288 479 4012 3864 172606 269950 71779 73147 54740 62917 89405 28339 27358 16997 15580 52997 62046 90016 25633 28276 37159 47012 51482 4873 11233 10870 8587 110560 179934 46146 44871 17581 15905 37922 23466 16125 6127 6993 25354 23408 15539 16832 1609 3327 2575 1050 6953 891 1618 800 3532 6833 442 6896 3474 544 814 2009 6007 1763 1403 5413 15959 15263 7111 22937 8139 16334 12893 26091 24200 49116 47312 42094 60303 96939 783619 26881 6407 10947 11066 14835 21172 1502 2582 1588 397 10443 5390 3386 1660 6327 1310 2492 2024 2519 332 1145 4087 5429 2769 41410 25442 32418 47310 10248 13543 10972 6273 23577 27621 18002 24226 39463 26274 723 D 2223 776 51 2054 614 D 702 970 1870 1345 253 1485 4244 5766 6551 11013 583 8654 1184 9061 15404 27257 19028 17868 20840 70665 14036 58925 13887 35753 21271 60303 54284 127423 116521 100348 129007 238124 9903 15586 14425 8252 6586 5922 1007 5821 1291 1516 617 4883 15695 D D D D 583 2298 9341 1926 1300 6780 27833 20986 620 33416 9418 20231 12896 35750 34478 53717 70585 60641 71011 68803 410255 373364 2377350 1109339 D 3461 207 895 D 1309 6057 391 4842 2860 D 112 1039 4137 418 1150 3928 11715 9497 560 11924 7556 7680 11709 17030 8796 21859 28284 7011 7467 299 835 551 D 3492 684 5027 6384 3385 11668 21136 1573 D D 1218 1924 5390 17369 4434 2881 12414 41043 38834 32885 1996 6957 5050 5266 17756 3736 4868 2768 6785 5441 D 19334 5866 D 1341 3092 8028 2508 1581 5634 13210 17848 13416 25509 4469 15522 8375 24553 19806 73706 45936 39707 57996 169321 1268011 D = Data Withheld S o u r c e : Bureau of the Census, Selected FEDERAL RESERVE BANK OF ATLANTA Characteristics of Foreign-Owned Firms, S e r i e s F O F , Nos. 1 and 6 , 1 9 7 5 and 1982. 9 Gains in Employment Due to Comparative Advantage P a r t 1. T o t a l E s t a b l i s h m e n t ( D o m e s t i c a n d Affiliate) E m p l o y m e n t M I i I / / i i M M \ ü ^ li ä r i M ' O Manufacturing Employment Gains 19 Nonmanufacturing Employment Gains fc^ Total Employment Gains Source: Bureau of the Census, County Business Patterns, 1975 and 1982. ' M **N H Gains in Employment Due to Comparative Advantage Part 2. Foreign-Owned Multi-Establishment Employment Manufacturing Employment Gains Nonmanufacturing Employment Gains Total Employment Gains Source: Bureau of the Census, Selected Characteristics of Foreign-Owned Firms, Series FOF, Nos. 1 and 6, 1975 and 1982. sets of employment gains suggests that foreign and domestic firms are influenced by similar locational decisionmaking.8 Numerous elements can be considered for inclusion as independent variables to explain state employment changes in a multiple regression statistical model. Indeed, factors included in analysts' checklists used to evaluate potential sites for plant locations occasionally number over 100.9 Of course, many factors that pertain to a particular investor concern may be grouped together—for example, numerous attributes are associated with the work force (such as cost availability, suitability, and productivity) or with a state's fiscal climate (such as its tax revenue structure and spending patterns). The multitude of potentially relevant factors suggests that empirical research in this area involves a degree of experimentation, particularly since direct measures of some theoretically "correct" variables, such as labor and transportation costs, are unavailable In addition, it is difficult to interpret certain "proxy" Factors included in analysts' checklists used to evaluate potential sites for plant locations occasionally number over 100. measures unambiguously. This fact limits their statistical usefulness as well. For example, the level of state taxes is a factor used in almost all locational preference studies, yet its influence can be interpreted at least two ways. Negatively, high taxes may reflect a high cost burden; in a positive vein, they also may represent a high level of available public services, such as good schools and transportation systems. After some experimentation that eliminated ambiguities of this sort, a group of useful variables emerged. Table 2 defines these variables and summarizes their expected influence These factors are generally considered to be among the most basic determinants of the locational decision. Variables dealing with supply include characteristics of a state's work force, fuel cost, and waterborne transportation activity. An agglomeration variable (which accounts for a larger mass of an industry, sector or 12 Table 2 Estimated Model* Dependent Variables Six equations are estimated that partially explain the amounts of manufacturing nonmanufacturing, and total comparative advantage employment for foreignowned firms and for all U.S. firms. The form of the dependent variables is the ratio of the local share effect columns in Table 1 to the national employment changes that occurred in the 1975 to 1982 period. (The underlying employment information refers to first quarter levels in 1975 and 1982 and is from the following U.S Department of Commerce publications; Bureau of the Census, County Business Patterns and Selected Characteristics of Foreign-Owned U.S Firms) Independent Variables Table 3 reports results for the following variables, chosen from a larger set of possible factors after some experimentation: LABOR Skilled Workers - ratio of state population over 25 years of age with a high school education to the comparable U.S figure. Represents the state's share of the U.S trainable work force, with the impact of the variable dependent upon the needs of firms for either "skilled" or "nonskilled" labor. ("Bureau of the Census, Statistical Abstract of the U.S) Union Membership - ratio of percent unionization in a state to the percent in the United States Represents the relative proportion of unionization in the state. Since it implies other possible labor considerations such as wage rates and labor relations, it is likely to be a negative influence on investors—that is, the relationship should be inverse and the sign negative (Leo Troy, Union Sourcebook) ENERGY Fuel Cost-ratio of state's average fuel cost per 1,000 Kilowatt-hour equivalent to the comparable U.S average fuel cost Represents an often important production cost factor and therefore should have a negative influence on investors (Bureau of the Census Annual Survey of Manufacturers.) aggregate of industries, or for the proximity of firms), measured by a state's share of U.S. employment in 1975, is also included, as are variables dealing with market size, climate (an amenity variable), and a state's promotional or marketing effort Most of the estimated coefficients for this model, as discussed below, are stable, have the anticipated signs, and are generally significant The model is stable in that coefficients have the same signs and similar values over multiple applications, and these MAY 1986, E C O N O M I C REVIEW Climate-ratio of a state's normal seasonal heating plus cooling days to the comparable national norm. Represents the severity of a state's climate and is expected to be a negative amenity influence on investors (U.S. National Oceanic and Atmospheric Administration, Climate of States.) INFRASTRUCTURE Trade Volume-ratio of state's waterborne trade to total U.S waterborne trade Represents state's experience in, and infrastructure for, international trade and should positively influence investment (Bureau of the Census, U.S. Waterborne Exports and General Imports, FT985.) State Development Effort- ratio of the number of state economic development organizations to the U.S. total. Represents the state's desire and effort to attract investment implying a possibly more favorable investment environment; it is therefore expected to be a positive influence on investors. (Conway Data Inc, Industrial Development and Site Selection Handbook.) CENTRALIZATION P R E F E R E N C E 1975 Employment Share- state's share of U.S total or affiliate employment Represents the relative concentration of employment in a state, where large shares are generally found in the most industrialized states (for example, the Northeast and Midwest). The impact of this factor depends on whether an investor seeks the benefits of agglomeration or the benefits of decentralization. Foreign investors may be positively influenced by a larger mass of an industry, sector or aggregate of industries or by proximity of firms; they may also be repelled by mounting congestion with increase in size (Bureau of the Census Selected Characteristics of Foreign-Owned U.S Firms.) MARKET Personal Income - ratio of a state's total personal income to the U.S total. Represents the size of the consumer market of the state and is expected to be a positive influence on investors (Bureau of the Census Statistical Abstract of the U.S.) ^Sources for data are in p a r e n t h e s e s directions of influence are generally as expected. Moreover, the explanatory variables "belong" in the model based on their statistical contribution to predicting values of the employment series. Discussion of Model and Results As a practical matter, the equations estimated and shown in Table 3 focus on the notion that FEDERAL RESERVE BANK OF ATLANTA locational disequilibrium characterized the employment situation in 1975. That is, both foreign and domestic firms were in the process of adjusting to differences in levels of profitability associated with the various states in 1975. This is a reasonable scenario given the high national unemployment rate during 1975 and the period just before, a rate that roughly doubled from late 1973 to mid-1975, rising from 4.6 percent to 9 percent Economists often argue that structural changes accelerate from economic recession to recovery. It also seems reasonable to trace employment change between 1975 and 1982 to differences in the levels of profit-determining variables in 1975, especially those affected by the dramatic jump in energy cost between 1973 and 1975, to which firms then adjusted over the next several years. This line of reasoning is supported by the results of preliminary equation estimations in which regression coefficients on the variables expressed as changes in levels were not signifi- Both foreign and domestic firms were in the process of adjusting to differences in levels of profitability associated with the various states in 1975. cant If the location decisions made in the 1975 to 1982 period represented movements from one equilibrium to another, employment changes would have been statistically related to changes in the profit-determining variables over the period, not their levels in 1975. Concretely, this means that firms responded, for example, primarily to differences in the extent of unionization in 1975, rather than to changes in the extent of unionization over the 1975 to 1982 period. Empirically, a better story is told when the determinants refer to levels in one state relative to others in 1975; that is, when the changes in variables were included in an equation with the variables in levels form, the explanatory power of the model was not improved or it was diminished. Usingthese variable changes also created statistical problems; estimation of equations with variables expressed both in level changes and relatives presented 13 the statistical problem known as multicollinearity. This phenomenon occurs when explanatory variables are so interrelated that it becomes difficult to disentangle their separate influences and obtain reliable estimates of their relative effects. The specific model results for all foreignowned U.S. firms is shown in equation 1 of Table 3. As expected, a state's comparative advantage employment gain or loss relative to U.S. job growth in the 1975 to 1982 period is inversely related to its relative cost of energy, average number of heating and cooling days, and union membership. State employment gains are positively associated with the levels of international trade shipments, with personal income, and with the number of economic development agencies, as expected. The negative regression coefficient on the 1975 employment share variable suggests that foreigners are attracted more by decentralization benefits, such as less local competition, than by the benefits of agglomeration, such as locating in the proximity of existing businesses. Also, the negative influence of the education variable suggests that investors may actually be more attracted by an unskilled work force than by a skilled o n e (If states' shares of the U.S. population lacking a high school education is used as an independent variable, resuJts indicate that firms are attracted by the unskilled worker pool.) This implies that firms, both domestic and foreign, are basing a portion of their site-selection decision on the availability of unskilled, and possibly low-wage, workers.10 Taken together, these eight variables explain just over two-thirds of the variation in affiliate employment growth among states (R 2 = .69, see Table 3). These results are very good in explaining the pattern of employment