1 TRANSFER PAYMENTS AND THE MACROECONOMY: THE EFFECTS OF SOCIAL SECURITY BENEFIT INCREASES, Christina D. Romer David H. Romer University of California, Berkeley December 2014 We are grateful to John Leahy, Ricardo Reis, and seminar participants at Stanford University, the University of California, Berkeley, Northwestern University, the University of Michigan, the University of Chicago, and the National Bureau of Economic Research for helpful comments and suggestions, and to Dmitri Koustas and Paul Matsiras for research assistance.
2 TRANSFER PAYMENTS AND THE MACROECONOMY: THE EFFECTS OF SOCIAL SECURITY BENEFIT INCREASES, ABSTRACT From the early 1950s to the early 1990s, increases in Social Security benefits in the United States varied widely in size and timing, and were only rarely undertaken in response to short-run macroeconomic developments. This paper uses these benefit increases to investigate the macroeconomic effects of changes in transfer payments. It finds a large, immediate, and statistically significant response of consumption to permanent benefit increases. The response appears to decline after about six months, however, and there is no clear evidence of effects on industrial production or employment. These effects differ decidedly from the effects of relatively exogenous tax changes: the impact of transfers is faster, but much less persistent and much smaller overall. Finally, we find strong statistical and narrative evidence of a sharply contractionary monetary policy response to permanent benefit increases that is not present for tax changes. This may account for the lower persistence of the consumption effects of transfers and their failure to spread to broader indicators of economic activity. Christina D. Romer David H. Romer Department of Economics Department of Economics University of California, Berkeley University of California, Berkeley Berkeley, CA Berkeley, CA
3 I. INTRODUCTION Government transfer payments are the relative unknowns of fiscal policy. There have been many studies of the short-run macroeconomic effects of changes in government purchases and taxes, but much less research has been done on the aggregate impacts of transfer payments. Yet such payments are substantial. In the United States, for example, federal transfer payments account for about 10 percent of GDP and more than 40 percent of federal spending. This paper takes a step toward filling this gap in our knowledge by examining the macroeconomic impact of increases in Social Security benefits in the United States from 1952 to For much of the postwar period, increases in Social Security benefits occurred somewhat randomly. The generosity and breadth of the program was expanded in several steps during the 1950s and 1960s. Until 1974, cost-of-living increases were not automatic, but were legislated at irregular intervals. And from 1974 until the early 1990s, tremendous variation in inflation and occasional bursts of retroactive payments resulting from idiosyncratic factors, as well as a legislated change in the timing of cost-of-living adjustments, led to irregular and variable benefit changes. We use documents from the Social Security Administration, Congress, and the executive branch to identify the motivation, timing, and size of benefit increases over these decades. This narrative analysis allows us to exclude the increases that were explicitly made for countercyclical purposes and to separate permanent and temporary changes. We then estimate how aggregate consumer spending responds to the relatively exogenous increases in Social Security benefits. We find that permanent benefit increases have a roughly one-for-one impact on consumer spending in the month the larger checks arrive, and that this effect is highly statistically significant. The effect persists for roughly half a year and then appears to wane sharply though the standard errors become large at longer horizons. 1 Oh and Reis (2012) document the importance of changes in transfers in short-run movements in government expenditures, and describe some of the channels through which they could have aggregate effects.
4 2 Interestingly, we find that temporary benefit increases (which mainly took the form of one-time retroactive payments in the period we consider) have a much smaller impact on consumption. Neither permanent nor temporary increases in benefits appear to affect broader measures of economic activity, such as industrial production or employment. In some models of macroeconomic behavior, taxes and transfers have equal and opposite effects on household consumption and overall economic activity. To compare the effects of taxes and transfers, we expand our analysis to also include the relatively exogenous federal tax changes identified in Romer and Romer (2010). Like the permanent Social Security benefit increases, these tax changes were almost all legislated to be very long-lasting. We find large differences in the response of consumption to permanent benefit increases and tax changes. The effects of benefit increases are faster, but much less persistent and substantially smaller overall. In both cases, the main component of consumption that responds is purchases of durable goods. One possible explanation for the behavior of consumption following permanent Social Security benefit increases, and its contrast with the impact of tax changes, involves the response of monetary policy. We find a rise in the federal funds rate in response to benefit increases that is very fast, economically large, and highly statistically significant. Following exogenous tax cuts, in contrast, the federal funds rate moves little for more than a year. The records of the Federal Reserve reveal that policymakers were very aware of the benefit increases and often viewed them as a reason to tighten monetary policy. In contrast, monetary policymakers were much less consistent in advocating for counteracting the likely impacts of tax changes on aggregate demand. The most important limitation of our study is simply that the amount of identifying variation that we are able to exploit is only moderate. Increases in Social Security benefits are small relative to the large changes in government purchases associated with major wars, and they are noticeably smaller than the tax changes that are the focus of Romer and Romer (2010).
