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                                                                 Order Code RS21 111
                                                                 Updated July 5, 2002



 CRS Report for Congress

               Received through the CRS Web



    The Debt Limit: The Need to Raise It After

                  Four Years of Surpluses

                             Philip D. Winters
                     Analyst in Government Finance
                     Government and Finance Division


Summary


     Increases in total federal debt are driven by government deficits (which increase
 debt held by the public) and by the surpluses credited to (and federal accounting for)
 debt-holding federal accounts, mostly federal trust funds such as the Social Security,
 Medicare, Transportation, and Civil Service trust funds.

     Government deficits increase debt held by the public; government surpluses reduce
 debt held by the public. The government surpluses over the last four fiscal years (1998-
 2001) reduced debt held by the public by $448 billion. The surpluses credited to debt-
 holding government accounts (which generally must invest the surpluses in federal
 debt), increased their holdings by $853 billion over the same period. The combination
 increased total federal debt by $405 billion. During FY2002 (through May 31, 2002),
 total debt subject to limit increased another $217 billion. The increases lifted federal
 debt to the then current statutory debt limit, $5.95 trillion, twice in 2002, most recently
 in mid-May 2002.

      Since December 2001, the Administration repeatedly asked Congress to increase
 the $5.95 trillion debt ceiling by $750 billion. The Senate passed a $450 billion increase
 (S. 2578) on June 11; the House approved the bill on June 27 (by one vote). The
 President signed the legislation on June 28 (P.L. 107-199) raising the limit to $6.4
 trillion, ending the most recent debt limit crisis. (This report will be updated as events
 warrant.)


    The statutory debt limit applies to almost all federal debt.' It applies to federal debt
held by the public, that is debt held outside the federal government itself, and to federal
debt held by the government's own accounts, almost all of which are federal trust funds
such as Social Security, Medicare, Transportation, and Civil Service. The government's


1 When measured on a similar basis, just over one percent of total federal debt is excluded from
debt limit coverage. On the last day of June 2002, total federal debt was $6.126 trillion; debt
subject to limit was $6.058 trillion, 98.9% of the total debt.

       Congressional Research Service **** The Library of Congress

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