change, given the length of time under consideration and the 1979 to 1980 energy price shock. In analyzing employment gains traceable to foreign-owned manufacturing versus nonmanufacturing industries, one might expect to find variables that operated positively in one sector but negatively in the other. This was not the case. However, at least one variable had an impact on nonmanufacturing but not on manufacturing: adverse climate seems to repel nonmanufacturing affiliates while not having a statistically discernible effect on manufacturing affiliates, perhaps because nonmanufacturing firms are more footloose. An amenity factor 14 such as climate thus is likely to take on greater importance than it does for manufacturing (see note 4). Manufacturing and nonmanufacturing sectors also may not attach equal collective importance to the factors. Generally, the sectoral equations—2 and 3—are less robust than equation 1 in terms of both the equations' overall explanatory power and the degree of statistical significance of individual regression coefficients. State employment gains are positively associated with the levels of international trade shipments, with personal income, and with the number of economic development agencies. Equations 4 through 6 show the model results for total (foreign plus domestic) employment changes due to comparative advantage and for overall manufacturing and nonmanufacturing employment change Generally, the results are similar to those for foreign-owned employment change. However, as shown by the values for the coefficient of determination (R 2 ), the equation pertaining only to all foreign-owned firms (equation 1) provides a much better fit than the same equation estimated for foreign plus domestic employment (equation 4). This suggests that foreigners are more sensitive to the economic variables included in the equations. It is reasonable to expect foreigners to be more sensitive to these factors? The tentative answer is yes. This response is based on differences in the nature of the employment growth processes of foreign-owned and domestically owned firms. Foreign firms new to the United States must choose a location, while many domestic firms are bound by inertia or other factors to their state of residence. As a consequence, the growth of foreign-owned firms may be explained better by these basic economic variables than a state's share of overall employment growth due to comparative advantage. (This will be the case for both overall employment change and employment change due to comparative advantage since they are positively correlated.) MAY 1986, E C O N O M I C REVIEW Table 3 Estimated Equations 1 Affiliate Variable Skilled Workers Fuel Cost Climate Union Membership Trade Volume State Development Effort 1975 Employment Share2 Personal Income Constant R2 P N (Number of Observations) Domestic and Affiliate Total (1) MFG (2) NONMFG (3) Total (4) MFG (5) NONMFG (6) -0.6449 -0.5598 -0.3326 -1.551 -6.376 -0.9112 (-2.12)* (-1.21) (-0.61) (-1.85)** (-2.08)* (-1.45) -0.0043 -0.0005 -0.0065 -0.0146 -0.0323 -0.0119 (-1.54)** (-0.13) (-1.3)** (-1.94)* (-1.18) (-2.12)* -0.0075 0.0081 -0.0264 -0.0223 -0.0848 -0.0160 (-1.6)** (1-14) (-3.12)* (-1.7)* (-1.77)* (-1.63)** -0.0125 -0.0067 -0.0145 -0.0178 -0.0709 -0.0123 (-3.97)* (-1.41)** (-2.55)* (-2.02)* (-2.2)* (-1.86)* 0.0553 0.0396 0.0497 0.1831 0.4062 0.1453 (1.61)** (0.76) (0.81) (1.91)* (1-16) (2.02)* 0.1650 0.1225 0.2419 0.2285 -0.0145 0.2678 (1.95)* (0.96) (1.59)** (0.98) (-0.02) (1.52)** -0.0081 -0.0085 -0.0069 (-6.83)* (-4.76)* (-3.24)* 1.307 1.446 0.6132 1.120 5.655 0.5201 (4.24)* (3.09)* (1.1) (1.54)** (2.13)* (0.96) 0.0224 -0.0057 0.0500 0.0555 0.1972 0.0399 (3.75)* (-0.63) (4.66)* (3.42)* (3.33)* (3.29)* 0.69 13.96 (48) 0.30 3.48 (48) 0.59 9.32 (48) 0.34 4.39 (46) 0.27 3.47 (42) 0.35 4.65 (44) : — — 'Regression coefficients are shown for each variable, with t-statistics in parentheses. Those t-values that are significant at the .05 level by the appropriate one- or two-tail test are indicated with an asterisk (*), while those significant at the .1 level are indicated by a double asterisk (**). Observations are for all continental states, except those states for which data were suppressed. 2 The domestic and affiliate figures for this variable were not entered by the S P S S / P C regression procedure used to estimate this equation b e c a u s e of the degree of its collinearity with other independent variables 3 F values for all equations are significant at the .99 level S o u r c e s for the data used in this table are listed in Table 2. FEDERAL RESERVE BANK OF ATLANTA 15 Foreign and domestically-owned firms may also respond differently in terms of direction or magnitude to individual factors that determine firm location. Comparing the two sets of three equations suggests that both foreign and domestic producers respond in the same direction to variables included in the model, though their degree of response to some variables differs. One example is the impact of a change in a state's share of the nation's pool of high school graduates. This ratio is calculated to be more than twice as great for the universe of U.S. firms as for foreign-owned firms, as shown Foreign and domestic investors alike seem to respond to differences in potential profitability levels as reflected by differences among states in comparative advantage positions. by differences in the magnitude of this variable's regression coefficients, which also are sensitivity estimates.11 In a few cases the related statistical results are somewhat disquieting. For example, the regression coefficients for fuel costs are more robust for nonmanufacturing than manufacturing, an unexpected result (Lower t-values indicate lesser degrees of confidence that the coefficients are significantly different than zero.) This finding, which is difficult to explain, somewhat undermines our confidence in the overall model. So do a few of the findings from similar comparisons in the magnitudes of the regression coefficients, which represent the degree of influence exerted by the individual factors. Fuel cost and union membership have a greater impact in the nonmanufacturing equations than in those for manufacturing, raising suspicion concerning the model specification. All in all, though, the sensitivities to the variables are relatively close for the model reported in Table 3. One method for testing directly whether foreign and domestic investors' preferences differ is to create a new dependent variable, the ratio of affiliate and total employment gains. This variable is then regressed on the 16 determinants of location listed in Table 2. Using this procedure and estimating the model shown in Table 3 yielded an equation in which none of the explanatory variables generated significant regression coefficients. Moreover, the percentage of variation explained (R 2 ) was .1 and the 3.7 F value indicated that the equation's explanatory power was statistically insignificant W e concluded that there are no significant differences in either direction or magnitude for the factors tested in this model. In fact using the regression procedure for stepwise selection of independent variables (adding variables one at a time to ascertain their marginal contribution in explaining the dependent variable), all of a large group of potential explanatory variables (including some variables in addition to those already discussed) failed to meet entry requirements up to the 25 percent level of significance12 Comparison With Other Researchers' Findings Numerous studies have looked into foreign and domestic investors' reasons for locating in particular states separately, but most of these have been investor surveys. Typically, results echo this report by Frank L Dubois and Jeffrey S. Arpan last yean " I n terms of specific cost factors critical in the investors' location decision, two were mentioned by 80 percent of the respondent firms: (1) salary and wage levels, and (2) cost of utilities." As a consequence, there is no way to summarize comparisons between the specific findings of our study and the myriad subjective survey studies, although our general results are consistent with other survey expectations and compatible with their actual findings. Not much statistical work has been attempted on issues like those discussed and reported in this article. Jane S. Little used regression analysis in 1978 to gain insight into "which locational characteristics are weighted relatively heavily by foreign investors in comparison to U.S. manufacturers." That analysis partially explained the ratios of states' shares of foreign versus U.S. constructions and expansions in 1975 and 1976. Little found foreigners gave relatively more importance to state wage differentials and the availability of large port facilities than did U.S. investors, while U.S. manufacturers MAY 1986, E C O N O M I C REVIEW appeared comparatively more sensitive to state variations in fuel costs. Other variables—personal income, degree of unionization, state industrial development incentives, the number of trade missions dispatched or development offices established overseas, state and local government tax revenues per capita, manufacturing employees, annual average output per man-hour, and the unemployment rate—appeared to be of relatively minor importance in explaining the ratios of foreign versus U.S. constructions and expansions in different states during 1975 and 1976. Little's model basically attempts to explain shares of investment in 1975 and 1976 as a function of differences in the levels of explanatory variables in 1974. By contrast our study partially explains shares of employment gains between 1975 and 1982 that can be attributed to differences in the levels of comparative advantage factors in 1975. Thus, the results of the two models are not directly comparable However, we estimated an equation analogous to Little's, using employment as the dependent variable and the same explanatory variables as in Little's equation. None of the variables in the employment equation were significant and the entire equation provided a poor fit with F = .57 and R2 = .05. While not negating Little's work, these results raise related questions about possible differences in factors that explain employment gain and those that explain actual plant investment as well as about possible changes in the relative importance of locational determinants over time. Conclusions It is difficult but we hope not impossible, to make progress in identifying the links and quantifying the separate effects of factors that influence a firm's site location. This type of study necessarily involves a certain amount of experimentation. Even so, collinearity among the explanatory variables can easily cloud the relationship under study. A few variables were included in preliminary estimating equations but were found to be insignificant For example, a state's interstate highway mileage, expenditure and revenue growth experience, population and work force size, and amount of exported manufacturing shipments failed to explain differences in state employment gains FEDERAL RESERVE BANK O F ATLANTA statistically, even though plausible economic arguments can be made to support their economic importance. Statistical or measurement problems could account for their lack of significance. Despite difficulties, we can draw a few tentative conclusions from this study. Foreign and domestic investors alike seem to respond to differences in potential profitability levels as reflected by differences among states in comparative advantage positions. Both types of investors are attracted by low-skill and nonunionized labor, and the cost of energy matters Both types of investors are attracted by low-skill and nonunionized labor, and the cost of energy matters The size of the market also seems to influence site location, as do efforts to attract employers. Besides these cost factors (low-skill and nonunionized labor may proxy for lower-wage labor), the size of the market also seems to influence site location, as do efforts to attract employers. In summary, there is some statistical support for the argument that economic forces, based on economic theory, operate for foreign and domestic investors. This study also found no significant differences between the factors influencing foreign employers when they make plant location decisions and those that affect domestic employers. While a few studies have suggested that factors influencing the locational decisions of the two groups may vary—for example, that foreign firms may be more influenced by international transportation networks and workers' wage levels than domestic firms, these findings suggest otherwise. Among the variables considered here, little difference was observed in the degree of importance placed on resource or other production costs by the two investor types. Both domestic and foreign producers seem to seek out places that enable them to earn maximum profits, and the profit-determining factors are apparently common to both producers. 