5 3 Our detailed information about the monthly timing of benefit increases allows us to pin down their effects in the very near term relatively precisely. But once we consider horizons beyond a few months, the limited amount of variation often yields confidence intervals that are wide enough to encompass a range of economically interesting hypotheses. Thus, this paper is only a first step in trying to understand the macroeconomic effects of government transfer payments. Our paper builds on and speaks to a range of literatures. Many papers examine the response of individuals to particular changes in income. Most find that as long as the changes are not large, individuals respond to them when they occur, even if they could have known about them in advance or their impact on lifetime resources is small. 2 Importantly, although this individual-level evidence is suggestive of a macroeconomic impact of changes in transfers, there could be offsetting forces at the aggregate level. For example, there could be Ricardianequivalence effects: the adverse implications for lifetime wealth of the higher future taxes needed to finance an increase in transfers could exert a downward influence on all individuals consumption. Likewise, there could be offsetting effects on aggregate consumption through higher interest rates, reduced confidence about government policy, or increased uncertainty about policy. Thus, a finding that individuals who receive a payment increase their consumption relative to individuals who do not is not enough to establish that changes in transfers have important macroeconomic effects. It is therefore important to look directly at aggregate evidence. Like us, Wilcox (1989) looks at the response of aggregate consumption to Social Security benefit increases. However, like the individual-level literature, his focus is on the permanent income hypothesis: since the benefit increases are announced in advance, the hypothesis implies that consumption should not respond to their implementation. He shows that over the period , permanent benefit increases have a statistically significant immediate impact on real retail sales and personal consumption expenditures. Our interest is with the 2 See, for example, Agarwal, Liu, and Souleles (2007), Sahm, Shapiro, and Slemrod (2012), and Parker, Souleles, Johnson, and McClelland (2013).
6 4 macroeconomic effects of changes in transfers more broadly. We therefore examine whether benefit increases were made in response to short-run macroeconomic developments, and omit the few that fall into this category from our analysis. In addition, we focus on the magnitude of the effects rather than just whether they are nonzero, examine whether the impact persists and whether it spreads to broader indicators of economic activity, and investigate the response of monetary policy. We also compare the impact of permanent and temporary Social Security benefit increases, and the effects of permanent benefit increases and tax changes. Our paper is also related to recent work on the macroeconomic effects of changes in fiscal policy. These papers use both time-series evidence and cross-state variation. 3 While this literature has generally found a significant positive impact of fiscal expansion, the implied fiscal multipliers differ substantially in both size and timing. Our paper provides another estimate of the effect of fiscal policy, using a type of fiscal change whose timing is relatively exogenous and can be identified quite accurately. Finally, much recent research has focused on the importance of monetary policy for the effects of fiscal policy (for example, International Monetary Fund, 2010, Christiano, Eichenbaum, and Rebelo, 2011, Woodford, 2011, and Nakamura and Steinsson, 2014). Our study provides both statistical and narrative evidence of a link between Social Security benefit increases and contractionary monetary policy, and of different monetary policy responses to changes in transfers and taxes. Our analysis is organized as follows. Section II discusses our use of narrative sources to identify the motivation, timing, size, and permanence of Social Security benefit increases. Section III examines the response of consumption and other aggregate indicators to relatively exogenous benefit increases. Section IV compares the impact of Social Security benefit 3 Among the papers using time-series evidence are Blanchard and Perotti (2002), Hall (2009), Fisher and Peters (2010), Romer and Romer (2010), Barro and Redlick (2011), and Ramey (2011). Among the papers using cross-state variation are Shoag (2010), Chodorow-Reich, Feiveson, Liscow, and Woolston (2012), and Nakamura and Steinsson (2014). Pennings (2014) finds that in response to Social Security benefit increases over the period , labor income rose more in states where Social Security benefits were larger relative to state income, suggesting an impact of the changes on local spending.
