chapter 15 fiscal policy section -...

NGSSS

390 Unit 6

Chapter 15

Block SchedulingBlock 1 Teach the complete Section 1.

Block 2 Teach Sections 2 and 3. Omit the Bellringer activities and Extend options.

Pressed for TimeGroup work Divide students into three groups and use the Jigsaw strategy (p. T29) to have students teach each other the material in the three sections. Complete the transparencies and worksheets as a class.

Essential QuestionsUNIT 6:

What is the proper role of government in the economy?

CHAPTER 15:

How effective is fiscal policy as an economic tool?

Introduce the chapterACTIVATE PRIOR KNOWLEDGE

In this chapter, students will learn about the federal government’s fiscal policy. Tell students to complete the warmup activity in the Essential Questions Journal.

DIffERENTIATED INSTRUCTION KEy

L1 Special Needs

L2 Basic to Average includes

Ell English Language Learners

lPR Less Proficient Readers

L3 All Students

L4 Advanced Students

online Visit www.PearsonSchool.com/PHecon for an interactive textbook with built-in activities on economic principles.

• The Wall Street Journal classroom Edition Video presents a current topic related to market structure.

• Yearly Update Worksheet provides an annual update, including a new worksheet and lesson on this topic.

• on the Go resources can be downloaded so students and teachers can connect with economics anytime, anywhere.

Chap

ter

Essential Question, Chapter 15


Fiscal Policy15

390 F IsCAL POLICY

To study anywhere, anytime, download these online resources at PearsonSchool.com/PHecon

on the goSection 1: Understanding Fiscal PolicyLA.1112.1.6, LA.1112.6.2, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.9

Section 2: Fiscal Policy OptionsLA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.1, SS.912.E.2.3, SS.912.E.3.6

Section 3: Budget Deficits and the National DebtLA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.1.13, SS.912.E.2.9, SS.912.E.3.1

Next Generation Sunshine State Standards

ECON13_SE_FL_CH15_CO.indd 390 3/1/11 3:25:05 PM

Fiscal Policy

Goals• increase economic growth

•

•

•

Limits• difficulty of changing

spending levels•

•

•

Chapter 1 SeCtION 2 391Chapter 15 SeCtION 1 391

Go to the Visual Glossary Online for an interactive review of fiscal policy.

Go to Action Graph Online for animated versions of key charts and graphs.

online onlineonline

Go to How the Economy Works Online for an interactive lesson on the national debt.

SECTION 1 Understanding Fiscal Policy

economic dictionary

As you read the section, look for the definitions of these Key Terms:

•fiscalpolicy•federalbudget•fiscalyear•appropriationsbill•expansionarypolicy•contractionarypolicy

Guiding QuestionWhat are the goals and limits of fiscal policy?

Copythistableandfillitinasyouread.

Economics and You Does your family have a household budget? Or have you ever tried to budget your own money? Either way, you know that you have to take a close look at how much money you have coming in and how much you have to spend. Your goal is to get those two figures in line. But it’s not easy. Sometimes it requires giving something up. Sometimes—although you try to avoid it—it may even require borrowing money. No matter what, making the plan takes time. Somebody has to sit down with a calculator and a stack of bills and a checkbook and a calendar and figure it all out.

Now, imagine how much more effort it would take if your expenses totaled $3.1 trillion a year. Suppose everyone in the house had to agree on every single item in the budget, and you had to send it to somebody else for a final okay. Now you have an idea what the U.S. federal government must do before it can spend your tax money.Principles in Action Unlike a family, the federal government is not just interested in making income meet expenses. As you will see, the govern-ment may also use its taxing and spending policies to speed up economic growth—or even to slow it down.

Setting Fiscal Policy: The Federal BudgetAs you saw in Chapter 14, the federal government takes in and spends huge amounts of money. In fact, it spends an average of $7.7 billion every day. This tremendous flow of cash into and out of the economy has a large impact on aggregate supply and aggregate demand.

Personal FinanceFor tips on creating your own budget, see your Personal Finance Handbook in the back of the book or visit PearsonSchool.com/PHecon

LA.1112.1.6 Use multiple strategies to develop vocabulary.

LA.1112.6.2 Use a systematic process to collect, process, present information.

MA.912.A.2.2 Interpret a graph to represent a real-world situation.

SS.912.E.1.10 Explain the use of fiscal policy to promote economic growth.

SS.912.E.2.9 Analyze how changes in federal spending affect budget deficits, surpluses, and the national debt.

NGSSS

ECON13_SE_FL_CH15_S01.indd 391 3/1/11 10:05:31 AM

Section 1: LA.1112.1.6, LA.1112.6.2, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.9

Section 2: LA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.1, SS.912.E.2.3, SS.912.E.3.6

Section 3: LA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.1.13, SS.912.E.2.9, SS.912.E.3.1


ECON13_TE_FL_CH15_S01.indd 390 3/10/11 3:04:16 AM

NGSSS

Chapter 15 391

Chapter 15 • Section 1

Guiding Question

What are the goals and limits of fiscal policy?

Get Started

LESSON GOALS

Students will:

• Know the Key Terms.

• Describe the process of creating the federal budget by taking the roles of the participants.

• Compare the goals of expansionary and contractionary fiscal policy by completing a worksheet.

• Describe the limits of fiscal policy.

BEFORE CLASS

Have students complete the graphic organizer in the Section Opener as they read the text. As an alternate activity, have students complete the Guided Reading and Review worksheet (Unit 6 All-in-One, p. 59).

L1 L2 ELL LPR Differentiate Have students complete the Guided Reading and Review worksheet (Unit 6 All-in-One, p. 60).

Focus on the BasicsStudents need to come away with the following understandings:

FACTS: • Fiscal policy is the use of government spending and revenue collection to influence the economy. • The President and Congress follow a series of steps in the process of creating a budget. • Expansionary fiscal policy is used to increase the level of output in the economy through tax cuts or increased government spending. • Contractionary fiscal policy is used to decrease the level of output in the economy through tax increases or decreased government spending. • Several factors limit the effectiveness of fiscal policy, including the difficulty of predicting the future and the time it takes for policies to have an impact.

GENERALIZATION: The government uses fiscal policy to manage the growth of the economy, promote full employment, and maintain stable prices.

Fiscal Policy

• Difficulty of changing spending levels• Difficult to identify the current state of the economy or to predict the future• Results are delayed• Political considerations may outweigh doing what is best for the economy• Coordinating fiscal policy among branches of government is difficult

• Increase economic growth• To increase or decrease the output of the economy, as needed• Achieve full employment• Maintain price stability

Goals Limits

Chap

ter

Essential Question, Chapter 15


Fiscal Policy15

390 F IsCAL POLICY

To study anywhere, anytime, download these online resources at PearsonSchool.com/PHecon

on the goSection 1: Understanding Fiscal PolicyLA.1112.1.6, LA.1112.6.2, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.9

Section 2: Fiscal Policy OptionsLA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.2.1, SS.912.E.2.3, SS.912.E.3.6

Section 3: Budget Deficits and the National DebtLA.1112.1.6, MA.912.A.2.2, SS.912.E.1.10, SS.912.E.1.13, SS.912.E.2.9, SS.912.E.3.1


ECON13_SE_FL_CH15_CO.indd 390 3/1/11 3:25:05 PM

Fiscal Policy

Goals• increase economic growth

•

•

•

Limits• difficulty of changing

spending levels•

•

•

Chapter 1 SeCtION 2 391Chapter 15 SeCtION 1 391

Go to the Visual Glossary Online for an interactive review of fiscal policy.

Go to Action Graph Online for animated versions of key charts and graphs.

online onlineonline

Go to How the Economy Works Online for an interactive lesson on the national debt.

SECTION 1 Understanding Fiscal Policy

economic dictionary


•fiscalpolicy•federalbudget•fiscalyear•appropriationsbill•expansionarypolicy•contractionarypolicy

Guiding QuestionWhat are the goals and limits of fiscal policy?

Copythistableandfillitinasyouread.

Economics and You Does your family have a household budget? Or have you ever tried to budget your own money? Either way, you know that you have to take a close look at how much money you have coming in and how much you have to spend. Your goal is to get those two figures in line. But it’s not easy. Sometimes it requires giving something up. Sometimes—although you try to avoid it—it may even require borrowing money. No matter what, making the plan takes time. Somebody has to sit down with a calculator and a stack of bills and a checkbook and a calendar and figure it all out.

Now, imagine how much more effort it would take if your expenses totaled $3.1 trillion a year. Suppose everyone in the house had to agree on every single item in the budget, and you had to send it to somebody else for a final okay. Now you have an idea what the U.S. federal government must do before it can spend your tax money.Principles in Action Unlike a family, the federal government is not just interested in making income meet expenses. As you will see, the govern-ment may also use its taxing and spending policies to speed up economic growth—or even to slow it down.

Setting Fiscal Policy: The Federal BudgetAs you saw in Chapter 14, the federal government takes in and spends huge amounts of money. In fact, it spends an average of $7.7 billion every day. This tremendous flow of cash into and out of the economy has a large impact on aggregate supply and aggregate demand.

Personal FinanceFor tips on creating your own budget, see your Personal Finance Handbook in the back of the book or visit PearsonSchool.com/PHecon


LA.1112.6.2 Use a systematic process to collect, process, present information.


SS.912.E.1.10 Explain the use of fiscal policy to promote economic growth.


NGSSS


LA.1112.1.6 Use multiple strategies to develop vocabulary.LA.1112.6.2 Use a systematic process to collect, process, present information.MA.912.A.2.2 Interpret a graph to represent a real-world situation.SS.912.E.1.10 Explain the use of fiscal policy to promote economic growth.SS.912.E.2.9 Analyze how changes in federal spending affect budget deficits, surpluses, and the national debt.

NGSSS


392 Unit 6


BELLRINGER

Write this list on the board:

• More teachers

• New books

• New computers

• Reduced lunch prices

• Sports

• Art and music programs

Tell students to imagine that the school has received a federal grant of $100,000, and they must decide how to distribute the grant money among these categories. Tell students to write their budget and an explanation for their choices in their notebooks.

Teachonline To present this topic using

digital resources, use the lecture notes on www.PearsonSchool.com/PHecon.

L1 L2 ELL LPR Differentiate For students struggling with comprehension, assign the Vocabulary worksheet (Unit 6 All-in-One, p. 58).

DEFINE

Call on volunteers to present their budgets for the Bellringer activity. Ask all students What percentage of the money would you budget for each category? Why? Point out that Congress and the President decide how the government will spend trillions of dollars each year. Have students define fiscal policy. Elicit from students the fact that decisions about the federal budget are shaped by two factors: budgetary needs and fiscal policy. Ask What is the goal of fiscal policy? (to expand or slow economic growth as needed, achieve full employment, and maintain price stability)

L1 L2 Differentiate Use the lesson on the Visual Glossary page to review this term. As an alternate activity, direct students to the Visual Glossary Online to reinforce understanding of fiscal policy.

(lesson continued on p. 394)

AnswersChart Skills 1. Federal agencies write spending proposals and submit them to the OMB. 2. Congress can either override the veto with a two-thirds majority vote, or Congress and the President must reach a compromise.

Differentiated ResourcesL1 L2 Guided Reading and Review (Unit 6

All-in-One, p. 60)

L1 L2 Vocabulary worksheet (Unit 6 All-in-One, p. 58)

L2 Comparing Fiscal Policies (Unit 6 All-in-One, p. 62)

L3 Expand or Contract? (Simulation Activities, Chapter 15)

Copyright © by Pearson Education, Inc., or its affiliates. All rights reserved.

61

Name ___________________________ Class _____________________ Date __________

STUDENT ACTIVITY

Comparing Fiscal Policies 3

CHAPTER

15SECTION 1

The government chooses a fiscal policy in an effort to make the economy run smoothly. ◆ Complete the chart and answer the questions that follow.

Expansionary Fiscal Policy Contractionary Fiscal Policy

Purpose

Benefits to the Economy

Disadvantages for the Economy

Questions to Think About

1. Why might an expansionary fiscal policy be popular with many people?

2. Why might government leaders be reluctant to begin a contractionary fiscal policy?

3. Based on your knowledge of the current U.S. economy, which fiscal policy do you think the government is following? Explain.

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61

Name ___________________________ Class _____________________ Date __________

STUDENT ACTIVITY


CHAPTER

15SECTION 1



Purpose







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392 F iscal Policy

The government’s taxing and spending decisions are shaped both by budgetary needs and by fiscal policy.

Fiscal policy is the use of government spending and revenue collection to influ-ence the economy. Fiscal policy is a tool used to expand or slow economic growth, achieve full employment, and maintain price stability. The federal government makes key fiscal policy decisions—how much to spend and how much to tax—each year when it establishes the federal budget.

Federal Budget BasicsThe federal budget is a written docu-ment estimating the federal government’s revenue and authorizing its spending for the coming year. Like any organization’s budget, it lists expected income and shows exactly how the money will be spent.

The federal government prepares a new budget for each fiscal year. A fiscal year is a 12-month period used for budgeting

purposes. It is not necessarily the same as the January-to-December calendar year. The federal government uses a fiscal year that runs from October 1 through September 30.

The federal budget takes about 18 months to prepare. During this time, citizens, Congress, and the President debate the government’s spending priori-ties. There are four basic steps in the federal budget process.

Agencies Write Spending ProposalsThe federal budget must fund many offices and agencies in the federal government, and Congress cannot know all of their needs. So, before the budget is put together, each federal agency writes a detailed estimate of how much it expects to spend in the coming fiscal year.

These spending proposals are sent to a special unit of the executive branch, the Office of Management and Budget (OMB). The OMB is part of the Executive Office of the President. As its name suggests, the OMB is responsible for managing the federal government’s budget. Its most important job is to prepare that budget.

the Executive Branch Creates a BudgetThe OMB reviews the federal agencies’ spending proposals. Representatives from the agencies explain their spending proposals to the OMB and try to persuade the OMB to give them as much money as they have requested. Usually, the OMB gives each agency less than it requests.

The OMB then works with the President’s staff to combine all of the individual agency budgets into a single budget document. This document reveals the President’s overall spending plan for the coming fiscal year. The President presents the budget to Congress in January or February.

Congress Debates and CompromisesThe President’s budget is only a starting point. The number of changes Congress makes to the President’s budget depends on the rela-tionship between the President and Congress. Congress carefully considers, debates, and modifies the President’s proposed budget. For help, members of Congress rely on the assistance of the Congressional Budget

fiscal policy the use of government spending

and revenue collection to influence the economy

federal budget a written document

estimating the federal government’s revenue

and authorizing its spending for the

coming year

fiscal year any 12-month period used

for budgeting purposes

chart SKILLSCongress and the White House work together over the course of the year to put together a federal budget.

1. Who takes the first step in the budget process?

2. What happens to the proposed budget if it is vetoed by the President?

Figure 15.1 Creating the Federal Budget

OR

OR

Federal agencies send requests for moneyto Office of Management and Budget.

Congress makes changes to budget andsends new budget to President.

Office of Management and Budget workswith President to create budget.

President sends budget to Congress.

Congressoverrides veto by

2/3 majority.

Congress andPresident compromiseto create new budget.

President signsbudget into law.

President vetoesbudget.


online

Decrease Government Spending

Cut Taxes

Federal

GovernmentRaise Taxes

393393

To expand your understanding of this and other key economic terms, visit PearsonSchool.com/PHecon

Reviewing Key Terms

To understand fiscal policy, review these terms.

gross domestic product, p. 309aggregate demand, p. 314depression, p. 316revenue, p. 364balanced budget, p. 382

fiscal policy the use of government spending and revenue collection to influence the economy

What is

Fiscal Policy?

This cartoon appeared at a time when the national economy was in a downturn. The man in the balloon is then-President George W. Bush, who believed that tax cuts would lead to economic growth by giving people more money to spend. How is Bush’s action an example of using fiscal policy? Does the cartoonist believe the plan will work?

Fiscal policy has been described as the economic toolbox of the federal government. Choose one of the tools shown in the toolbox here and explain how it might be used to influence the nation’s economy.



Chapter 15 393


Teach Visual GlossaryREVIEW KEY TERMS

Read each key term and call on students to define the term and describe how it relates to fiscal policy.

gross domestic product – the dollar value of all final goods and services produced within a country’s borders in a given year

aggregate demand – the amount of goods and services in the economy that will be purchased at all possible price levels

depression – a recession that is especially long and severe

revenue – income received by a government from taxes and other nontax sources

balanced budget – budget in which revenue and spending are equal

DISCUSS

Have students speculate about how each tool in the diagram might be used to influence the economy. Write their answers on the board to reference later.

L1 L2 Differentiate Assign groups one of the four fiscal policy tools. Have each group explain to the class the effect their tool could have on the economy.

CHECK COMPREHENSION

Call on students to explain what is happening in the cartoon. Ask How did then-President Bush expect tax cuts to help the economy? (By taking less money from consumers and business, he expected more money to be spent, thereby stimulating more production, employment, and economic growth.)

All print resources are available on the Teacher’s Resource

Library CD-ROM and online at www.PearsonSchool.com/PHecon.

AnswersDiagram Tax cuts or an increase in government spending would put more money into the economy, increase production, and create jobs, stimulating the overall economy. Raising taxes or decreasing government spending would take money out of the economy, slowing production, reducing employment, and slowing the overall economy.

Cartoon Bush is using tax cuts to stimulate the economy; no, because the balloon is already deflated.

392 F iscal Policy

The government’s taxing and spending decisions are shaped both by budgetary needs and by fiscal policy.

Fiscal policy is the use of government spending and revenue collection to influ-ence the economy. Fiscal policy is a tool used to expand or slow economic growth, achieve full employment, and maintain price stability. The federal government makes key fiscal policy decisions—how much to spend and how much to tax—each year when it establishes the federal budget.

Federal Budget BasicsThe federal budget is a written docu-ment estimating the federal government’s revenue and authorizing its spending for the coming year. Like any organization’s budget, it lists expected income and shows exactly how the money will be spent.

The federal government prepares a new budget for each fiscal year. A fiscal year is a 12-month period used for budgeting

purposes. It is not necessarily the same as the January-to-December calendar year. The federal government uses a fiscal year that runs from October 1 through September 30.

The federal budget takes about 18 months to prepare. During this time, citizens, Congress, and the President debate the government’s spending priori-ties. There are four basic steps in the federal budget process.

Agencies Write Spending ProposalsThe federal budget must fund many offices and agencies in the federal government, and Congress cannot know all of their needs. So, before the budget is put together, each federal agency writes a detailed estimate of how much it expects to spend in the coming fiscal year.

These spending proposals are sent to a special unit of the executive branch, the Office of Management and Budget (OMB). The OMB is part of the Executive Office of the President. As its name suggests, the OMB is responsible for managing the federal government’s budget. Its most important job is to prepare that budget.

the Executive Branch Creates a BudgetThe OMB reviews the federal agencies’ spending proposals. Representatives from the agencies explain their spending proposals to the OMB and try to persuade the OMB to give them as much money as they have requested. Usually, the OMB gives each agency less than it requests.

The OMB then works with the President’s staff to combine all of the individual agency budgets into a single budget document. This document reveals the President’s overall spending plan for the coming fiscal year. The President presents the budget to Congress in January or February.

Congress Debates and CompromisesThe President’s budget is only a starting point. The number of changes Congress makes to the President’s budget depends on the rela-tionship between the President and Congress. Congress carefully considers, debates, and modifies the President’s proposed budget. For help, members of Congress rely on the assistance of the Congressional Budget

fiscal policy the use of government spending

and revenue collection to influence the economy

federal budget a written document

estimating the federal government’s revenue

and authorizing its spending for the

coming year

fiscal year any 12-month period used

for budgeting purposes

chart SKILLSCongress and the White House work together over the course of the year to put together a federal budget.

1. Who takes the first step in the budget process?

2. What happens to the proposed budget if it is vetoed by the President?

Figure 15.1 Creating the Federal Budget

OR

OR

Federal agencies send requests for moneyto Office of Management and Budget.

Congress makes changes to budget andsends new budget to President.

Office of Management and Budget workswith President to create budget.

President sends budget to Congress.

Congressoverrides veto by

2/3 majority.

Congress andPresident compromiseto create new budget.

President signsbudget into law.

President vetoesbudget.


online

Decrease Government Spending

Cut Taxes

Federal

GovernmentRaise Taxes

393393

To expand your understanding of this and other key economic terms, visit PearsonSchool.com/PHecon

Reviewing Key Terms

To understand fiscal policy, review these terms.

gross domestic product, p. 309aggregate demand, p. 314depression, p. 316revenue, p. 364balanced budget, p. 382

fiscal policy the use of government spending and revenue collection to influence the economy

What is

Fiscal Policy?

This cartoon appeared at a time when the national economy was in a downturn. The man in the balloon is then-President George W. Bush, who believed that tax cuts would lead to economic growth by giving people more money to spend. How is Bush’s action an example of using fiscal policy? Does the cartoonist believe the plan will work?

Fiscal policy has been described as the economic toolbox of the federal government. Choose one of the tools shown in the toolbox here and explain how it might be used to influence the nation’s economy.



394 Unit 6


ASSIGN ROLES

Refer to Figure 15.1 to review the process of creating the federal budget. As an alternative, assign the following roles to students: representatives of federal agencies, members of corresponding Congressional committees, OMB officials, the President, CBO officials, members of both the Senate and House Budget Committees, and members of both the Senate and House Appropriations Committees. Have the participants stand in front of the class, holding signs identifying their role in the budget process. The back of the signs should have a description of each role. Have the rest of the class physically arrange these students in the order of their participation in the creation of the federal budget. Do this two or three times until the students are arranged in the proper order. After each attempt, have the participating students read the description of their character to the class.

Ask What is the difference between the Office of Management and Budget and the Congressional Budget Office? (The OMB is part of the Executive Office and helps prepare the budget for the President. The CBO is part of Congress and provides Congress with independent economic data to help with its decisions.) Why do you think Congress established the Congressional Budget Office? (so it would have professional advice from a source independent of the executive branch)

DESCRIBE

Describe the work of different Congressional committees in the budget-creation process. Emphasize that this process gives those legislators with responsibilities for different functions, such as agriculture, education, and justice, the chance to review how the budget will affect these areas. Ask What impact does the work of the Congressional committees have on the budget? (It’s an opportunity for legislators to hold hearings and get more input from different agencies and individuals.)

CREATE A PROFILE

Have students use the Career Link worksheet (Unit 6 All-in-One, p. 134) to record their research for the activity.

PERSONAL FINANCE ACTIvITy

To help students make their own budgets, you may want to use the Personal Finance Handbook section on budgeting (pp. PF4–5) and the activity worksheets (Personal Finance All-in-One, pp. 32, 34, 35).

AnswerCheckpoint The Office of Management and Budget helps the President and the Congressional Budget Office helps Congress with budget decisions.

Background NoteContinuing Resolutions Congress and the President do not always reach agreement on all parts of the federal budget by October 1, the beginning of the next fiscal year. In fact, in the 30 years prior to 2007, Congress and the President met that deadline only three times. In most cases, temporary continuing appropriations acts, known as continuing resolutions, keep the affected agencies and departments funded until a new deadline passes or the appropriations bill is enacted. However, government shutdowns do happen. One of the longest lasted from December 12, 1995, to January 6, 1996. When a shutdown occurs, it affects “nonessential” government services, not critical functions such as national security or public safety.

Chapter 15 SeCtION 1 395

Fiscal Policy and the EconomyGovernment officials who take part in the budget process debate how much should be spent on specific programs such as defense or education. They also consider how much should be spent in all. The total govern-ment spending can be raised or lowered to help increase or decrease the output of the economy. Similarly, taxes can be raised or lowered to help reduce or boost output.

Fiscal policy that tries to increase output is known as expansionary policy. Fiscal policy intended to decrease output is called contractionary policy. By care-fully choosing to follow expansionary or contractionary fiscal policy, the federal government tries to make the economy run as smoothly as possible.

Expansionary Fiscal PolicyGovernments use an expansionary fiscal policy to raise the level of output in the economy. That is, they use expansionary policy to encourage growth, either to try to prevent a recession or to move the economy out of a recession. Recall from Chapter 12 that a recession is the part of the business cycle that occurs when output declines for two quarters, or three-month

periods, in a row. Expansionary fiscal policy involves either increasing govern-ment spending or cutting taxes, or both.