17 NOTES 1A discussion of impacts, both positive (benefits) and negative (costs), c a n be found in U.S. Department of Commerce, "Foreign Direct Investment in the Southeast United States: A Comparative Analysis," The Costs and Benefits of Foreign Investment from a State Perspective, Cedric L Suzman, editor, Washington, D.C, 1982. 2 David McClain (1983) p 279. It should also be noted that some of the statistical differe n c e s found between foreign and domestic firms may actually be reflecting differences between the average domestic firm and the average foreign firm that decides to locate in the United S t a t e s rather than reflecting inherent "foreignness" or "domesticness." There is a subtle selection problem with this type of analysis since many foreign firms will evaluate all regions of the United States and decide on none of t h e m E m p l o y m e n t is o n e of the broadest measures of the activity and importance of industries, but it is not a direct measure of investment The dollar value of investment arrived at by using the measuring rod of money, is the yardstick of the relative importance of investment in different industries The spacial distribution of investment by industry can vary significantly from that of employment a s c a n their determinants S e e William J . Kahley, "Foreign Direct Investment—A Bonus for the S o u t h e a s t " Economic Review, voL 70, n o 6 ( J u n e / J u l y 1985), p p 4-17 for a discussion of differences in the Southeast's industrial concentrations of employment and investment assuming that investment is similar to the industrial distribution of gross book values of property, plant and equipment 4 As Chalmers and Beckhelm (1976) put it To the extent that locational equilibrium is achieved in an industry, a differential shift could occur in that industry only if the profit topography shifts. Locational disequilibrium, however, would be consistent with differential shifts in response to levels of relative profitability. S i n c e the extent to which an industry is in locational equilibrium at any point in time cannot be specified a priori, both c h a n g e s in the absolute levels of space costs and revenues and their levels at one site relative to all others should be examined a s determinants of the differential shift It should also b e noted that "footloose industries," those for which input cost structures or transport costs are unimportant in determining profits, use other criteria in choosing a location. Amenities such a s climate and recreational activities thus c a n be important factors in location decisions t o o 5 Notice that w e use the concept of comparative advantage in providing jobs and in industrial production interchangeably. While there probably is a high degree of correlation between the two, they are not the same. A similar remark is applicable to a comparison of amounts of investment and employment changes among industries These distinctions are not explored or analyzed in this paper, largely b e c a u s e of a lack of data 6 A table showing the complete results of the shift-share analysis is available from the author. 7 ldeally, w e would like to estimate equations using separate data for foreign-only and domestic-only industry employment growth rather than foreign multi-establishment and foreign plus domestic single- and multi-establishment industry employment While data are not available in the preferred form, this limitation does not appear to be of major importance, since multi-establishment employment accounts for about 98 percent of all such employment and since no compelling reason suggests that state patterns of total and multi-establishment employment are likely to diverge. Unfortunately, data on foreign affiliate employment are also not available at the sub-state level or with more industrial detail (such as the two-digit Standard Industrial Classification System level) for states These data limitations thus necessitate analysis at highly aggregated geographic and industrial levels 8 The correlation coefficient between the two sets of comparative advantage employment gains is 0.81, a statistically significant association at the .001 probability level 9 S e e , for example "Industrial Growth Charts U p d a t e " published annually by Conway D a t a Inc, in Industrial Development and Site Selection Handbook. 1 0 B e c a u s e these variables are positively correlated, the education variables may actually be serving a s a proxy for w a g e data that are unavailable 11 The concept of sensitivity, in this instance called "elasticity" by economists refers to the degree to which the dependent variable c h a n g e s in response to changes in an independent variable with the levels of other independent variables held constant 1 2 These variables were a state's interstate highway mileage, expenditure and revenue growth experience population and work force s i z e and amount of exported manufacturing shipments REFERENCES Chalmers J a m e s A, and Terrence L Beckhelm. "Shift and S h a r e and the Theory of Industrial Location," Regional Studies, voL 10, n o 1 (January/February 1976), p p 15-23. Creamer, Daniel. "Shift of Manufacturing Industries" Chapter 4 in Industrial Location and National Resources. Washington, D.C.: Government Printing Office, 1942. D u B o i s Frank L , and Jeffrey S Arpan. "Foreign Investment in South Carolina" Business and Economic Review, voL 32, n o 1 (October 1985), p p 30-33. Gordon, J o h n R , and others " U s i n g the Shift-Share Technique in Economies with Widely Varying Sectoral Growth R a t e s Observations and a Suggested Model Modification," The Review of Regional Studies, voL 10, n o 1 (Spring 1980), p p 57-67. 18 Little J a n e S "Locational Decisions of Foreign Direct Investors in the United S t a t e s " New England Economic Review, July/August 1978, p p 43-63. McClain, David. "Foreign Direct Investment in the United S t a t e s Old Currents ' N e w W a v e s ' and the Theory of Direct Investment" in The Multinational Corporation in the 1980's, C P . Kindleberger and D . B Audritsch, e d s Cambridge, M a s s a c h u s e t t s MIT P r e s s 1983. T o n g Hsin-Min. Plant Location Decisions of Foreign Manufacturing Investors Ann Arbor, Michigan: University Microfilms International R e s e a r c h P r e s s 1979. MAY 1986, E C O N O M I C REVIEW 1 s A i a Iiii W H T WSBÊm* m * Projecting Federal Deficits And the Impact of the Gramm-Rudman- Hollings Budget Cuts Spending cuts made now will reduce the amount of subsequent cutbacks needed to balance the budget by lowering interest obligations Forecasting future deficits remains a problematic undertaking, nevertheless f r a ft i T i > m Thomas J. Cunningham and Rosemary Thomas Cunningham Economic forecasting has never been an easy task. The further one looks into the future, the more difficult it becomes to predict the course of events reliably, as one must depend more and more on assumptions about long-run behavior that may or may not hold true. Such is the case in projecting federal budget deficits. By the very nature of the problem, short term forecasts for one or two quarters are not particularly useful. The relevant horizon for government budgets may be several years, and this is precisely the period of time that poses the greatest forecasting difficulties.1 Nevertheless, current events—in particular the Gramm-Rudman-Hollings balanced budget law—have generated a great deal of interest in deficit estimates. This article sheds some light on how the Gramm-Rudman-Hollings legislation could affect government spending over the next few years. If the Gramm-Rudman-Hollings deficit targets are to be met without raising taxes, given a reasonable economic scenario, a 4 percent reduction in programmatic government spending would be necessary for fiscal year 1987, followed by a slightly less than 2 percent reduction for fiscal 1988 and an approximately 1 percent reduction in spending in fiscal years 1989 through 1991. Increasing the size of the cut now will lower future interest obligations, progressively reducing future budget cuts necessary to achieve the budget bill's final objective The authors are, respectively, a macropolicy economist for the Atlanta Fed's Research Department and an assistant professor of economics at Agnes Scott College in Decatur, Georgia. FEDERAL RESERVE BANK OF ATLANTA 19 However, certain caveats must be issued concerning the effort to predict the impact of the Gramm-Rudman-Hollings legislation. A Somewhat Murky Crystal Ball To estimate future deficits, both income and expenditures must be forecast Estimates of expenditures are not as easy to make as they might first appear, though in some areas the process is mechanical and straightforward. Estimating costs of future construction projects is one example. If the contracts have been signed, the time and amount of nominal disbursements are already specified. In other areas, forecasting outlays is extraordinarily difficult Anticipating the costs associated with the Strategic Defense Initiative ("Star Wars"), for instance, is problematic, because it is hard to gauge how much Congress will be willing to appropriate and because new technologies may present expensive unforeseen problems to overcome before the system can function. The difficulty of predicting costs on most budget items generally lies somewhere between Inflation can serve to reduce... the deficit though the effect is not as pronounced as with real growth. 20 these extremes. Medicare expenses, for example, depend on the number of people eligible, a figure known with some certainty, and on changes in the cost of medical care, which are more difficult to anticipate. Both the Congressional Budget Office (CBO) and the Office of Management and Budget have large staffs devoted to such estimation problems, and this article does not presume to better their judgment Total federal expenditure, with some notable exceptions, is rather well understood. The greatest challenge in forecasting deficits is anticipating changes in economic conditions. A higher-than-expected real rate of economic growth, for example, will reduce income maintenance expenditures by raising the level of income. Programs other than income maintenance are less influenced by changes in real economic activity so their expenditure level remains largely unchanged. At the same time, real growth means a real increase in tax revenue The net effect of real economic growth, then, is a reduction in the size of deficits. If, however, the economy slides into a recession, these effects would reverse themselves to create a budget shortfall much larger than expected. About one half of all government spending is indexed to inflation, as are income taxes. As a result inflation can serve to reduce the real size of government expenditure commitments, and hence reduce the deficit though the effect is not as pronounced as with real growth. Table 1 presents current C B O projections of federal deficits through 1991, the relevant timetable for Gramm-Rudman-Hollings.2 The most striking feature of these revised deficit projections is their time trend. Baseline budget deficits are now projected as consistently declining3 By the year 1991, the C B O projects a deficit of $104 billion, down from a fiscal year 1986 deficit of $208 billion. The baseline budget projections make two crucial assumptions, each of which deserves some discussion. First they presuppose no real growth in defense spending. Second, they take for granted several aspects of economic performance over the course of the next five years. The supposition that no real growth in defense expenditure will occur seems somewhat misleading. The budget submitted by the Reagan administration for fiscal year 1987 calls for real growth in defense outlays of approximately M A Y 1986, E C O N O M I C REVIEW Table 1 CBO Baseline Budget Projections (Billions of dollars) 1986 1987 1988 1989 1990 1991 Revenue 778 844 921 991 1,068 1,144 Outlay 986 1,025 1,086 1,135 1,188 1,248 Deficit 208 181 165 144 120 104 Source: C B O , The Economic Review and Budget Outlook Fiscal 3 percent and real growth in the military budget authority of almost 8 percent 4 While no one knows how much of this real growth Congress will underwrite, the baseline budget projection is not designed to accommodate any program changes not already mandated by Congress, and a significant increase in real military expenditure represents a program change. Anticipating economic growth is, as discussed above, a substantial problem in forecasting deficits. The baseline budget projections rest on a real rate of growth varying from 3.1 to 3.5 percent and averaging 3.3 percent over the next five years. Inflation is assumed to range between 3.4 and 4.4 percent over the same period, averaging slightly less than 4.2 percent Growth at a higher rate than this would serve to reduce the deficit