7 5 increases and tax changes. Section V investigates the response of monetary policy to transfer payments and tax changes using both statistical evidence and evidence from the records of the Federal Reserve. Finally, Section VI presents our conclusions and discusses the implications of our findings. II. IDENTIFYING SOCIAL SECURITY BENEFIT INCREASES A central goal of the paper is to use Social Security benefit increases to examine how consumption and other macroeconomic variables respond to changes in transfer payments. Thus, a critical step is to identify Social Security benefit increases that are useful for this purpose. A. Motivation To understand our methodology, it is perhaps helpful to start by considering a straightforward alternative. The National Income and Product Accounts (NIPA) report monthly data on aggregate Social Security payments starting in January From this, one can easily calculate the change in benefits each month. The most prosaic problem with using this series is that it misses the 1950s. Starting in the mid-1970s, Social Security benefits were indexed to inflation, and by the 1990s, benefit increases were small and quite regular. In contrast, in the 1950s, 1960s, and early 1970s, benefit increases were legislated; as a result, they varied greatly in size and timing. This variation makes the early postwar period particularly promising for estimating the effects of transfer payments. Losing the 1950s is therefore a serious drawback to using the NIPA data. Another problem is that the NIPA series reflects both the number of beneficiaries and the size of benefits. Changes in Social Security payments resulting from changes in the number of beneficiaries are likely to be correlated with other factors affecting the economy, such as demographic changes and endogenous retirement decisions. As a result, they cannot be used to
8 6 provide reliable estimates of the macroeconomic effects of transfers. The motivations for the changes can also introduce difficulties. Social Security benefits were occasionally increased for explicitly countercyclical reasons. In such cases, one might not expect consumption to rise following the increases in benefits because other factors (that is, whatever was causing the economy to be weak) were operating in the opposite direction. Without other information, the NIPA series does not allow one to exclude these benefit increases. As a result, using it could lead to estimates of the effects of transfers that are biased downward. Finally, while most Social Security benefit changes have been intended as permanent, some have been explicitly temporary. For example, some permanent benefit increases have been retroactive for several months. In these cases, in the month of the increase, beneficiaries received not only their higher regular monthly benefit, but also a one-time payment for the higher benefits in the preceding months. Many models of consumer behavior predict that permanent and temporary changes in income have very different impacts. For this reason, it is desirable to have a measure of benefit changes that separates permanent and temporary movements. The NIPA series does not do that, and so using it would force us to use imperfect statistical procedures to try to disentangle the two types of changes. B. Methods Used for To obtain a measure of changes in Social Security benefits for the first part of the postwar period that is free of the problems we have described, we use the narrative record. We identify the universe of possible legislated changes using a survey provided by the Congressional Research Service (2001). We exclude several types of actions: ones that affected payments to future beneficiaries relative to what they otherwise would have received, but that did not directly change payments to existing beneficiaries; ones involving only small administrative changes; and ones that did not ultimately lead to the enactment of legislation.