If the federal government increases its spending, or buys more goods and services, it triggers a chain of events that raises output and creates jobs. Government spending increases aggregate demand, which causes prices to rise, as shown in Figure 15.2. According to the law of supply, higher prices encourage suppliers of goods and services to produce more. To do this, firms will hire more workers. In short, an increase in demand will lead to lower unemployment and to an increase in output. The economy will expand.

Tax cuts work much like higher govern-ment spending to encourage economic expansion. If the federal government cuts taxes, individuals have more money to spend, and businesses keep more of their profits. Consumers have more money to spend on goods and services, and firms have more money to spend on land, labor, and capital. This spending will increase demand, prices, and output.

Contractionary Fiscal PolicyAt some stages in the business cycle, the government may follow contractionary fiscal policy. Contractionary fiscal policy

expansionary policy a fiscal policy used to encourage economic growth, often through increased spending or tax cuts

contractionary policy a fiscal policy used to reduce economic growth, often through decreased spending or higher taxes

Low output High output

Pric

e le

vel

Highprices

Lowprices

Total output in the economy

To expand the economy, the government buysmore goods and services.

Workers and investors have more moneyand spend more in shops and restaurants.

Shops and restaurants buy more goods and hire more workers to meet their needs.

Companies that sell goods to the government earn profits, which they use to pay more to theirworkers and investors, and to hire new workers.

In the short term, government spending leadsto more jobs and more output.

Lower output,lower prices

Higher output,higher prices

Aggregate demand

with higher

government spending Original aggregate demand

Aggr

egat

e su

pply

Figure 15.2 Effects of Expansionary Fiscal Policy

Graph SkillSExpansionary fiscal policy helps the economy by increasing aggregate demand and output.

1. How do increases in government spending affect aggregate supply?

2. How do increases in aggregate supply affect prices?

onlineFor an animated version

of this graph, visit PearsonSchool.com/PHecon

MA.912.A.2.2 Interpret a graph to represent a real-world situation. SS.912.E.1.10 Explain the use of fiscal policy to promote economic growth.


394 F iscal Policy

Office (CBO). Created in 1974, the CBO gives Congress independent economic data to help with its decisions.

Much of the work done by Congress is done in small committees. Working at the same time, committees in the House of Representatives and the Senate analyze the budget and hold hearings at which agency officials and others can speak out about the budget. The House Budget Committee and Senate Budget Committee combine their work to propose one initial budget resolution, which must be adopted by May 15, before the beginning of the fiscal year. This resolution is not intended to be final. It gives initial estimates for revenue and spending to guide the legislators as they continue working on the budget.

Then, in early September, the budget committees propose a second budget reso-lution that sets binding spending limits. Congress must pass this resolution by September 15, after which Congress cannot pass any new bills that would spend more money than the budget resolution allows.

Finally, the Appropriations Committee of each house submits bills to authorize specific spending, based on the decisions Congress has made. By this time, the new

fiscal year is about to start and Congress faces pressure to get these appropriations bills adopted and submitted to the President quickly before the previous year’s funding ends on September 30. If Congress cannot finish in time, it must pass short-term emergency spending legislation known as “stopgap funding” to keep the government running. If Congress and the President cannot even agree on temporary funding, the government “shuts down” and all but the most essential federal offices close.

In the White HouseOnce Congress approves the appropria-tions bills, they are sent to the President, who can sign the bills into law. If the President vetoes any of the bills, Congress has two options. It can vote to override the President’s veto—a difficult task, because an override requires a 2/3 majority vote. More often, Congress works with the President to write an appropriations bill on which both sides can agree. Once that is completed, the President signs the new budget into law.

�CheCkpoint�What two offices help the President and the Congress make budget decisions?

appropriations bill a bill that authorizes

a specific amount of spending by the

government

Possible Careers• Loan counselor• Payroll clerk• Securities & commodities

sales agent• Tax examiner• Bookkeeper• Accountant and auditor• Account collector

Career Link ActivityChoose another career in business and finance from the list of possible careers. Create a profile for that career similar to the one for Accountant and Auditor.

Profile: Accountant and AuditorDuties:• advise clients about tax advantages and disadvantages

of certain business decisions• prepare individual income tax returns• audit clients’ financial statements and inform investors

and authorities that the statements have been correctly prepared and reported

Education:• bachelor’s degree in accounting or a related field. Some

employers prefer applicants with a master’s degree.Skills:• aptitude for mathematics

and ability to analyze facts and figures quickly

• ability to work with people• familiarity with basic

accounting software • high standards of integrity

Median Annual Salary:• $57,060 (2007)

Future prospects:• An increase in the

number of businesses as well as changing financial laws will drive growth.


ECON13_TE_FL_CH15_S01.indd 394 3/19/11 12:01:57 PM

Chapter 15 395


COMPARE

Ask What is expansionary policy? (a fiscal policy used to encourage economic growth through lower taxes and increased government spending) Stress that the goal of this policy is to encourage economic growth. Ask How is this achieved? (by increasing government spending, reducing taxes or both) Have students describe the kinds of economic situations that might trigger an expansionary policy.

Using Figure 15.2, discuss the effect of an expansionary policy. Have students analyze the graph. Ask What increases when aggregate demand increases? (Prices and output increase.)

L1 L2 Differentiate Examine the flow chart in Figure 15.2. Call on students to explain what happens at each step. Ensure they understand the cause-and-effect relationship that exists between the stages of the process. Students also may benefit from a quick review of aggregate demand curves and aggregate supply curves in Chapter 12.

Ask How is contractionary policy different from expansionary policy? (Contractionary fiscal policy is used to reduce economic growth to prevent inflation.) Stress that the goal of contractionary policy is to reduce economic growth. How is this achieved? (by decreasing government spending, increasing taxes, or both) Have students describe the kinds of economic situations that might trigger a contractionary policy.

Refer students to Figure 15.3 on page 396. Have students describe what happens to price and output when the government implements a contractionary policy. Ask them to compare the change in equilibrium between this chart and the chart in Figure 15.2.

online Have students review the Action Graph animations for a step-by-step look at the Effects of Expansionary Fiscal Policy and the Effects of Contractionary Fiscal Policy.

AnswersGraph Skills 1. There is an increase in the amount of goods and services supplied. 2. Increases in aggregate supply cause prices to rise.


Fiscal Policy and the EconomyGovernment officials who take part in the budget process debate how much should be spent on specific programs such as defense or education. They also consider how much should be spent in all. The total govern-ment spending can be raised or lowered to help increase or decrease the output of the economy. Similarly, taxes can be raised or lowered to help reduce or boost output.

Fiscal policy that tries to increase output is known as expansionary policy. Fiscal policy intended to decrease output is called contractionary policy. By care-fully choosing to follow expansionary or contractionary fiscal policy, the federal government tries to make the economy run as smoothly as possible.

Expansionary Fiscal PolicyGovernments use an expansionary fiscal policy to raise the level of output in the economy. That is, they use expansionary policy to encourage growth, either to try to prevent a recession or to move the economy out of a recession. Recall from Chapter 12 that a recession is the part of the business cycle that occurs when output declines for two quarters, or three-month

periods, in a row. Expansionary fiscal policy involves either increasing govern-ment spending or cutting taxes, or both.

If the federal government increases its spending, or buys more goods and services, it triggers a chain of events that raises output and creates jobs. Government spending increases aggregate demand, which causes prices to rise, as shown in Figure 15.2. According to the law of supply, higher prices encourage suppliers of goods and services to produce more. To do this, firms will hire more workers. In short, an increase in demand will lead to lower unemployment and to an increase in output. The economy will expand.

Tax cuts work much like higher govern-ment spending to encourage economic expansion. If the federal government cuts taxes, individuals have more money to spend, and businesses keep more of their profits. Consumers have more money to spend on goods and services, and firms have more money to spend on land, labor, and capital. This spending will increase demand, prices, and output.

Contractionary Fiscal PolicyAt some stages in the business cycle, the government may follow contractionary fiscal policy. Contractionary fiscal policy

expansionary policy a fiscal policy used to encourage economic growth, often through increased spending or tax cuts

contractionary policy a fiscal policy used to reduce economic growth, often through decreased spending or higher taxes


Pric

e le

vel

Highprices

Lowprices


To expand the economy, the government buysmore goods and services.

Workers and investors have more moneyand spend more in shops and restaurants.


Companies that sell goods to the government earn profits, which they use to pay more to theirworkers and investors, and to hire new workers.

In the short term, government spending leadsto more jobs and more output.



Aggregate demand

with higher

government spending Original aggregate demand

Aggr

egat

e su

pply

Figure 15.2 Effects of Expansionary Fiscal Policy

Graph SkillSExpansionary fiscal policy helps the economy by increasing aggregate demand and output.

1. How do increases in government spending affect aggregate supply?

2. How do increases in aggregate supply affect prices?





394 F iscal Policy

Office (CBO). Created in 1974, the CBO gives Congress independent economic data to help with its decisions.

Much of the work done by Congress is done in small committees. Working at the same time, committees in the House of Representatives and the Senate analyze the budget and hold hearings at which agency officials and others can speak out about the budget. The House Budget Committee and Senate Budget Committee combine their work to propose one initial budget resolution, which must be adopted by May 15, before the beginning of the fiscal year. This resolution is not intended to be final. It gives initial estimates for revenue and spending to guide the legislators as they continue working on the budget.

Then, in early September, the budget committees propose a second budget reso-lution that sets binding spending limits. Congress must pass this resolution by September 15, after which Congress cannot pass any new bills that would spend more money than the budget resolution allows.

Finally, the Appropriations Committee of each house submits bills to authorize specific spending, based on the decisions Congress has made. By this time, the new

fiscal year is about to start and Congress faces pressure to get these appropriations bills adopted and submitted to the President quickly before the previous year’s funding ends on September 30. If Congress cannot finish in time, it must pass short-term emergency spending legislation known as “stopgap funding” to keep the government running. If Congress and the President cannot even agree on temporary funding, the government “shuts down” and all but the most essential federal offices close.

In the White HouseOnce Congress approves the appropria-tions bills, they are sent to the President, who can sign the bills into law. If the President vetoes any of the bills, Congress has two options. It can vote to override the President’s veto—a difficult task, because an override requires a 2/3 majority vote. More often, Congress works with the President to write an appropriations bill on which both sides can agree. Once that is completed, the President signs the new budget into law.

�CheCkpoint�What two offices help the President and the Congress make budget decisions?

appropriations bill a bill that authorizes

a specific amount of spending by the

government

Possible Careers• Loan counselor• Payroll clerk• Securities & commodities

sales agent• Tax examiner• Bookkeeper• Accountant and auditor• Account collector

Career Link ActivityChoose another career in business and finance from the list of possible careers. Create a profile for that career similar to the one for Accountant and Auditor.

Profile: Accountant and AuditorDuties:• advise clients about tax advantages and disadvantages

of certain business decisions• prepare individual income tax returns• audit clients’ financial statements and inform investors

and authorities that the statements have been correctly prepared and reported

Education:• bachelor’s degree in accounting or a related field. Some

employers prefer applicants with a master’s degree.Skills:• aptitude for mathematics

and ability to analyze facts and figures quickly

• ability to work with people• familiarity with basic

accounting software • high standards of integrity

Median Annual Salary:• $57,060 (2007)

Future prospects:• An increase in the

number of businesses as well as changing financial laws will drive growth.




396 Unit 6


DISTRIBUTE ACTIVITY WORKSHEET

Have students review expansionary and contractionary fiscal policy by completing the “Comparing Fiscal Policies” worksheet (Unit 6 All-in-One, p. 61).

L2 Distribute the “Comparing Fiscal Policies” worksheet (Unit 6 All-in-One, p. 62). Work with students to complete the chart.

Have volunteers give their answers to questions 2 and 3 on the worksheet. Ask What fiscal policy do you think the government should currently follow? Have students justify their responses.

L3 Differentiate For alternative or additional practice with the concepts of expansionary policy and contractionary policy, have students use the “Expand or Contract?” activity (Simulation Activities, Chapter 15). Students will take part in a role-playing game about the use of these policies.

AnswersGraph Skills 1. to prevent demand from exceeding supply and avoid inflation 2. Equilibrium occurs at a lower output and lower price.

Checkpoint contractionary fiscal policy: tax increases and reductions in government spending; expansionary fiscal policy: tax decreases and increases in government spending

Virtual EconomicsL3 Differentiate

Analyzing Fiscal Policies Use the following lesson from the NCEE Virtual Economics CD-ROM to introduce students to expansionary and contractionary fiscal policies. Click on Browse Economics Lessons, specify grades 9–12, and use the key words two-act play.

In this activity, students will write lines and enact a play that explores fiscal policy concepts.

LESSOn TITLE FISCAL POLICY: A TWO-ACT PLAY

Type of Activity Role play

Complexity Moderate

Time 75 minutes

NCEE Standards 20


61

Name ___________________________ Class _____________________ Date __________

STUDENT ACTIVITY


CHAPTER

15SECTION 1



Purpose








396 F iscal Policy

tries to decrease aggregate demand, and by decreasing demand, reduce the growth of economic output. If contractionary fiscal policy is strong enough, it may slow the growth of output to zero, or even lead to a fall in gross domestic product (GDP).

Why would the government institute policies intended to decrease economic output? The government sometimes tries to slow down the economy because fast-growing demand can exceed supply. When demand exceeds supply, producers must choose between raising output and raising prices. If producers cannot expand produc-tion enough, they will raise their prices, which can lead to high inflation. Left unchecked, inflation cuts into consumers’ purchasing power and discourages economic growth and stability.

Contractionary fiscal policy aimed at slowing the growth of total output gener-ally involves two alternatives. The Federal government could decrease spending, or raise taxes, or both.

If the federal government spends less, or buys fewer goods and services, it triggers a chain of events that may lead to slower GDP growth. A decrease in government spending leads to a decrease in aggregate demand, because the government is buying less than before. Decreased demand tends

to lower prices. According to the law of supply, lower prices encourage suppliers to cut their production and possibly lay off workers. Lower production lowers the growth rate of the economy and may even reduce GDP. This chain of events is the exact opposite of what happens when the government increases spending. The govern-ment uses the same tools to try to influence the economy in both cases, but in different ways, and with very different goals.

When the federal government raises taxes, individuals have less money to spend on goods and services or to save for the future. Firms keep less of their profits and decrease their spending on land, labor, and capital. As a result of these decreases in demand, prices tend to fall. Producers of goods and suppliers of services tend to cut production. This slows the growth of GDP.

�CheCkpoint�What are the two categories of contractionary fiscal policy and two categories of expansionary fiscal policy?

Limits of Fiscal PolicyOn paper, fiscal policy looks like a powerful tool that can keep the economy in perfect balance. In reality, fiscal policy can be clumsy and difficult to put into practice.

Simulation Activity

Expand or Contract?You may be asked to take part in a role-playing game about the use of expansionary and contractionary fiscal policy.

To contract the economy, the governmentbuys fewer goods and services.

Workers and investors have less money tospend in stores, on travel, and in restaurants.

Decreased demand tends to cause lower prices, forcing suppliers to cut production

and possibly fire workers.

Companies that sell goods to the governmenthave lower profits and less money available

to pay workers.

The growth rate of the economy slows.

Figure 15.3 Effects of Contractionary Fiscal Policy

Graph SkillSBy cutting spend-ing, the government can slow economic growth.

1. Why would the government want to slow economic growth?

2. How does lower government spending affect equilibrium?




Pric

e le

vel

Highprices

Lowprices




Aggregate demand

with lower government spending

Original aggregate demand

Aggr

egat

e su

pply




Difficulty of Changing Spending LevelsIncreasing or decreasing the amount of federal spending is not an easy task. As you read in Chapter 14, many of the spending categories in the federal budget are entitlements that are fixed by law. More than half of the federal budget is set aside for programs such as Medicaid, Social Security, and veterans benefits before Congress even begins the budget process. The government cannot change spending for entitlements under current law. Also, it must continue to pay the interest on the national debt. As a result, significant changes in federal spending generally must come from the smaller, discretionary spending part of the federal budget. This gives the government less leeway for raising or lowering spending.

Predicting the FutureGovernments use fiscal policy to prevent big changes in the level of GDP. Despite the statistics, however, it is difficult to know the current state of the economy. As you read in Chapter 12, no one can predict how quickly the business cycle will move from one stage to the next, nor can anyone identify exactly where in the cycle the economy is at any particular time.

Predicting future economic performance is even more difficult.

“If economists forecast well, then the lag would not matter. They could tell

Congress in advance what the appropriate fiscal policy is. But economists do not fore-

cast well. Most economists, for example, badly under predicted both the rise in

unemployment in 1981 and the strength of the recovery that began in late 1982.

Absent accurate forecasts, attempts to use discretionary fiscal policy to counteract business cycle fluctuations are as likely

to do harm as good.”—David N. Weil, professor of economics at

Brown University

Delayed ResultsAlthough changes in fiscal policy affect the economy, changes take time. Once government officials decide when and how to change fiscal policy, they have to put

these changes into effect within the federal budget, which itself takes more than a year to develop. Finally, they have to wait for the change in spending or taxing to affect the economy.

By the time the policy takes effect, the economy might be moving in the opposite direction. The government could propose massive public spending on highways in the middle of a recession, only to have the economy recover before construction begins. In cases like this, fiscal policy would only strengthen the new trend, instead of correcting the original problem. If the government continued to spend money freely on highways in the middle of a recovery, it could lead to high inflation and a labor shortage.

Political PressuresThe President and members of Congress, who develop the federal budget and the federal government’s fiscal policy, are elected officials. If they wish to be reelected, they must make decisions that please the people who elect them, not necessarily decisions that are good for the overall economy.

For example, government officials have an incentive to practice expansionary fiscal policy by boosting government spending and lowering taxes. These actions are usually popular with voters. Government spending benefits the firms that receive government contracts and the individ-uals who receive direct payments from the government. Lower taxes leave more disposable income in people’s pockets.

On the other hand, contractionary fiscal policy, which decreases government spending or raises taxes, is often unpop-ular. Firms and individuals who expect income from the government are not happy when the income is reduced or cut off. No one likes to pay higher taxes, unless the tax revenue is spent on a specific, highly valued good or service.

Coordinating Fiscal PolicyFor fiscal policy to be effective, various branches and levels of government must plan and work together. This is very difficult to do. For example, if the federal government is pursuing contractionary policy, state and local governments should, ideally, pursue a similar fiscal policy. Yet, state and local




Chapter 15 397


DISCUSS

Ask What factors can interfere with the effectiveness of fiscal policy as a tool for keeping the economy in balance? (the difficulty of changing spending levels because of entitlements; the difficulty of knowing current and future economic conditions; the delay between the decision to change fiscal policy and its impact on the economy; pressure to make decisions for political reasons; the difficulty in getting various branches of government to work together)

Ask Why is it difficult to reduce federal spending? (Many entitlement programs such as Medicaid, Social Security, and veterans’ benefits are fixed by law and cannot be reduced.) Discuss the delayed results of implementing any fiscal policy. Illustrate the difficulty by calling on students to recall the budgetary process and the time involved in implementing it. Discuss ways in which political pressure may influence fiscal policy. Ask students why contractionary fiscal policy is not popular with most voters.

EXTEND

Have students research public reaction to current fiscal policy by reading one or more editorials in newspapers or news magazines. Have students present the points of view and discuss how these views may limit or encourage the government to implement fiscal policy.

L1 L2 Differentiate Have students interview their parents and other adults to learn their views regarding how well the government is managing the economy. Have them share their findings with the class.

GUIDING QUESTION WRAP UP

Have students return to the section Guiding Question. Review the completed graphic organizer and clarify any misunderstandings. Have a wrap up discussion about the goals and limits of fiscal policy.

Assess and RemediateL3 L2 Collect the “Comparing Fiscal Policies” worksheet and assess students’ understanding of fiscal policy.

L3 Assign the Section 1 Assessment questions; identify student misconceptions.

L3 Give Section Quiz A (Unit 6 All-in-One, p. 63).

L2 Give Section Quiz B (Unit 6 All-in-One, p. 64).

(Assess and Remediate continued on p. 398)

396 F iscal Policy

tries to decrease aggregate demand, and by decreasing demand, reduce the growth of economic output. If contractionary fiscal policy is strong enough, it may slow the growth of output to zero, or even lead to a fall in gross domestic product (GDP).

Why would the government institute policies intended to decrease economic output? The government sometimes tries to slow down the economy because fast-growing demand can exceed supply. When demand exceeds supply, producers must choose between raising output and raising prices. If producers cannot expand produc-tion enough, they will raise their prices, which can lead to high inflation. Left unchecked, inflation cuts into consumers’ purchasing power and discourages economic growth and stability.

Contractionary fiscal policy aimed at slowing the growth of total output gener-ally involves two alternatives. The Federal government could decrease spending, or raise taxes, or both.

If the federal government spends less, or buys fewer goods and services, it triggers a chain of events that may lead to slower GDP growth. A decrease in government spending leads to a decrease in aggregate demand, because the government is buying less than before. Decreased demand tends

to lower prices. According to the law of supply, lower prices encourage suppliers to cut their production and possibly lay off workers. Lower production lowers the growth rate of the economy and may even reduce GDP. This chain of events is the exact opposite of what happens when the government increases spending. The govern-ment uses the same tools to try to influence the economy in both cases, but in different ways, and with very different goals.

When the federal government raises taxes, individuals have less money to spend on goods and services or to save for the future. Firms keep less of their profits and decrease their spending on land, labor, and capital. As a result of these decreases in demand, prices tend to fall. Producers of goods and suppliers of services tend to cut production. This slows the growth of GDP.

�CheCkpoint�What are the two categories of contractionary fiscal policy and two categories of expansionary fiscal policy?

Limits of Fiscal PolicyOn paper, fiscal policy looks like a powerful tool that can keep the economy in perfect balance. In reality, fiscal policy can be clumsy and difficult to put into practice.

Simulation Activity

Expand or Contract?You may be asked to take part in a role-playing game about the use of expansionary and contractionary fiscal policy.

To contract the economy, the governmentbuys fewer goods and services.

Workers and investors have less money tospend in stores, on travel, and in restaurants.

Decreased demand tends to cause lower prices, forcing suppliers to cut production

and possibly fire workers.

Companies that sell goods to the governmenthave lower profits and less money available

to pay workers.

The growth rate of the economy slows.

Figure 15.3 Effects of Contractionary Fiscal Policy

Graph SkillSBy cutting spend-ing, the government can slow economic growth.

1. Why would the government want to slow economic growth?

2. How does lower government spending affect equilibrium?




Pric

e le

vel

Highprices

Lowprices




Aggregate demand

with lower government spending

Original aggregate demand

Aggr

egat

e su

pply




Difficulty of Changing Spending LevelsIncreasing or decreasing the amount of federal spending is not an easy task. As you read in Chapter 14, many of the spending categories in the federal budget are entitlements that are fixed by law. More than half of the federal budget is set aside for programs such as Medicaid, Social Security, and veterans benefits before Congress even begins the budget process. The government cannot change spending for entitlements under current law. Also, it must continue to pay the interest on the national debt. As a result, significant changes in federal spending generally must come from the smaller, discretionary spending part of the federal budget. This gives the government less leeway for raising or lowering spending.

Predicting the FutureGovernments use fiscal policy to prevent big changes in the level of GDP. Despite the statistics, however, it is difficult to know the current state of the economy. As you read in Chapter 12, no one can predict how quickly the business cycle will move from one stage to the next, nor can anyone identify exactly where in the cycle the economy is at any particular time.

Predicting future economic performance is even more difficult.

“If economists forecast well, then the lag would not matter. They could tell

Congress in advance what the appropriate fiscal policy is. But economists do not fore-

cast well. Most economists, for example, badly under predicted both the rise in

unemployment in 1981 and the strength of the recovery that began in late 1982.

Absent accurate forecasts, attempts to use discretionary fiscal policy to counteract business cycle fluctuations are as likely

to do harm as good.”—David N. Weil, professor of economics at

Brown University

Delayed ResultsAlthough changes in fiscal policy affect the economy, changes take time. Once government officials decide when and how to change fiscal policy, they have to put

these changes into effect within the federal budget, which itself takes more than a year to develop. Finally, they have to wait for the change in spending or taxing to affect the economy.

By the time the policy takes effect, the economy might be moving in the opposite direction. The government could propose massive public spending on highways in the middle of a recession, only to have the economy recover before construction begins. In cases like this, fiscal policy would only strengthen the new trend, instead of correcting the original problem. If the government continued to spend money freely on highways in the middle of a recovery, it could lead to high inflation and a labor shortage.

Political PressuresThe President and members of Congress, who develop the federal budget and the federal government’s fiscal policy, are elected officials. If they wish to be reelected, they must make decisions that please the people who elect them, not necessarily decisions that are good for the overall economy.