at a much faster rate. Sustained real growth over 4 percent per year would, the C B O projects, easily eliminate the deficit within the next five years. The CBO's lov^growth scenario sees deficits rising substantially with a recession but then resuming a downward path as the economy returns to its historical long-run growth rate of slightly over 3 percent Even though revenues are sensitive to changes in economic performance, the baseline budget indicates that the economy will eventually outgrow the deficit regardless of fluctuations in the economy. Cutting Spending From Here to Eternity Despite these hazards to prediction, an estimate of the size of the budget cuts needed to FEDERAL RESERVE BANK OF ATLANTA Years 1937-1991, February 1986. achieve the targets of the Gramm-RudmanHollings amendment is desirable. Table 2 presents the baseline budget series and the size of spending reductions necessary to balance the federal budget by 1991, following the deficit time path specified in the amendment Some explanation of the table's categories is in order: The deficit series in Table 2 reports both the actual baseline deficit as in Table 1, and the same deficit divided between the "basic deficit" and interest payments on the outstanding federal debt 5 The basic deficit represents the difference between spending on programs and tax revenue; it is the total deficit minus interest This distinction is useful for several reasons. First the government has only indirect control over current interest expenses. Interest rates are determined in money and capital markets, and the amount of debt outstanding is determined by previous spending and taxation decisions. Interest outlays represent commitments on bonds already sold; these expenditures cannot be reduced unless the government were to default on its debt an extremely unlikely eventuality. Interest expenditures can be reduced only by borrowing less or borrowing at reduced rates. The former depends heavily on program spending and implies a reduction in the basic deficit while the latter is largely out of the government7 s control. The government does, however, have a great deal of control over how much is spent on various programs. To reduce deficits below their baseline levels, spending on programs must be reduced. The result will be a reduction in the basic deficit 21 Table 2 Cuts Needed to Meet Gramm-Rudman-Hollings Targets (Billions of dollars) 1986 1987 1988 1989 1990 1991 Revenue 778 844 921 991 1,068 1,144 Outlay 986 1,025 1,086 1,135 1,188 1,248 Deficit 208 181 165 144 120 104 144 108 72 36 0 37 57 72 84 104 Gramm-Rudman-Hollings Target Baseline Deficit Less Gramm-Rudman-Hollings — — Net Interest 139 145 154 158 159 160 Basic Deficit 69 36 11 -14 -39 -56 37 16 12 8 13 4.2 1.7 1.1 0.7 1.0 37 53 65 73 86 Cuts Needed to Meet Gramm-Rudman-Hollings Size of Program Cut (in percent) — Cumulative Cut Source: C B O , The Economic — — and Budget Outlook: Fiscal Years 1937-1991, In Table 2, the deficit is represented as a positive number, and surpluses are represented as negative quantities. Note that in 1989 the basic budget shows a surplus of approximately $14 billion. After 1989, the deficit consists solely of interest expenses on debt already outstanding. To meet the Gramm-Rudman-Hollings targets, baseline budget expenditures must be reduced by $104 billion by 1991. Table 2 presents the size of the cuts needed to meet this goal, and also expresses them as a fraction of basic budget spending. (Again, spending on interest payments could not be reduced unless the government were to default on interest payments on its debt) As stated in the introduction, the budget-balancing goals can be met through overall spending reductions of 4.2 percent in 1987, 1.7 percent in 1988, and approximately 1 percent for the next three years, if the C B O baseline budget assumptions discussed above are correct 6 The actual size of 22 February 1986. the cut on a year-by-year basis is shown as Cuts Needed to Meet Gramm-Rudman-Hollings, while the Cumulative Cut row shows a running total of the yearly spending reductions. Cumulative cuts of $86 billion ultimately result in the $104 billion reduction in the size of the deficit necessary to meet the target The importance of separating the basic deficit and interest expenditures can now be illustrated. To have a balanced federal budget by 1991, overall government spending must be reduced a total of $104 billion from baseline estimates. The cuts outlined in Table 2 achieve that result but with cuts that total less than $104 billion, because reductions in the deficit occurring before 1991 result in smaller borrowing needs and hence lower future interest expenses. A reduction in the deficit now lowers future deficits through both the cut in spending and the smaller future interest liabilities. By meeting the deficit reduction targets, which call for substantial cuts now in the basic deficit future MAY 1986, E C O N O M I C REVIEW interest expenses are reduced, requiring progressively smaller future cuts. Thus, total program cuts of $86 billion could result in a $104 billion decrease in expenditure by 1991. Taking this relation between the change in expenditure and the change in interest obligation to an extreme, an expenditure reduction of $80 billion occurring in fiscal year 1987 would be sufficient to bring about a balanced federal budget by the year 1991. This would represent an across-the-board reduction of 9 percent in government spending on programs. Waiting until 1991 would require the full $104 billion to be cut at once. The Gramm-Rudman-Hollings legislation does more than simply specifying deficit targets for a balanced budget in 1991; it also names areas in which cuts will be made automatically in the event that the deficit targets (plus a margin for error) are not met (The automatic spending reduction mechanism is the subject of the legal challenge to Gramm-Rudman-Hollings Act based on the constitutional separation of powers.) Chart 1 represents the current fiscal yeaKs budget, divided into various expenditure categories.7 Under the balanced budget legislation, only 35 percent of total government expense including interest is subject to automatic cuts. Regardless of the constitutionality of GrammRudman-Hollings, if it is viewed in any sense as a potential guideline for reductions in outlay, the difficulty of achieving a balanced budget is easily perceived. A comparatively small portion of overall spending is subject to cuts, which, if confined to these areas, would result in substantial reductions in the levels of services affected.8 Chart 1. The Fiscal Year 1986 Budget Divided Into Gramm-Rudman-Hollings Categories About 65 percent of the 1986 budget is exempt from cuts and 3 5 percent is subject to across-the-board (A-T-B) or partial c u t s •Programs in these areas, including some retirement medicare and student loans, m a y b e eligible forcuts but are also exemptfrom cuts in certain a r e a s S o u r c e C B O a n d Office of Management and B u d g e t December 1985. FEDERAL RESERVE BANK OF ATLANTA 23 Taking the cuts now not only lessens the absolute level of government spending but also diminishes the necessary size of future cuts by putting future outlays on a more rapidly declining time path. Lowering future interest expenditures will significantly reduce the size of future cuts needed to balance the budget NOTES 10ver Conclusion Recent concern over the size of federal deficits has sparked a general interest in the eventual elimination of these deficits. C B O baseline budget projections see the federal deficit falling to roughly half its current size over the next five years, given a seemingly reasonable set of economic assumptions. If the deficit is to be eliminated by then without raising taxes, substantial cuts in expenditures are essential. The sooner these curtailments are made, however, the smaller the need for overall reduction from current baseline spending levels. 24 a much longer horizon, the importance of business cycles diminishes Forecasting output growth for the next few d e c a d e s may be done without reference to temporary swings in economic activity. C o n g r e s s i o n a l Budget Office, The Economic and Budget Outlook: Fiscal Years 1987-1991, Government Printing Office, February 1986. ' " B a s e l i n e budgets" are constructed on the assumption that current expenditure programs remain in their current state. With programs neither added nor deleted, and following economic assumptions discussed below, this is the course that the budget would take by itself with no c h a n g e s in programs. 4 From Budget of the United States Government Fiscal Year 1987, G P O , 1986. Budget outlays differ from budget authority in that budget authorization (authority) must occur before outlays c a n take p l a c e Not all budgeted funds authorized in a fiscal year will be spent in that year. For a more complete description of the budget process and terms, s e e Lisa Rockoff, "The Federal Budget Process: How It Works," Economic Review, voL 70, n o 5 ( M a y 1985), p p 38-40. 5 T h e implications of this division are discussed at length in "The Long-Run O u t c o m e of a Permanent Deficit" this issue. 8 The implied average rate of interest on government debt outstanding is assumed to continue following C B O estimates, even though the level of debt outstanding is reduced slightly from baseline projections The C B O presupposes that the 3month Treasury bill rate will monotonically decline from 6.8 percent to 5.4 percent over the next five y e a r s S i n c e the average length to maturity of all publicly held federal debt is now 5 years ( T r e a s u r y Bulletin, Winter issue, first quarter fiscal year 1986), t h e s e interest rate and expenditure assumptions apply to half the debt outstanding through the relevant Gramm-Rudman-Hollings period 7 T h e source of the numbers used is the Office of Management and Budget and the C B O , December 1985, a s reported in the New York Times, J a n u a r y 16, 1986. 8 l n 1987 alone, the required cut in spending shown in Table 2 represents a reduction in spending of approximately 10.3 percent on programs that are subject to automatic reductions (both across-the-board and special rule). MAY 1986, E C O N O M I C REVIEW The Long-Run Outcome of a Permanent Deficit This study shows that whether the central bank must finance the government depends more on the government debt-to-income ratio than on the size of the debt Thomas J. Cunningham The size of recently reported deficits, running on the order of $200 billion, is unprecedented. To exceed the current deficit as a percentage of gross national product—now fluctuating in the range of 4 or 5 percent—one must go back to World War 11, when the deficit was as large as 28 percent of the GNP. 1 The sheer magnitude of the shortfall has prompted concern over problems that arise with prolonged periods of deficit One issue is whether a government can continue on a path of large fiscal deficits without assistance from the monetary authority; or, does the financing of a "permanent deficit' necessarily imply some accommodation of the shortfall in the future? The answer to this question, which will be explored here, depends upon the eventual stability of the debt-to-income ratio. A second, separate issue raised by the prospect of a large deficitone which will not be addressed here—is the potentially adverse impact on the rest of the economy. The "crowding out' debate, as it is referred to, revolves around how much the deficits stimulative effects are offset by declines in private investment or changes in the level of net exports. Whatever The author Research FEDERAL RESERVE BANK OF ATLANTA is a macropolicy economist for the Atlanta Feds Department 25 crowding-out problems exist are clearly exacerbated as government deficit financing increases, suggesting a loose link between the problem of stability addressed in this article and the concerns raised in the literature about the crowding out effect The Deficit and the Monetary Authority Recently renewed interest in the Real Bills doctrine has sparked a related concern about the ability of the fiscal authority to operate independently of policies undertaken by the monetary authority.2 In the United States, the spending and taxing (fiscal) authority is best thought of as a shared function of the President and the Congress, and the monetary authority is the Federal Reserve. The Real Bills doctrine has seen many different interpretations. In the version now receiving attention, the value of the assets backing the money supply is seen as being ultimately responsible for the value of money itself. If the monetary authority purchases bonds from the fiscal authority because the fiscal authority cannot sell them to anyone else, then the money created in the process of purchasing these worthless bonds will, itself, be worthless. Even if this is not the case, should the fiscal authority find it impossible to