9 7 Not surprisingly, all of the remaining changes are benefit increases. For each increase, we look at a range of sources. The Social Security Bulletin typically has an article describing the specifics of the legislation and providing a detailed account of the Congressional debate. This article often provides the most comprehensive information about the size, timing, and permanence of the increase (Social Security Bulletin, various issues). The reports of the House Ways and Means Committee and the Senate Finance Committee on the bill typically contain information about the motivation for the action as well as its size, though the final legislation often differs at least slightly from the versions analyzed in these reports (U.S. Congress, various years). The Economic Report of the President often discusses both the motivations for the actions and their sizes (U.S. Office of the President, various years). Finally, presidential speeches, particularly those made proposing the legislation or upon the signing of the final bill, are also useful sources (Woolley and Peters, The American Presidency Project). We gather several pieces of information from these sources. We identify the size of the benefit increase, measured as the rise in spending at an annual rate. We include increases in both old age and disability benefits, since they are often combined in the discussions in our sources. We also include increases in Supplemental Security Income (SSI) benefits, which provide additional support for low-income seniors and disabled individuals. The narrative record makes clear which benefit increases were one-time payments and which were permanent. We also identify the timing of the changes. We focus primarily on identifying the month when Social Security checks reflected a given benefit increase. 4 Our sources do not provide enough information to generate a series on the news surrounding the increases. But, as a step in that direction, we collect information on the date of passage for each benefit change. 5 4 The timing convention used in official discussions of Social Security is that if a benefit increase is effective for a given month, it is reflected in the checks that are received early in the following month. We therefore date an increase that is effective in a given month as taking place the following month. Social Security disability checks are received very late in the month for which they are effective. Since individuals would have had little time within the month to change their spending in response to such increases in benefits, we again date these increases as occurring in the month after they become effective. 5 In assigning benefit increases to the month of passage, we follow the convention that if passage occurred
10 8 Finally, we gather information on the motivations for the increases. The vast majority were made either for equity reasons to alleviate poverty among the elderly and disabled or to allow benefits to keep up with inflation over the previous several years. A few, however, were explicitly undertaken for countercyclical purposes. Because these changes are likely correlated with other factors affecting the economy in the short run, we exclude these anti-recessionary increases from our analysis of the macroeconomic effects of the benefit changes. A separate appendix provides a brief description of each legislated increase in benefits and the key information about it. C. Methods Used for Starting in 1975, Social Security benefits were indexed to inflation. Two features of these adjustments through the early 1990s make them useful for estimating the effects of transfers. First, their timing varied: they occurred in July until 1982 and in January starting in 1984 (with no adjustment in 1983). Second, because inflation was so variable, there was substantial heterogeneity in the size of the adjustments. They ranged from 1.3 percent in January 1987 to 14.3 percent in July As a result, data from this period have the potential to provide considerable identifying variation. By the 1990s, inflation was very low and the adjustments so regular that it seems unlikely that they greatly affected behavior. Moreover, their regularity means that any impact on macroeconomic outcomes would probably have been obscured by the seasonal adjustment of the data. 6 For this reason, we only construct a series on these automatic benefit increases through December Legislation played a very small role in benefit changes in the period. The Social before the middle of the month, we assign it to that month; if passage occurred after the middle of the month, we assign it to the next month. 6 Because the Bureau of Economic Analysis (BEA) obtains many of the component consumption series only in seasonally adjusted form, it does not construct seasonally unadjusted consumption data. Thus, it is not possible to examine the impact of the regular annual adjustments on seasonally unadjusted consumption.
11 9 Security Amendments of 1983 were the source of the change in the timing of the automatic costof-living adjustments. A few laws, such as some disability reforms in the 1980s, affected coverage but did not alter payments to existing beneficiaries. There were also some changes to future benefits that did not have any immediate effects (such as the provision of the 1983 amendments that gradually raised the retirement age). Since these changes did not raise (or lower) disposable income significantly at a specific point, we omit them from our analysis. There were also some one-time payments in this period whose timing was effectively random. In particular, there were one-time retroactive payments at various dates based on legal decisions, revisions to case review procedures, and, in one case, the purchase of new computers that sped the processing of appeals. We identify these one-time payments by conducting Google news searches using the terms Social Security and personal income, and Social Security and retroactive. Because the benefit increases in this period were not legislated, for the most part their sizes are not reported in our sources. Thus, our methods