For example, government officials have an incentive to practice expansionary fiscal policy by boosting government spending and lowering taxes. These actions are usually popular with voters. Government spending benefits the firms that receive government contracts and the individ-uals who receive direct payments from the government. Lower taxes leave more disposable income in people’s pockets.

On the other hand, contractionary fiscal policy, which decreases government spending or raises taxes, is often unpop-ular. Firms and individuals who expect income from the government are not happy when the income is reduced or cut off. No one likes to pay higher taxes, unless the tax revenue is spent on a specific, highly valued good or service.

Coordinating Fiscal PolicyFor fiscal policy to be effective, various branches and levels of government must plan and work together. This is very difficult to do. For example, if the federal government is pursuing contractionary policy, state and local governments should, ideally, pursue a similar fiscal policy. Yet, state and local



398 Unit 6


Assessment Answers

Have students complete the Self-Test Online and continue their work in the Essential Questions Journal.

REMEDIATION AND SUGGESTIONS

Use the chart below to help students who are struggling with content.

WEAKNESS REMEDIATION

Identifying key terms (Questions 3, 4, 5, 6)

Have students use the interactive Economic Dictionary Online.

How the federal budget is created (Questions 2, 3, 4, 5, 7, 8)

Tell students to imagine they have been asked to explain to fifth graders how the federal budget is created. Have students present their explanation to a partner.

The impact and limits of fiscal policy (Questions 1, 6, 9, 10)

Review the graphic organizer for this section with students. Then draw two circles on the board, and write “Expansionary” in one and “Contractionary” in the other. Draw four other circles around each and have students help fill them in with the goals and tools of each type of policy.

1. Goals: to increase (or decrease) economic growth, achieve full employment, maintain price stability; Limits: There is a long delay between policy proposal and impact; it is difficult to change spending levels, predict the future, and avoid political pressures.

2. Budgets will vary, but students should understand discretionary spending.

3. Fiscal policy is the use of government spending and revenue to influence the economy. The federal budget is the plan for how to spend revenue over a year. The budget can be used to effect fiscal policy.

4. October 1 5. Congressional bill to authorize spending 6. a policy to increase government spending

and/or cut taxes to stimulate economic growth

7. (a) Federal agencies propose spending; executive branch creates budget; Congress debates and compromises on budget; President signs or vetoes budget. (b) Possible answer: The budget is assessed from different points of view: the President, who is elected by the nation, and members of Congress, who represent districts.

8. (a) social welfare programs such as Social Security, Medicaid, and veterans benefits (b) Entitlement programs make up much of the budget and, by law, cannot be changed. Spending changes must come from the discretionary part of the budget.

9. (a) Contractionary policy because, by cutting federal spending or increasing taxes, the economy can be cooled down. (b) Expansionary policy because increased federal spending will stimulate production and increase employment.

10. (a) 2004 and 2005 (b) 46 percent

AnswerCheckpoint More than half of the federal budget is set aside for entitlement spending and servicing the national debt. Current law prohibits changes to these spending categories.

SECTION AssessmentSECTION 1 ASSESSMENT

398 f iscal policy

governments may be pursuing different fiscal policies than the federal government.

For example, after the federal govern-ment cut income taxes in 2001 and 2003, many state and local governments raised income and property taxes to close budget deficits and avoid deep spending cuts. The federal government was willing to cut taxes and run a deficit in poor economic times, but most state and local govern-ments were legally forbidden to do so.

Businesspeople, politicians, and econo-mists often disagree about how well the economy is performing and what the goals of fiscal policy should be. Also, different regions of the economy can experience very different conditions. California and Hawaii may have high unemployment while Nebraska and Massachusetts face rising prices and a labor shortage.

In addition, in order for the federal government’s fiscal policy to be effec-tive, it must also be coordinated with the monetary policy of the Federal Reserve. You’ll read more about monetary policy in the next chapter.

Even when all of these obstacles are overcome, governments must recognize that the short-term effects of fiscal policy will differ from the long-term effects. For example, a tax cut or increased govern-ment spending will give a temporary boost to economic production and to employ-ment. However, as the economy returns to full employment, high levels of govern-ment spending combined with increased market spending will lead to increased inflation and higher interest rates.

Similarly, an increase in taxes or fees or a decrease in government spending may “cool” the economy and lead to a reces-sion. However, in the long run, reduced government spending will allow other types of spending to increase without risking higher inflation. If there is more private investment spending, this could lead to higher economic growth in the long run. In this way, slow growth or even recession in the short term can lead to prosperity and more jobs in the future.

�CheCkpoint�Why is it so difficult for government to change spending levels?

Guiding Question1. Useyourcompletedtabletoanswer

thisquestion:Whatarethegoalsandlimitsoffiscalpolicy?

2. ExtensionLikethegovernment,individualsbenefitfrombudgets.Planyourcomingmonth’sexpen-ditures.Startwithyourcurrentincome.Listyournecessaryexpen-ditures.What,ifanything,isleftfordiscretionaryspending?

Key Terms and Main Ideas3. Explainfiscal policyandhowit

relatestothefederal budget.4. Whendoesthefederalgovernment’s

fiscalyearbegin?5. Whatisanappropriations bill?6. Whatisexpansionary policy?

Critical Thinking7. Analyze (a)Whatarethefourbasic

stepsinthefederalbudgetprocess?(b)WhatistheadvantageofhavingboththePresidentandCongressinvolvedinthebudgetprocess?

8. Identify Effects (a)Identifyentitle-mentprograms.(b)Howdotheyaffectcreationofthefederalbudget?

9. Solve ProblemsWhichfiscalpolicystrategydoyouthinkpolicymakerswoulduseineachofthesescenariosandwhy?(a)Inflationisrising,andrealGDPisupby4percent.(b)GDPisdown,andtheunemploymentratehasincreasedto10percent.

Math Skills10.Creating a GraphUsetheinforma-

tionfromthechartbelowtocreatealinegraphshowingconsumerconfi-denceinJanuaryofeachoftheyearsshown.(a)Inwhichtwo-yearperioddidconsumerconfidencerisethemost?(b)Whatwasthepercentofdeclineinconsumerconfidenceovertheperiodfrom2000through2003?

VisitPearsonSchool.com/PHeconforadditionalmathhelp.

144.7 115.7 97.8 78.8 97.7 105.1 106.8 110.2 87.9

2000

Consumer Confidence Index Annual Average (1985 = 100)

2001 2002 2003 2004 2005 2006 2007 2008

SOURCE: www.pollingreport.com

TocontinuetobuildaresponsetotheEssentialQuestion,gotoyourEssential Questions Journal.

Journal

SS.912.E.1.10, SS.912.E.2.9, LA.1112.1.6.1, LA.1112.2.2.2, MA.912.A.2.1


SS.912.E.1.10, SS.912.E.2.9, LA.1112.1.6.1, LA.1112.2.2.2, MA.912.A.2.1


NGSSS

Chapter 15 399


Guiding Question

What economic ideas have shaped fiscal policy?

Get Started

LESSON GOALS

Students will:


• Describe and compare classical, Keynesian, and supply-side economics.

• Describe the impact of the multiplier effect and automatic stabilizers on the economy.

• Analyze the government’s use of fiscal policy since the Great Depression.

BEFORE CLASS

Students should read the section for homework before coming to class.




FACTS: • Classical economics is a school of thought based on the idea that free markets regulate themselves. • Keynesian economics uses demand-side theory as the basis for encouraging the government to use fiscal policy to fight periods of inflation and recession. • Supply-side economics supports the use of tax cuts to increase aggregate supply, favoring less government intervention in the economy.

GENERALIZATION: The Great Depression spurred economist John Maynard Keynes to develop his idea that, in the absence of consumer and business spending, the government needed to support the economy. Supply-side economics gained prominence beginning in 1981 when Ronald Reagan became President.

Fiscal Policy Options

Classical economics

• Free markets regulate themselves.• fiscal policy limited

Keynesian(demand-side)

economics• Demand for goods

drives the economy.• Increase government

spending to avoidrecession.

• Decrease governmentspending to control inflation.

Supply-side economics

• Supply of goods drivesthe economy.

• Tax cuts increase employment and total output. • Less government

intervention is betterfor the economy.

Fiscal Policy Options

• free markets regulate themselves

• fiscal policy limited

•

•

•

•

Classicaleconomics

Keynesian(demand-side)

economics•

•

•

Supply-sideeconomics


Economics and You Look at the picture of the two children on this page. They are poor and hungry, and the family breadwinner is out of work. Even if you have never been in a situation like this, it’s probably not hard to imagine how these children feel. And the time is the Great Depression, so there are millions of families facing the same problem.

“WHY CAN’T YOU GIVE MY DAD A JOB?” But who is the boy asking? A factory owner? The local supermarket? Or is he asking the govern-ment itself? Would you expect the government to spend large amounts of money to give your father or mother—as well as thousands of other people—a job?Principles in Action Nowadays, many of us are used to the idea that the government might use its spending power to stimulate the economy. But at the time of the Depression, this was a radical new idea. And today, there are plenty of people who think that there are better ways the govern-ment can stimulate the economy than by spending. In this section, you will look at two very different fiscal policy options that the government can pursue. In the Economics & You feature, you will see how tax policy can affect your income and the services you use.

Classical EconomicsThroughout this book, you have read about the workings of a free-market economy. In a free market, people act in their own self interest, causing prices to rise or fall so that supply and demand will always return to equilibrium. This idea that free markets regulate themselves is central to the school of thought known as classical economics. Adam Smith, David Ricardo, and Thomas Malthus all contributed basic ideas to this school. For well over a century, classical economics dominated economic theory and government policies. Some aspects of classical economic thought are still widely followed today.

The Great Depression, which began in 1929, challenged the classical theory. Prices fell over several years, so demand should have increased enough to stimulate production as consumers took advantage of low prices. Instead, demand also fell as people lost their jobs and bank failures

classical economics a school of thought based on the idea that free markets regulate themselves

Guiding QuestionWhat economic ideas have shaped fiscal policy?

Copy this chart and fill it in as you read.

Economic Dictionary


• classical economics• productive capacity• demand-side economics• Keynesian economics• multiplier effect• automatic stabilizer• supply-side economics

SECTION 2 Fiscal Policy Options

These children are taking part in a protest march of the unemployed during the Great Depression.



SS.912.E.1.10 Explain the use of fiscal policy to promote price stability.

SS.912.E.2.1 Identify and explain broad economic goals.

SS.912.E.2.3 Research the contributions of key individuals of various backgrounds in the development of the U.S.

SS.912.E.3.6 Draw conclusions about historical economic theories of economists.

NGSSS


LA.1112.1.6 Use multiple strategies to develop vocabulary.MA.912.A.2.2 Interpret a graph to represent a real-world situation.SS.912.E.1.10 Explain the use of fiscal policy to promote price stability.SS.912.E.2.1 Identify and explain broad economic goals.SS.912.E.2.3 Research the contributions of key individuals of various backgrounds in the development of the U.S.SS.912.E.3.6 Draw conclusions about historical economic theories of economists.

NGSSS


400 Unit 6


BELLRINGER

Display the “The King and His Magician” transparency (Color Transparencies, 15.a). Then write the following on the board:

• Describe what is happening in the cartoon.

• What type of fiscal policy is the king advocating?

• What is the cartoonist saying about the king’s job?

• Who do you think has the harder job: the king or his magician? Explain.

Tell students to write their answers in their notebooks.



DEFINE KEY TERMS

Discuss the Bellringer activity. Call on students to give their responses. Recall that the government, like the king in the cartoon, manages the economy through fiscal policy, and that there are several models that the government has used for this purpose. One of these is classical economics. Ask What is classical economics? (the theory that free markets regulate themselves) Ask students to explain the ideas behind this theory. Emphasize that classical economics came under attack as the Great Depression worsened, and the government did little to pull the economy out of its decline.

Ask What is demand-side economics? (a school of thought based on the idea that demand for goods drives the economy) Explain the theory. (Possible answer: Buying more of goods and services would encourage production and increase employment. John Maynard Keynes believed that the government should buy these goods and services.)

AnswersCheckpoint The Great Depression

Graph Skills 1. The government should monitor the whole economy and spend money on goods and services to encourage production and increase employment. 2. It could shorten periods of recession and inflation.


All-in-One, p. 66)

L2 Draw Inferences and Conclusions skills worksheet (Unit 6 All-in-One, p. 68)

L4 The Use of Tax Cuts (Unit 6 All-in-One, p. 69)

L2 Economic Dialogue (Unit 6 All-in-One, p. 71)


69

Name ___________________________ Class _____________________ Date __________

CHAPTER

15SECTION 2

The late 1970s were a time of both a slowdown in the U.S. economy, marked by high unemployment, and high inflation—what economists call “stagflation.” After taking office in 1980, President Reagan implemented new economic policies, including a large tax cut, based on supply-side economics. The following excerpt was taken from an article comparing the types of tax cuts supported by supply-side economics in the early 1980s with the types of tax cuts proposed by demand-side economics. ◆ Read the following excerpt, and then write your answers to the questions that follow.

“Supply Side Economics claimed that if the government cut taxes on the wealthy, it would jump-start the economy as the wealthy plowed their tax savings back into investments. New factories fitted with new technologies would produce goods at lower cost, taming inflation. And the newly hired workers would tame unemployment.… Even better, more output meant government tax receipts would grow….

“… Demand Side Economics … says that if taxes are to be cut, they should go to those who earn the least amount of money. The reason is that low-income workers spend virtually all of their incomes. Money given to them goes right back into circulation, fueling a boom in consumer spending. This is essentially the policy that rescued the U.S. economy from the Great Depression. This, say the Demand Side economists, is the real foundation for an expanding economy.”

—Robert Freeman, “A Tale of Two Theories: Supply Side and Demand Side Economics,” Published on Sunday, May 14, 2006, by CommonDreams.org (Source: http://www.commondreams.org/views06/0514-20.htm)


1. (a) How could tax cuts fix the late 1970s economy, according to supply-side economics? (b) How could tax cuts fix the late 1970s economy, according to demand-side economics?

2. How do the proposed tax cuts differ? What argument does each side use?

3. What critique might a supply-side economist have of the tax cuts for low-income people? What critique might a demand-side economist have of the tax cuts for wealthy people?

4. According to the former Secretary of the Treasury Andrew Mellon under President Herbert Hoover, “The history of taxation shows that ... high rates inevitably put pressure upon the taxpayer to withdraw his capital from productive business and invest it in tax-exempt securities.... The result is that ... capital is being diverted into channels which yield neither revenue to the Government nor profit to the people.” Do you think Mellon supports supply-side or demand-side economics? Why?

5. Given the current economic situation, would you favor supply-side or demand-side economics? Why?

SOURCE READINGS IN ECONOMICS

The Use of Tax Cuts 4

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67

Name ___________________________ Class _____________________ Date __________

CHAPTER

15When you draw inferences and conclusions, you think about information that has been presented and what you already know. You combine this information to conclude something new about the topic.

Read the following passage from an “Open Letter to President Roosevelt” that John Maynard Keynes wrote in 1933. An open letter is written to a certain person but published for the public to read. Keynes’s letter was published in The New York Times.

Keynes wrote this letter two and a half years after the start of the Great Depression in 1929. He had previously argued that the way to shorten the Depression was to stimulate industry, which would increase employment and put money back into the economy. However, as the Depression wore on and economic conditions continued to worsen, Keynes worried that it was too late to prop up industry. In this short passage, he outlines his strategy for helping people and getting the economy stabilized.

◆ After you read the passage, think about what Keynes has said. Then think about what you know about the Great Depression and Keynesian economic theory. Answer the questions by drawing inferences and conclusions.

Broadly speaking, therefore, an increase of output cannot occur unless by the operation of one or other of three factors. Individuals must be induced to spend more out of their existing incomes; or the business world must be induced … to create additional current incomes in the hands of their employees … ; or public authority must be called in aid to create additional current incomes through the expenditure of borrowed or printed money. In bad times the first factor cannot be expected to work on a sufficient scale. The second factor will come in as the second wave of attack on the slump after the tide has been turned by the expenditures of public authority. It is, therefore, only from the third factor that we can expect the initial major impulse.


1. What are the three factors that Keynes offers as possible ways of stimulating the economy?

2. Whom does Keynes say must produce the demand that will jump-start the economy?

3. Why does Keynes say that the first option will not work at that point?

4. What can you conclude about how business might respond to investing in capital when the economy is in contraction, as it was during the Depression?

5. What fiscal policy is Keynes advocating with his analysis? Explain.

SKILL ACTIVITY

Draw Inferences and Conclusions 2


400 F iscal Policy

productive capacity the maximum output that an economy can

sustain over a period of time without increasing

inflation

demand-side economics a school of thought based on

the idea that demand for goods drives the

economy

wiped out their savings. According to clas-sical economics, the market should have reached equilibrium, with full employ-ment. But it didn’t, and millions suffered from unemployment and other hardships. Farmers lost their farms because corn was selling for seven cents a bushel, beef for two and a half cents a pound, and apples for less than a penny. Still, many people were too poor to buy enough food for their families.

The Great Depression highlighted a problem with classical economics: it did not address how long it would take for the market to return to equilibrium. Classical economists recognized it could take some time, and looked to the long run for equi-librium to reestablish itself. One economist, who was not satisfied with the idea of simply waiting for the economy to recover on its own, commented, “In the long run we are all dead.” That economist was John Maynard Keynes (pronounced CAneS).

�CheCkpoint�What event challenged the dominance of the classical economics school of thought?

Keynesian EconomicsBritish economist John Maynard Keynes developed a new theory of economics to explain the Depression. Keynes presented his ideas in 1936 in a book called The General Theory of Employment, Interest, and Money. He wanted to develop a comprehensive explanation of macro-economic forces. Such an explanation, he argued, should tell economists and politicians how to get out of economic crises like the Great Depression. In sharp contrast to classical economics, Keynes wanted to give government a tool it could use immediately to boost the economy in the short run.

A Broader ViewClassical economists had always looked at how the equilibrium of supply and demand applied to individual products. In contrast, Keynes focused on the workings of the economy as a whole.

Keynes looked at the productive capacity of the entire economy. Productive capacity, often called full-employment output, is the maximum output that an economy can sustain over a period of time without increasing inflation. Keynes attempted to answer the difficult question posed by the Great Depression: Why does actual production in an economy sometimes fall far short of its productive capacity?

Keynes argued that the Depression was continuing because neither consumers nor businesses had an incentive to spend enough to cause an increase in produc-tion. After all, why would a company spend money to increase production when demand for its products was falling? How could consumers significantly increase demand when they had barely enough money to survive?

The only way to end the Depression, Keynes thought, would be to find a way to boost demand. economists who agreed with the idea that demand drives the economy developed a school of thought known as demand-side economics. They asked themselves this question: Who could spend enough to spur demand and revi-talize production?

GRAPH SKILLSJohn Maynard Keynes added government spending to the classical model of demand.

1. What role did Keynes envision for government in the economy?

2. How might this government intervention affect the business cycle?

Figure 15.4 �Keynesian��Economics

Highoutput

Lowoutput

Consumerspending

Outp

ut

Productivecapacity

Businessspending

Consumerspending

Businessspending

Government

In a recession or depression, businesses and consumers do not demand as much as the economy can produce. Keynes argued that government spending can bring the economy up to its productive capacity.



A New Role for GovernmentKeynes thought that the spender should be the federal government. In the early 1930s, only the government still had the resources to spend enough to affect the whole economy. The government could, in effect, make up for the drop in private spending by buying goods and services on its own. This, Keynes argued, would encourage production and increase employment. Then, as people went back to work, they would spend their wages on more goods and services, leading to even higher levels of production. This ever-expanding cycle would carry the economy out of the Depression. Once the crisis was over, the government could then step back and reduce its spending.

These ideas form the core of Keynes’s approach to resolving problems with the economy. Keynesian economics uses demand-side theory as the basis for encouraging government action to help the economy. Keynesian economics proposes that the government can, and should, use fiscal policy to help the economy.

Avoiding RecessionKeynes argued that fiscal policy can be used to fight the two fundamental macro-economic problems. These two opposing problems are periods of recession and periods of inflation.

The federal government, Keynes argued, should keep track of the total level of spending by consumers, businesses, and government. If total spending begins to fall far below the level required to keep the economy running at full capacity, the government should watch out for the possibility of recession.

The government can respond by increasing its own spending until spend-ing by the private sector returns to a higher level. Or it can cut taxes so that spending and investment by consumers and businesses increases. As you read in the previous section, raising government spending and cutting taxes are expan-sionary fiscal policies.

After he was elected President in 1932, Franklin D. Roosevelt carried out expan-sionary fiscal policies. His New Deal put people to work—whether planting forests,

building dams and schools, or painting murals. The federal budget paid for all these programs.

Many people argue that instead of creating new jobs, such public works projects only shift employment from the private to the public sector. The dispute over Keynes’ ideas is reflected today gener-ally in the philosophies of the two political parties. Republicans generally have been associated with using tax cuts to stimu-late the economy. Democrats, generally, have favored more expansive government programs to stimulate the economy.

Controlling InflationKeynes also argued that the government could use a contractionary fiscal policy to prevent inflation or reduce its severity. The government can reduce inflation either by increasing taxes or by reducing its own spending. Both of these actions decrease overall demand.

The Multiplier EffectFiscal policy, although difficult to control, is an extremely powerful tool. The key to its power is the multiplier effect. The multiplier effect in fiscal policy is the idea that every one dollar change in fiscal policy—whether an increase in spending or a decrease in taxes—creates a change

Keynesian economics a school of thought that uses demand-side theory as the basis for encouraging government action to help the economy

multiplier effect the idea that every one dollar change in fiscal policy creates a change greater than one dollar in the national income

During the Great Depression, the Civilian Conservation Corps (CCC) employed more than 2 million young men in jobs such as planting forests and digging irrigation ditches. How did the CCC meet the goals of Keynesian economics?



Chapter 15 401


Explain

Ask What prompted John Maynard Keynes to develop a new economic theory? (The economy was not recovering from the Great Depression on its own.) Describe his economic solution to the Great Depression in your own words. (He believed that only the government had the financial resources to increase demand by buying goods and services. This would encourage private sector production, increase employment, and lead to an economic recovery.)

Ask According to Keynes, what steps could the government take to prevent a recession? (Increase spending until private sector spending returns to normal; cut taxes so consumer or business spending increases.) What type of fiscal policy is this? (expansionary) What steps could the government take to control inflation? (Increase taxes and/or reduce its spending in order to decrease overall demand.) What type of fiscal policy is this? (contractionary)

DRaW inFEREnCES anD COnClUSiOnS

Have students complete the “Draw Inferences and Conclusions” skill worksheet (Unit 6 All-in-One, p. 67).

Tell students to review the lesson in the Social Studies Skills Handbook on page S-12. Remind them to use the steps of the lesson to complete the activity.

L2 Differentiate Distribute the Draw Inferences and Conclusions skill worksheet (Unit 2 All-in-One, p. 68).

Discuss the ways Roosevelt promoted expansionary policy. Ask How effective does Keynesian economics appear to have been? Explain. (apparently successful since the economy recovered)

Encourage students to speculate about the effects of demand-side economics in today’s world. Ask What problems might demand-side economics cause or solve in our country today?

(lesson continued on p. 403)

AnswerCaption The CCC was a government program that created a demand for labor.

400 F iscal Policy

productive capacity the maximum output that an economy can

sustain over a period of time without increasing

inflation

demand-side economics a school of thought based on

the idea that demand for goods drives the

economy

wiped out their savings. According to clas-sical economics, the market should have reached equilibrium, with full employ-ment. But it didn’t, and millions suffered from unemployment and other hardships. Farmers lost their farms because corn was selling for seven cents a bushel, beef for two and a half cents a pound, and apples for less than a penny. Still, many people were too poor to buy enough food for their families.

The Great Depression highlighted a problem with classical economics: it did not address how long it would take for the market to return to equilibrium. Classical economists recognized it could take some time, and looked to the long run for equi-librium to reestablish itself. One economist, who was not satisfied with the idea of simply waiting for the economy to recover on its own, commented, “In the long run we are all dead.” That economist was John Maynard Keynes (pronounced CAneS).

�CheCkpoint�What event challenged the dominance of the classical economics school of thought?