continue its policies without aid from the monetary authority, the economy could well be affected in the present by events that might not actually occur for several generations. Anticipation of situations expected to unfold over the course of several generations might then influence current spending and saving behavior. Long-run workability, then, is more important than it first appears. Robert Barro, in a pathbreaking article, argues that there is an equivalence between bond and tax financing of government spending, so long as the bonds issued to finance spending now are expected to be paid off in the future 3 If there is an intergenerational transfer of wealth (bequests), then leaving government bonds to future generations also means leaving an equivalent tax liability to the same generation in which the bond is to be paid off. As a result government bonds that are expected to be paid off do not represent net wealth, and the economy will alter its savings behavior accordingly. Thus, 26 events expected to take place in future generations may affect current economic decisions. In discussing policies undertaken by the fiscal authority two interrelated concepts are helpful. The first concept is the "basic budget" sometimes called the "primary budget" which represents government spending on all noninterest items, less tax revenue received. If spending on goods, services, and transfers exceeds tax revenue, the basic budget is in deficit if tax revenue exceeds programmatic spending, the basic budget is in surplus. The reported deficit on the other hand, represents the basic deficit plus whatever borrowing is necessary to service the debt already outstanding. If no debt were outstanding, and hence no interest payments were to be made, the basic budget balance would coincide with the reported budget Otherwise the reported deficit will equal zero only when the basic budget has a surplus equal to the interest payments due on the debt outstanding. The "fiscal regime," the second important concept is the set of spending and taxation policies to which the government is committed. Anticipation of situations expected to unfold over the course of several generations might... influence current spending and saving behavior. Growth in national defense spending, Medicare benefits, and different tax benefits are some of its components. The fiscal regime usually is responsible for the basic budget balance: it dictates how much is to be spent on various programs and what the rate of taxation will be. In deciding the tax rate, the government also decides how much tax revenue will be collected at any given level of income, and thus results the basic budget balance. With the exception of a change in the fiscal regime, the basic budget balance can change only if the level of income, and hence the amount of tax revenue, changes.4 MAY 1986, E C O N O M I C REVIEW Strictly speaking this definition of the fiscal regime is too narrow. It could also be the case that the government sets specific targets for the actual budget deficit thus making the basic budget responsive through spending, taxation or both, to the amount of interest it must pay on its accumulated debt The current U.S. budget process provides an excellent example of the fiscal regime in operation. Clearly the goal is to reduce the reported deficit The stumbling block, however, comes at the basic budget level, where it is difficult to agree which programs should be cut or whose taxes should be raised. The problem is that the fiscal regime results in a basic budget deficit which, combined with the interest payments on the debt already outstanding, leads to a still larger actual deficit From the perspective of those interested in the Real Bills doctrine, one concern about the deficit is whether a given fiscal regime will lead to a situation that requires the monetary authority to actively accommodate the fiscal authority. Whether or not the monetary authority is "forced" to help finance the deficit depends As long as the government debt-to-GNP ratio is stable; the government should have no problem marketing its debt regardless of the nominal size of the debt to be sold. on the Treasury's ability to sell to the public the bonds necessary to finance the deficit The public's willingness to assume the additional government debt depends, among other things, on the amount of government debt it already holds. The greater the amount of debt outstanding, the harder it may be to borrow more. A fiscal regime that runs a substantial basic budget deficit must issue a large amount of debt The issuance of debt means interest payments must be made, and, since the basic budget is in deficit these new interest payments can be made only by selling additional bonds. Thus, bonds must be sold to pay interest on bonds FEDERAL RESERVE BANK O F ATLANTA already outstanding So long as the fiscal regime fails to produce a basic budget surplus large enough to cover interest payments on the outstanding debt completely, the debt outstanding will grow. The willingness of the public to hold additional government debt is not jeopardized, however, simply by the size of the outstanding debt or by the fact that it is growing in absolute terms. What is important is whether the level of debt is high and growing in relation to the level of income. (For simplicity's sake, the level of income is assumed to be equal to GNP.) If the level of debt is high, but the additional debt being marketed is a trivial proportion of income growth, the government should not have any difficulty marketing it and should not be forced to resort to the monetary authority for aid.5 As long as the government debt-to-GNP ratio is stable, the government should have no problem marketing its debt regardless of the nominal size of the debt to be sold. On the other hand, if the fiscal regime requires that the government debt-to-income ratio grow continuously, the fiscal authority eventually will be unable to sell enough of its bonds to finance its deficit because investors will become reluctant to add additional government bonds to their portfolios. The fiscal authority will then have to turn to the monetary authority for financing if the fiscal regime is to continue Similarly, the fiscal regime may result in a stable debt-to-income ratio but at a level too high for the economy to tolerate. Even though the debt-to-income ratio is mathematically stable, at some point before stability is achieved the public may simply refuse to purchase additional bonds. Thus, the fiscal authority would have to turn to the monetary authority for financial aid. Exactly what constitutes a "too high" debt-to-income ratio is difficult to divine. At the end of World War II, the public held government bonds amounting to 1.15 times the gross national product 6 Other economies have held a substantially greater proportion of debt Even though the fiscal authority's financial condition places a theoretical constraint on the monetary authority, the constraint is not necessarily binding. For example, if the financing required by the fiscal authority implies a rate of growth in the money supply of, say, 2 percent 27 arid the monetary authority is expanding the money supply by 4 percent the 2 percent constraint imposed on the monetary authority by the fiscal authority, while real, is also trivial. On the other hand, if the real after-tax rate of interest is greater than the real growth rate of the economy, then a deficit regime is infeasible without monetary accommodation, since the debt by itself, will grow as a proportion of GNP. The Standard Model Growth Rates Versus Interest Rates. The question of when a fiscal deficit regime is feasible without the aid of monetary intervention has recently received a great deal of attention in the form of a debate concerning current U.S. fiscal policy between Thomas J. Sargent, Neil Wallace, and Preston J. Miller on one side and Michael Darby on the other.7 Whether or not a deficit regime eventually will result in a stable debt-to-income ratio hinges on the relationship between the real after-tax rate of interest and the real growth rate of the economy. This relationship becomes clear if we examine how debt service contributes to the borrowing needs of government Debt service equals the real after-tax rate of interest times the amount of debt outstanding. (The term "rear eliminates illusions caused by inflation and "after-tax" designates what the government actually, net pays.) Thus, the real size of the debt outstanding will grow by itself, independently of the borrowing needs imposed by the the basic budget at the real after-tax rate of interest If the rate of interest is less than the growth rate of the economy, then the debt will grow more slowly than the economy. As a proportion of GNP, then, the debt would be shrinking and would eventually approach zero, even though the level of debt might be quite large and growing If the fiscal regime calls for a basic deficit that is a constant proportion of GNP, a constant debt-to-income ratio will evolve, since the only significant factor contributing to debt in the long run will be the debt issued to pay for the basic deficit Debt service will eventually shrink to a trivial portion of GNP, although this process may take considerable time. Since the basic deficit is assumed to be a constant proportion of GNP, the addition to debt needed to finance the basic deficit is also a constant proportion of GNP. The total debt-to-GNP ratio will approach a stable maximum asymptotically, that is, the ratio will constantly approach its stable level though it will never finally reach it 28 If the rate of interest is less than the growth rate of the economy; then the debt will grow more slowly than the economy. Unlimited growth of the debt-to-GNP ratio (an "exploding" ratio) is something that cannot continue forever. An infinite amount of debt cannot be purchased. The Deficit and Debt with Inflation. Discussions of stability usually revolve around real, as opposed to nominal, interest rates largely for the sake of tractability. If there were no inflation in the economy, then real rates of growth and interest would correspond directly to the nominal rates we actually observe. Inflation complicates the picture in several ways. First is the familiar problem of discriminating between nominal changes that occur because of real changes in variables and changes that occur because the value of money has changed. For example, the 1970s saw periods of combined inflation and recession, when the nominal level of income rose but the real level of income fell. The second problem, again a familiar one, is that inflation is difficult to forecast and the difficulty increases with the time horizon. Since the deficit fiscal regime may continue (in both real and nominal terms) for generations, a discussion in real terms avoids this complication. The final problem concerning inflation relates specifically to government finance. Since financing a deficit is a nominal problem, inflation may make deficit financing easier in two ways. First if income taxes are progressive and unindexed, "bracket creep" will increase the government's real tax revenue. If real wages remain unchanged, nominal wages will rise by the rate of inflation. The rise in nominal wages will push the earner into a higher tax rate, thereby increasing the proportion of income M A Y 1986, E C O N O M I C REVIEW given up in taxation even with an unchanged real wage U.S. income taxes are not fully indexed, though there is considerable movement in that direction. Second, and perhaps more interesting, inflation represents a partial repudiation of the debt already outstanding. Since the outstanding bonds are denominated in nominal terms, the real value of the debt previously issued decreases as the price level rises. To the extent that inflation decreases the real burden of servicing the already outstanding debt the government is better off financially.8 Thomas J. Sargent argues that government bonds should be indexed to the price level so that they would retain their real value as the price level changes, thus helping to make a government's anti-inflation plan credible by removing a substantial motive to inflate.9 Applications to the United States Whether or not the debt-to-income ratio will eventually become stable can be seen through a simple set of simulations showing the longrun results of a given basic fiscal regime under various economic conditions. These simulations are based on historical experience in the United States strictly for the sake of familiarity. Historical Growth and Interest Through the post-World War II era, the United States has enjoyed a real growth rate that has averaged between 3 percent and 4 percent a year, though swings have been considerable. At the same time, real after-tax rates of interest on U.S. Treasury securities have been on the order of 2 to 3 percent The federal budget deficit is currently around 4 percent of GNP, historically