Assigning blame is something we all do. It was the other guy
who broke the expensive vase. There is nothing new in political candidates claiming
success for everything good and shouldering blame for nothing. But the world is
not that simple. National political and economic outcomes are surely the
composite of many factors manifesting over many time periods.
One specific instance of credit/blame that I hear with
regular frequency is the two-part conclusion that (1) President Clinton raised
taxes, created a budget surplus, and that was good for the US economy while (2)
President Bush lowered taxes, created a budget deficit, and that was bad for
the economy. The truth of these statements have current application because
some folks would like to make the point that raising taxes on the rich today
will reduce the government deficit and would be a good thing for the US
economy.
This blog post looks a little deeper at this urban legend
about Clinton/Bush/Taxes or what I will refer to below as the CLIBUSHTA. In economics you get
rich and famous by writing things on napkins or making up names like
stagflation and disintermediation. So let’s see if CLIBUSHTA sticks.
The first thing I would like to note is that Clinton had a
majority in both houses of Congress from 1993 to 1995. He was President for
eight years from 1993 to 2000. (see this
source for congressional numbers from 1867 to 2009 http://arts.bev.net/roperldavid/politics/congress.htm
). During the remaining six years of his term the Republicans had majorities in
both parties. We can label the 1993 legislation that raised top income tax
rates to 36% and 39.6% as belonging to Clinton. But upon losing his majority
the policy in the remaining years required bipartisan support.
My second point has to do with the behavior of the
government budget balance during the Clinton years. The bipartisan
Congressional Budget Office did a study (http://www.cbo.gov/publication/41238
) which examined government budget positions between 1959 and 2008. There you
find quarterly figures that show the US budget turning to surplus in the first quarter
of 1998 and staying in surplus until the third quarter of 2001. Thus,
Clinton-era budgets were in deficit during all the quarters of his first term
and the first year of his second term. The budget turns surplus in his 6th
year in office and remains in surplus until the end of Bush’s first year in
office.
So it is true that we enjoyed government budget surpluses for
three of the last four years of Clinton’s second term in office. The CBO has
another set of interesting data that decomposes the actual recorded surplus (or
deficit) into two parts:
(1) the
part that is caused by deliberate policy action (called the cyclically
adjusted budget position)
(2) the
part that is caused by the changes in the growth of the economy (called
the cyclical budget position)
During the 12 quarters of the Clinton/Bush budget surpluses,
the effect of deliberate policy action was shown to be a negligible contributor
to the measured surplus. That is, in none of these quarters were Clinton’s tax
changes or CLIBUSHTA tax or spending policies a major factor in the surpluses.
But the story is even stronger than that. In eight of the quarters, the policy
part was contributing to a government deficit. If it had not been for
exceptionally strong economic growth in those eight quarters, the budget
surpluses would have been deficits. Interpretation – intended policy was to
have government deficits but strong economic activity swamped the intentions
and created surpluses.
What was going on in those eight quarters? First, the
economy was in a long and strong growth cycle that started in March of 1991 and
did not end until March of 2001. This 10 year economic expansion started well
before Clinton came into office in 2003. It had the unemployment rate falling
throughout but it is notable that it went from 4.7% in early 1998 to 3.9% in
the final quarter of 2000. During this time period incomes grew rapidly and tax
revenues increased despite a host of tax reduction measures taken in Clinton’s
second term.
Clinton fans could try to take credit for these eight
quarters of government surpluses but it would be a real stretch. Taxing rich
people more had very little to do with this tsunami of tax revenue. What about
the third year of surpluses? During Clinton’s last year of office (2000) it
made sense that policymakers would be less interested in employment and much
more worried about inflation. It would make sense as well to move toward
surplus-generating policies. And that they did. But even in that year the
effects of the economy swamped the policy impact on the surplus. During those
four quarters the policy component had less than half the impact of the economy
on the surplus.
To summarize, there is very little evidence from either of
Clinton’s terms that his policies or those of the CLINTBUSHTA during his terms
had much if anything to do with the resulting government budget position. Or to
say it another way—there is no evidence here to suggest that taxing the rich
creates surpluses and strong economic growth. The truth is just the opposite
and more simple – something before Clinton’s Presidency and before Clinton’s
tax increase caused economic growth to accelerate and that lead to automatic
increases in tax revenue and automatic decreases in government spending. Budget
surpluses were caused by growth not by tax policy during the Clinton years.
Without going into a lot of detail one can extrapolate this
same point to the dismal economic growth and large deficits of the early Bush
years. After the Dot Com bubble burst, we had a recession that began in April
of 2001. Bush did not cause that recession in April 2001 any more than Obama
caused the recession in 2008. Bush’s budgets quickly went into deficit and it
was mostly because of stimulus policy. The recession pushed the unemployment
rate from a low of 3.9% to a high of 6.3% by the middle of 2003. Government
deficits were automatically increased by the slowing economy but very large tax
cuts and spending increases combined to increase measured deficits to the
neighborhood of 4% of GDP.
Again the story is the opposite of the urban legend. The
latter says that Bush tax cuts caused government deficits and were bad for the
economy. But the truth is that during a recession few governments are able to
withstand the demands for stimulus policies. Bush was no different. But it is
not the tax cuts and the budget deficits that hurt the economy. It was a weak
economy that led to tax cuts and higher deficits.
Whether we look at Clinton’s or Bush’s terms – the lesson is
the same. The economy caused changes in the taxes and government budget
positions. Higher tax rates did not cause surpluses and strong economic growth
– lower tax rates did not cause budget deficits and weakened economic growth.
To think that higher tax rates on the rich or poor today is a solution to our
budget deficits and economic woes is to misunderstand CLIBUSHTA!