Keynesian EconomicsBritish economist John Maynard Keynes developed a new theory of economics to explain the Depression. Keynes presented his ideas in 1936 in a book called The General Theory of Employment, Interest, and Money. He wanted to develop a comprehensive explanation of macro-economic forces. Such an explanation, he argued, should tell economists and politicians how to get out of economic crises like the Great Depression. In sharp contrast to classical economics, Keynes wanted to give government a tool it could use immediately to boost the economy in the short run.

A Broader ViewClassical economists had always looked at how the equilibrium of supply and demand applied to individual products. In contrast, Keynes focused on the workings of the economy as a whole.

Keynes looked at the productive capacity of the entire economy. Productive capacity, often called full-employment output, is the maximum output that an economy can sustain over a period of time without increasing inflation. Keynes attempted to answer the difficult question posed by the Great Depression: Why does actual production in an economy sometimes fall far short of its productive capacity?

Keynes argued that the Depression was continuing because neither consumers nor businesses had an incentive to spend enough to cause an increase in produc-tion. After all, why would a company spend money to increase production when demand for its products was falling? How could consumers significantly increase demand when they had barely enough money to survive?

The only way to end the Depression, Keynes thought, would be to find a way to boost demand. economists who agreed with the idea that demand drives the economy developed a school of thought known as demand-side economics. They asked themselves this question: Who could spend enough to spur demand and revi-talize production?

GRAPH SKILLSJohn Maynard Keynes added government spending to the classical model of demand.

1. What role did Keynes envision for government in the economy?

2. How might this government intervention affect the business cycle?

Figure 15.4 �Keynesian��Economics

Highoutput

Lowoutput

Consumerspending

Outp

ut

Productivecapacity

Businessspending

Consumerspending

Businessspending

Government

In a recession or depression, businesses and consumers do not demand as much as the economy can produce. Keynes argued that government spending can bring the economy up to its productive capacity.



A New Role for GovernmentKeynes thought that the spender should be the federal government. In the early 1930s, only the government still had the resources to spend enough to affect the whole economy. The government could, in effect, make up for the drop in private spending by buying goods and services on its own. This, Keynes argued, would encourage production and increase employment. Then, as people went back to work, they would spend their wages on more goods and services, leading to even higher levels of production. This ever-expanding cycle would carry the economy out of the Depression. Once the crisis was over, the government could then step back and reduce its spending.

These ideas form the core of Keynes’s approach to resolving problems with the economy. Keynesian economics uses demand-side theory as the basis for encouraging government action to help the economy. Keynesian economics proposes that the government can, and should, use fiscal policy to help the economy.

Avoiding RecessionKeynes argued that fiscal policy can be used to fight the two fundamental macro-economic problems. These two opposing problems are periods of recession and periods of inflation.

The federal government, Keynes argued, should keep track of the total level of spending by consumers, businesses, and government. If total spending begins to fall far below the level required to keep the economy running at full capacity, the government should watch out for the possibility of recession.

The government can respond by increasing its own spending until spend-ing by the private sector returns to a higher level. Or it can cut taxes so that spending and investment by consumers and businesses increases. As you read in the previous section, raising government spending and cutting taxes are expan-sionary fiscal policies.

After he was elected President in 1932, Franklin D. Roosevelt carried out expan-sionary fiscal policies. His New Deal put people to work—whether planting forests,

building dams and schools, or painting murals. The federal budget paid for all these programs.

Many people argue that instead of creating new jobs, such public works projects only shift employment from the private to the public sector. The dispute over Keynes’ ideas is reflected today gener-ally in the philosophies of the two political parties. Republicans generally have been associated with using tax cuts to stimu-late the economy. Democrats, generally, have favored more expansive government programs to stimulate the economy.

Controlling InflationKeynes also argued that the government could use a contractionary fiscal policy to prevent inflation or reduce its severity. The government can reduce inflation either by increasing taxes or by reducing its own spending. Both of these actions decrease overall demand.

The Multiplier EffectFiscal policy, although difficult to control, is an extremely powerful tool. The key to its power is the multiplier effect. The multiplier effect in fiscal policy is the idea that every one dollar change in fiscal policy—whether an increase in spending or a decrease in taxes—creates a change

Keynesian economics a school of thought that uses demand-side theory as the basis for encouraging government action to help the economy

multiplier effect the idea that every one dollar change in fiscal policy creates a change greater than one dollar in the national income

During the Great Depression, the Civilian Conservation Corps (CCC) employed more than 2 million young men in jobs such as planting forests and digging irrigation ditches. How did the CCC meet the goals of Keynesian economics?



402 Unit 6


Teach Case StudySUMMARIZE AND EXPLAIN

Call on the students to summarize the case study. Ask Why does the U.S. have a $1.5 trillion deficit? (falling tax revenues, rising government spending during the recession) Have your students cite an example from the case study on how the federal deficit can be reduced (higher taxes, budget cuts, higher Medicare co-payments and deductibles) Ask How does the federal deficit affect you? (possible answers: to balance the budget, cuts could be made to government programs, such as education, military/national security, housing programs, etc.)

DISCUSS

Most individuals and families try to save money and keep a balanced budget. Most states require their governments to have a balanced budget. Have the students discuss what the benefits and drawbacks are of requiring the federal government to have a balanced budget. Then have them discuss the reasons federal and state government take on debt.

L1 L2 Differentiate Have the students work in pairs to define the government programs mentioned in the article: Social Security, Medicare and Medicaid. Ask Why would the government find it hard to change these programs? (possible answers: People have come to depend on them. They serve an important need.)

All print resources are available on the Teacher’s Resource

Library CD-ROM and online at www.PearsonSchool.com/PHecon.

AnswerApplying Economic Principles Spending will increase the deficit, but it might lower it in the long run by stimulating the economy. Taxation increases government revenue, which can help reduce the deficit, but might also increase debt because it can hurt the economy by creating hardship for taxpayers.

402 F iscal Policy

Frustrated voters, fixing on the $1.5 trillion federal deficit as a symbol of paralysis in Washington,

appear increasingly willing to take drastic steps to address the red ink.

Leonard Anderson, 56, an engineer and a Republican, said he would accept a national sales tax to raise revenue. Kimberly Moore, 46, a Democrat and bank worker, says everyone will have to accept budget cuts. And at 67, Paul DesJardins, a Republican, says he would accept higher Medicare co-payments and deductibles.

“As Americans, we’re all going to have to take less,” says Lois Profitt, a 58-year-old small-business owner and political independent.

Both the Democratic and Republican parties are trying to talk about the deficit without addressing the specifics

of how they would tackle it. Leaders on both sides worry about being attacked if they produce a package of painful spending cuts or tax increases. And to reinforce lawmakers’ anxiety, voters remain divided about what ought to be done.

“It’s a brutal predicament for poli-ticians because the rhetoric of deficit cutting is enormously popular, but the details are incredibly unpopular,” says Matt Bennett, a vice president at the Democratic group Third Way.

Participants in a Wall Street Journal focus group in Virginia say they want their leaders to take a stand. “I wish the politicians would be [firm] and be like, ‘You know what? It’s going to be horrible for the next few years, but you’ve got to shut up,’” says Jennifer Ciminelli, a 35-year-old independent.

At current levels, the federal deficit exceeds all defense and nondefense spending at Congress’s discretion by $110 million. In other words, lawmakers could eliminate the entire military, all federal education, agri-cultural, housing programs, federal prisons, the CIA, FBI, Coast Guard and border patrol, and the nation would still be in the red.

Half of the current deficit stems from falling tax revenues and rising spending on programs associated with the reces-sion, such as unemployment insurance, food stamps and the Wall Street bailout. The administration projects that the deficit will shrink as these programs end and the economy recovers.

But then long-term problems kick in. With the baby boom generation retiring, the deficit will begin rising again because of rising Social Security, Medicare and Medicaid spending.

“The country’s going to deterio-rate,” says Mary Beth Davis, 27, a photographer and independent. “It already is.”

Willing to SacrificeFISCAL POLICY PREFERENCESWhat steps are voters prepared to accept to reduce the government’s mammoth deficit?

By Jonathan WeismanThe Wall Street Journal

Social Security,Projected Revenues and Outlays

2010

2

Perc

enta

ge o

f GDP

4

6

8

SOURCE: Social Security Administration

2020 2030 2040 2050 2060

RevenuesOutlays

0

Powered by

The Wall Street JournalClassroom Edition

Use videos at PearsonSchool.com/PHecon as a springboard for a discussion on a current topic.

Applying Economic PrinciplesAccording to this article, it will be difficult to reduce the federal deficit. How can changes in spending and taxation each affect budget deficits or surpluses?




much greater than one dollar in the national income. In other words, the effects of changes in fiscal policy are multiplied.

Suppose the federal government finds that business investment is dropping. To prevent a recession, in the next budget the government decides to spend an extra $10 billion to stimulate the economy. How will this affect the economy?

With this government spending, demand, income, and GDP will increase by $10 billion. After all, if the govern-ment buys an extra $10 billion of goods and services, then an extra $10 billion of goods and services have been produced. However, the GDP will increase by more than $10 billion. Here’s why:

The businesses that sold the $10 billion in goods and services to the government have earned an additional $10 billion. These businesses will spend their addi-tional earnings on wages, raw materials, and investment, sending money to workers, other suppliers, and stockholders. What will the recipients do with this money? They will spend part of it, perhaps 80 percent, or $8 billion. The businesses that benefit from this second round of spending will then pass it back to households and other businesses, who will again spend 80 percent of it, or $6.4 billion. The next round will add an additional $5.1 billion to the economy, and so on.

When all of these rounds of spending are added up, the initial government spending of $10 billion leads to an increase of about $50 billion in GDP. The multiplier effect gives fiscal policy initiatives a much bigger kick than the initial amount spent.

Automatic StabilizersFiscal policy is used to achieve many economic goals. One of the most important things that fiscal policy can achieve is a more stable economy. A stable economy is one in which there are no rapid changes in the economic indicators you read about in Chapter 12. What’s more, set up properly, fiscal policy can come close to stabilizing the economy automatically.

Figure 15.5 shows how real GDP in the United States changed each year from 1930 to 2009. Prior to World War II, there were much larger changes in GDP

from year to year than after World War II. Although GDP still fluctuates, these fluc-tuations have been smaller than they were before the war. Economic growth has been much more stable in the United States in the last 60 or so years.

Why did this happen? After the war, federal taxes and spending on transfer payments—two key tools of fiscal policy—increased sharply. Taxes and transfer payments, or transfers of cash from the government to consumers, stabilize economic growth. When national income is high, the govern-ment collects more in taxes and pays out less in transfer payments. Both of these actions take money away from consumers, and therefore reduce spending. This decrease in spending balances out the increase in spending that results from rising income in a healthy economy.

The opposite is also true. When income in the country is low, the government collects less in taxes and pays out more in transfer payments. Both actions increase the amount of money held by consumers, and thus increase spending. This increase in spending balances out the decrease in spending resulting from decreased income.

GRAPH SKILLSThe United States experienced strong economic swings before World War II.

1. How do the years after the war show the effect of automatic stabilizers on the economy?

2. Why did the 1930s see the largest percent losses in GDP?

Figure 15.5 Annual Change in GDP, 1930–2009

1940

5

Year

Perc

ent c

hang

e in

GDP

2010

10

15

20

1930

SOURCE: Bureau of Economic Analysis, Historical Statistics of the United States

1950 1960 1970 2000

–10

–15

–5

0

1980 1990

MA.912.A.2.2Interpret a graph to represent a real-world situation.

ECON13_SE_FL_CH15_S02.indd 403 11/9/11 9:18:21 PM



Chapter 15 403


DISCUSS

Have a few volunteers explain or act out the multiplier effect, using the text example of how the multiplier effect works as a guide. Ask How did money spent on the Civilian Conservation Corps have a multiplier effect? (The CCC paid salaries to its workers. Those workers then spent their wages on goods and services, leading businesses to increase production and spend their additional earnings on wages, raw materials, and investments. As these rounds of spending continued, the multiplier effect pumped even more money into the economy than the government’s original spending on CCC wages.) Then ask How does the multiplier effect act as a key tool of fiscal policy? (Any changes in fiscal policy the government makes have an impact on GDP that is much greater than the initial investment.)

AnAlyze

Have students describe what the graph in Figure 15.5 shows. Ask How does the annual change in GDP from 1930 to 1945 compare with the annual changes in the 60 years that followed? (There are much smaller changes in GDP after 1945.) Why? (Federal taxes and spending on transfer payments increased dramatically after World War II.) How do these two factors—known as automatic stabilizers—act as key tools of fiscal policy? (When national income is high, the government pays out less in transfer payments and collects more in taxes. These actions take money away from the consumer, reducing spending. That balances out the increased spending that results from rising income. When national income is low, the opposite happens. In both cases, economic growth is stabilized.)

l1 l2 Differentiate Write taxes and transfer payments on the board. Call on students to define the terms, and then write their definitions on the board. During the discussion of automatic stabilizers, call attention to the use of this terminology.

AnswersGraph Skills 1. While there are constant changes in GDP, the changes are within a narrower range than seen in the years prior to World War II. 2. The 1930s were the years of the Great Depression.


Using Fiscal Policy Tools Use the following lesson from the NCEE Virtual Economics CD-ROM to evaluate student understanding of fiscal policy, its tools, and analysis. Click on Browse Economics Lessons, specify grades 9–12, and use the key words Macroeconomics: Unit 3 Lesson 8.

In this activity, students will complete a number of activities using fiscal policy tools to analyze its impact.

leSSon TITle FISCAl PolICy

Type of Activity Using graphics

Complexity Moderate

Time 180 minutes

NCEE Standards 16, 20

402 F iscal Policy

Frustrated voters, fixing on the $1.5 trillion federal deficit as a symbol of paralysis in Washington,

appear increasingly willing to take drastic steps to address the red ink.

Leonard Anderson, 56, an engineer and a Republican, said he would accept a national sales tax to raise revenue. Kimberly Moore, 46, a Democrat and bank worker, says everyone will have to accept budget cuts. And at 67, Paul DesJardins, a Republican, says he would accept higher Medicare co-payments and deductibles.

“As Americans, we’re all going to have to take less,” says Lois Profitt, a 58-year-old small-business owner and political independent.

Both the Democratic and Republican parties are trying to talk about the deficit without addressing the specifics

of how they would tackle it. Leaders on both sides worry about being attacked if they produce a package of painful spending cuts or tax increases. And to reinforce lawmakers’ anxiety, voters remain divided about what ought to be done.

“It’s a brutal predicament for poli-ticians because the rhetoric of deficit cutting is enormously popular, but the details are incredibly unpopular,” says Matt Bennett, a vice president at the Democratic group Third Way.

Participants in a Wall Street Journal focus group in Virginia say they want their leaders to take a stand. “I wish the politicians would be [firm] and be like, ‘You know what? It’s going to be horrible for the next few years, but you’ve got to shut up,’” says Jennifer Ciminelli, a 35-year-old independent.

At current levels, the federal deficit exceeds all defense and nondefense spending at Congress’s discretion by $110 million. In other words, lawmakers could eliminate the entire military, all federal education, agri-cultural, housing programs, federal prisons, the CIA, FBI, Coast Guard and border patrol, and the nation would still be in the red.

Half of the current deficit stems from falling tax revenues and rising spending on programs associated with the reces-sion, such as unemployment insurance, food stamps and the Wall Street bailout. The administration projects that the deficit will shrink as these programs end and the economy recovers.

But then long-term problems kick in. With the baby boom generation retiring, the deficit will begin rising again because of rising Social Security, Medicare and Medicaid spending.

“The country’s going to deterio-rate,” says Mary Beth Davis, 27, a photographer and independent. “It already is.”

Willing to SacrificeFISCAL POLICY PREFERENCESWhat steps are voters prepared to accept to reduce the government’s mammoth deficit?

By Jonathan WeismanThe Wall Street Journal

Social Security,Projected Revenues and Outlays

2010

2

Perc

enta

ge o

f GDP

4

6

8

SOURCE: Social Security Administration

2020 2030 2040 2050 2060

RevenuesOutlays

0

Powered by

The Wall Street JournalClassroom Edition

Use videos at PearsonSchool.com/PHecon as a springboard for a discussion on a current topic.

Applying Economic PrinciplesAccording to this article, it will be difficult to reduce the federal deficit. How can changes in spending and taxation each affect budget deficits or surpluses?




much greater than one dollar in the national income. In other words, the effects of changes in fiscal policy are multiplied.

Suppose the federal government finds that business investment is dropping. To prevent a recession, in the next budget the government decides to spend an extra $10 billion to stimulate the economy. How will this affect the economy?

With this government spending, demand, income, and GDP will increase by $10 billion. After all, if the govern-ment buys an extra $10 billion of goods and services, then an extra $10 billion of goods and services have been produced. However, the GDP will increase by more than $10 billion. Here’s why:

The businesses that sold the $10 billion in goods and services to the government have earned an additional $10 billion. These businesses will spend their addi-tional earnings on wages, raw materials, and investment, sending money to workers, other suppliers, and stockholders. What will the recipients do with this money? They will spend part of it, perhaps 80 percent, or $8 billion. The businesses that benefit from this second round of spending will then pass it back to households and other businesses, who will again spend 80 percent of it, or $6.4 billion. The next round will add an additional $5.1 billion to the economy, and so on.

When all of these rounds of spending are added up, the initial government spending of $10 billion leads to an increase of about $50 billion in GDP. The multiplier effect gives fiscal policy initiatives a much bigger kick than the initial amount spent.

Automatic StabilizersFiscal policy is used to achieve many economic goals. One of the most important things that fiscal policy can achieve is a more stable economy. A stable economy is one in which there are no rapid changes in the economic indicators you read about in Chapter 12. What’s more, set up properly, fiscal policy can come close to stabilizing the economy automatically.

Figure 15.5 shows how real GDP in the United States changed each year from 1930 to 2009. Prior to World War II, there were much larger changes in GDP

from year to year than after World War II. Although GDP still fluctuates, these fluc-tuations have been smaller than they were before the war. Economic growth has been much more stable in the United States in the last 60 or so years.

Why did this happen? After the war, federal taxes and spending on transfer payments—two key tools of fiscal policy—increased sharply. Taxes and transfer payments, or transfers of cash from the government to consumers, stabilize economic growth. When national income is high, the govern-ment collects more in taxes and pays out less in transfer payments. Both of these actions take money away from consumers, and therefore reduce spending. This decrease in spending balances out the increase in spending that results from rising income in a healthy economy.

The opposite is also true. When income in the country is low, the government collects less in taxes and pays out more in transfer payments. Both actions increase the amount of money held by consumers, and thus increase spending. This increase in spending balances out the decrease in spending resulting from decreased income.

GRAPH SKILLSThe United States experienced strong economic swings before World War II.

1. How do the years after the war show the effect of automatic stabilizers on the economy?

2. Why did the 1930s see the largest percent losses in GDP?

Figure 15.5 Annual Change in GDP, 1930–2009

1940

5

Year

Perc

ent c

hang

e in

GDP

2010

10

15

20

1930

SOURCE: Bureau of Economic Analysis, Historical Statistics of the United States

1950 1960 1970 2000

–10

–15

–5

0

1980 1990

MA.912.A.2.2Interpret a graph to represent a real-world situation.

ECON13_SE_FL_CH15_S02.indd 403 11/9/11 9:18:21 PM



404 Unit 6


COMPARE

Ask What is supply-side economics? (a school of thought based on the idea that the supply of goods drives the economy) Stress that, just like Keynesian economists, supply-side economists also favor government intervention in the economy to maintain growth and high employment. Ask What type of government intervention do supply-side economists favor? Why? (They favor tax cuts because they believe that taxes have a strong negative impact on economic output.) Ask How does supply-side economics differ from Keynesian economics? (Possible response: Keynesian economics focuses on increasing aggregate demand whereas supply-side economics focuses on increasing aggregate supply, mainly through tax cuts.)

ANALYZE

Help students understand the argument for using taxes to regulate the economy. Call attention to Figure 15.6, the Laffer Curve, and ask What do you notice about the relationship between tax revenues and tax rates? (As tax rates increase, tax revenues increase up to a fifty percent tax rate. Then revenues decrease.) Why would less money go to the government if taxes are higher? (As more people have to pay higher taxes, fewer people are willing to work.) Explain that supply-side economics says that if taxes are cut, more workers will be willing to work because they could keep more of their money. More workers would be employed and government revenues would increase. Ask What does actual experience show? (Some workers work more hours but, in general, taxpayers do not react strongly enough to tax cuts to increase tax revenue.)

L4 Differentiate Have students complete the “The Use of Tax Cuts” worksheet (Unit 6 All-in-One, p. 69).

online Have students review the Action Graph animation for a step-by-step look at the Laffer Curve. Have students analyze the goals of tax cuts aimed at different segments of society.

AnswersGraph Skills 1. low revenues 2. Workers have little motivation to work or produce goods because they are paying such a high percentage of it in taxes.

Checkpoint Keynes favored more spending by the federal government to increase demand and generate higher spending and production by the private sector.

404 F iscal Policy

automatic stabilizer a tool of fiscal policy that increases or decreases

automatically depending on changes in GDP and

personal income

supply-side economics a school of thought based on

the idea that the supply of goods drives the

economy

Taxes and transfer payments do not eliminate changes in the rate of growth of GDP, but they do make these changes smaller. Because they help make economic growth more stable, they are known as stabilizers. Policymakers do not have to make changes in taxes and transfer payments for them to have their stabilizing effect. Taxes and most transfer payments are tied to the GDP and to personal income, so they change automatically. Thus they are called automatic stabilizers—tools of fiscal policy that increase or decrease auto-matically depending on changes in GDP and personal income.

Some stabilizers are no longer automatic. The former Aid to Families with Dependent Children (AFDC), often called “welfare,” lost its entitlement status in 1996 and was renamed Temporary Assistance for Needy Families (TANF). Now the federal govern-ment gives the states a set amount of money each year to spend as they wish. However, the stabilizer effect was not completely lost. When the economy boomed in the late 1990s, state spending on TANF fell.

�CheCkpoint�How did Keynes favor ending the Great Depression?

Supply-Side EconomicsAnother school of economic thought promotes a different direction for fiscal policy. Supply-side economics is based on the idea that the supply of goods drives the economy. While Keynesian economics tries to encourage economic growth by increasing aggregate demand, supply-side economics relies on increasing aggregate supply. It does this by focusing on taxes.

The Laffer CurveSupply-side economists believe that taxes have a strong negative impact on economic output. They often use the Laffer curve, named after the economist Arthur Laffer, to illustrate the effects of taxes. The Laffer curve shows the relationship between the tax rate and the total tax revenue that the government collects. The total revenue depends on both the tax rate and the health of the economy. The Laffer curve suggests that high tax rates may not bring in much revenue if they cause economic activity to decrease.

Figure 15.6 depicts the Laffer curve. Suppose the government imposes a tax on the wages of workers. If the tax rate is zero, as at point a on the graph, the government will collect no revenue, although the economy will benefit from the lack of taxes. As the government raises the tax rate, it starts to collect some revenue. Follow this change in Figure 15.6 by tracing the curve from no taxes at point a to 50 percent taxation at point b.

From point a to point b on the curve, rising tax rates discourage some people from working as many hours and hinder companies from investing and increasing production. The net effect of a higher tax rate and a slightly lower tax base is an increase in revenue.

To the right of point b, the decrease in workers’ effort is so large that the higher tax rate actually decreases total tax revenue. In other words, high rates of taxa-tion will eventually discourage so many people from working that tax revenues will fall. In the extreme case of a 100 percent tax rate, no one would want to work! In this case, shown at point c on the curve, the government would collect no revenue.

GRAPH SKILLSThe Laffer Curve illustrates the effects of high taxes on revenues.

1. According to the Laffer curve, what do both a high tax rate and a low tax rate produce?

2. Why do higher tax rates sometimes cause revenues to fall?

Figure 15.6 Laffer Curve

50%

ca

b

0%Low taxes

100%High taxes

Tax

reve

nues

Highrevenues

Lowrevenues

Tax rate






Taxes and OutputThe heart of the supply-side argument is that a tax cut increases total employment so much that the government actually collects more in taxes at the new, lower tax rate. Suppose the initial tax on labor is $3 an hour, and the typical worker works 30 hours per week, paying a total of $90 in taxes each week. If the govern-ment cuts the tax on labor to $2 an hour, and the worker responds by working 50 hours per week, the worker will pay $100 in taxes a week, an increase of $10.

Actual experience has proven that while a tax cut encourages some workers to work more hours, the end result is a relatively small increase in the number of hours worked. In the example above, if the tax cut increased the hours worked from 30 hours to 35 hours, the worker would pay only $70 in taxes ($2 per hour times 35 hours), down from $90 ($3 per hour times 30 hours). In general, taxpayers do not react strongly enough to tax cuts to increase tax revenue.