of estimating sizes differ from those we use for the earlier period. For the cost-of-living adjustments, we simply multiply total Social Security payments (as reported in the NIPA data) in the month before the increase by the percentage adjustment. This procedure holds enrollment fixed, and so shows just the increase in payments coming from the increase in average payments per beneficiary. In the case of the one-time payments, occasionally the news stories discuss their size, but often they do not. To estimate the size of a payment, we therefore take the increase in the NIPA Social Security series in the month for which our news stories identify a payment. Since the usual month-to-month changes in this series are small, most of the changes in the months of substantial one-time payments are likely the result of the payments. Consistent with this interpretation, the estimates based on this approach correlate closely with the figures in the news articles in the few cases where the articles report the sizes of the one-time payments. We classify the automatic cost-of-living increases as permanent and the various one-time
12 10 payments as temporary. The appendix provides additional details about the cost-of-living increases and lists the sources of the articles about the one-time payments. Table 1 presents the data for the full period. They are reported as the dollar increase as a percent of aggregate personal income. 7 D. New Series of Social Security Benefit Increases Figure 1 shows our series of Social Security benefit increases, expressed as a percent of personal income. Permanent and temporary increases are shown separately. The change in the monthly NIPA series for Social Security transfers (also expressed as a share of personal income), which begins in 1959, is also shown for comparison. 8 One fact evident from the graph is that our series and the NIPA series are closely related. The sum of the permanent and temporary increases based on our narrative analysis matches the increases in the NIPA series fairly closely. There are some moderate short-run fluctuations in the NIPA series in the late 1970s and the 1980s that have no counterpart in our series. Whether they reflect one-time payments that were not large enough to be newsworthy or other factors is not clear. In addition, there are many small month-to-month movements in the NIPA series that have no counterpart in our series. At least in part, these movements reflect changes in the number of individuals enrolled in Social Security rather than changes in benefits. There are also a few changes in the NIPA series that we exclude from our series because they were motivated by countercyclical considerations. 9 The figure also shows several characteristics of the new series. One is that the timing of 7 The monthly data on personal income are from the BEA, National Income and Product Accounts (NIPA), Table 2.6, downloaded 1/23/2014. For the years before 1959, we use the quarterly personal income figures (from Table 2.1, downloaded 1/23/2014) for each month of the quarter. 8 The monthly NIPA Social Security data are from the BEA, NIPA, Table 2.6, series for government social benefits to persons Social Security, downloaded 1/23/ The NIPA series also often shows a large negative change in the month following a large temporary increase that does not show up explicitly in our series. This just reflects our measurement convention: we record a one-time payment in a single month as a positive value for that month and zero in the next month, rather than as a positive value in that month and an equal and opposite negative value in the next.
13 11 benefit increases was highly uneven, particularly before This adds credence to the notion that there is substantial usable variation to exploit. At the same time, the size of the permanent benefit increases varied within a somewhat narrow range. The largest permanent increase was less than 1 percent of aggregate personal income. In contrast, some temporary benefit increases were quite large. The three largest one-time payments (in 1965, 1970, and 1971) were each between 1 and 2 percent of annual personal income. And most of the later one-time payments, though not as large relative to aggregate personal income, were large for those receiving them. Our news stories provide figures for the average payment per recipient for three of these onetime payments: those in November December 1983, December 1984, and July In 2013 dollars, these payments averaged $2301 per recipient in 1983, $1060 in 1984, and $564 in E. Persistence of Permanent Benefit Increases Many of the benefit increases we classify as permanent were intended to make up for past inflation. But, since inflation itself was serially correlated, there may have been a tendency for even permanent benefit increases to be eroded by future inflation, and so for their effects on income to be only moderately persistent. To shed light on this issue, we look at the relationship between the NIPA series on Social Security benefits as a share of personal income and our series on permanent and temporary benefit increases. In particular, we estimate the following regression: N PPPP TTTT (1) B t = a + i=0 b PPPP i SS t i + i=0 b TTTT i SS t i + e t, N where B is the change in the ratio of the monthly NIPA measure of Social Security benefits to personal income, and SS PERM and SS TEMP are our new series on permanent and temporary increases in Social Security benefits, both measured as a fraction of personal income. N is the number of lags. We estimate the regression including 12 lags over the period when both the NIPA series and our new series exist, which is 1959:1 to 1991:12. Figure 2 summarizes the