quite high for a non-war, non-recession year.10 The figures presented here show several debt dynamics assuming various average interest rate and growth trends.11 Of course, short-run economic fluctuations will obscure long-run trends, making the short run look very different from these pictures. Nonetheless, eventually the long run arrives (we may be dead, but not our heirs) and with it come the long-run results. In the legends of the figures, "g" stands for the real growth rate of the economy, G/Y represents basic government spending as a proportion of GNP, T/Y stands for the percentage of G N P collected as tax revenue net taxes on interest income from government bonds. FEDERAL RESERVE BANK OF ATLANTA The difference between G/Y and T/Y is the basic (not actual) deficit as a proportion of GNP. The symbol represents the real aftertax rate of interest and "mg" is the rate at which the real money supply grows. All values are expressed in 1985 dollars. Inflation, which would make the financing process easier by reducing the values of the bonds outstanding, is not considered here As a result all simulation figures are in 1985 dollars. The two different average rates of money growth used in this exposition are not meant to imply anything about actual or preferable monetary policy. A zero percent rate of money growth obviously is not realistic It is, however, of substantial theoretical interest for it establishes clearly if the deficit regime, without any monetary accommodation whatsoever, is feasible. The 4 percent money growth figure is frequently used in discussions of possible growth rates under a "fixed rule" monetary regime, generally advocated by monetarist economists. Figure 1 illustrates the debt-to-income ratio for the next 25 years assuming a 3 percent basic budget deficit a real rate of growth of 3 percent an after-tax interest rate of 2.5 percent, and a money growth rate of 4 percent Figure 1. The Debt-to-Income Ratio, 1985-2010 g = 3 % , G/Y = 2 2 % , T/Y = 19%, i = 2.5%, mg = 4 % "g" = real growth rate of the economy G/Y = basic government spending a s a proportion of G N P T/Y = percentage of G N P collected a s tax revenue T = real after-tax rate of interest "mg" = rate at which the real money supply grows 29 Since the real rate of growth in this scenario is greater than the real after-tax interest rate, the deficit regime is inherently feasible, as the debt-to-income ratio eventually will stabilize. Since short-run business cycle fluctuations will swamp longterm trendsthey make the underlying growth and interest rates difficult to discern. Even if the money growth rate were zero percent, or if the feasibility assumption were violated with a growth rate for the economy of 2 percent and an after-tax interest rate of 3 percent, in none of these cases would the debt-to-income ratio be higher by the year 2000 than it was at the end of World War II (again in 1985 dollars). Regardless of the ultimate feasibility of the fiscal regime, the net impact on the economy, in terms of the government debt-to-income ratio, would be rather similar. As Robert Barro argued, however, the economy may alter its behavior with regard to savings and bequests depending on the longrun outcome of the fiscal regime. Even though the difference in debt-to-income ratios might not be apparent within a generation, the ultimate feasibility of such regimes can be determined simply by comparing growth and interest rates. Given the basic deficit, crowding out and other problems associated with large fiscal deficits would exist in similar magnitudes (at least for the next 100 quarters) regardless of the long-run independent workability of the fiscal regime. Figure 1 is drawn on the basis of long-run historical trends in the economy, something we never really get to observe in a short period of time. In fact since short-run business cycle fluctuations will swamp long-term trends, they make the underlying growth and interest rates difficult to discern. The apparent relationship between the real rate of growth and the real rate of interest will change constantly, making the overall trend clear only after a comparatively long time. 30 This problem is exacerbated by the continually changing nature of the fiscal regime. Changes in taxation and spending occur constantly, which may or may not represent a real change in the fiscal regime. Since the fiscal regime may affect real interest rates as well as real growth rates, it could take some time to evaluate the "new" fiscal regime's feasibility, and by then the fiscal policy might again be changed.12 In the Long Run Observing the feasibility of a new fiscal regime, then, is a long-run matter. Figures 2 and 3 illustrate the outcome of the permanent basic deficit regime pictured in Figure 1 after 200 years. Figure 2 depicts the long-run outcome assuming a deficit regime in basically feasible economic conditions: 3 percent real growth and a real after-tax interest rate of 2.5 percent The debt-to-income ratio stabilizes at around six to one without monetary accommodation. While the deficit would still be a significant proportion of G N P and the crowdingout problems associated with the deficit would persist the fiscal regime by itself is not infeasible Figure 2. The Debt-to Income Ratio, 1985-2185 g = 3 % , G/Y = 2 2 % , T/Y = 19%, i = 2.5%, mg = 0 % "g" = real growth rate of the economy G/Y = basic government spending a s a proportion of G N P T/Y = percentage of G N P collected a s tax revenue T = real aftertax rate of interest "mg" = rate at which the real money supply grows MAY 1986, E C O N O M I C REVIEW Figure 3. The Debt-to-lncome Ratio, 1985-2185 g = 2 % , G/Y = 22%, T/Y = 19%, i = 3 % , mg = 0 % The Debt-to-Income Ratio "g" = real growth rate of the economy G/Y = basic government spending a s a proportion of G N P T/Y = percentage of G N P collected a s tax revenue V = real after-tax rate of interest "mg" = rate at which the real money supply grows W e r e the fiscal regime deemed important enough politically, it could continue without necessarily impinging upon the monetary authority, regardless of the associated financing problems. Figure 3 illustrates the result of a deficit regime under fundamentally infeasible conditions: a 2 percent growth rate and a 3 percent real after tax rate of interest Instead of asymptotically stabilizing as in Figure 2, the debt-toincome ratio is large and increasing at an ever faster rate. (It's blowing up!) government debt to expand the money supply, accommodation, to a greater or lesser degree, is taking place. Consider a monetary authority that is following a basically monetarist policy of expanding the money supply by 4 percent per year.14 Figure 4 assumes the same economic conditions as those depicted in Figure 3, though now with the monetary authority following a 4 percent money growth rule and the viewing time stretched to 300 years. Since the money supply is growing faster than the interest rate, eventually the expansion of the money supply will be great enough not only to service the debt outstanding but also to finance the deficit itself. The debt-to-income ratio will drop to zero, and the monetary authority will need to purchase bonds from sources other than the fiscal agent to continue the 4 percent rate of monetary growth. This monetary regime may, however, imply a modest rate of inflation, since the money supply is growing faster than real GNP. Since infeasible deficit regimes occur because the after-tax interest rate is greater than the growth rate of the economy, and this monetary accommodation occurs by expanding the money supply at Figure 4. The Debt-to-lncome Ratio, 1985-2285 g = 2 % , G/Y = 2 2 % , T/Y = 19%, i = 3 % , mg = 4 % The Debt-to-lncome Ratio The Power of Monetary Accommodation Monetary accommodation, to a greater or lesser degree, takes place whenever the monetary authority purchases the fiscal authority's bonds, the usual process for expanding the money supply.13 Of course, at any time the monetary authority could purchase all the fiscal authority's bonds, in effect printing money to finance the deficit but such a step might prove inflationary. For a monetary authority, continually "monetizing" an out-of-control deficit is generally considered imprudent Nevertheless, whenever the monetary authority purchases FEDERAL RESERVE BANK OF ATLANTA "g" = real growth rate of the economy G/Y = basic government spending a s a proportion of G N P T/Y = percentage of G N P collected a s tax revenue "i" = real after-tax rate of interest "mg" = rate at which the real money supply grows 31 a rate greater than the rate of interest, the money supply is growing faster than the economy, raising the mone^to-GNP ratio and thus possibly implying some inflation. An infeasible deficit regime cannot be accommodated unless the money supply grows faster than the economy. Varying the Deficit The basic fiscal regime that drives the actually reported deficit need not remain constant Historically large deficits may create pressure to reduce the borrowing necessary to finance government operations, even if the basic fiscal regime is by itself feasible. (Again, simply because a fiscal regime is feasible does not necessarily make it desirable.) Figure 5 depicts the results over the next 25 years of one such basic-deficit-elimination scenario. This case makes the same assumptions as depicted in Figures 1 and 2, but now real spending is held constant (in 1985 dollars) until the basic budget is balanced. Tax revenues remain at 19 percent of GNP, and government expenditures are set at 19 percent of GNP, after the basic budget is in balance to assure continued balance. A deficit even a comparatively large one, need not necessarily impinge upon the monetary authority. Continuing the assumptions of 3 percent real growth and 2.5 percent real after-tax interest rates, tax revenue would grow sufficiently to balance the basic budget by around the year 1991. Once the basic budget is in balance, the only source of additional debt is the service payments due on the bonds already outstanding. Since the economy is growing faster than debt service funding requirements (g is greater than i), the debt-to-income ratio will then shrink toward zero without monetary accommodation, even though there may be a substantial reported deficit remaining. The scenario depicted in Figure 5 is not intended to reflect upon current efforts to control the deficit It does, however, amply 32 Figure 5. The Debt-to-Income Ratio, 1985-2010 g = 3 % , G/Y = T/Y = 1 9 % (1991), i = 2.5%, mg = 0 % The Debt-to-Income Ratio "g" = real growth rate of the economy G/Y = basic government spending a s a proportion of G N P T/Y = percentage of G N P collected a s tax revenue " P = real after-tax rate of interest "mg" = rate at which the real money supply grows illustrate the nature of the feasibility argument by isolating the debt service component of the reported deficit In this scenario, once the basic budget is balanced, debt service as a proportion of G N P continuously declines. The Moral The feasibility of a fiscal regime does not necessarily depend on the spending and taxation decisions associated with that regime. Indeed, while the basic budget contributes to both outstanding debt and the additions to the debt so long as the basic deficit is a constant fraction of GNP, feasibility of the deficit is determined by the relationship between the growth rate of the economy and the real rate of interest the government pays on its outstanding debt If the growth rate of the economy exceeds the after-tax rate of interest a constant basic deficit regime will result eventually in a stable government debt-to-GNP ratio without any aid from the monetary authority. Thus a deficit even a comparatively large one, need not necessarily impinge upon the monetary authority. Varying the historically based assumptions MAY 1986, E C O N O M I C REVIEW monetary authority at some future date (and the economy's reaction in the present to such future constraints), undesirable effects of large deficits, such as crowding out, may exert considerable political pressure upon the monetary authority. Yet these pressures could be seen as completely independent of the actual financial needs of the fiscal authorities. Despite the undesirable side effects of the deficit it may not necessarily require any expansion of the money supply that is not desired by the nation's central bank concerning growth and interest rates does not significantly change this conclusion over the course of the next quarter century, provided the basic deficit remains unchanged. Changes in the basic deficit can, of course, affect the path of the debt-to-income ratio significantly in a comparatively quick period of time; freezing the real level of government expenditure results in a rapid turnaround in the debt-to-income time path as the basic deficit disappears. Beyond the purely mathematical requirement that fiscal deficits may impose on the APPENDIX Drawing the Pictures The following equations were used to generate the debt-to-income ratio: GNP t = GNP t _i x (1 + the assumed growth rate) Debtt = [Debtt_-] x (1 + the assumed rate of interest)] + (the basic deficit)t - (Money t - Moneyt.