In the wake of the Federal 2023 spring budget, it is useful
to take a look at the historical picture to see how the present and the
immediate projected future fits into the long-term pattern of federal
spending. The key defining issue of
recent public finance and government spending was of course the pandemic and
the enormous amount of federal fiscal stimulus that was injected into Canada’s
economy. Federal spending rose from $363
billion in fiscal 2019-20 to reach $639 billion in 2020-21 – an increase of 73
percent. It then declined reaching $480
billion as reported in Budget 2023 but is set to resume an upward trend and is
expected to reach $556 billion by 2027-28.
As of the 2022-23 fiscal year, federal spending is 37 percent higher
than going into the pandemic meaning an average annual increase in spending of
about 12 percent. This has been funded
by deficits which in turn have increased the federal net debt dramatically
going from $813 billion in 2019-20 to $1.3 trillion by 2022-23 and expected to
reach just over $1.4 trillion by 2027-28.
A key feature of the pandemic is what appears to be a dramatic reversal of the decline in federal program spending as a share of Canada’s GDP
– the so-called “federal fiscal footprint”.
Figure 1 uses data I compiled for my 2017
federal fiscal history with updates from the federal Fiscal
Reference Tables and Budget 2023
to look at the program expenditure to GDP ratio for Canada from 1867 to 2022
and then projected forward to 2028. Fitting a simple linear trend shows that
over time, there has been an expansion of federal program expenditures relative
to GDP rising from about 5 percent in the 1870s to about 15 percent by the
1980s and with the COVID expenditure bump approaching 17 percent.
Of course, there have been ebbs and flows around this linear
trend with notable spikes during WWI and WWII.
It is noteworthy that the COVID spending spike represents the second
highest federal program expenditure to GDP share with World War II as the
highest. After the spike and drop of the
war era, the post WWII period saw a gradual rise in the federal fiscal
footprint that saw it rise from about 10 percent in 1948 to peak at nearly 19
percent in 1982 and then decline, reaching 11 percent by 2000. Since 2000, it has risen with a spike in 2021
at the height of the pandemic that brought the program expenditure share of GDP
to 23 percent. It has since declined to
about 15 percent. However, going into
the pandemic it was just under 14 percent, up 1 percentage point since 2014 and
the forecast of 15 percent means the federal footprint has returned to the size
it had in the late 1970s to mid 1980s.
Of course, we all know what happened after that. There was a rise in the federal debt as a
result of accumulated deficits and high interest rates that at first squeezed
out program spending – note the decline into the 1990s even before the federal
fiscal crisis – and then of course the transfer cuts and program expenditure
reductions of the federal fiscal crisis. This of course makes the role of debt
charges and interest rates of particular interest and Figure 2 plots two
series: federal government debt charges as a share of total federal government expenditures and
the effective interest rate on the federal net debt (defined as debt charges
divided by net debt).
The period from 1870 to WWI saw a decline in interest rates
and not surprisingly a decline in the debt charge share of federal
spending. What surprises most people
is that as a result of all the provincial debt the federal government took on at
the dawn of Confederation, about 30 cents of every federal dollar of
expenditure was going to service the debt in 1867.
Spending on nation building infrastructure such as railways saw debt levels and debt charges accumulate in the 1870s and 1880s but then came the great boom of prairie settlement after 1896 . World War I saw an accumulation of debt and a rise in interest rates and
with the budgetary and economic shocks of the Great Depression, debt charges as
a share of total federal spending remained at over 25 percent. Indeed, there is probably an interesting
economic history thesis in explaining why there was a federal fiscal crisis in
the 1990s but not the 1920s.
The post WWII era saw a rise in interest rates that
surpassed even the rise of the pre-WWI era and as significant budget deficits
and debt began to accumulate after the mid-1970s, debt charges as a share of
total spending began to rise. However,
with the positive budgetary balances of the post fiscal crisis era as well as
the decline in interest rates, both interest rates and federal debt charges as
a share of total spending hit historic lows.
In 2021, federal debt charges as a share of total federal spending was
just below 5 percent and the effect interest rate on the net debt was about 1.8
percent. Those numbers will be ones for
the economic history books in the years to come as the debt service share of
federal spending approaches 10 percent and the effective interest rate is just
under 4 percent. At least, that is what is currently forecast.