�CheCkpoint�How does the theory of supply-side economics link taxation to employment levels?

Fiscal Policy in American HistoryAs you recall, Keynes presented his ideas at a same time when the world economy was engulfed in the Great Depression. President Herbert Hoover, a strong believer in clas-sical economics, thought that the economy was basically sound and would return to equilibrium on its own, without govern-ment interference. His successor, President Franklin D. Roosevelt, was much more willing to increase government spending to help lift the economy out of the Depression.

World War IIKeynes’s theory was fully tested in the United States during World War II. As the country geared up for war, govern-ment spending increased dramatically. The government spent large sums of money to feed soldiers and equip them with everything from warplanes to rifles to medical supplies. This money was given to the private sector in exchange

for goods. Just as Keynesian economics predicted, the additional demand for goods and services moved the country sharply out of the Great Depression and toward full productive capacity.

After World War II ended, Congress created the Council of Economic Advisers (CEA). Made up of three respected econo-mists, the CEA advised the President on economic policy.

Postwar Keynesian PolicyBetween 1945 and 1960, the U.S. economy was generally healthy and growing, despite a few minor recessions. The last recession continued into the term of President John F. Kennedy, with unemployment reaching a level of 6.7 percent.

These tax increases do more than help stabilize the economy and move it on to the next phase of the business cycle. They also provide the government with more resources to pay for a wide variety of public services.

The Impact of TaxesSometimes, when the economy is overheated, the government resorts to increasing taxes on individuals. Tax increases can be very painful because they leave you with less money to spend on goods and services or to save for the future.

Sometimes the government lowers taxes to stimulate the economy. If you had a few more dollars each week from a tax cut, would you save it or spend it?




Chapter 15 405


Background NoteBecoming a Business Economist According to a publication of the National Association for Business Economics, “to work in the field of business economics, an individual should obtain a sound undergraduate education that includes training in economics and a number of related subjects [including] finance, cost and financial accounting, business administration, statistics, mathematics, and English.” In addition, “because business economists are most often generalists rather than specialists, they should have a broad, rather than narrow, education in economics and business administration.” It is also recommended that they take courses in history, political science, psychology, and sociology. A graduate degree in economics or a related subject is a plus.

DISCUSS ECONOMICS & YOU

After discussing tax cuts with students, refer to the Economics & You feature. Ask Do you think that the benefits of tax increases are worth the pain of tax increases? Encourage students to make connections between their own views on taxes and the economic goals of tax increases and cuts described in this section.


Distribute the “Economic Dialogue” worksheet (Unit 6 All-in-One, p. 70). Have students read a dialogue among three economists to check their comprehension of the differences between classical, Keynesian, and supply-side fiscal policies.

L2 Differentiate Distribute the “Economic Dialogue” worksheet (Unit 2 All-in-One, p. 71).

Review student responses to the worksheet. Use the Idea Wave strategy (p. T24) to get all students participating in a class discussion of their answers to question 4.

AnswersCheckpoint Reducing taxes increases employment because workers take home more income and are willing to work more hours. As a result, the government collects more in taxes.

Economics & You Answers will vary, but students should give a reason for their choice.

70Copyright © by Pearson Education, Inc., or its affiliates. All rights reserved.

Name ___________________________ Class _____________________ Date __________

STUDENT ACTIVITY

Economic Dialogue 3

CHAPTER

15SECTION 2

Three economists are having a discussion. ◆ Think about which fiscal policy each favors. Then answer the questions.

Economist A: The federal government needs to keep better track of exactly how much consumers, businesses, and the government spend. If spending falls far below what is necessary to keep the economy at full capacity, it needs to take immediate, aggressive steps to keep the country out of a recession.

Economist B: But how do you think the government should do this? What steps do you recommend?

Economist A: There are different things the government can do. First, the government needs to increase its own spending until private businesses start spending again. The government could also cut taxes.

Economist B: I disagree completely. I think it is dangerous and unnecessary for the government to try to regulate the economy to that degree. If you let the market alone, market forces will automatically bring the economy back into balance. With a little bit of patience, consumers will begin buying again, and they will buy based on price and quality. The “invisible hand” of competition will force out those companies whose business practices are too inefficient or whose prices are too high. Supply and demand will always return to equilibrium on their own.

Economist C: Well, it seems to me you’re both wrong. When the economy begins to struggle and there is a risk of recession, the government should cut taxes. Then businesses will have more money to invest. They’ll also hire employees, reducing unemployment. Besides, when workers get to keep more of their money, they’ll want to work more hours, which will increase tax revenues. The result will be a healthier economy, low unemployment, and more revenue for the government.


1. Who is the classical economist?

2. Who is the Keynesian economist?

3. Who is the supply-side economist?

4. Which approach do you think provides the best solution to a sluggish economy with increasing unemployment? Justify your answer.


404 F iscal Policy

automatic stabilizer a tool of fiscal policy that increases or decreases

automatically depending on changes in GDP and

personal income

supply-side economics a school of thought based on

the idea that the supply of goods drives the

economy

Taxes and transfer payments do not eliminate changes in the rate of growth of GDP, but they do make these changes smaller. Because they help make economic growth more stable, they are known as stabilizers. Policymakers do not have to make changes in taxes and transfer payments for them to have their stabilizing effect. Taxes and most transfer payments are tied to the GDP and to personal income, so they change automatically. Thus they are called automatic stabilizers—tools of fiscal policy that increase or decrease auto-matically depending on changes in GDP and personal income.

Some stabilizers are no longer automatic. The former Aid to Families with Dependent Children (AFDC), often called “welfare,” lost its entitlement status in 1996 and was renamed Temporary Assistance for Needy Families (TANF). Now the federal govern-ment gives the states a set amount of money each year to spend as they wish. However, the stabilizer effect was not completely lost. When the economy boomed in the late 1990s, state spending on TANF fell.

�CheCkpoint�How did Keynes favor ending the Great Depression?

Supply-Side EconomicsAnother school of economic thought promotes a different direction for fiscal policy. Supply-side economics is based on the idea that the supply of goods drives the economy. While Keynesian economics tries to encourage economic growth by increasing aggregate demand, supply-side economics relies on increasing aggregate supply. It does this by focusing on taxes.

The Laffer CurveSupply-side economists believe that taxes have a strong negative impact on economic output. They often use the Laffer curve, named after the economist Arthur Laffer, to illustrate the effects of taxes. The Laffer curve shows the relationship between the tax rate and the total tax revenue that the government collects. The total revenue depends on both the tax rate and the health of the economy. The Laffer curve suggests that high tax rates may not bring in much revenue if they cause economic activity to decrease.

Figure 15.6 depicts the Laffer curve. Suppose the government imposes a tax on the wages of workers. If the tax rate is zero, as at point a on the graph, the government will collect no revenue, although the economy will benefit from the lack of taxes. As the government raises the tax rate, it starts to collect some revenue. Follow this change in Figure 15.6 by tracing the curve from no taxes at point a to 50 percent taxation at point b.

From point a to point b on the curve, rising tax rates discourage some people from working as many hours and hinder companies from investing and increasing production. The net effect of a higher tax rate and a slightly lower tax base is an increase in revenue.

To the right of point b, the decrease in workers’ effort is so large that the higher tax rate actually decreases total tax revenue. In other words, high rates of taxa-tion will eventually discourage so many people from working that tax revenues will fall. In the extreme case of a 100 percent tax rate, no one would want to work! In this case, shown at point c on the curve, the government would collect no revenue.

GRAPH SKILLSThe Laffer Curve illustrates the effects of high taxes on revenues.

1. According to the Laffer curve, what do both a high tax rate and a low tax rate produce?

2. Why do higher tax rates sometimes cause revenues to fall?

Figure 15.6 Laffer Curve

50%

ca

b

0%Low taxes

100%High taxes

Tax

reve

nues

Highrevenues

Lowrevenues

Tax rate






Taxes and OutputThe heart of the supply-side argument is that a tax cut increases total employment so much that the government actually collects more in taxes at the new, lower tax rate. Suppose the initial tax on labor is $3 an hour, and the typical worker works 30 hours per week, paying a total of $90 in taxes each week. If the govern-ment cuts the tax on labor to $2 an hour, and the worker responds by working 50 hours per week, the worker will pay $100 in taxes a week, an increase of $10.

Actual experience has proven that while a tax cut encourages some workers to work more hours, the end result is a relatively small increase in the number of hours worked. In the example above, if the tax cut increased the hours worked from 30 hours to 35 hours, the worker would pay only $70 in taxes ($2 per hour times 35 hours), down from $90 ($3 per hour times 30 hours). In general, taxpayers do not react strongly enough to tax cuts to increase tax revenue.

�CheCkpoint�How does the theory of supply-side economics link taxation to employment levels?

Fiscal Policy in American HistoryAs you recall, Keynes presented his ideas at a same time when the world economy was engulfed in the Great Depression. President Herbert Hoover, a strong believer in clas-sical economics, thought that the economy was basically sound and would return to equilibrium on its own, without govern-ment interference. His successor, President Franklin D. Roosevelt, was much more willing to increase government spending to help lift the economy out of the Depression.

World War IIKeynes’s theory was fully tested in the United States during World War II. As the country geared up for war, govern-ment spending increased dramatically. The government spent large sums of money to feed soldiers and equip them with everything from warplanes to rifles to medical supplies. This money was given to the private sector in exchange

for goods. Just as Keynesian economics predicted, the additional demand for goods and services moved the country sharply out of the Great Depression and toward full productive capacity.

After World War II ended, Congress created the Council of Economic Advisers (CEA). Made up of three respected econo-mists, the CEA advised the President on economic policy.

Postwar Keynesian PolicyBetween 1945 and 1960, the U.S. economy was generally healthy and growing, despite a few minor recessions. The last recession continued into the term of President John F. Kennedy, with unemployment reaching a level of 6.7 percent.

These tax increases do more than help stabilize the economy and move it on to the next phase of the business cycle. They also provide the government with more resources to pay for a wide variety of public services.

The Impact of TaxesSometimes, when the economy is overheated, the government resorts to increasing taxes on individuals. Tax increases can be very painful because they leave you with less money to spend on goods and services or to save for the future.

Sometimes the government lowers taxes to stimulate the economy. If you had a few more dollars each week from a tax cut, would you save it or spend it?



406 Unit 6


AnswerCritical Thinking Economic forecasting is not reliable. Possible response: Reliable data and sound economic reasoning can give insights into the future.

ANALYZE

Have students identify the fiscal policy used by different administrations, starting with Herbert Hoover, and the reasons that these policies were applied. Analyze the apparent impact of these policies on the economy.

DRAW CONCLUSIONS

Review the meaning of marginal tax rates. Have students explain what Figure 15.7 is showing. Ask During which years does it appear that the biggest tax cuts occurred? (1960–1965; 1980–1990) Have students describe how the economy fared during these periods. Ask What conclusions, if any, can you draw about the effectiveness of supply-side and demand-side economics? Encourage students to speculate. Stress that it can be difficult to prove the effectiveness of a policy.

EXTEND

Have students identify the type of fiscal policy that appears to be favored by the current administration.

GUIDING QUESTION WRAP UP

Have students return to the section Guiding Question. Review the completed graphic organizer and clarify any misunderstandings. Have a wrap up discussion about the ideas that have shaped fiscal policy.

Assess and RemediateL3 L2 Collect the “Draw Inferences and Conclusions” skills worksheet and check students’ understanding.

L4 Collect ”The Use of Tax Cuts” worksheet and assess students’ understanding of supply-side and demand-side economics.

L3 L2 Collect the “Economic Dialogue” worksheet and assess students’ understanding of classical, Keynesian, and supply-side fiscal policies.





Background NoteGeorge Gilder A Harvard educated economist, George Gilder has written books and articles on a wide range of topics including wealth and poverty, technological development, and entrepreneurship. He is best known as the pioneer of supply-side economics, and as a proponent of this theory, was extremely influential on the presidency of Ronald Reagan. President Reagan is known to have quoted Gilder more than any other figure. Today, Gilder co-hosts the Gilder/Forbes Telecosm Conference, an annual conference of technology investors, along with businessman and publisher Steve Forbes. He continues to write books and articles for major publishers and news outlets.

406 F iscal Policy

Kennedy’s chief financial policy advisor, Walter Heller, thought that the economy was below its productive capacity. He convinced Kennedy that tax cuts would stimulate demand and bring the economy closer to full productive capacity.

As Figure 15.7 shows, tax rates were extremely high in the early 1960s. The highest individual income tax rate was about 90 percent, compared with about 40 percent in 2007. Kennedy proposed tax cuts, both because he agreed with Heller and because tax cuts are popular.

A version of Kennedy’s tax cuts was enacted in 1964, under President Lyndon Johnson. At the same time, the Vietnam War raised government spending. Over two years, consumption and GDP increased by more than 4 percent a year. There is no way to prove that the tax cut caused this growth, but the result was generally what Keynesian economics predicted.

Keynesian economics was used often in the 1960s and 1970s. One Keynesian econ-omist, John Kenneth Galbraith, greatly influenced national policies. Galbraith, a strong supporter of public spending,

helped develop the social welfare programs that lay at the heart of President Johnson’s vision of a Great Society.

Supply-Side Policy in the 1980sDuring the late 1970s, with Keynesian fiscal policy in place, unemployment and inflation rates soared. When Ronald Reagan became President in 1981, he vowed to cut taxes and spending. An “anti-Keynesian,” Reagan did not believe that government should spend its way out of a recession:

“Government spending has become so extensive that it contributes to the

economic problems it was designed to cure. More government intervention in the economy cannot possibly be a solution to

our economic problems.”—Ronald Reagan, White House Report on the Program for

Economic Recovery, 1981

Reagan instituted policies based on supply-side economics, a theory promoted by economists such as George Gilder. Among Reagan’s advisers was Milton Friedman, a

John Kenneth Galbraith

“The conventional view serves to protect us from the painful job of thinking.”John Kenneth Galbraith was the world’s most famous economist for the last half of the twentieth century. He was also a witty commentator on politics and social life and the author of a number of bestselling books.

During World War II, Galbraith was selected by President Roosevelt to lead the Office of Price Administration, which meant he had total control over the prices charged by U.S. companies.

After the war, Galbraith wrote a number of widely read books about the government’s role in society. He favored an active government, using funds provided by a progressive income tax and high sales taxes. He warned against “the affluent society,” an economy that produced a glut of frivolous goods for the affluent while the public sector —education, roads and bridges, parks and concert halls—suffered neglect.

Galbraith advised President John F. Kennedy, who appointed him Ambassador to India in 1960. Later, he was the inspiration for Presi-dent Lyndon B. Johnson’s Head Start program, an early childhood education program for poor children.

Galbraith’s long service to America did not go unnoticed. He received the Presidential Medal of Freedom, the nation’s highest civilian honor, twice.Critical Thinking: Galbraith once said “The only function of economic forecasting is to make astrology look respectable.” What did he mean by that? Do you agree with him?

John Kenneth GalbraithBorn: 1908 in Ontario, CanadaDied: 2006 in Cambridge, MAEducation: Ph.D., University of

California at BerkeleyClaim to Fame: Wrote about the

dangers of an affluent society





former professor of economics. Friedman supported individual freedom and pushed for more laissez-faire policies—hallmarks of classical and supply-side economics. (You will read a profile of Friedman in the next chapter.)

In 1981, Reagan proposed a tax cut that reduced taxes by 25 percent over three years. In a short time, the economy recovered and flourished. Still, tax cuts plus an increased defense budget led to deficit spending; just as Keynesian policy would.

Under the next few Presidents, the federal government spent much more money than it took in. As you will read in the next section, this gap caused increasing concern among economists and policymakers.

Return to Keynesian Policy?In late 2008, the United States was hit with what many economists believed was the worst financial crisis since the Great Depression. A number of major financial institutions failed. Credit became harder to get, consumer spending dropped, and unemployment rose.

That year, voters elected a new President, Barack Obama. He promised to take firm action to stimulate the economy. Obama signed a stimulus bill which included spending on major public works programs, such as repairing the nation’s infrastructure. To many observers, such

proposals seemed to signal a shift back to a Keynesian fiscal policy, as in the New Deal.

�CheCkpoint�What Keynesian fiscal policy tool did President Kennedy use?

Guiding Question1. Useyourcompletedcharttoanswer

thisquestion:Whateconomicideashaveshapedfiscalpolicy?

2. ExtensionYou’reastrugglingworkerduringarecession.Leadingeconomistsurgeyoutobepatientbecausetheeconomywillrightitself.Howdoyoureply?

Key Terms and Main Ideas3. Whatisclassical economics?4. Howisfullemploymentrelatedto

productive capacity?5. Whatisthemultiplier effect?

6. CompareandcontrastKeynesian economicsandsupply-side economics.

Critical Thinking7. Analyze (a)Whatmightbethe

costsandbenefitsofKeynesianeconomicpolicies?(b)HowdidKeynes’spoliciesworkduringtheGreatDepression?

8. Analyze Causes and EffectsWhycanlowtaxratesencourageinvest-mentandincreasejobsandwages?

9. ContrastChoosetwoPresidentsandexplainhowtheirfiscalpoliciesreflecteddifferingeconomicbeliefs.

Quick Write10.Writeabriefpositionpapersupport-

ingoropposingtheuseoftaxfundstoputpeopletoworktoday.Includeatleasttwoargumentstosupportyourposition,indicatingwhichargumentyoufeelismostimpor-tant.Makesureyourfinalsentencestronglyrestatesyourposition.


Journal

GRAPH SKILLSTax rates varied widely throughout the last century.

1. When were top marginal income tax rates at their highest?

2. What has been the trend in tax rates since 1985?

Figure 15.7 Top Marginal Tax Rate, 1925–2007

1935 1945

40

50

100

Year

Top

mar

gina

l tax

rat

e (p

erce

nt o

f inc

ome)

20

30

10

2005

60

70

80

90

1925

SOURCE: Tax Policy Center: Urban Institute and Brookings Institute

1955 1965 1975 1985 1995

SS.912.E.1.10, SS.912.E.2.1, SS.912.E.3.6, LA.1112.1.6.1, LA.1112.2.2.2




Chapter 15 407


Assessment Answers







Three theories of economics (Questions 1, 2, 3, 4, 5, 6, 7, 8, 9)

Form groups of three students. Have each group draw three graphic organizers, one for each theory, that list as many characteristics of the theory as possible.

Fiscal policy in history (Questions 2, 4, 8, 11)

Have pairs of students draw a timeline for the years 1930–2008, labeling the administrations. Have students describe the economic conditions that existed during, and the economic policies followed by, each administration.

AnswersCheckpoint He wanted to reduce taxes to stimulate demand and bring the economy closer to full productive capacity.

Graph Skills 1. 1945 2. Keep them somewhere between 30 and 40 percent.

1. Free markets regulate themselves; the economy is stimulated by increasing demand; it is the government’s role to achieve full productive capacity; the economy is helped by influencing supply.

2. Sample answer: waiting will take too long 3. The theory that free markets can regulate

themselves. 4. Productive capacity is the maximum output

that an economy can sustain over a period of time without increasing inflation.

5. The idea that every one dollar change in fiscal policy creates a change greater than one dollar in the national income.

6. Keynesian: demand drives the market, focuses on government spending; supply-side: focuses on cutting taxes

7. (a) Possible response: Costs include increasing national debt; benefits include higher employment. (b) They helped.

8. More money to spend leads to greater demand, which leads to higher employment and wages.

9. Sample response: Roosevelt believed government should increase spending while Reagan supported tax cuts.

10. Positions will vary, but should display an understanding of fiscal policy.

406 F iscal Policy

Kennedy’s chief financial policy advisor, Walter Heller, thought that the economy was below its productive capacity. He convinced Kennedy that tax cuts would stimulate demand and bring the economy closer to full productive capacity.

As Figure 15.7 shows, tax rates were extremely high in the early 1960s. The highest individual income tax rate was about 90 percent, compared with about 40 percent in 2007. Kennedy proposed tax cuts, both because he agreed with Heller and because tax cuts are popular.

A version of Kennedy’s tax cuts was enacted in 1964, under President Lyndon Johnson. At the same time, the Vietnam War raised government spending. Over two years, consumption and GDP increased by more than 4 percent a year. There is no way to prove that the tax cut caused this growth, but the result was generally what Keynesian economics predicted.

Keynesian economics was used often in the 1960s and 1970s. One Keynesian econ-omist, John Kenneth Galbraith, greatly influenced national policies. Galbraith, a strong supporter of public spending,

helped develop the social welfare programs that lay at the heart of President Johnson’s vision of a Great Society.

Supply-Side Policy in the 1980sDuring the late 1970s, with Keynesian fiscal policy in place, unemployment and inflation rates soared. When Ronald Reagan became President in 1981, he vowed to cut taxes and spending. An “anti-Keynesian,” Reagan did not believe that government should spend its way out of a recession:

“Government spending has become so extensive that it contributes to the

economic problems it was designed to cure. More government intervention in the economy cannot possibly be a solution to

our economic problems.”—Ronald Reagan, White House Report on the Program for

Economic Recovery, 1981

Reagan instituted policies based on supply-side economics, a theory promoted by economists such as George Gilder. Among Reagan’s advisers was Milton Friedman, a

John Kenneth Galbraith

“The conventional view serves to protect us from the painful job of thinking.”John Kenneth Galbraith was the world’s most famous economist for the last half of the twentieth century. He was also a witty commentator on politics and social life and the author of a number of bestselling books.

During World War II, Galbraith was selected by President Roosevelt to lead the Office of Price Administration, which meant he had total control over the prices charged by U.S. companies.

After the war, Galbraith wrote a number of widely read books about the government’s role in society. He favored an active government, using funds provided by a progressive income tax and high sales taxes. He warned against “the affluent society,” an economy that produced a glut of frivolous goods for the affluent while the public sector —education, roads and bridges, parks and concert halls—suffered neglect.

Galbraith advised President John F. Kennedy, who appointed him Ambassador to India in 1960. Later, he was the inspiration for Presi-dent Lyndon B. Johnson’s Head Start program, an early childhood education program for poor children.

Galbraith’s long service to America did not go unnoticed. He received the Presidential Medal of Freedom, the nation’s highest civilian honor, twice.Critical Thinking: Galbraith once said “The only function of economic forecasting is to make astrology look respectable.” What did he mean by that? Do you agree with him?

John Kenneth GalbraithBorn: 1908 in Ontario, CanadaDied: 2006 in Cambridge, MAEducation: Ph.D., University of

California at BerkeleyClaim to Fame: Wrote about the

dangers of an affluent society





former professor of economics. Friedman supported individual freedom and pushed for more laissez-faire policies—hallmarks of classical and supply-side economics. (You will read a profile of Friedman in the next chapter.)

In 1981, Reagan proposed a tax cut that reduced taxes by 25 percent over three years. In a short time, the economy recovered and flourished. Still, tax cuts plus an increased defense budget led to deficit spending; just as Keynesian policy would.

Under the next few Presidents, the federal government spent much more money than it took in. As you will read in the next section, this gap caused increasing concern among economists and policymakers.

Return to Keynesian Policy?In late 2008, the United States was hit with what many economists believed was the worst financial crisis since the Great Depression. A number of major financial institutions failed. Credit became harder to get, consumer spending dropped, and unemployment rose.

That year, voters elected a new President, Barack Obama. He promised to take firm action to stimulate the economy. Obama signed a stimulus bill which included spending on major public works programs, such as repairing the nation’s infrastructure. To many observers, such

proposals seemed to signal a shift back to a Keynesian fiscal policy, as in the New Deal.

�CheCkpoint�What Keynesian fiscal policy tool did President Kennedy use?

Guiding Question1. Useyourcompletedcharttoanswer

thisquestion:Whateconomicideashaveshapedfiscalpolicy?

2. ExtensionYou’reastrugglingworkerduringarecession.Leadingeconomistsurgeyoutobepatientbecausetheeconomywillrightitself.Howdoyoureply?

Key Terms and Main Ideas3. Whatisclassical economics?4. Howisfullemploymentrelatedto

productive capacity?5. Whatisthemultiplier effect?

6. CompareandcontrastKeynesian economicsandsupply-side economics.

Critical Thinking7. Analyze (a)Whatmightbethe

costsandbenefitsofKeynesianeconomicpolicies?(b)HowdidKeynes’spoliciesworkduringtheGreatDepression?