14 12 results by plotting the cumulative sum of the b PPPP i and the b TTTT i coefficients, along with the two-standard-error bands. This cumulative sum shows the response of the level of the NIPA benefits ratio to a realization of our measure of 1 percent of personal income. Figure 2 shows that what we call permanent Social Security benefit increases result in a rise in the NIPA benefits-to-personal income ratio that is highly persistent, but not completely so. The benefits ratio rises roughly one-for-one with a movement in our permanent benefit increase series, and then falls slowly over the subsequent year. After 12 months, inflation and increases in real personal income have eroded about one-quarter of the initial rise in the benefits ratio. 10 The benefit increases that we identify as temporary raise the NIPA benefitsto-personal income ratio in the month the increase occurs not quite one-for-one, but then have no effect in subsequent months. III. THE EFFECTS OF SOCIAL SECURITY BENEFIT INCREASES ON MACROECONOMIC OUTCOMES The next step is to use the series on Social Security benefit increases to investigate the response of consumer spending and other macroeconomic variables to changes in transfers. A. Specification and Identification Issues Baseline Specification. As we have described, we take several steps in the construction of our series to minimize the possibility of correlation between other factors affecting macroeconomic outcomes, such as the cyclical state of the economy, and our series of legislated increases in Social Security benefits. It is therefore reasonable to begin by examining how macroeconomic variables behave in the wake of the benefit increases without controlling for other factors. Our baseline specification is therefore similar to equation (1) above that we use to examine the persistence of Social Security benefits as a share of personal income following 10 When we include 24 lags of the right-hand-side variables, the response continues to decline roughly linearly. After two years, slightly less than half of the initial increase in the NIPA benefits ratio has been eroded.
15 13 legislated benefit increases. In particular, we consider regressions of an outcome variable on the contemporaneous and lagged values of our measures of increases in Social Security benefits, with no controls. Since permanent and temporary benefit increases have been quite different in character and might have different effects, we enter them separately. That is, the baseline specification takes the form, N PPPP TTTT (2) Y t = a + i=0 b PPPP i SS t i + i=0 b TTTT i SS t i + e t, N where Y is an outcome variable for example, the growth rate of real personal consumption expenditures and N is the number of lags. Although the construction of our series makes equation (2) a reasonable starting point, several identification issues remain. Four appear particularly important. Inflation. The largest set of concerns revolves around the role of inflation in leading to a substantial fraction of the benefit increases. Inflation is determined by a range of influences. Thus, perhaps consumption movements following benefit increases were in part responses to factors that caused inflation that prompted benefit increases. For example, an economic boom could both cause inflation that led to a benefit increase and directly generate higher consumption. Although this possibility could be relevant to studies of some relationships, it is unlikely to be problematic for our analysis. Before 1974, the benefit increases intended to keep up with inflation were ad hoc, infrequent, and irregularly spaced. After the adoption of indexing, adjustments still occurred at discrete intervals. As a result, the relationship between the benefit increases and inflation is weak. For example, a regression of our series for permanent benefit increases on a constant and the contemporaneous value and 12 lags of inflation, estimated over our full sample period 1952:1 1991:12, yields an R 2 of just Thus even if various factors 11 The specific inflation series we use is the change in the logarithm of the seasonally adjusted consumer price index for all urban consumers: all items, Bureau of Labor Statistics (BLS), series CPIAUCSL,
16 14 were affecting benefit increases through effects on inflation, their correlation with the actual benefit increases is likely to be small. We also address the possibility of omitted variables that both influence inflation (and hence affect benefits) and directly affect macroeconomic variables by including various sets of control variables in some specifications. The first, and perhaps most important, control variable is lagged consumption growth, which should capture the state of the economy (as well as any other serially correlated omitted influences on consumption). Second, we consider lagged values of consumer confidence, which has been shown to have an important influence on consumption (for example, Carroll, Fuhrer, and Wilcox, 1994), and which may capture omitted influences on households overall perceptions of the state of the economy that may be correlated with inflation. Third, we control for monetary policy shocks, which are a potential source of movements in economic activity and inflation. And fourth, we control for changes in oil prices. A rise in oil prices could both directly reduce real consumption spending and raise inflation (and hence lead to benefit increases), and so bias our estimates down. Our last control variable is lagged values of inflation itself. Suppose there are omitted variables that are correlated with benefit increases because they affect inflation, which in turn leads to benefit increases. Because in this case the correlation operates through inflation (and because inflation and benefit increases are not perfectly correlated), there would be no remaining correlation once we control for inflation. Finally, in addition to including control variables, we consider the effects of stopping the sample in 1974, and so leaving out the period when benefit increases were most mechanically linked to inflation. Including the controls serves another purpose in addition to dealing with possible omitted variable bias from the responsiveness of benefits to inflation: it addresses various potential sources of accidental correlation between the benefit increases and other influences on macroeconomic variables. For example, perhaps benefit increases do not actually respond to downloaded from Federal Reserve Economic Data (FRED) 1/23/2014.
