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              Congressional                                                     ____
          ~ Research Service






Structure of Federal Debt and Extraordinary

Measures



April  25, 2023

Structure   of  Federal  Debt

Federal debt is the accumulated sum of unrepaid borrowing by the federal government over time, and to a
lesser extent, the value of federal loan disbursements net of repayments. The total federal debt consists of
debt held by the public and intragovernmental debt. Debt owed to the public represents borrowing from
entities other than the federal government, and includes borrowing from state and local governments,
foreign governments and investors, the Federal Reserve System, and foreign central banks, as well as
private investors in the United States.
Figure 1 provides a breakdown of publicly held debt. As of December 31, 2022, total federal debt
outstanding was $31,420 billion, debt held by the public was $24,528 billion, and intragovernmental debt
was $6,902 billion.
Data were drawn from the U.S. Department of the Treasury's Monthly Statement of the Public Debt for
December 2022. On January 19, 2023, Treasury Secretary Janet Yellen invoked authorities to employ
extraordinary measures that allow resources of certain intragovernmental accounts to be used to meet
federal obligations to avoid exceeding the statutory limit on federal debt. The Monthly Statement of the
Public Debt for December 2022 is, therefore, the last issue before the use of extraordinary measures.
Federal debt has risen considerably since FY2001, the last fiscal year in which the U.S. government ran a
surplus. At the end of FY2001, gross federal debt stood at $5.8 trillion, about 55% of gross domestic
product (GDP). Since mid-January 2023, when extraordinary measures were deployed, federal debt has
been held just below its statutory limit of $31.381 trillion, about 120% of GDP. Debt held by the public,
the more relevant macroeconomic measure, was 94% of GDP.








                                                               Congressional Research Service
                                                                 https://crsreports.congress.gov
                                                                                    IN12149

CRS INSIGHT
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Committees of Congress

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