8. Analyze Causes and EffectsWhycanlowtaxratesencourageinvest-mentandincreasejobsandwages?

9. ContrastChoosetwoPresidentsandexplainhowtheirfiscalpoliciesreflecteddifferingeconomicbeliefs.

Quick Write10.Writeabriefpositionpapersupport-

ingoropposingtheuseoftaxfundstoputpeopletoworktoday.Includeatleasttwoargumentstosupportyourposition,indicatingwhichargumentyoufeelismostimpor-tant.Makesureyourfinalsentencestronglyrestatesyourposition.


Journal

GRAPH SKILLSTax rates varied widely throughout the last century.

1. When were top marginal income tax rates at their highest?

2. What has been the trend in tax rates since 1985?

Figure 15.7 Top Marginal Tax Rate, 1925–2007

1935 1945

40

50

100

YearTo

p m

argi

nal t

ax r

ate

(per

cent

of i

ncom

e)

20

30

10

2005

60

70

80

90

1925

SOURCE: Tax Policy Center: Urban Institute and Brookings Institute

1955 1965 1975 1985 1995

SS.912.E.1.10, SS.912.E.2.1, SS.912.E.3.6, LA.1112.1.6.1, LA.1112.2.2.2


SS.912.E.1.10, SS.912.E.2.1, SS.912.E.3.6, LA.1112.1.6.1, LA.1112.2.2.2


NGSSS

408 Unit 6


Guiding Question

What are the effects of budget deficits and national debt?

Get Started

LESSON GOALS

Students will:


• Identify some of the major categories of federal revenues and expenses by using a worksheet.

• Describe actions the government can take to balance the budget.

• Describe the problems that can arise from a national debt.

• Explain ways in which government leaders have tried to control the deficit since the 1980s.

BEFORE CLASS

Students should read the section for homework before coming to class.




FACTS: • In each fiscal year, the federal budget is either balanced, running a surplus, or running a deficit. • Each fiscal year’s budget deficit adds to the national debt. • The national debt causes less money to be available for businesses to invest, burdens the government with interest payments, and may make the country more vulnerable to foreign holders of the debt. • Since the 1980s, several attempts have been made to control the national debt.

GENERALIZATION: Deficits and the national debt can cause problems, but whether they are so serious that laws should be passed to force a balanced budget remains undecided.

Effects• national debt increases• fewer funds to invest in private business• large interest payments• foreign ownership of the debt

BudgetDeficit

EventCauses• tax cuts • increased spending that causes expenditures to exceed revenues

Causes•

•

•

•

•

•

Event Effects

BudgetDeficit

408 f iscal policy

SECTION 3 Budget Deficits and the National Debt

economic dictionary


•budgetsurplus•budgetdeficit•Treasurybill•Treasurynote•Treasurybond•nationaldebt•crowding-outeffect

Guiding QuestionWhat are the effects of budget deficits and national debt?

Copythiscause-and-effectchartandfillitinasyouread.

Economics and You If you have used a credit card, you might have some idea about how easy it is to spend money that you don’t have. If you fail to pay the credit-card bill in full each month, the high interest rate may mean that the amount you owe just keeps increasing. Soon you may face a mountain of debt.

The federal government is no stranger to spending more than it has. You have been reading about how the government uses spending as a fiscal policy tool to improve the economy.Principles in Action As you will see in this section, unchecked spending can lead to a soaring national debt. The How the Economy Works feature shows how that debt resulted from numerous budget decisions. The costs of this debt must be measured against the benefits of government spending.

Balancing the BudgetThe basic tool of fiscal policy is the federal budget. It is made up of two fundamental parts: revenue (taxes) and expenditures (spending programs). When the federal government’s revenues equal its expenditures in any particular fiscal year, the federal government has a balanced budget.

In reality, as Figure 15.8 shows, the federal budget is almost never balanced. Usually, it is either running a surplus or a deficit. A budget surplus occurs in any year when revenues exceed expenditures. In other words, there is more money going into the Treasury than coming out of it. A budget deficit occurs in any year when expenditures exceed revenues. In other words, there is more money coming out of the Treasury than going into it.

Assume the federal government starts with a balanced budget. If the government decreases expenditures without changing anything else, it will run a budget surplus. Similarly, if it increases taxes—revenues—without changing anything else, it will run a surplus.

This analysis also explains budget deficits. If the government increases expenditures without changing anything else, it will run a deficit. Similarly, if it decreases taxes without changing anything else, it will run a deficit. The deficit can grow or shrink because of forces beyond the government’s control. Surpluses and deficits can be very large figures. The largest deficit, in 2009, was nearly $1.8 trillion.

budget surplus a situation in which

budget revenues exceed expenditures

budget deficit a situation in which budget

expenditures exceed revenues



SS.912.E.1.10 Explain the use of fiscal policy to promote full employment.

SS.912.E.1.13 Describe the composition of the money supply.


SS.912.E.3.1 Demonstrate the impact of inflation on world economies.

NGSSS



Responding to Budget DeficitsWhen the government runs a deficit, it is because it did not take in enough revenue to cover its expenses for the year. When this happens, the government must find a way to pay for the extra expenditures. There are two basic actions the govern-ment can take to do so.

Creating MoneyThe government can create new money to pay salaries for its workers and benefits for citizens. Traditionally, governments simply printed the bills they needed. Today, the government can create money electronically by actions that effectively deposit money in people’s bank accounts. The effect is the same. This approach works for relatively small deficits but can cause severe problems when there are large deficits. What are these problems?

When the government creates more money, it increases the amount of money in circulation. This increases the demand for goods and services and can increase output. But once the economy reaches full employment, output cannot increase. The increase in money will mean that there are more dollars but the same amount of goods and services. Prices will rise so that a greater amount of money will be needed to purchase the same amount of goods and services. In other words, prices go up, and the result is inflation.

Covering very large deficits by printing more money can cause hyperinflation. This happened in Germany and Russia after World War I, in Brazil and Argentina in the 1980s, and in Ukraine in the 1990s. If the United States experienced hyperin-flation, a shirt that cost $30 in June might cost $50 in July, $80 in August, and $400 in December!

Borrowing MoneyThe federal government usually does not resort to creating money to cover a budget deficit. Instead, it borrows money. The government commonly borrows money by selling bonds. As you read in Chapter 11, a bond is a type of loan: a promise to repay money in the future, with interest. Consumers and businesses buy bonds from the government. The government thus has

the money to cover its budget deficit. In return, the purchasers of the bonds earn interest on their investment over time.

United States Savings Bonds (“EE Bonds”) allow millions of Americans to lend small amounts of money to the federal government. In return, they earn interest on the bonds for up to 30 years. Other common forms of government borrowing are Treasury bills, notes, and bonds. Treasury bills are short-term bonds that have maturity dates of 26 weeks or less. Treasury notes have terms of from 2 to 10 years. Treasury bonds mature 30 years after issue.

Federal borrowing lets the government undertake more projects than it could otherwise afford. Wise borrowing allows the government to create more public goods and services. Federal borrowing, however, also has serious disadvantages.

�CheCkpoint�What is the most common way that the federal government pays for expenditures that exceed revenues?

Treasury bill a government bond with a maturity date of 26 weeks or less

Treasury note a government bond with a term of from 2 to 10 years

Treasury bond a government bond that is issued with a term of 30 years

GRAPH SKILLSBudget deficits swelled in the early 2000s due to recession, tax cuts, and defense spending.

1. In which of the years shown on the graph did the budget have a surplus?

2. What was the dominant trend in deficits in the late 1990s?

Figure 15.8 �Budget�Surpluses�and�Deficits,�1950–2010

1960

500

Year

Surp

lus

or d

efic

it (in

bill

ions

of d

olla

rs)

–20002010

1000

1500

2000

1950

SOURCE: U.S. Government Printing Office

1970 1980 1990 2000

–1000

–1500

–500

0



LA.1112.1.6 Use multiple strategies to develop vocabulary.MA.912.A.2.2 Interpret a graph to represent a real-world situation.SS.912.E.1.10 Explain the use of fiscal policy to promote full employment.SS.912.E.1.13 Describe the composition of the money supply.SS.912.E.2.9 Analyze how changes in federal spending affect budget deficits, surpluses, and the national debt.SS.912.E.3.1 Demonstrate the impact of inflation on world economies.

NGSSS


Chapter 15 409


BELLRINGER

Write these questions on the board:

• Have you ever tried to live on a budget? Were you successful?

• Have you ever spent more money than you had? Why or why not?

• Have you ever borrowed money from a friend? What did you need it for?

Tell students to write their answers in their notebooks.



DISCUSS

Review answers to the Bellringer. Discuss the difficulties of staying within a budget. Then ask How does the federal government try to balance the budget? (It aims for revenue to equal expenditures.) What happens when the budget is not balanced? (If revenue exceeds expenditures there is a budget surplus; the opposite leads to a budget deficit.)


Distribute “The Federal Budget” worksheet (Unit 6 All-in-One, p. 76), in which students analyze pie charts of the nation’s revenues and expenses for fiscal year 2006 to understand how budget deficit can occur.

L2 LPR Differentiate Distribute “The Federal Budget” worksheet (Unit 6 All-in-One, p. 77). Have students work in pairs.

CHECK COMPREHENSION

Ask What options do you have if you want to spend more money than you have? (don’t spend it or borrow money) What options does the government have when it runs a deficit? (creating money or borrowing money) Ask What is one possible effect of creating money? Why? (Inflation; more money in circulation increases the demand for goods and services and can increase output until the economy reaches full employment. At that point, output cannot increase, and prices will rise because there are more dollars, which will be needed to purchase the same amount of goods and services.) Ask How does the government borrow money? (by selling bonds)

AnswersGraph Skills 1. 2000 2. They were decreasing.

Checkpoint borrowing


All-in-One, p. 75)

L2 The Federal Budget (Unit 6 All-in-One, p. 77)

L4 Taxes and the Budget Deficit (Unit 6 All-in-One, p. 78)


Name ___________________________ Class _____________________ Date __________

ANALYZING CHARTS AND GRAPHS

The Federal Budget 2

CHAPTER

15SECTION 3

The two pie charts show federal revenues and expenses for the fiscal year 2009 budget. The budget receipt category Social Insurance includes Social Security taxes, Medicare taxes, unemployment insurance taxes, and Federal employee retirement payments. The budget outlay category All Other Payments for Individuals includes housing assistance, other types of medical care, food assistance, and unemployment insurance. ◆ Examine the pie charts and answer the questions that follow.

Total Receipts: $2,156.7 billion Total Outlays: $3,958.4 billion

Excise Taxes$66.3

Other$91.4

Corporate Income Tax$146.8

IndividualIncome Tax

$953

Social Insurance$899.2

Federal Budget Receipts for 2009(billions of dollars)

Federal Budget Outlays for 2009(billions of dollars)

Source: U.S. Office of Management and Budget, Budget of the United States Government, Historical Tables

National Defense$690.3

Social Security$680.9

Other$1,188.9

Medicare$497.9

Net Interest$142.7

Medicaid$262.4

All OtherPayments toIndividuals

$495.3


1. What do the graphs show about government revenue and government spending?

2. Where does most of the government’s revenue come from?

3. In Federal Budget Expenses, what do you think makes up Other? Why is it so much greater than the others?

4. If you were the President or a member of Congress, what would you do about the situation shown in the graph?



Name____________________________ Class_ _____________________ Date___________

AnAlyzing ChArts And grAphs

Taxes and the Budget Deficit 4

Chapter

15SeCtion 3

In_2001_President_Bush_initiated_a_series_of_tax_cuts._The_2001_law,_which_called_for_reducing_income_tax_rates,_reducing_taxes_on_married_couples,_increasing_the_child_tax_credit_for_lower-_and_middle-income_families,_and_phasing_out_the_estate_tax,_aimed_to_cut_taxes_by_$1.35_trillion_over_ten_years._Another_law_in_2003_was_intended_to_speed_up_the_2001_tax_cuts._As_of_2008,_all_of_the_tax_breaks_have_been_set_to_expire_in_2010,_although_they_could_be_extended.

The_U.S._government_creates_data_forecasts_to_help_make_policies_that_will_effect_the_future._This_graph_from_2008_shows_projected_budget_deficits,_with_and_without_the_above_tax_cuts._“On-budget”_deficit_numbers_do_not_count_surpluses_in_restricted_funds,_such_as_Social_Security,_which_have_been_used_to_offset_the_deficit._ _Study the graph. Then answer the questions that follow.

Projected U.S. Budget Deficits

Dolla

rs (i

n bi

llion

s)

Years

–800

–700

–600

–500

–400

–300

–200

–100

0

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

2018

Deficit

On-Budget Deficit

On-Budget Deficit withTax Cuts Extended


1. What trend is reflected in the graph for the projected budget deficit?

2. What is the effect of tax cuts on the budget deficit if they are extended?

3. If you were a member of Congress, would you vote to make the tax cuts permanent or eliminate them? List three reasons why or why not.

ECN10NAE4_WSAO01_0615_0078.indd Page 78 2/11/11 8:27:33 PM gg-023 /Volumes/129/PHS00048_r2/AIO_indd%0/PHS00048...

Causes•

•

•

•

•

•

Event Effects

BudgetDeficit

408 f iscal policy

SECTION 3 Budget Deficits and the National Debt

economic dictionary


•budgetsurplus•budgetdeficit•Treasurybill•Treasurynote•Treasurybond•nationaldebt•crowding-outeffect

Guiding QuestionWhat are the effects of budget deficits and national debt?

Copythiscause-and-effectchartandfillitinasyouread.

Economics and You If you have used a credit card, you might have some idea about how easy it is to spend money that you don’t have. If you fail to pay the credit-card bill in full each month, the high interest rate may mean that the amount you owe just keeps increasing. Soon you may face a mountain of debt.

The federal government is no stranger to spending more than it has. You have been reading about how the government uses spending as a fiscal policy tool to improve the economy.Principles in Action As you will see in this section, unchecked spending can lead to a soaring national debt. The How the Economy Works feature shows how that debt resulted from numerous budget decisions. The costs of this debt must be measured against the benefits of government spending.

Balancing the BudgetThe basic tool of fiscal policy is the federal budget. It is made up of two fundamental parts: revenue (taxes) and expenditures (spending programs). When the federal government’s revenues equal its expenditures in any particular fiscal year, the federal government has a balanced budget.

In reality, as Figure 15.8 shows, the federal budget is almost never balanced. Usually, it is either running a surplus or a deficit. A budget surplus occurs in any year when revenues exceed expenditures. In other words, there is more money going into the Treasury than coming out of it. A budget deficit occurs in any year when expenditures exceed revenues. In other words, there is more money coming out of the Treasury than going into it.

Assume the federal government starts with a balanced budget. If the government decreases expenditures without changing anything else, it will run a budget surplus. Similarly, if it increases taxes—revenues—without changing anything else, it will run a surplus.

This analysis also explains budget deficits. If the government increases expenditures without changing anything else, it will run a deficit. Similarly, if it decreases taxes without changing anything else, it will run a deficit. The deficit can grow or shrink because of forces beyond the government’s control. Surpluses and deficits can be very large figures. The largest deficit, in 2009, was nearly $1.8 trillion.

budget surplus a situation in which

budget revenues exceed expenditures

budget deficit a situation in which budget

expenditures exceed revenues



SS.912.E.1.10 Explain the use of fiscal policy to promote full employment.

SS.912.E.1.13 Describe the composition of the money supply.


SS.912.E.3.1 Demonstrate the impact of inflation on world economies.

NGSSS



Responding to Budget DeficitsWhen the government runs a deficit, it is because it did not take in enough revenue to cover its expenses for the year. When this happens, the government must find a way to pay for the extra expenditures. There are two basic actions the govern-ment can take to do so.

Creating MoneyThe government can create new money to pay salaries for its workers and benefits for citizens. Traditionally, governments simply printed the bills they needed. Today, the government can create money electronically by actions that effectively deposit money in people’s bank accounts. The effect is the same. This approach works for relatively small deficits but can cause severe problems when there are large deficits. What are these problems?

When the government creates more money, it increases the amount of money in circulation. This increases the demand for goods and services and can increase output. But once the economy reaches full employment, output cannot increase. The increase in money will mean that there are more dollars but the same amount of goods and services. Prices will rise so that a greater amount of money will be needed to purchase the same amount of goods and services. In other words, prices go up, and the result is inflation.

Covering very large deficits by printing more money can cause hyperinflation. This happened in Germany and Russia after World War I, in Brazil and Argentina in the 1980s, and in Ukraine in the 1990s. If the United States experienced hyperin-flation, a shirt that cost $30 in June might cost $50 in July, $80 in August, and $400 in December!

Borrowing MoneyThe federal government usually does not resort to creating money to cover a budget deficit. Instead, it borrows money. The government commonly borrows money by selling bonds. As you read in Chapter 11, a bond is a type of loan: a promise to repay money in the future, with interest. Consumers and businesses buy bonds from the government. The government thus has

the money to cover its budget deficit. In return, the purchasers of the bonds earn interest on their investment over time.

United States Savings Bonds (“EE Bonds”) allow millions of Americans to lend small amounts of money to the federal government. In return, they earn interest on the bonds for up to 30 years. Other common forms of government borrowing are Treasury bills, notes, and bonds. Treasury bills are short-term bonds that have maturity dates of 26 weeks or less. Treasury notes have terms of from 2 to 10 years. Treasury bonds mature 30 years after issue.

Federal borrowing lets the government undertake more projects than it could otherwise afford. Wise borrowing allows the government to create more public goods and services. Federal borrowing, however, also has serious disadvantages.

�CheCkpoint�What is the most common way that the federal government pays for expenditures that exceed revenues?

Treasury bill a government bond with a maturity date of 26 weeks or less

Treasury note a government bond with a term of from 2 to 10 years

Treasury bond a government bond that is issued with a term of 30 years

GRAPH SKILLSBudget deficits swelled in the early 2000s due to recession, tax cuts, and defense spending.

1. In which of the years shown on the graph did the budget have a surplus?

2. What was the dominant trend in deficits in the late 1990s?

Figure 15.8 �Budget�Surpluses�and�Deficits,�1950–2010

1960

500

Year

Surp

lus

or d

efic

it (in

bill

ions

of d

olla

rs)

–20002010

1000

1500

2000

1950

SOURCE: U.S. Government Printing Office

1970 1980 1990 2000

–1000

–1500

–500

0





410 Unit 6


APPLY UNDERSTANDING

Have students define national debt in their own words. Ask To whom is the debt owed? (to individuals and businesses who hold Treasury bonds, bills, and notes) Why do businesses and individuals loan money to the government? (The bonds, bills, and notes are considered to be a safe investment.)

Refer students to Figure 15.9. Have them describe what the graph shows. Review the definition of GDP—the dollar value of all final goods and services produced within a country’s borders in a given year. Ask Why is the national debt shown as a percentage of GDP? (The national debt is so large that it makes sense to compare it to the size of the economy as a whole.)

DISCUSS

Refer students to “The Federal Budget” worksheet. Explain that “net interest” represents payments the government makes on federal debt to bondholders. Then ask How does debt affect the federal budget? (Servicing the debt—paying interest on the debt—leaves less money to be spent on other government programs.) Elicit the fact from students that there is an opportunity cost—dollars spent servicing the debt cannot be spent on other government programs. Point out that this is one of the problems of the national debt.

PERSoNAL FINANCE ACTIvITY

To help students make wise economic choices, you may want to use the Personal Finance Handbook section on managing debt (pp. PF26–27) and the activity worksheet (Personal Finance All-in-One, p. 74).

AnswersGraph Skills 1. in debt because the government spends large amounts of money to support the war effort 2. Possible response: While spending has increased, GDP is reduced because there is less money in the private sector to finance business investment.

Checkpoint investors who hold United States Savings Bonds, Treasury bonds, Treasury bills, and Treasury notes


Comparing Points of View About the National Debt Use the following lesson from the NCEE Virtual Economics CD-ROM to review causes of the national debt and analyze issues related to it. Click on Browse Economics Lessons, specify grades 9–12, and use the key words national debt.

In this activity, students will review the causes of the national debt and will compare points of view related to it.

LESSoN TITLE ShoULD WE WoRRY AboUT ThE NATIoNAL DEbT?

Type of Activity Comparing Points of View

Complexity Low

Time 60 minutes

NCEE Standards 17, 20

410 f iscal policy

The National DebtLike people, when the government borrows money, it goes into debt. The national debt is the total amount of money the federal government owes to bondholders. Every year that there is a budget deficit and the federal government borrows money to cover it, the national debt will grow.

The national debt is owed to investors who hold Treasury bonds, bills, and notes. These bonds are considered to be among the safest investments in the world. As such, they offer a secure investment for individuals and businesses. Because the United States is widely viewed as stable and trustworthy, the federal government can borrow money at a lower rate of interest than private citi-zens or corporations can. Lower interest rates benefit taxpayers by reducing the cost of government borrowing.

The Difference Between Deficit and DebtMany people are confused about the difference between the deficit and the

debt. The deficit is the amount of money the government borrows for one budget, representing one fiscal year. The debt, on the other hand, is the sum of all the government borrowing before that time, minus the borrowings that have been repaid. Each deficit adds to the debt. Each surplus subtracts from it.

Measuring the National DebtIn dollar terms, the size of the national debt is extremely large. In 2008, it exceeded $10.6 trillion! Such a large number can best be analyzed in relation to the size of the economy as a whole. Therefore, let’s look at the size of the debt as a percentage of gross domestic product (GDP) over time. This can be seen in Figure 15.9. Historically, debt as a percentage of GDP rises during wartime, when government spending increases faster than taxation, and it falls during peacetime.

Notice how the pattern changed in the 1980s, when the United States began to run a large debt, even though the country wasn’t at war. The debt was in part a result of increases in spending during President Ronald Reagan’s terms. As you read in the previous section, the Reagan administration also cut taxes. The combined effect of higher spending and lower tax rates was several years of increased budget deficits. The government borrowed billions of dollars to cover these deficits, adding to the national debt. As a result, the ratio of debt to GDP grew very large for peacetime.

�CheCkpoint�To whom does the government owe the national debt?

Is the Debt a Problem?The growth of the national debt during the Reagan administration led many to focus on the problems caused by a national debt. In general, three problems can arise from a national debt.

Problems of a National DebtThe first problem with a national debt is that it reduces the funds available for busi-nesses to invest. This is because in order to sell its bonds, the government must offer a higher interest rate. Individuals and

national debt the total amount of money the

federal government owes to bondholders

GRAPH SKILLS1. Doyouthinkbudgetsareinsurplus,balanced,orindebtduring

timesofwar?

2. WhydoesthenationaldebtasapercentageofGDPsoarduringtimesofwar?

Figure 15.9 �National�Debt�as�a�Percentage��of�GDP

1955

80

100

Year

Perc

enta

ge o

f GDP

40

60

20

02015

120

1940

Note: Figures for the years 2010–2015 are projected. SOURCE: The Executive Office of the President of the United States, The Office of Management and Budget. The Budget of the United States Government, Fiscal Year 2011. Historical Tables.

1970 1985 2000

1980s

WorldWar II

Personal FinanceFor tips on managing your own debt, see your Personal Finance Handbook in the back of the book or visit PearsonSchool.com/PHecon




businesses, attracted by the higher interest rates and the security of investing in the government, use their savings or profits to purchase government bonds.

However, every dollar spent on a govern-ment bond is one dollar less that can be invested in private business. Less money is available for companies to expand their factories, conduct research, and develop new products, and so interest rates rise. This loss of funds for private investment caused by government borrowing is called the crowding-out effect. Federal borrowing “crowds out” private borrowing by making it harder for private businesses to borrow. A national debt, then, can hurt investment and slow economic growth over the long run.

The second problem with a high national debt is that the government must pay interest to bondholders. The more the government borrows, the more interest it has to pay. Paying the interest on the debt is sometimes called servicing the debt. Over time, the interest payments have become very large. About the year 2000, the federal government spent about $250 billion a year servicing the debt. Moreover, there is an opportunity cost—dollars spent servicing the debt cannot be spent on something else, such as defense, healthcare, or infrastructure.

A possible third problem involves foreign ownership of the national debt. The

biggest holder of that debt is the United States government itself. The government uses bonds as a secure savings account for holding Social Security, Medicare, and other funds. But about a quarter of the debt is owned by foreign governments, including Japan, China, and the United Kingdom. Some critics of the debt fear that a country like China could use its large bond holdings as a tool to extract favors from the United States. Others disagree, arguing that foreign states own too little of the debt to cause any concern.