17 15 monetary policy shocks or oil price movements, but there just happen to be strong movements in those variables around the time of the benefit increases. News. Our series dates benefit increases according to when recipients first received checks reflecting the higher benefits. This specification is consistent with the evidence that consumption often responds to changes in current income even when those changes are anticipated. But news of benefit increases could also affect consumption. To the extent this is the case, equation (2) omits a determinant of consumption that may be correlated with our series. We address this concern in two ways. First, we experiment with including several leads of the benefit increases in (2). This allows for the possibility that households change their behavior in anticipation of the increases. Second, in addition to including the contemporaneous and lagged values of benefit increases dated when they showed up in recipients checks, we include the contemporaneous and lagged values of the increases dated when they were passed. If consumption responds to news rather than to changes in current income, its movements will be more closely related to when the increases were passed than to when recipients first received the higher benefits. Social Security Taxes. Because the Social Security program is explicitly self-financed, legislation increasing benefits has often included provisions raising payroll taxes. For example, the Social Security Amendments of 1954, which raised benefits starting in October of that year, legislated an increase in the Social Security tax base in 1955 and increases in the Social Security tax rate in 1970 and The coupling of benefit increases with higher taxes means that there could be an omitted variable (the tax increases) that obscures the effects the benefit increases would have in isolation. In previous work (Romer and Romer, 2010), we identified these spending-driven Social Security tax increases from the same types of narrative sources described above. Even the tax increases that happened relatively quickly typically followed the benefit increases by at least a
18 16 few months. Thus, the tax changes are unlikely to pose a major problem for our analysis, especially when we consider the very short-run effects of benefit increases. But, because we have data on the timing and size of these tax changes, we can consider specifications that control for them. Other Fiscal Policy Actions. Another concern involves the possibility that Social Security benefit increases tended to be made at the times of other expansionary fiscal actions. Our narrative analysis of the history of the benefit increases, however, suggests that this is not the case. Rather, most were self-contained actions, not parts of broader programs of fiscal expansion. This pattern is extremely clear for the second part of the sample, when benefit increases were almost entirely the result of automatic cost-of-living adjustments, and for the 1950s, when Social Security legislation was considered essentially in isolation. But it also appears to be an accurate description of most of the increases in the 1960s and early 1970s. In addition, we explicitly exclude the increases that were parts of countercyclical stimulus packages, such as the one-time payments to seniors in the Tax Reduction Act of As a further check on possible confounding effects from other fiscal actions, we include general (relatively exogenous) tax changes as a control variable in some specifications. We create this series using our previous narrative analysis of postwar tax changes. Explicitly controlling for other changes on the spending side of fiscal policy is harder. Monthly data on government purchases are not available, so there is no obvious control variable to include. However, a first look at the data suggests little reason for concern. In quarterly data, the correlation of our series for permanent Social Security benefit increases with the growth rate of real federal government purchases is 0.04; its correlation with the growth rate of all of real federal government spending excluding Social Security benefits is 0.05; and its correlation with the measure of shocks to government spending developed by Ramey (2011) is For our measure, we use the permanent Social Security benefit increases, expressed as a percent of personal income. Because the other fiscal indicators are quarterly, we sum the monthly values over the quarter to create a quarterly series. The growth rate of federal government purchases is from the NIPA,
