Government Debt

Observers sometimes comment on the fact that a substantial fraction of government debt is “owed to ourselves” (that is, it is held by US citizens) and therefore less of a cause for concern than the fraction that is owned by foreigners. Does this reasoning make sense? The answer is “not very much.” To see why, consider a US citizen who owns some US government bonds. Now imagine that she sells those bonds to a German bank and uses the proceeds to buy some General Motors (GM) shares that are currently owned by a French investment bank. All that has happened here is some rebalancing of portfolios. One individual decided to shift her assets around, so she now owns GM shares instead of government bonds. Likewise, the German bank decided it wanted more US bonds in its portfolio, whereas the French investment bank decided it wanted fewer GM shares. These kinds of transactions go on all the time in our economy. Our hypothetical citizen is just as wealthy as she was before; she is simply holding her wealth in a different form. The same is true for the German and French financial institutions. Yet foreigners hold more of the national debt than previously. Domestic or foreign ownership of the debt can change with no implications for the overall indebtedness of individuals or the country. It is more meaningful to look at the amount of foreign debt that has been accumulated by a country as a result of its borrowing from abroad. Foreign debt represents obligations that will have to be repaid at some future date. Commentators sometimes express worry over the fact that foreign central banks—notably those of Japan and China—own substantial amounts of US debt. There is a legitimate concern here: if one or more of those banks suddenly decided they no longer wanted to hold that debt, then there might be a large change in US interest rates and resulting financial instability. But the real issue is not that the debt is foreign owned. Rather, it is that a large amount of debt is held by individual institutions big enough to move the market. At the same time, the Chinese are equally concerned about the value of the US government debt they hold. In their view, they traded away goods and services for pieces of paper that are claims to be paid by the US government. These claims are in nominal terms (in dollars). Hence any change in the exchange rate changes the value of this debt to the Chinese. If, for example, the dollar depreciates relative to the Chinese renmimbi (RMB), then the real value (in terms of Chinese goods and services) of this debt is reduced. The RMB/dollar exchange rate was 8.28 in January 2000. A holder of a US dollar bill could obtain 8.28 RMB in exchange. This rate was 8.07 in January 2006. However, by June 2011, the exchange rate was 6.48. This means that someone who exchanged RMB for dollars in 2000 and then sold those dollars for RMB in June 2011 lost about 20 percent in nominal terms.