-|) Money t = Moneyt.-j x (1 + the assumed rate of money growth), where " f represents the present period, and "t-1" the previous period The simulations begin with end of the second quarter, 1985 levels of GNP, government debt outstanding, and monetary base. NOTES ' T h e s e are calculated from The Economic Report of the President February 1983, Government Printing Office 1983, and The Budget of the United States Government FY 1986, (GPO 1985). 2 A wide body of literature much of it coming from researchers associated with the Federal R e s e r v e B a n k of Minneapolis, is summarized in Thomas J . Cunningham, "The Asset S i d e of Money Liabilities" (Ph.D. dissertation, Columbia University, 1985). 3 Robert J . Barro, "Are Government Bonds Net W e a l t h ? " Journal of Political Economy, voL 82 (1974), pp. 1095-1118. 4 0ff budget expenditure is, for simplicity, assumed to be " o n budget" Also spending on unemployment compensation and other programs that depend upon the business cycle or vary with the level of income is held constant since, in the present long-run analysis, any sort of cyclical movement is ignored Similarly, c h a n g e s in the composition of income (wages vs. profits) are ignored s T h e simplifying assumption being made here is that the public is willing to continue to hold the s a m e proportion of government debt to income it w a s willing to hold in the p a s t ®Computed from Economic Report of the President February 1983 ( G P O , 1983). 7 S e e Thomas J . Sargent and Neil W a l l a c e " S o m e Unpleasant Monetarist Arithmetic," Federal Reserve B a n k of Minneapolis, Quarterly Review, voL 5, n o 3 (Fall 1981), pp 1-17. Michael R. Darby, " S o m e Pleasant Monetarist Arithmetic," Federal R e s e r v e B a n k of Minneapolis, Quarterly Review, voL 8, no. 2 (Spring 1984), p p 15-20, and Thomas J . Sargent and Preston J. Miller, "A Reply to Darby," Federal R e s e r v e B a n k of Minneapolis, Quarterly Review, voL 8, n o 2 (Spring 1984), p p 21-27, all reprinted in the Quarterly Review of the Minneapolis Federal R e s e r v e Bank, Winter 1984. An assumption generally made in the current debate but relaxed in this article is that the deficit regime specifies a basic budget deficit that is a constant proportion of G N P . 8 E v e n if people anticipate some inflation at the time they purchase the bond and therefore demand a higher rate of FEDERAL RESERVE BANK OF ATLANTA return at the time of the initial sale, inflation will still erode the real value of the b o n d T h e extent of the bondholder's loss depends on how much higher inflation is then anticipated "Thomas J. S a r g e n t "Stopping Moderate Inflation: The Methods of Poincare and Thatcher," Conference on Indexation and Economic Stability in the World Economy, Escola de Pos-Graduacao em E c o n o m i c do Fundacao Getulio Vargas, Rio de Janeiro, December 1981. 10 Wars, of c o u r s e push up spending. A s discussed earlier, the deficit-to-GNP ratio reached its high during World W a r II (1943) at 28 percent of G N P . Recessions, on the other h a n d decrease tax revenue a s economic activity declines and increase government transfer payments in the form of income protection p a y m e n t s The recession starting in 1974 brought about a peak quarterly deficit of close to 6 percent of G N P . " E q u a t i o n s used in t h e s e simulations are contained in the appendix. 1 2 Sargent and Darby a g r e e that a change in fiscal regime may influence the relationship between the interest rate and the growth rate A s the financing n e e d s of the government increase, interest rates may rise a s the government is forced to offer higher rates of return in order to sell additional d e b t eventually pushing the real after-tax rate of interest a b o v e the real rate of growth. Sargent argues that the current fiscal regime has produced such an infeasible result while Darby argues that the current fiscal regime has left the growth rate/interest rate relation fundamentally u n c h a n g e d in a feasible condition 13 ln the United States, the monetary authority purchases government bonds on the open market and does not p u r c h a s e securities directly from the Treasury. The monetary authority is independent of the fiscal authority. , 4 The "high-powered" or "base" money supply, not M1. 33 The Federal Reserve Bank of Atlanta Research Department provides a working paper series to stimulate the professional discussion and exploration of economic subjects W e welcome readers of the Economic Review to fill in the coupon below and return it to receive new technical papers as they are published. If you would like copies of any of the current papers listed above, simply check the subject that interests you and return this page and coupon. All papers are provided free of charge. Return to: Information Center Federal Reserve Bank of Atlanta 104 Marietta Street N.W. Atlanta Georgia 30303-2713 Please start my subscription to the Working Papers Series Name Address City 34 State Zip. MAY 1986, E C O N O M I C R E V I E W FINANCE r i r i f i f i APR. 1986 MAR. 1986 APR. 1985 ANN. % CHG. APR. 1986 MAR. 1986 APR. 1985 ANN. % CHG. 704,881 28,745 155,636 520,294 MAR. 653,534 64,214 694,541 26,107 155,645 512,654 FEB. 652,508 63,136 N.A. N.A. N.A. N.A. MAR. 513,518 57,610 +2/ +11 91,726 4,769 19,977 67,056 MAR. 92,474 5,295 90,895 4,367 19,765 66,678 FEB. 93,061 4,776 N.A. N.A. N.A. N.A. MAR. N.A. N.A. 5,843 278 1,020 4,585 MAR. 5T8ÎÔ 347 5,771 256 1,014 4,541 FEB. 5,880 318 N.A. N.A. N.A. N.A. MAR. 4,327 291 +34 +19 60,101 3,183 13,753 42,870 MAR. 56,064 3,519 59,458 2,901 13,600 42,636 FEB. 56,638 3,200 N.A. N.A. N.A. N.A. MAR. 46,333 3,087 +21 +14 7,741 593 1,682 5,572 MAR. 10,941 528 7,712 549 1,686 5,542 FEB. 10,798 452 N.A. N.A. N.A. N.A. MAR. 9,164 419 +19 +26 9,866 352 2,101 7,583 MAR. 10,101 253 9,864 324 2,066 7,577 FEB. 10,176 252 N.A. N.A. N.A. N.A. MAR. 10,277 N/C 1,778 86 268 1,418 MAR. 2,715 253 1,748 80 264 1,403 FEB. 2,721 262 N.A. N.A. N.A. N.A. MAR. 2,565 N/C 6,397 277 1,153 5,028 MAR. 6,843 395 6,342 257 1,135 4,979 FEB. 6,848 292 N.A. N.A. N.A. N.A. MAR. 6,173 322 $ millions Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share D r a f t s Savings & T i m e 1,584,570 1,552,866 1 ,418,379 326,316 304,147 344,800 113,067 94,555 119,953 439,941 449,723 390,026 667,829 711,139 714,012 N.A. 52,902 51,229 N.A. 7,395 6,739 45,329 43,823 N.A. +12 +13 +27 +27 +15 Mortgages Outstanding Mortgage C o m m i t m e n t s Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share D r a f t s Savings & T i m e 187,147 39,777 16,771 51,176 84,316 6,247 721 5,250 181,896 37,671 15,483 50,086 83,351 6,105 656 5,109 166,494 35,979 12,762 44,600 77,277 N.A. N.A. N.A. +12 +11 +31 +15 + 9 Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share Drafts Savings & T i m e 18,599 4,118 1,582 3,822 9,627 967 146 713 18,095 3,883 1,504 3,755 9,941 940 131 692 16,846 3,565 1,188 3,440 9,148 N.A. N.A. N.A. +10 +16 +33 +11 + 5 FLQRIDA mmercial Bank Deposits Demand NOW Savings Time edit Union Deposits Share Drafts Savings & T i m e 70,081 15,117 7,209 23,653 26,034 3,237 371 2,675 6 ,526 14,,048 6 ,,644 2 2 ,,984 2 5 .,552 3,,162 343 2,,603 61,311 13,475 5,431 21,291 22,594 N.A. N.A. N.A. +14 +12 +33 +11 +15 Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share Drafts Savings & T i m e 29,397 7,948 2,225 8,112 12,494 1,171 113 1,079 28,504 7,579 2,060 7,946 12,380 1,156 100 1,050 25,063 7,081 1,632 6,644 11,027 N.A. N.A. N.A. +17 +12 +36 +22 +13 Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share Drafts Savings & T i m e 29,051 5,404 1,908 7,549 14,655 28,780 5,316 1,834 7,443 14,730 27,018 5,360 1,619 5,892 14,652 + 8 + 1 +18 +28 + 0 * * * * * * * * * Commercial Bank Deposits Demand NOW Savings Time Credit Union Deposits Share Drafts Savings & T i m e 13,646 2,501 1,135 2,713 7,541 13,341 2,441 1,097 2,684 7,426 12,352 2,338 889 2,417 6,999 Commercial Bank Deposits Demand NOW Savings Time C r e d i t Union Deposits Share Drafts Savings & T i m e * * * * * * * * * 26,373 4,689 2,712 5,327 13,965 872 91 783 25,650 4,404 2,344 5,274 13,772 847 82 764 23,904 4,160 2,003 4,916 12,857 N.A. N.A. N.A. Savings & Loans** Total Deposits NOW Savings Time Savings & Loans** Total Deposits NOW Savings Time M o r t g a g e s Outstanding Mortgage Commitments Savings & Loans** Total Deposits NOW Savings Time M o r t g a g e s Outstanding Mortgage C o m m i t m e n t s Savings & Loans** Total Deposits NOW Savings Time Mortgages Outstanding M o r t g a g e Commitments Savings & Loans** Total Deposits NOW Savings Time Mortgages Outstanding Mortgage Commitments Savings & Loans** Total D e p o s i t s NOW Savings Time M o r t g a g e s Outstanding Mortgage Commitments + 7 +28 +12 + 8 Savings & Loans** Total Deposits NOW Savings Time M o r t g a g e s Outstanding Mortgage Commitments +13 +35 + 9 Total Deposits NOW Savings Time M o r t g a g e s Outstanding Mortgage C o m m i t m e n t s - 2 + 6 +11 +23 N o t e s : All deposit data are extracted from the Federal Reserve R e p o r t of Transaction A c c o u n t s , other Deposits and V a u l t Cash ( F R 2 9 0 0 ) , and are reported f o r the average of the week ending the 1st M o n d a y of the m o n t h . This d a t a , reported by institutions with over $25 million in deposits and $2.4 m i l l i o n of reserve requirements as of June 1 9 8 5 , represents 95% of deposits in the six state a r e a . T h e annual rate of change is based on m o s t recent data over c o m p a r a b l e y e a r - a g o d a t a . The major differences between this report and the "call report" are s i z e , the treatment of interbank d e p o s i t s , and the treatment of f l o a t . T h e data generated from the R e p o r t of Transaction A c c o u n t s is f o r banks over $25 m i l l i o n in deposits as of June 1 9 8 5 . The total deposit data generated from the R e p o r t of Transaction A c c o u n t s eliminates interbank deposits by reporting the net of deposits "due to" and "due from" other depository i n s t i t u t i o n s . T h e R e p o r t of Transaction Accounts subtracts cash in process of collection from demand d e p o s i t s , while the call report does n o t . Savings and loan m o r t g a g e data are f r o m the Federal Home Loan Bank Board Selected Balance S h e e t D a t a . The S o u t h e a s t data represent the total of the six s t a t e s . Subcategories were chosen on a selective basis and do not add to t o t a l . * = fewer than four institutions r e p o r t i n g . N . A . = S&l and credit union deposit data are in the process of being revised d u e to reporting c h a n g e s . C o m pfor a r aFRASER b l e y e a r - a g o data not available at this t i m e . Digitized N/C = Data not collected this m o n t h by original s o u r c e . 35 CONSTRUCTION APR 1986 MAR 1986 APR 1985 ANN. % . CHG. $ Mil. 62,887 8,776 16,058 11,619 2,302 1,104 64.,743 8.,775 16.,487 11.,540 2,,157 i;,087 64.,746 9,,143 16.,123 9.,949 2,,022 1,,147 - 3 - 4 - 1 +17 +14 - 4 Residential Building Permits Value - $ M i l . Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ M i l . 10,632 1,180 2,512 2,339 390 159 10,906 1,192 2,638 2,291 381 154 9,788 989 2,337 1,992 356 106 + 6 +19 + 7 +17 +10 +50 Resident i a l B i m ^ n ^ e r m U s Value - $ M i l . Residential Permits - T h o u s . Single-family units Multifamily units Total Building Permits Value - $ M i l . Mil. 649 65 167 169 18 17 635 65 155 163 16 17 658 99 101 141 51 7 - 3 -35 +65 +20 -65 +143 Residential B u i I d i n g P e n n U s Value - $ M i l . Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ M i l . n d e n t i a l Building Permits - $ Mil. :al Nonresidential 5,455 Industrial Bldgs. 469 Offices 1,144 Stores 1,238 Hospitals 213 Schools 54 5,,604 492 1.,194 1,,228 218 49 4,,948 557 1,,087 1,,111 161 48 +10 -16 + 5 +11 +32 +13 Residential Building Permits Value - $ M i l . Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ M i l . $ Mil. 2,008 349 528 382 36 21 2,029 332 556 352 38 21 1,834 200 540 310 32 18 + 9 +75 - 2 +23 +13 +17 Residential Building Permits Value - $ Mil. Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ M i l . Mil. 1,051 39 376 222 35 45 1,133 49 405 230 46 46 1,219 47 307 238 72 25 -14 -17 +22 - 7 -51 +80 Residential Building Permits Value - $ Mil. Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ Mil. n i. 307 33 65 74 17 7 312 32 67 74 18 7 242 12 43 45 6 3 +27 +175 +51 +64 +183 +133 Residential Building Permits Value - $ Mil. Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ Mil. 1,194 223 261 245 45 14 886 73 258 146 33 5 +31 +208 -11 +73 +11? +200 Residential Building Permits Value - $ M i l . Residential Permits - Thous. Single-family units Multifamily units Total Building Permits Value - $ M i l . 