19 17 B. Outcome Variables and Sample Periods The main outcome variable we consider is real personal consumption expenditures. 13 There are two main advantages of focusing on consumption. First, because increases in Social Security benefits affect households disposable income directly, any macroeconomic effects might occur more quickly and sharply in consumption than in other aggregate variables. Second, consumption data are available monthly, which allows us to use information about the exact timing of benefit increases more effectively than we could with lower-frequency data. One drawback of the monthly consumption series is that the data are not available before However, both quarterly data on real consumption and monthly data on real retail sales (which generally move closely with consumption) are available for the earlier period. We therefore construct monthly consumption data for the period before 1959 using a Chow-Lin procedure. 14 We consider three other aggregate outcome series: real retail sales, industrial production, and employment. All three are available monthly beginning before Retail sales are more Table 1.1.1, series for government consumption expenditures and gross investment, downloaded 1/23/2014. Real federal government spending excluding Social Security benefits is calculated by taking federal current expenditures (NIPA, Table 3.2), subtracting government social benefits to persons [for] Social Security (NIPA, Table 2.1), and dividing by the price index for GDP (NIPA, Table 1.1.4), all downloaded 1/23/2014. We then calculate the difference in logarithms. The Ramey series on government spending news shocks as a share of GDP is from column C of Ramey_Govt_Public_Data.xls, Data for Identifying Government Spending Shocks, Summary Data, U.S., , downloaded 7/31/ The data are from the BEA, NIPA, Table 2.8.3, series for personal consumption expenditures, downloaded 1/23/ The data on retail sales, adjusted for seasonal variation, for 1947:1 1958:12 are from the U.S. Department of Commerce, Business Statistics, 1979, p We convert it to a real series by dividing by the seasonally adjusted consumer price index for all urban consumers: all items less shelter, BLS, series CUSR0000SA0L2, downloaded from FRED, 1/23/2014. To create an estimate of monthly consumption, we use the Chow-Lin algorithm in RATS, which employs the variant of the Chow-Lin procedure proposed by Fernandez (1981). We estimate the algorithm over the period The results are similar for this decade when we run the Chow-Lin procedure over the full sample The real retail sales series for is constructed by taking nominal, seasonally adjusted data for 1967:1 1991:12 from U.S. Department of Commerce, Business Statistics, 1991, p. A-56 and p. 37; for 1961:1 1966:12 from Business Statistics, 1984, p. 177; and for 1947:1 1960:12 from Business Statistics, 1979, p The series, which do not line up exactly because of data revisions, are combined using a ratio splice starting with the most recent series and working backwards. The data are converted to real values by dividing by the consumer price index for all urban consumers: all items less shelter. The industrial production series is the total index, seasonally adjusted, Board of Governors of the Federal Reserve System, series INDPRO, downloaded from FRED, 1/24/2014. The employment series is total nonfarm
20 18 volatile than consumption but capture a similar aspect of the economy. In contrast, industrial production and employment are broader indicators of economic activity, and so may respond differently to increases in Social Security benefits. Our baseline sample period is We consider two variants on the baseline sample. The first starts in 1959, and so excludes the period for which we have only estimated consumption data. 16 The second ends in 1974, and so excludes the period when benefit increases were largely the result of automatic cost-of-living adjustments. C. Results We now turn to the findings. We begin with the simplest specification over the full sample period, and then consider variants. Baseline Results. Figure 3 shows the results of estimating equation (2) using the change in the logarithm of real personal consumption expenditures as the dependent variable over the sample period 1952:1 1991:12, with 12 lags of the right-hand side variables. 17 It shows the estimated percentage effect on the level of consumption (measured as 100 times the change in the logarithm) to both temporary and permanent increases in Social Security benefits of 1 percent of personal income, together with the two-standard-error bands. The most striking result is the large, immediate response of consumption to a permanent increase in benefits. The point estimates suggest that a benefit increase of 1 percent of personal income raises consumption by 1.2 percent in the month the larger checks arrive, and that the effect persists for the next 5 months. The null hypothesis of no effect in the month of the increase is rejected with a t-statistic of 2.8. As detailed below, this result is very robust. The standard errors rise as the horizon lengthens. As a result, 5 months after the benefit increase, the point estimate remains large (1.0) but is no longer statistically significant (t = 0.9). employees, seasonally adjusted, BLS, series PAYEMS, downloaded from FRED, 1/24/ Specifically, since our regressions use the change in consumption, this sample period starts in 1959:2. 17 We have examined the narrative record for 1951 and found no permanent or temporary benefit increases in this year. We therefore code the two benefit series as zero for the 12 months of 1951, and lose no observations because of the 12 lags.
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