Government FY Accounting Distorts Actual Figures

October 13, 2003

In an October 9 op-ed for the New York Times, Harvard law professor Howell E. Jackson writes that the government's fiscal year accounting methods would be illegal in the private sector. The main cause, Jackson claims, is that the federal budget does not account for unfunded liabilities for entitlement programs like Social Security thereby substantially reducing deficit measurements from the real picture. Highlights of Jackson's "It's Even Worse Than You Think" op-ed follow:

"Last week the federal government ended the fiscal year with a reported deficit of approximately $400 billion, pushing the federal debt held by the public to nearly $4 trillion. Sobering though these numbers are, they actually understate the problem. Through an accounting sleight of hand with far greater consequences than the corporate scandals of recent years, the federal government distorts public debate, threatens social programs and impoverishes future generations.

"What's missing from the $400 billion figure is an accurate recognition of the mounting obligations of the Social Security system. Under current practices, Social Security reports its financial performance on a cash-flow basis: it compares annual revenues to annual costs and reports a surplus or a deficit. Last year, Social Security enjoyed a surplus of roughly $160 billion. The government used this money to mask what would otherwise have been a $560 billion federal deficit.

"Were the federal government to account for its Social Security obligations under the rules of accrual accounting, which govern public companies, its financial outlook would be far worse. By the end of last year, the Social Security system owed retirees and current workers benefits valued at $14 trillion. The system's assets, in contrast, were only $3.5 trillion. These assets include not only the trust funds' current reserves ($1.4 trillion), but also the present value of the taxes that current workers will pay over the remainder of their working lives ($2.1 trillion).

"In other words, the system's current shortfall—its assets minus its liabilities—is $10.5 trillion. Unless Congress chooses to rescind Social Security benefits that have already been earned, this shortfall must be shouldered by future generations. This implicit debt of the Social Security system is more than two and a half times larger than the government's public debt.

"The federal budget's treatment of Social Security and other entitlements for the elderly is deeply misleading. Just as investors should be able to rely on the accounting statements of public companies, the public is entitled to statements of federal accounts that clearly report the growth of the government's financial obligations each year. The current federal budget does no such thing.

"If Social Security were to present its finances on the basis of accrual accounting, the public would have to face the hard truth that the system is insolvent—and its deficit is increasing by hundreds of billions of dollars a year. Politicians would have more incentive to act. Indeed, voters might even insist that Congress and the president reduce the Social Security shortfall to a reasonable size.

"Accrual accounting is the gold standard for the private sector because it forces long-term liabilities to be recognized when they are incurred and can be controlled. The federal government is increasingly in the business of making long-term promises to its citizens. Until the federal government adopts principles of accounting that recognize these promises, the federal budget will remain the most misleading document in Washington. And that's saying a lot."

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