From Deficits to Debt and Back: Political Incentives under Numerical Fiscal Rules

Under numerical fiscal rules, such as those underpinning EMU,governments have strong temptations to use accounting tricksto meet the fiscal constraints. Given these political incentives,fiscal variables that in the past were regarded as a mere residualacquire a strategic role. This is the case of the so-calledstock-flow adjustment (SFA) which reconciles deficit and debtdevelopments. We develop a simple theoretical model where deficitsand two distinct SFA components (one that could be used to reducethe deficit figures and the other to impact debt figures instead)are determined as a result of a constrained optimisation byfiscal authorities. Econometric evidence provides results consistentwith the model findings. The SFA component related to the purposeto hide deficits rises with the recorded deficit, while thesales of financial assets designed to keep the debt under controlrise with both debt and deficit. When deficits are in excessof the 3 percent limit, accounting gimmicks become more sensitiveto the size of deficits. The SGP per se does not appear to increasethe extent to which higher deficits trigger more accountinggimmicks. However, the SGP seems associated with a more intenseuse of accounting gimmicks irrespective of the level of deficit.Such accounting practices have greatly contributed to the lossof credibility of Economic and Monetary Union's fiscal rules.If properly implemented, the reformed Pact, which stresses durableadjustment and long-run sustainability, should help curb suchperverse incentives. (JEL codes: E61, H62, H87)