Other Views of a National DebtSome people insist that the national debt is not a big problem. Traditional Keynesian economists believe that fiscal policy is an important tool that can be used to help achieve full productive capacity. To these analysts, the benefits of a productive economy outweigh the costs of interest on national debt.

In the short term, deficit spending may help create jobs and encourage economic growth. However, a budget deficit can be an effective tool only if it is temporary. Most people agree that if the government runs large budget deficits year after year, the costs of the growing debt will eventu-ally outweigh the benefits.

�CheCkpoint�What are the problems of having a huge national debt?

crowding-out effect the loss of funds for private investment caused by government borrowing

Figure 15.10 Effects of the Budget Deficit on Investment

The federal government spends more than it takes in, and has to borrow money to

cover the deficit.

Investors trust the U.S. government and loan

money to the government by buying bonds.

Banks and investors have less money to lend

private businesses. Privatebusinesses must pay a higher interest rate to borrow scarce money.

chart SKILLSGovernment borrowing tends to reduce private investment by taking away some funds that could have been invested in private business. Economists describe this phenomenon as the crowding-out effect.

1. Why do lenders put their money in government bonds rather then use it for private investment?

2. What are some ways that private investors and banks deal with the crowding-out effect?




Chapter 15 411


DISCUSS

Ask What are the effects of the national debt on the U.S. economy? (the crowding-out effect, foreign ownership in the economy) Refer to Figure 15.10 and have students explain how debt reduces funds available for businesses to invest. For example, during wars, the government’s borrowing makes loans too expensive for many businesses.

L1 L2 Differentiate Help students with the concept of crowding out by comparing money with goods. When goods are scarce and demand is high, the price of goods increases. Similarly, when demand for money is high and supply is limited, interest rates increase, making loans unaffordable for many.

L4 Differentiate Distribute the “Taxes and the Budget Deficit” worksheet (Unit 6 All-in-One, p. 78). Have students study the graph and answer the questions.

After students have completed the worksheet hold a class discussion about tax policy and its effects on yearly deficits and the national debt.

AnswersCheckpoint Fewer funds are available for businesses; government pays interest to bondholders; foreign debt holders may have undue influence on government.

Chart Skills 1. Investors trust that investing in government bonds is safer than in business, and the interest rate is higher. 2. Both have less money to lend, so they charge higher interest rates.

Background NoteForeign Debt As of May 2007, the three largest foreign holders of U.S. Treasury securities were Japan, China, and the United Kingdom. Between them, they owned almost $1.2 trillion of debt. Perhaps even more importantly, foreign investors owned about 80 percent of the Treasury notes, which mature in 3 to 10 years. These nations, as well as other countries, have invested heavily in the United States, in part because U.S. bonds, notes, and bills have had a higher yield than similar notes offered by Japan and European Union members, making them a more desirable investment.


Name____________________________ Class_ _____________________ Date___________

AnAlyzing ChArts And grAphs

Taxes and the Budget Deficit 4

Chapter

15SeCtion 3

In_2001_President_Bush_initiated_a_series_of_tax_cuts._The_2001_law,_which_called_for_reducing_income_tax_rates,_reducing_taxes_on_married_couples,_increasing_the_child_tax_credit_for_lower-_and_middle-income_families,_and_phasing_out_the_estate_tax,_aimed_to_cut_taxes_by_$1.35_trillion_over_ten_years._Another_law_in_2003_was_intended_to_speed_up_the_2001_tax_cuts._As_of_2008,_all_of_the_tax_breaks_have_been_set_to_expire_in_2010,_although_they_could_be_extended.

The_U.S._government_creates_data_forecasts_to_help_make_policies_that_will_effect_the_future._This_graph_from_2008_shows_projected_budget_deficits,_with_and_without_the_above_tax_cuts._“On-budget”_deficit_numbers_do_not_count_surpluses_in_restricted_funds,_such_as_Social_Security,_which_have_been_used_to_offset_the_deficit._ _Study the graph. Then answer the questions that follow.

Projected U.S. Budget Deficits

Dolla

rs (i

n bi

llion

s)

Years

–800

–700

–600

–500

–400

–300

–200

–100

0

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

2018

Deficit

On-Budget Deficit

On-Budget Deficit withTax Cuts Extended


1. What trend is reflected in the graph for the projected budget deficit?

2. What is the effect of tax cuts on the budget deficit if they are extended?

3. If you were a member of Congress, would you vote to make the tax cuts permanent or eliminate them? List three reasons why or why not.

ECN10NAE4_WSAO01_0615_0078.indd Page 78 2/11/11 8:27:33 PM gg-023 /Volumes/129/PHS00048_r2/AIO_indd%0/PHS00048...

410 f iscal policy

The National DebtLike people, when the government borrows money, it goes into debt. The national debt is the total amount of money the federal government owes to bondholders. Every year that there is a budget deficit and the federal government borrows money to cover it, the national debt will grow.

The national debt is owed to investors who hold Treasury bonds, bills, and notes. These bonds are considered to be among the safest investments in the world. As such, they offer a secure investment for individuals and businesses. Because the United States is widely viewed as stable and trustworthy, the federal government can borrow money at a lower rate of interest than private citi-zens or corporations can. Lower interest rates benefit taxpayers by reducing the cost of government borrowing.

The Difference Between Deficit and DebtMany people are confused about the difference between the deficit and the

debt. The deficit is the amount of money the government borrows for one budget, representing one fiscal year. The debt, on the other hand, is the sum of all the government borrowing before that time, minus the borrowings that have been repaid. Each deficit adds to the debt. Each surplus subtracts from it.

Measuring the National DebtIn dollar terms, the size of the national debt is extremely large. In 2008, it exceeded $10.6 trillion! Such a large number can best be analyzed in relation to the size of the economy as a whole. Therefore, let’s look at the size of the debt as a percentage of gross domestic product (GDP) over time. This can be seen in Figure 15.9. Historically, debt as a percentage of GDP rises during wartime, when government spending increases faster than taxation, and it falls during peacetime.

Notice how the pattern changed in the 1980s, when the United States began to run a large debt, even though the country wasn’t at war. The debt was in part a result of increases in spending during President Ronald Reagan’s terms. As you read in the previous section, the Reagan administration also cut taxes. The combined effect of higher spending and lower tax rates was several years of increased budget deficits. The government borrowed billions of dollars to cover these deficits, adding to the national debt. As a result, the ratio of debt to GDP grew very large for peacetime.

�CheCkpoint�To whom does the government owe the national debt?

Is the Debt a Problem?The growth of the national debt during the Reagan administration led many to focus on the problems caused by a national debt. In general, three problems can arise from a national debt.

Problems of a National DebtThe first problem with a national debt is that it reduces the funds available for busi-nesses to invest. This is because in order to sell its bonds, the government must offer a higher interest rate. Individuals and

national debt the total amount of money the

federal government owes to bondholders

GRAPH SKILLS1. Doyouthinkbudgetsareinsurplus,balanced,orindebtduring

timesofwar?

2. WhydoesthenationaldebtasapercentageofGDPsoarduringtimesofwar?

Figure 15.9 �National�Debt�as�a�Percentage��of�GDP

1955

80

100

Year

Perc

enta

ge o

f GDP

40

60

20

02015

120

1940

Note: Figures for the years 2010–2015 are projected. SOURCE: The Executive Office of the President of the United States, The Office of Management and Budget. The Budget of the United States Government, Fiscal Year 2011. Historical Tables.

1970 1985 2000

1980s

WorldWar II

Personal FinanceFor tips on managing your own debt, see your Personal Finance Handbook in the back of the book or visit PearsonSchool.com/PHecon




businesses, attracted by the higher interest rates and the security of investing in the government, use their savings or profits to purchase government bonds.

However, every dollar spent on a govern-ment bond is one dollar less that can be invested in private business. Less money is available for companies to expand their factories, conduct research, and develop new products, and so interest rates rise. This loss of funds for private investment caused by government borrowing is called the crowding-out effect. Federal borrowing “crowds out” private borrowing by making it harder for private businesses to borrow. A national debt, then, can hurt investment and slow economic growth over the long run.

The second problem with a high national debt is that the government must pay interest to bondholders. The more the government borrows, the more interest it has to pay. Paying the interest on the debt is sometimes called servicing the debt. Over time, the interest payments have become very large. About the year 2000, the federal government spent about $250 billion a year servicing the debt. Moreover, there is an opportunity cost—dollars spent servicing the debt cannot be spent on something else, such as defense, healthcare, or infrastructure.

A possible third problem involves foreign ownership of the national debt. The

biggest holder of that debt is the United States government itself. The government uses bonds as a secure savings account for holding Social Security, Medicare, and other funds. But about a quarter of the debt is owned by foreign governments, including Japan, China, and the United Kingdom. Some critics of the debt fear that a country like China could use its large bond holdings as a tool to extract favors from the United States. Others disagree, arguing that foreign states own too little of the debt to cause any concern.

Other Views of a National DebtSome people insist that the national debt is not a big problem. Traditional Keynesian economists believe that fiscal policy is an important tool that can be used to help achieve full productive capacity. To these analysts, the benefits of a productive economy outweigh the costs of interest on national debt.

In the short term, deficit spending may help create jobs and encourage economic growth. However, a budget deficit can be an effective tool only if it is temporary. Most people agree that if the government runs large budget deficits year after year, the costs of the growing debt will eventu-ally outweigh the benefits.

�CheCkpoint�What are the problems of having a huge national debt?

crowding-out effect the loss of funds for private investment caused by government borrowing

Figure 15.10 Effects of the Budget Deficit on Investment

The federal government spends more than it takes in, and has to borrow money to

cover the deficit.

Investors trust the U.S. government and loan

money to the government by buying bonds.

Banks and investors have less money to lend

private businesses. Privatebusinesses must pay a higher interest rate to borrow scarce money.

chart SKILLSGovernment borrowing tends to reduce private investment by taking away some funds that could have been invested in private business. Economists describe this phenomenon as the crowding-out effect.

1. Why do lenders put their money in government bonds rather then use it for private investment?

2. What are some ways that private investors and banks deal with the crowding-out effect?



412 Unit 6


HOW THE ECONOMY WORKS

Have students look back at Figure 15.8. Ask What can you conclude about the national debt? (It has grown.) Have volunteers read How the Economy Works aloud. Then have students summarize in their own words why the national debt has grown over the past 30 years.

ANALYZE CARTOON

Display the “Nearly Empty or Almost Full?” transparency (Color Transparencies, 15.b). Discuss these questions: • Whom do the elephant and the donkey represent? • According to the cartoonist, who views a deficit as a problem? Why? • Who does not view a deficit as a problem? Why? • With which view might a Keynesian economist agree? Explain.

L1 Differentiate Explain the meaning of the expression “Is the glass half empty or half full?”

DISCUSS

In the cartoon, different lawmakers view the deficit in different ways. Have students discuss some of the other reasons it has been difficult for lawmakers to control budget deficits: a large percentage of the budget consists of entitlements; interest on bonds must be paid to bondholders; and interest groups work to oppose some spending reductions. You may want to assign students specific roles, such as a person receiving Social Security, a Treasury bondholder, a person receiving housing assistance, and a person receiving money for scientific research. Have students justify why they should continue to receive money.

Point out that interest groups have considerable influence because of their political affiliations, financial support of certain legislators, and other factors. Discuss how this influence affects efforts to control the deficit.

L4 Differentiate Have students research the answer to the question What do lobbyists do?

CHECK COMPREHENSION

Ask students to define and explain the purpose of the Gramm-Rudman-Hollings Act. Have them identify its advantages and disadvantages. Ask Why did Congress give up on the Gramm-Rudman-Hollings Act? (The budget deficit was much larger than expected, and because the act exempted so many programs from cuts, remaining programs would have had to be drastically cut.)

Ask How did the PAYGO system seek to limit the deficit? (It required Congress to raise revenue to cover any additional increases in direct spending.)

412 f iscal policy

Controlling the DeficitDuring the 1980s and the early 1990s, annual budget deficits added substantially to the national debt. Several factors frustrated lawmakers in their attempts to control the deficit. As we have seen, much of the budget consists of entitlement spending that is politically difficult to change. Another large part of the budget consists of interest that must be paid to bondholders. Finally, specific budget cuts are often opposed by interest groups.

Efforts to Reduce DeficitsConcerns about the budget deficits of the mid-1980s caused Congress to pass the Gramm-Rudman-Hollings Act. This law created automatic across-the-board cuts in federal expenditures if the deficit exceeded a certain amount. The automatic nature of the cuts saved lawmakers from

having to make difficult decisions about individual funding cuts. However, the act exempted significant portions of the budget (such as interest payments and many entitlement programs such as Social Security) from the cuts.

The Supreme Court found that some parts of the Gramm-Rudman-Hollings Act were unconstitutional. Congress attempted to correct the flaws. In 1990, however, lawmakers realized that the deficit was going to be much larger than expected. Because Congress had exempted so many programs from automatic cuts, funding for nonexempt programs would be dramati-cally slashed.

To resolve the crisis, President George H. W. Bush and congressional leaders negotiated a new budget system that replaced Gramm-Rudman-Hollings. The 1990 Budget Enforcement Act created a

econ10a0653

National Debt

What causes the national debt to spiral?The National Debt is the amount of money the United States government owes to the people and institutions who hold its bonds, bills, and notes. In the past 30 years, the national debt has grown enormously. Here is why the debt has grown.

Each year, the federal government has to pay for hundreds of essential services, from military protection to healthcare. Tax revenues pay for most of these expenses. But in most years, there is a gap between revenue and expenditures.

To make up the gap, the government borrows money. It issues Treasury bonds, bills, and notes. The interest paid on this money becomes part of the federal budget.



“pay-as-you-go” system (also known as PAYGO). PAYGO required Congress to raise enough revenue to cover increases in direct spending that would otherwise contribute to the budget deficit. This law expired in 2002, but in 2007 the House and Senate restored PAYGO in the form of special budget rules.

At various times, citizens and politicians have suggested amending the Constitution to require a balanced budget. In 1995, a balanced budget amendment gained the two-thirds majority it needed to pass the House, but the next year it failed by a single vote in the Senate. Supporters argued that the amendment would force the federal government to be more disci-plined about its spending. Opponents said that a constitutional amendment requiring a balanced budget would not give the government the flexibility it needed to deal with rapid changes in the economy.

End-of-Century SurplusesThe late 1990s brought a welcome reversal of fortune. For the first time in thirty years, the President and the Office of Management and Budget were able to announce that the federal government was running a surplus.

How did this happen? First, the new budget procedures begun under President Bush and extended under President Clinton did help Congress control the growth of government spending. Second, tax increases by President Clinton in 1993 resulted in more federal revenue. Finally, the strong economy and low unemploy-ment meant that more individuals and corporations were earning more money—and thus paying more to the government in taxes.

Return to DeficitsThe changeover from deficits to surplus brought with it a different set of political

Check Your Understanding1. How does borrowing lead to greater

interest payments and greater debt?2. How important do you think it is to

immediately reduce the national debt?

Economic downturns or external shocks such as natural disasters may add unplanned costs to the federal budget. This leads to even more borrowing.

As the government borrows more, the slice of the federal budget taken up by interest payments grows. The more interest, the greater the gap between revenue and expenses…and the greater the gap, the more the government borrows.

Large deficits over a period of years have caused the national debt to spiral to enormous proportions. However, economists differ on whether this large debt is a serious problem to the U.S. economy.

online

For an animated, interactive version of this feature, visit PearsonSchool.com/PHecon



Chapter 15 413


DEBATE

Discuss the idea of a balanced budget amendment. Then use the Debate Strategy (p. T27) to debate whether or not a balanced budget amendment should be passed.

DISCUSS

Discuss how the surpluses of the 1990s developed. Then explain what caused deficit spending to return. Ask What challenges to balancing the budget will the federal government face in the future? (Possible answers include funding stimulus projects, healthcare initiatives, Social Security, and Medicare.)

EXTEND

Have students write letters to the editor of their local newspaper addressing some aspect of the federal budget or the national debt that is having an impact on their city or town. Have them give facts and details to support their position. Then have them report the results and evaluate the effectiveness of their letters.

GUIDING QUESTIoN WrAp Up

Have students return to the section Guiding Question. Review the completed graphic organizer and clarify any misunderstandings. Have a wrap up discussion about the effects of budget deficits and national debt.

Assess and RemediateL3 L2 Collect ”The Federal Budget” worksheets and assess students’ understanding of budget surplus and deficit.

L4 Collect the “Taxes and the Budget Deficit” worksheet and assess students’ understanding.





AnswersCheck Your Understanding 1. The more the government borrows, the more interest it has to pay, and the portion of the budget taken up by interest payments grows. As the gap between revenues and expenses grows, the government borrows even more money. 2. Possible response: In the short term, deficit spending may help create jobs and encourage growth. In the long term, the costs of growing debt will outweigh the benefits.

412 f iscal policy

Controlling the DeficitDuring the 1980s and the early 1990s, annual budget deficits added substantially to the national debt. Several factors frustrated lawmakers in their attempts to control the deficit. As we have seen, much of the budget consists of entitlement spending that is politically difficult to change. Another large part of the budget consists of interest that must be paid to bondholders. Finally, specific budget cuts are often opposed by interest groups.

Efforts to Reduce DeficitsConcerns about the budget deficits of the mid-1980s caused Congress to pass the Gramm-Rudman-Hollings Act. This law created automatic across-the-board cuts in federal expenditures if the deficit exceeded a certain amount. The automatic nature of the cuts saved lawmakers from

having to make difficult decisions about individual funding cuts. However, the act exempted significant portions of the budget (such as interest payments and many entitlement programs such as Social Security) from the cuts.

The Supreme Court found that some parts of the Gramm-Rudman-Hollings Act were unconstitutional. Congress attempted to correct the flaws. In 1990, however, lawmakers realized that the deficit was going to be much larger than expected. Because Congress had exempted so many programs from automatic cuts, funding for nonexempt programs would be dramati-cally slashed.

To resolve the crisis, President George H. W. Bush and congressional leaders negotiated a new budget system that replaced Gramm-Rudman-Hollings. The 1990 Budget Enforcement Act created a

econ10a0653

National Debt

What causes the national debt to spiral?The National Debt is the amount of money the United States government owes to the people and institutions who hold its bonds, bills, and notes. In the past 30 years, the national debt has grown enormously. Here is why the debt has grown.

Each year, the federal government has to pay for hundreds of essential services, from military protection to healthcare. Tax revenues pay for most of these expenses. But in most years, there is a gap between revenue and expenditures.

To make up the gap, the government borrows money. It issues Treasury bonds, bills, and notes. The interest paid on this money becomes part of the federal budget.



“pay-as-you-go” system (also known as PAYGO). PAYGO required Congress to raise enough revenue to cover increases in direct spending that would otherwise contribute to the budget deficit. This law expired in 2002, but in 2007 the House and Senate restored PAYGO in the form of special budget rules.

At various times, citizens and politicians have suggested amending the Constitution to require a balanced budget. In 1995, a balanced budget amendment gained the two-thirds majority it needed to pass the House, but the next year it failed by a single vote in the Senate. Supporters argued that the amendment would force the federal government to be more disci-plined about its spending. Opponents said that a constitutional amendment requiring a balanced budget would not give the government the flexibility it needed to deal with rapid changes in the economy.

End-of-Century SurplusesThe late 1990s brought a welcome reversal of fortune. For the first time in thirty years, the President and the Office of Management and Budget were able to announce that the federal government was running a surplus.

How did this happen? First, the new budget procedures begun under President Bush and extended under President Clinton did help Congress control the growth of government spending. Second, tax increases by President Clinton in 1993 resulted in more federal revenue. Finally, the strong economy and low unemploy-ment meant that more individuals and corporations were earning more money—and thus paying more to the government in taxes.

Return to DeficitsThe changeover from deficits to surplus brought with it a different set of political

Check Your Understanding1. How does borrowing lead to greater

interest payments and greater debt?2. How important do you think it is to

immediately reduce the national debt?

Economic downturns or external shocks such as natural disasters may add unplanned costs to the federal budget. This leads to even more borrowing.

As the government borrows more, the slice of the federal budget taken up by interest payments grows. The more interest, the greater the gap between revenue and expenses…and the greater the gap, the more the government borrows.

Large deficits over a period of years have caused the national debt to spiral to enormous proportions. However, economists differ on whether this large debt is a serious problem to the U.S. economy.

online

For an animated, interactive version of this feature, visit PearsonSchool.com/PHecon



414 Unit 6


Assessment Answers







Balancing the budget (Questions 1, 3, 4)

Ask students to write five questions about balancing the budget. Have them exchange questions and write answers.

The national debt (Questions 1, 2, 5, 6, 8)

Reteach using the graphic organizer from this section, but replacing the event “Budget Deficit” with “National Debt.”

Controlling the deficit (Questions 5, 7, 9)

Have students work in pairs and outline the section under “Controlling the Deficit.”

AnswersCaption to bring the size of the debt to people’s attention

Checkpoint economic slowdown, a federal income tax cut, and increased defense costs after the September 11 terrorist attacks

1. Budget deficits increase the national debt. The debt reduces the funds that are available to invest in private business; the government must pay interest to bondholders; there is an opportunity cost associated with those payments; and there are concerns over foreign ownership.

2. As long as the debt is not paid off, deficits are added to it; the debt must be serviced.

3. Revenues exceed expenditures in a year. 4. Treasury notes have terms of from 2 to

10 years whereas Treasury bills have maturity dates of 26 weeks or less.

5. A budget deficit is a shortfall in funds for one year’s budget. That deficit adds to the debt, which is the total of all budget deficits before that time, plus interest, minus any repaid borrowings.

6. Federal borrowing makes it harder for private businesses to borrow. Less money is available for businesses to grow as interest rates rise.

7. (a) This can cause inflation. (b) Possible response: Yes. The government should avoid causing inflation because it will hurt consumers and businesses.

8. (a) the “crowding out” of private borrowing; interest payments on debt; foreign ownership of debt (b) Possible response: the crowding out effect, because it limits the ability of the economy to grow

9. (a) The economy slowed down; income taxes were cut; the “war on terrorism” and costly wars in Afghanistan and Iraq increased defense costs. (b) Social Security and Medicare because a large part of the population is reaching retirement age.

10. (a) almost $0 (b) $75 billion (c) $230 billion (d) $470 billion


414 f iscal policy

concerns. Investors who had come to rely heavily upon Treasury bonds as the basic “safe” investment worried that the federal government would remove all bonds from the market as it repaid its debt.

Americans debated how to make best use of the budget surplus. As a presidential candidate in 2000, George W. Bush pledged to use the surplus to guarantee Social

Security into the new century, provide additional medical benefits to seniors, and reduce income taxes.

However, the surplus was short-lived. The end of the stock market boom, an economic slowdown, and a new federal income tax cut reduced federal revenues. The terrorist attacks of September 11, 2001, dealt a double blow to the federal budget by disrupting the economy and imposing a new set of defense costs.

In response, the federal government returned to deficit spending. The federal budget continued to show a large deficit for the next several years, due in part to counterterrorism efforts and the very costly wars in Afghanistan and Iraq. In fiscal year 2008 alone, the President’s funding requests for the war on terrorism approached $200 billion.

The long-term outlook for the federal budget is uncertain. Funding for stimulus projects and new healthcare initiatives may cause long-term spending to increase. Social Security and Medicare are projected to rise sharply in the next 30 years as large numbers of baby boomers leave the job market and retire. Balancing the budget is expected to become even more difficult.

�CheCkpoint�What factors contributed to the deficit spending of the 2000s?

Guiding Question1. Useyourcompletedcause-and-

effectcharttoanswerthisques-tion:Whataretheeffectsofbudgetdeficitsandnationaldebt?

2. ExtensionLookatacreditcardstatement.Noticehowfinancechargesaddtotheoriginalpurchaseexpenses.Ifonedoesnotpaythefullamountowed,thereareadditionalinterestcharges.Therearealsotransaction,over-limit,andlatefees.Evenwithoutadditionalpurchases,theamountowedcontinuestogrow—untilthedebtispaidinfull.Howdoesthiscomparetothewayincreasedfederaldeficitsaddtothenationaldebt?

Key Terms and Main Ideas3. Whatcausesabudget surplus?4. HowdoesaTreasury notediffer

fromaTreasury bill?5. Howmightabudget deficitbe

relatedtothenational debt?6. Explainthecrowding-out effect

thatresultsfromnationaldebt.

Critical Thinking7. Evaluate (a)Whydoesthefederal

governmentusuallynotcreatenewmoneytocoverabudgetdeficit?(b)Doyouthinkthisissoundrea-soning?Explainwhyorwhynot.