12-month cumulative rate Nonresidential Building Permits Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools Nonresidential Building Permits Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools Nonresidential Building Permits Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools Nonresidential^Building Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools Nonresidential Building Permits Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools Nonresidential Building Total Nonresidential Industrial Bldgs. Offices Stores Hospitals Schools 1,162 225 232 253 70 15 APR 1986 MAR 1986 APR 1985 ANN. % CHG. 87,135 85,282 74,701 +17 992.9 782.8 973.3 783.0 900.1 738.2 +10 + 6 150,022 150,025 139,447 + 8 15,537 15,414 13,674 +14 203.1 162.5 200.7 167.5 186.1 167.7 + 9 - 3 30,676 30,424 21,635 +42 595 589 463 +29 9.9 8.5 9.6 8.6 8.8 6.6 +13 +29 1,244 1,224 1,121 +11 8,711 8,715 7,816 +li 106.6 97.1 105.9 101.0 99.6 99.4 + 7 - 2 12,466 14,319 12,764 +11 3,480 3,411 2,847 +22 49.6 28.3 48.8 28.4 43.5 25.5 +14 +11 5,488 5,440 4,681 +17 7,277 7,326 9,247 -22 11.0 5.3 11.2 5.4 13.2 10.5 -17 -50 1,779 1,865 2,143 -17 352 351 367 - 5 5.8 2.9 5.9 3.0 6.5 3.6 -11 -20 658 662 610 + 8 1,672 1,615 1,256 +33 20.1 20.4 19.4 20.8 14.7 22.2 +37 - 8 3,044 3,018 2,142 +42 NOTES: Data supplied by the U . S . Bureau of the Census, Housing Units Authorized By Building Permits and Public Contracts C-40 Nonresidential data excludes the cost of construction for publicly owned buildings. The southeast data represent the total of the si> states. 36 FRASER Digitized for M A Y 1986, E C O N O M I C R E V I E W m GENERAL UNITED STATES Personal Income (Sbi1. - S A A R ) T a x a b l e Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 K i l o w a t t Hours - m i l s . SOUTHEAST Personal Income ($bi1. - SAAR) T a x a b l e Sales - Sbil. Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 Kilowatt Hours - mils. ALABAMA Personal Income (Sbi1. - SAAR) T a x a b l e Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 K i l o w a t t Hours - m i l s . FLORIDA ~ Personal Income (Sbil. - SAAR) Taxable Sales - Sbil. Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 MIAMI Kilowatt Hours - m i l s . GEORGIA Personal Income (Sbil. - S A A R ) Taxable Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 ATLANTA Kilowatt Hours - m i l s . LOUISIANA Personal Income (Sbil. - SAAR) Taxable Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 K i l o w a t t Hours - m i l s . MISSISSIPPI Personal Income (Sbil. - S A A R ) T a x a b l e Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 K i l o w a t t Hours - m i l s . TENNESSEE Personal Income (Sbil. - S A A R ) T a x a b l e Sales - S b i l . Plane P a s s . A r r . (000's) Petroleum P r o d , (thous.) Consumer Price Index 1967=100 Kilowatt Hours - mils. ANN. %. CHG. LATEST C U R R . DATA PERIOD PREV. PERIOD YEAR AGO 3,211.6 N.A. N.A. 8,790.5 3;,109.7 N.A. N.A. 9.,031.8 + 5 MAY 3,268.1 N.A. N.A. 8,848.0 MAY MAR 326.2 187.7 325.3 193.2 321.3 184.9 + 2 + 2 391.3 N.A. 6,040.4 1,490.0 378.5 N.A. 5.,248.3 1.,517.0 + 5 APR MAY 398.3 N.A. 5,268.5 1,417.0 MAR N.A. 27.9 N.A. 29.8 N.A. 25.3 APR MAY 43.1 N.A. 134.8 62.0 42.2 N.A. 145.2 59.0 40.9 N.A. 124.9 57.0 + 8 + 9 MAR N.A. 3.7 N.A. 4.2 N.A. 3.7 0 4Q 154.5 151.2 145.5 + 6 2,699.6 31.0 MAY 173.0 8.1 3,197.2 31.0 MAR 174.5 8.6 2 ,598.2 36.0 MAY 171.0 7.5 + 4 -14 74.3 N.A. 1,869.8 N.A. APR 334.9 4.8 73.2 N.A. 2,152.1 N.A. FEB 336.9 4.6 70.0 N.A. 2 ,019.1 N.A. APR 324.6 4.4 + 6 49.4 N.A. 308.8 1,238.0 48.7 N.A. 293.4 1 ,335.0 + 1 APR MAY 49.4 N.A. 296.0 1,240.0 MAR N.A. 4.0 N.A. 4.3 N.A. 4.4 APR MAY 24.1 N.A. 35.7 84.0 23.2 N.A. 38.5 190.0 23.0 N.A. 34.9 88.0 MAR N.A. 1.9 N.A. 2.1 N.A. 1.9 52.9 N.A. 232.6 N.A. 52.1 N.A. 198.6 N.A. 50.5 N.A. 177.8 N.A. N.A. 5.5 N.A. 6.1 N.A. 6.2 4Q 4Q 4Q APR MAY MAR 4Q APR MAR 4Q 4Q 4Q APR MAR + 2 + 0 - 7 +10 + 5 + 1 + 8 - 7 + 3 + 9 + 1 - 7 - 9 + 5 + 2 - 5 0 + 5 +31 -11 ANN. MAY % 1985 C H G . MAY 1986 APR (R) 1986 Agriculture Prices Rec'd by Farmers Index (1977=100) 124 Broiler Placements (thous.) 85,331 Calf Prices ($ per c w t . ) 58.40 Broiler Prices ({ per lb.) 30.90 Soybean P r i c e s (S per bu.) 5.18 Broiler Feed Cost ($ per ton) (Q2)189 121 84,740 58.90 29.90 5.22 (Q1J189 130 90,266 65.60 30.00 5.70 (Q2)204 - 5 - 5 -11 + 3 - 9 - 7 114 35,525 54.84 29.78 5.28 181 109 35,386 55.03 28.17 5.27 181 123 34,965 60.91 27.81 5.84 204 - 7 + 2 -10 + 7 -10 -11 Agriculture Farm Cash Receipts - S m i l . (Dates: F E 8 , F E B ) 298 Broiler Placements (thous.) 12,186 54.50 Calf Prices (S per c w t . ) Broiler Prices (t per lb.) 30.00 Soybean Prices (S per bu.) 5.33 Broiler Feed Cost ($ per ton) 181 - 11,930 54.20 28.00 5.20 179 274 11,774 59.20 28.00 5.89 195 + 9 + 3 - 8 + 7 -10 - 7 Agriculture Prices Rec'd by Farmers Index (1977=100) Broiler Placements (thous.) Calf Prices ($ per cwt.) Broiler Prices (t per lb.) Soybean Prices (S per bu.) Broiler Feed Cost ($ per t o n ) Agriculture Farm Cash Receipts - S m i l . (Dates: F E B , FEB) Broiler Placements (thous.) Calf P r i c e s ($ per c w t . ) Broiler Prices ($ per lb.) Soybean Prices (S per b u . ) Broiler Feed Cost ($ per ton) •• 777 2,349 62.50 29.00 5.33 181 2,388 57.10 27.00 5.20 230 Agriculture Farm Cash Receipts - $ m i l . (Dates: F E B , FEB) 376 Broiler Placements (thous.) 14,230 Calf P r i c e s ($ per c w t . ) 49.60 Broiler Prices ({ per lb.) 29.00 5.20 Soybean P r i c e s (S per bu.) Broiler Feed Cost ($ per ton) 181 14,308 51.90 27.50 5.23 180 - - Agriculture Farm Cash Receipts - S mil (Dates: F E B , FEB) Broiler P l a c e m e n t s (thous.) Calf Prices (S per c w t . ) Broiler P r i c e s (i per lb.) Soybean P r i c e s (S per bu.) Broiler Feed Cost ($ per ton) 310 N.A. 54.00 31.00 5.22 181 N.A. 55.10 29.50 5.23 245 Agriculture Farm Cash Receipts - $ m i l . (Dates: F E B , FEB) Broiler Placements (thous.) Calf P r i c e s ($ per cwt.) Broiler P r i c e s (£ per lb.) Soybean Prices (S per bu.) Broiler Feed C o s t (S per ton) 341 6,760 55.60 31.20 5.23 181 6,760 55.60 30.10 5.28 157 Agriculture Farm Cash Receipts - $ m i l . (Dates: F E B , F E B ) Broiler Placements (thous.) Calf Prices (S per c w t . ) Broiler Prices (i per lb.) Soybean Prices (S per bu.) Broiler Feed Cost (S per ton) 276 N.A. 51.50 27.50 5.41 189 N.A. 55.40 26.00 5.41 176 - - - 721 2,174 65.30 27.00 5.89 235 + 8 + 8 - 4 + 7 -10 -23 393 14,216 59.10 27.00 5.83 225 - 4 + 0 -16 + 7 -11 -20 264 N.A. 62.50 30.00 5.58 250 +17 414 6,801 59.70 29.00 6.04 160 -18 - 1 - 7 + 8 -13 +13 348 N.A. 59.70 26.00 5.80 183 -21 -14 + 3 - 6 -28 -14 + 6 - 7 + 3 NOTES: Personal Income data supplied by U . S . Department of C o m m e r c e . T a x a b l e Sales are reported as a 12-month cumulative total. Plane P a s s e n g e r A r r i v a l s are collected from 26 a i r p o r t s . Petroleum Production data supplied by U . S . Bureau of M i n e s . Consumer Price Index data supplied by Bureau of Labor S t a t i s t i c s . A g r i c u l t u r e data supplied by U . S . D e p a r t m e n t of A g r i c u l t u r e . Farm Cash Receipts data are reported as c u m u l a t i v e for the calendar year through the month s h o w n . Broiler placements are an average w e e k l y r a t e . T h e Southeast data represent the total of the six s t a t e s . N . A . = not a v a i l a b l e . T h e annual percent change calculation is based on m o s t recent data over prior y e a r . R = revised. RESERVE BANK O F ATLANTA Digitized forFEDERAL FRASER 37 EMPLOYMENT 1986 MAR 1986 APR 1985 Civilian Labor Force - t h o u s . Total Employed - thous Total Uemployed - t h o u s . Unemployment R a t e - % SA Insured Unemployment - t h o u s . Insured U n e m p l . Rate - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - S 116,317 108,201 8,115 7.2 N.A. N.A. 40.5 392 116,309 107,643 8,667 7.2 N.A. N.A. 40.7 395 114,325 106,175 8,150 7.3 N.A. N.A. 40.1 380 Civilian Labor Force - t h o u s . Total Employed - thous Total Uemployed - t h o u s . Unemployment R a t e - % SA Insured U n e m p l o y m e n t - t h o u s . Insured U n e m p l . Rate - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - $ 15,637 14,448 1,188 7.9 N.A. N.A. 41.2 357 15,587 14,350 1,237 7.8 N.A. N.A. 41.1 355 15,255 14,087 1,164 8.0 N.A. N.A. 40.6 338 "flip® 1,697 109 9.4 N.A. N.A. 40.7 357 1,673 179 8.9 N.A. N.A. 40.6 355 B Ü M l H H Civilian Labor Force - t h o u s . Total Employed - thous Total Uemployed - t h o u s . Unemployment Rate - % SA Insured Unemployment - t h o u s . Insured U n e m p l . Rate - % M f g . A v g . Wkly. Hours Mfg. Avg. Wkly. Earn. - $ 5,445 1,697 169 9.4 N.A. N.A. 40.7 355 5,439 1,673 179 8.9 N.A. N.A. 40.6 356 Civilian Labor Force - t h o u s . Total Employed - thous Total Uemployed - thous. Unemployment Rate - % SA Insured Unemployment - t h o u s . Insured U n e m p l . Rate - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - $ 2,934 2,774 160 5.8 N.A. N.A. 44.1 381 1,981 1,719 262 13.2 N.A. N.A. 40.8 430 Total Employed - thous Total Uemployed - t h o u s . Unemployment Rate - % SA Insured Unemploynent - t h o u s . Insured U n e m p l . R a t e - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - $ Total Employed - thous Total Uemployed - t h o u s . Unemployment R a t e - % SA Insured Unemployment - t h o u s . Insured U n e m p l . R a t e - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - $ Total Employed - thous Total Uemployed - t h o u s . Unemployment R a t e - % SA Insured Unemployment - t h o u s . Insured U n e m p l . R a t e - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - $ Total Employed - thous Total Uemployed - t h o u s . Unemployment R a t e - % SA Insured Unemployment - t h o u s . Insured U n e m p l . Rate - % M f g . A v g . W k l y . Hours Mfg. Avg. Wkly. Earn. - S NOTES: " f l P ANN. % . CHG 2 + 2 2 + - + 1 + 3 + 3 + 3 + 2 + 1 + 6 1,642 153 8.5 N.A. N.A. 40.8 338 + 3 +10 5,293 1,642 153 8.5 N.A. N.A. 40.8 345 + 3 + 3 +10 2,921 2,753 167 6.2 N.A. N.A. 43.2 370 2,852 2,682 -170 6.7 N.A. N.A. 40.9 319 — + 3 + 4 - 6 1,983 1,721 262 13.2 N.A. N.A. 41.1 435 1,982 1,754 228 11.4 N.A. N.A. 41.4 344 1,021 124 11.2 N.A. N.A. 40.2 430 1,010 1.27 10.6 N.A. N.A. 40.4 435 — 998 113 10.1 N.A. N.A. 39.8 344 2,266 2,087 177 7.9 N.A. N.A. 41.0 346 2,256 2,069 187 7.5 N.A. N.A. 41.1 342 2,222 2,041 177 8.0 N.A. N.A. 40.8 332 — r— "fHfP® . APR - 2 + 3 + 8 +19 - 2 +15 - 2 +25 lipasi + 2 +10 + 1 +25 + 2 0 + 0 + 4 M APR 1985 ANN. % CHG Nonfarm Employment - thous. Manufacturing Construction Trade Government Services Fin., Ins. & Real. Est. Trans. Com. & Pub. Util. 99,817 19,269 4,751 23,715 16,865 22,873 6,180 5,309 98,922 19,262 4,471 22,818 16,871 21,630 6,118 5,282 96,909 19,375 4,451 22,797 16,475 21,766 5,833 5,243 + + + + + + + 1 7 4 2 5 6 1 Nonfarm Employment - t h o u s . Manufacturing Construction Trade Government Services Fin., Ins. & R e a l . Est. Trans. Com. & Pub. Util. 13,010 2,310 771 3,232 2,303 2,749 750 717 12,956 2,303 770 3,221 2,301 2,741 747 720 12,6/1 2,311 759 3,132 2,251 2,647 718 721 + + + + + + - 3 1 2 3 3 4 4 1 347 70 307 306 246 68 71 1,423 358 71 301 299 242 65 72 + + + + - 4,565 521 337 1,234 697 1,192 330 244 4,569 522 337 1,235 700 1,193 329 244 4,420 513 330 1,193 684 1,134 312 243 + + + + + + + + 3 2 2 3 2 5 6 0 Nonfarm Employment; - t h o u s . 2,613 Manufacturing 557 Construction 150 Trade 663 Government 457 474 Services Fin., Ins. & Real. Est. 141 163 Trans. Com. & Pub. Util. 2,607 562 149 659 457 469 140 164 ' • • " 2,549 552 142 639 452 461 135 161 + + + + + + + + 3 1 6 4 1 3 4 1 ^ 7 5 5 3 168 98 384 328 322 85 112 • • • • • • 1^598 180 106 383 329 320 85 115 - 7 -13 0 0 0 + 1 thous. Manufacturing Construction Trade Government Services Fin., Ins. & Real. Est. Trans. Com. & Pub. Util. - 2 + 6 MAR 1986 • ¡ • H T7444 356 71 309 307 248 68 71 ... Nonfarm Employment - t h o u s . Manufacturing Construction Trade Government Services Fin., Ins. & Real. Est. Trans. Com. & Pub. Util. fhousP^T Manufacturing Construction Trade Government Services Fin., Ins. & Real. Est. Trans. Com. & Pub. Util. ^^lorffSmÌSB^BP^ Manufacturing Construction Trade Government Services Fin., Ins. & Real. E s t . Trans. Com. & Pub. Util. ^^^SfSPRPÜyH!?^ Manufacturing Construction Trade Government Services Fin., Ins. & Real. Est. Trans. Com. & Pub. Util. H T 169 93 383 329 320 86 108 ^ M I S " 900 222 35 179 193 134 37 39 834 220 35 175 190 131 35 39 ^899 483 81 457 318 376 87 90 1,847 489 76 441 298 359 87 90 221 36 181 193 136 37 39 I 1918 486 83 462 320 380 88 91 - - 1 0 3 3 2 5 2 +7 + + + + + + 0 3 3 2 4 6 0 + + + + + + 1 9 5 7 6 1 1 I All labor force dara are from Bureau of Labor Statistics reports supplied by state a g e n c i e s . O n l y the unemployment rate data are seasonally a d j u s t e d . T h e Southeast data represent the total of the six s t a t e s . 38 MAY 1986, E C O N O M I C R E V I E W Federal Reserve Bank of Atlanta 104 Marietta St, N.W. Atlanta, Georgia 30303-2713 Address Correction Requested Bulk Rate U.S. Postage PAID Atlanta, Ga. Permit 292