8. Rank (a)Whatarethreepossibleproblemswithhavinganationaldebt?(b)Whichproblemdoyouseeasmostserious?Explain.

9. Predict (a)Whydidthefederalbudgetshowalargedeficitforsev-eralyearsfollowing2001?(b)Whatfederalspendingisprojectedtoincreasegreatlyduringthecomingyears,andwhy?(c)Howcouldlow-eringincometaxesduringaneconomicdownturnleadtoincreasednationaldebt?

Math Skills10.Relating Graphs to EventsUse

thedatainFigure 15.8todeterminetheapproximatesizeofthelargestbudgetdeficitsineachofthefollow-ingdecades:(a)1950s,(b)1970s,(c)1990s,(d)2000s.


Createdin1989,theNationalDebtClockinNewYorkcontinuallyticksoffthegrowingnationaldebtpluseachfamily’sshare.TherearesimilarclocksinothercitiesandontheInternet.WhydoyouthinksomeonedecidedtobuildtheNationalDebtClock?


Journal

SS.912.E.2.9, SS.912.E.3.1, LA.1112.1.6.1, LA.1112.2.2.2, MA.912.A.2.2


quick study guideQuick study Guide

on the goStudy anytime, anywhere. Download these files today.

Download to your computer or mobile device at PearsonSchool.com/PHecon

online online online online

Vocabulary Support in English and Spanish

Audio Study Guide in English and Spanish

Animated Charts and Graphs

Animated feature Animated feature

online

Chapter 15 quiCk study guide 415

Effects of Expansionary Fiscal Policy

To expand the economy, the government buys more goods and services.

Companies that sell goods to the government earn profits, which they use to pay their workers and investors more and to hire new workers.

Workers and investors have more money and spend more in shops and restaurants.


In the short term, government spending leads to more jobs and more output.

Section 1 What are the goals and limits of fiscal policy?

Section 2 Whateconomic ideas have shaped fiscal policy? Section 3 What

are the effects of budget deficits and national debt?

Essential Question, Chapter 15 How effective is fiscal policy as an economic tool?

Chapter 15: Fiscal Policy

fiscal policy, p. 392

federal budget, p. 392

fiscal year, p. 392

appropriations bill, p. 394

expansionary policy, p. 395

contractionary policy, p. 395

classical economics, p. 399

productive capacity, p. 400

demand-side economics, p. 400

Keynesian economics, p. 401

multiplier effect, p. 401

automatic stabilizer, p. 404

supply-side economics, p. 404

budget surplus, p. 408

budget deficit, p. 408

Treasury bill, p. 409

Treasury note, p. 409

Treasury bond, p. 409

national debt, p. 410

crowding-out effect, p. 411

ECON13_SE_FL_CH15_QSG.indd 415 2/16/11 10:55:46 AM

SS.912.E.2.9, SS.912.E.3.1, LA.1112.1.6.1, LA.1112.2.2.2, MA.912.A.2.2


Chapter 15 415

Chapter 15 • Quick Study Guide

Assign the essentiAl Questions JournAl

After students have finished studying the chapter, they should return to the chapter’s essential question in the Essential Questions Journal and complete the activity.

Tell students to go back to the chapter opener and look at the image. Using the information they have gained from studying the chapter, ask How does this illustrate the main ideas of the chapter? (Possible responses: The federal budget contains estimates of the government’s revenue and authorizes its spending for the following fiscal year; the budget is used to set fiscal policy; budget deficits occur when expenditures exceed revenues; these deficits contribute to the national debt.)

stuDY tiPs

Tell students to use active reading techniques when reading a textbook.

1. Preview the material before reading in depth. Read headings and subheadings, look at illustrations and graphs, and read captions.

2. Read the material carefully, looking for main ideas.

3. Pause occasionally and ask questions: What are the main ideas? What details support the main ideas?

4. After finishing reading, summarize the material. Go back and check any ideas that are unclear.

on the go Have students download the digital resources available on Economics on the Go for review and remediation.

Assessment at a Glancetests AnD QuiZZes

Section Assessments

Section Quizzes A and B, Unit 6 All-in-One

Self-Test Online

Chapter Assessments

Chapter Tests A and B, Unit 6 All-in-One

Economic Detective, Unit 6 All-in-One

Document-based Assessment, p. 417

ExamView

AYP Monitoring Assessments

PerForMAnCe AssessMent

Teacher’s Edition, pp. 396, 401, 404, 405, 409, 411

Simulation Activities, Chapter 15

Virtual Economics on CD-ROM, pp. 396, 403, 410

Essential Questions Journal, Chapter 15

Assessment Rubrics


414 f iscal policy

concerns. Investors who had come to rely heavily upon Treasury bonds as the basic “safe” investment worried that the federal government would remove all bonds from the market as it repaid its debt.

Americans debated how to make best use of the budget surplus. As a presidential candidate in 2000, George W. Bush pledged to use the surplus to guarantee Social

Security into the new century, provide additional medical benefits to seniors, and reduce income taxes.

However, the surplus was short-lived. The end of the stock market boom, an economic slowdown, and a new federal income tax cut reduced federal revenues. The terrorist attacks of September 11, 2001, dealt a double blow to the federal budget by disrupting the economy and imposing a new set of defense costs.

In response, the federal government returned to deficit spending. The federal budget continued to show a large deficit for the next several years, due in part to counterterrorism efforts and the very costly wars in Afghanistan and Iraq. In fiscal year 2008 alone, the President’s funding requests for the war on terrorism approached $200 billion.

The long-term outlook for the federal budget is uncertain. Funding for stimulus projects and new healthcare initiatives may cause long-term spending to increase. Social Security and Medicare are projected to rise sharply in the next 30 years as large numbers of baby boomers leave the job market and retire. Balancing the budget is expected to become even more difficult.

�CheCkpoint�What factors contributed to the deficit spending of the 2000s?

Guiding Question1. Useyourcompletedcause-and-

effectcharttoanswerthisques-tion:Whataretheeffectsofbudgetdeficitsandnationaldebt?

2. ExtensionLookatacreditcardstatement.Noticehowfinancechargesaddtotheoriginalpurchaseexpenses.Ifonedoesnotpaythefullamountowed,thereareadditionalinterestcharges.Therearealsotransaction,over-limit,andlatefees.Evenwithoutadditionalpurchases,theamountowedcontinuestogrow—untilthedebtispaidinfull.Howdoesthiscomparetothewayincreasedfederaldeficitsaddtothenationaldebt?

Key Terms and Main Ideas3. Whatcausesabudget surplus?4. HowdoesaTreasury notediffer

fromaTreasury bill?5. Howmightabudget deficitbe

relatedtothenational debt?6. Explainthecrowding-out effect

thatresultsfromnationaldebt.

Critical Thinking7. Evaluate (a)Whydoesthefederal

governmentusuallynotcreatenewmoneytocoverabudgetdeficit?(b)Doyouthinkthisissoundrea-soning?Explainwhyorwhynot.

8. Rank (a)Whatarethreepossibleproblemswithhavinganationaldebt?(b)Whichproblemdoyouseeasmostserious?Explain.

9. Predict (a)Whydidthefederalbudgetshowalargedeficitforsev-eralyearsfollowing2001?(b)Whatfederalspendingisprojectedtoincreasegreatlyduringthecomingyears,andwhy?(c)Howcouldlow-eringincometaxesduringaneconomicdownturnleadtoincreasednationaldebt?

Math Skills10.Relating Graphs to EventsUse

thedatainFigure 15.8todeterminetheapproximatesizeofthelargestbudgetdeficitsineachofthefollow-ingdecades:(a)1950s,(b)1970s,(c)1990s,(d)2000s.


Createdin1989,theNationalDebtClockinNewYorkcontinuallyticksoffthegrowingnationaldebtpluseachfamily’sshare.TherearesimilarclocksinothercitiesandontheInternet.WhydoyouthinksomeonedecidedtobuildtheNationalDebtClock?


Journal

SS.912.E.2.9, SS.912.E.3.1, LA.1112.1.6.1, LA.1112.2.2.2, MA.912.A.2.2


quick study guideQuick study Guide

on the goStudy anytime, anywhere. Download these files today.

Download to your computer or mobile device at PearsonSchool.com/PHecon

online online online online

Vocabulary Support in English and Spanish

Audio Study Guide in English and Spanish

Animated Charts and Graphs

Animated feature Animated feature

online

Chapter 15 quiCk study guide 415

Effects of Expansionary Fiscal Policy

To expand the economy, the government buys more goods and services.

Companies that sell goods to the government earn profits, which they use to pay their workers and investors more and to hire new workers.

Workers and investors have more money and spend more in shops and restaurants.


In the short term, government spending leads to more jobs and more output.

Section 1 What are the goals and limits of fiscal policy?

Section 2 Whateconomic ideas have shaped fiscal policy? Section 3 What

are the effects of budget deficits and national debt?

Essential Question, Chapter 15 How effective is fiscal policy as an economic tool?

Chapter 15: Fiscal Policy

fiscal policy, p. 392

federal budget, p. 392

fiscal year, p. 392

appropriations bill, p. 394

expansionary policy, p. 395

contractionary policy, p. 395

classical economics, p. 399

productive capacity, p. 400

demand-side economics, p. 400

Keynesian economics, p. 401

multiplier effect, p. 401

automatic stabilizer, p. 404

supply-side economics, p. 404

budget surplus, p. 408

budget deficit, p. 408

Treasury bill, p. 409

Treasury note, p. 409

Treasury bond, p. 409

national debt, p. 410

crowding-out effect, p. 411

ECON13_SE_FL_CH15_QSG.indd 415 2/16/11 10:55:46 AM


416 Unit 6

Chapter 15 • Assessment

Chapter Assessment 1. (a) According to classical economics, free markets

regulate themselves. Keynesian economics encourages government action to resolve economic problems through the use of fiscal policy. (b) By building pyramids, the government put people to work, thereby reducing unemployment and increasing output. (c) Possible response: The Civilian Conservation Corps put over 2 million young men to work, fighting soil erosion and planting trees.

2. (a) Possible response: It provides funding for school lunches and educational programs; it affects general economic conditions and prices. (b) Possible response: Fiscal policy affects the amount of money the government spends on financial aid programs for college.

3. (a) Taxes and transfer payments are tied to the GDP and personal income and stabilize economic growth. When the economy slows, automatic stabilizers help stimulate it. When the economy is growing too fast, stabilizers slow it down. (b) The economy would be more volatile with larger changes in GDP.

4. (a) When the government borrows money, it means less money is available to invest in private business, making it harder for businesses to borrow and invest. (b) It can hurt investment, slow growth, and reduce capital deepening.

5. (a) Benefits: less debt so more money is available for businesses to borrow, elimination of interest payments and associated opportunity costs; Drawbacks: government would not have the flexibility to deal with rapid changes in the economy. (b) Possible response: No, because the government needs the ability to use fiscal policy.

6. (a) It is used to increase or decrease taxes and spending. (b) It has had mixed success. During the Great Depression, spending on federal programs moved the economy toward full productive capacity. However, in the 1970s, with Keynesian fiscal policy in place, unemployment and inflation rates soared.

7. It decreased from 12 percent to 9 percent.

8. Medicare/Medicaid and Defense: 4 percent

9. (a) decreased from 23 percent to 21 percent (b) No, because the number of people receiving money from Social Security will increase as baby boomers retire.

10. After dividing the class into small groups, assign each President to at least one group. Invite a resource librarian into the classroom to identify good sources of information.

11. Answers will vary, but students should be able to justify the order and make a reasoned generalization about the use of fiscal policy.

online The Economics WebQuest challenges students to use 21st century skills to answer the Essential Question.

Remind students to continue to develop an Essentials Questions video. Guidelines and a production binder are available at www.PearsonSchool.com/PHecon.

Chapter 15 Assessmentdocument-based Assessment

Chapter 15 aSSeSSMeNt 417

Is the national debt a threat to the country?Many economists blame the huge U.S. national debt for many economic problems, including high interest rates, unemploy-ment, and trade deficits. However, some economists believe that the problems of the national debt are exaggerated.

Document A

Document B“Within 12 years . . . the largest item in the federal budget will be interest payments on the national debt,” says former U.S. Comptroller General David Walker. “[They are] payments for which we get nothing.” Economic forecasters say future generations of Americans could have a substantially lower standard of living than their predecessors’ for the first time in the coun-try’s history if the debt is not brought under control.

Government debt, which fuels the risk of inflation, could make everyday Americans’ savings worth less. Higher interest rates would make it harder for consumers and businesses to borrow. Wages would remain stagnant and fewer jobs would be created. The government’s ability to cut taxes or provide a safety net would also be weakened, economists say.

—“Drowning in Debt: What the Nation’s Budget Woes Mean for You,” Devin Dwyer, abcnews.go.com

Document C

Now and LaterSpend now, while the economy remains depressed; save later, once it has recovered. How hard is that to understand?Very hard, if the current state of political debate is any indication. All around the world, politicians seem deter-mined to do the reverse. They’re eager to shortchange the economy when it needs help, even as they balk at dealing with long-run budget problems.... Penny-pinching at a time like this isn’t just cruel; it endangers the nation’s future. And it doesn’t even do much to reduce our future debt burden, because stinting on spending now threatens the economic recovery, and with it the hope for rising revenues.

—“Now and Later” by Paul Krugman from The New York Times, June 20, 2010

Use your knowledge of the national debt and Documents A, B, and C to answer Questions 1–3.

1. According to Document A, the percentage of the federal budget devoted to paying interest on the national debta. has risen steadily since 1990.B. has fallen steadily since 1990.C. has fluctuated wildly from year to year.D. began to rise again after reduction.

2. According to Document B, the large national debt could lead toa. a lower standard of living.B. more tax cuts.C. increased investment.D. lower interest rates.

3. In Document C, Paul Krugman argues that spending nowa. is cruel and dangerous. B. will stimulate the economy.C. might hurt the hope for rising revenues. D. threatens economic recovery.

writing about economicsThe ever-growing national debt causes much debate during budget preparation each fiscal year. Use the documents on this page and resources on the Web site below to answer this question: Is the national debt a threat to the country? Use the sources to support your opinion.

AnAlyzing Documents

19901992199419961998

Interest on the National Debt

Percentage of Federal Outlays for Interest on Debt

14.714.413.915.414.6

Fiscal Year

200020022004200620082010*


12.58.57.08.58.39.1

Fiscal Year

*EstimatedSOURCE: Office of Management and Budget

To read more about issues related to this topic, visit

PearsonSchool.com/PHecon

LA.1112.1.6.2

ECON13_SE_FL_CH15_CA.indd 417 3/1/11 10:03:35 AM

Chapter 15 AssessmentChapter 15 Assessment

416 f iscal policy

Key terms and Main IdeasTo make sure you understand the key terms and main ideas of this chapter, review the Checkpoint and Section Assess-ment questions and look at the Quick Study Guide on the preceding page.

Critical thinking1. Compare (a) Describe the

fundamental differences between classical economics and Keynesian economics. (b) Keynes suggested that building pyramids was good for the economy of ancient Egypt. Why would Keynes have suggested this? (c) Provide a similar example in our society for the building of the pyramids. Explain your answer.

2. Main Ideas (a) Make a list of ways in which government fiscal policy affects your daily life. (b) Which aspects of fiscal policy have the greatest effect on you? Explain.

3. Infer (a) How do automatic stabilizers affect our economy? (b) What would our economy be like without them?

4. Analyze (a) In your own words, describe the crowding-out effect. (b) Explain how it can influence economic growth over the long term.

5. Evaluate (a) What are the benefits and drawbacks of a balanced budget amendment? (b) Would you support such an amendment? Explain why or why not?

6. Main Ideas (a) How is the federal budget a tool of fiscal policy? (b) How effective has this tool been in promoting full employment and economic growth?

applying Your Math SkillsComparing Circle GraphsThe two pie graphs below show categories of federal spend-ing in the national budgets for 2000 and 2007. Look at the graphs and answer the questions that follow.Visit PearsonSchool.com/PHecon for additional math help.

7. How did the percentage of federal spending on interest payments change between 2000 and 2007?

8. Which categories of federal spending have seen the same percentage increase since 2000?

9. (a) How have Social Security outlays changed as a percentage of the federal budget? (b) Do you think this pattern will continue? Explain why or why not.

10. Complete this activity to answer the Essential Question How effective is fiscal policy as an economic tool? Work in small groups, with each group researching the administrations of John F. Kennedy to the current President. Using the worksheet in your Essential Questions Journal or the electronic worksheet avail-able at PearsonSchool.com/PHecon, gather the following information:(a) Identify the President by political party and years

in office.(b) Identify the main economic goals and challenges

under that administration.(c) Describe any tax and spending changes that grew

out of the administration’s fiscal policy.(d) Evaluate how successful that administration was

at meeting its goals.

11. Modify After your group has filled out its worksheet, make enough copies to distribute to the other groups in the class. (a) Each group will take the worksheets and evaluate

which President they think had the most success-ful fiscal policy. Place the sheets in order from most effective to least effective.

(b) The class will share and compare their conclusions.(c) As a class, make a generalization about the use of

fiscal policy by Presidents since 1960 to stabilize economic conditions, stimulate growth, or cool down an overheated economy.

16%

12%

2000 2007

30%

19%

23%

SOURCE: U.S. Senate and U.S. House Budget Offices

Federal Spending, 2000 and 2007

20%

9%

27%

23%

21%

DefenseInterestOtherMedicare/MedicaidSocial Security

To respond to the chapter Essential Question, go to your Essential Questions Journal.Journal

To test your understanding of key terms and main ideas, visit pearsonSchool.com/phecononline



Chapter 15 417

Chapter 15 • Assessment

Document-Based Assessmentanalyzing documents

1. D

2. A

3. B

WRiting aBout economics

Possible answers: The national debt is not a threat to the country because the Treasury can continue to issue new bonds, which are very popular with investors; the national debt is a threat to the country because money that goes to pay off the debt, and interest on the debt, cannot be used to pay for education or national defense.

Student essay should demonstrate an understanding of the issues involved in the debate over the growing national debt. Use the following as guidelines to assess the essay.

l2 Differentiate Students use all documents on the page to support their thesis.

l3 Differentiate Students use the documents on this page and additional information available online at www.PearsonSchool.com/PHecon to support their answer.

l4 Differentiate Students incorporate information provided in the textbook and online at www.PearsonSchool.com/PHecon and include additional research to support their opinion.

Go Online to www.PearsonSchool.com/PHecon for a student rubric and extra documents.

All print resources are available on the Teacher’s Resource Library

CD-ROM and online at www.PearsonSchool.com/PHecon.

Chapter 15 Assessmentdocument-based Assessment

Chapter 15 aSSeSSMeNt 417

Is the national debt a threat to the country?Many economists blame the huge U.S. national debt for many economic problems, including high interest rates, unemploy-ment, and trade deficits. However, some economists believe that the problems of the national debt are exaggerated.

Document A

Document B“Within 12 years . . . the largest item in the federal budget will be interest payments on the national debt,” says former U.S. Comptroller General David Walker. “[They are] payments for which we get nothing.” Economic forecasters say future generations of Americans could have a substantially lower standard of living than their predecessors’ for the first time in the coun-try’s history if the debt is not brought under control.

Government debt, which fuels the risk of inflation, could make everyday Americans’ savings worth less. Higher interest rates would make it harder for consumers and businesses to borrow. Wages would remain stagnant and fewer jobs would be created. The government’s ability to cut taxes or provide a safety net would also be weakened, economists say.

—“Drowning in Debt: What the Nation’s Budget Woes Mean for You,” Devin Dwyer, abcnews.go.com

Document C

Now and LaterSpend now, while the economy remains depressed; save later, once it has recovered. How hard is that to understand?Very hard, if the current state of political debate is any indication. All around the world, politicians seem deter-mined to do the reverse. They’re eager to shortchange the economy when it needs help, even as they balk at dealing with long-run budget problems.... Penny-pinching at a time like this isn’t just cruel; it endangers the nation’s future. And it doesn’t even do much to reduce our future debt burden, because stinting on spending now threatens the economic recovery, and with it the hope for rising revenues.

—“Now and Later” by Paul Krugman from The New York Times, June 20, 2010

Use your knowledge of the national debt and Documents A, B, and C to answer Questions 1–3.

1. According to Document A, the percentage of the federal budget devoted to paying interest on the national debta. has risen steadily since 1990.B. has fallen steadily since 1990.C. has fluctuated wildly from year to year.D. began to rise again after reduction.

2. According to Document B, the large national debt could lead toa. a lower standard of living.B. more tax cuts.C. increased investment.D. lower interest rates.

3. In Document C, Paul Krugman argues that spending nowa. is cruel and dangerous. B. will stimulate the economy.C. might hurt the hope for rising revenues. D. threatens economic recovery.

writing about economicsThe ever-growing national debt causes much debate during budget preparation each fiscal year. Use the documents on this page and resources on the Web site below to answer this question: Is the national debt a threat to the country? Use the sources to support your opinion.

AnAlyzing Documents

19901992199419961998

Interest on the National Debt


14.714.413.915.414.6

Fiscal Year

200020022004200620082010*


12.58.57.08.58.39.1

Fiscal Year

*EstimatedSOURCE: Office of Management and Budget

To read more about issues related to this topic, visit

PearsonSchool.com/PHecon

LA.1112.1.6.2


Chapter 15 AssessmentChapter 15 Assessment

416 f iscal policy

Key terms and Main IdeasTo make sure you understand the key terms and main ideas of this chapter, review the Checkpoint and Section Assess-ment questions and look at the Quick Study Guide on the preceding page.

Critical thinking1. Compare (a) Describe the

fundamental differences between classical economics and Keynesian economics. (b) Keynes suggested that building pyramids was good for the economy of ancient Egypt. Why would Keynes have suggested this? (c) Provide a similar example in our society for the building of the pyramids. Explain your answer.

2. Main Ideas (a) Make a list of ways in which government fiscal policy affects your daily life. (b) Which aspects of fiscal policy have the greatest effect on you? Explain.

3. Infer (a) How do automatic stabilizers affect our economy? (b) What would our economy be like without them?

4. Analyze (a) In your own words, describe the crowding-out effect. (b) Explain how it can influence economic growth over the long term.

5. Evaluate (a) What are the benefits and drawbacks of a balanced budget amendment? (b) Would you support such an amendment? Explain why or why not?

6. Main Ideas (a) How is the federal budget a tool of fiscal policy? (b) How effective has this tool been in promoting full employment and economic growth?

applying Your Math SkillsComparing Circle GraphsThe two pie graphs below show categories of federal spend-ing in the national budgets for 2000 and 2007. Look at the graphs and answer the questions that follow.Visit PearsonSchool.com/PHecon for additional math help.

7. How did the percentage of federal spending on interest payments change between 2000 and 2007?

8. Which categories of federal spending have seen the same percentage increase since 2000?

9. (a) How have Social Security outlays changed as a percentage of the federal budget? (b) Do you think this pattern will continue? Explain why or why not.

10. Complete this activity to answer the Essential Question How effective is fiscal policy as an economic tool? Work in small groups, with each group researching the administrations of John F. Kennedy to the current President. Using the worksheet in your Essential Questions Journal or the electronic worksheet avail-able at PearsonSchool.com/PHecon, gather the following information:(a) Identify the President by political party and years

in office.(b) Identify the main economic goals and challenges

under that administration.(c) Describe any tax and spending changes that grew

out of the administration’s fiscal policy.(d) Evaluate how successful that administration was

at meeting its goals.

11. Modify After your group has filled out its worksheet, make enough copies to distribute to the other groups in the class. (a) Each group will take the worksheets and evaluate

which President they think had the most success-ful fiscal policy. Place the sheets in order from most effective to least effective.

(b) The class will share and compare their conclusions.(c) As a class, make a generalization about the use of

fiscal policy by Presidents since 1960 to stabilize economic conditions, stimulate growth, or cool down an overheated economy.

16%

12%

2000 2007

30%

19%

23%

SOURCE: U.S. Senate and U.S. House Budget Offices

Federal Spending, 2000 and 2007

20%

9%

27%

23%

21%

DefenseInterestOtherMedicare/MedicaidSocial Security

To respond to the chapter Essential Question, go to your Essential Questions Journal.Journal

To test your understanding of key terms and main ideas, visit pearsonSchool.com/phecononline

ECON13_SE_FL_CH15_CA.indd 416 2/16/11 10:52:18 AM LA.1112.1.6.2 Listen to, read, and discuss familiar texts.
