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On March 27, President Trump signed the CARES Act, the third COVID-related relief bill, into law which effectively puts much of the U.S. economy on the government’s payroll for a few months. The CARES Act follows the passage of Phase I relief (the Coronavirus Preparedness and Response Supplemental Appropriations Act), which provided $8.3 billion of support, largely for COVID-19 vaccine research and development, and Phase II (the Families First Coronavirus Response Act), which boosted aid by $192 billion for free COVID-19 testing, state unemployment insurance, expanded paid sick leave, and food assistance.

The CARES Act provides over $2 trillion in stimulus, directed majorly at small businesses and middle- and lower-income Americans. In addition, the CARES Act provides around $450 billion for the U.S. Treasury’s Exchange Stabilization Fund to use as loans, loan guarantees, and investments for the Federal Reserve to help distressed companies and industries. Levered up with funds from the Fed, the U.S. government is set to provide subsidized short-term credit, potentially amounting to around $4 trillion, to a wide range of business borrowers.

“The sums, while considerable, are unlikely to be nearly enough to offset income lost due to business stoppage,” noted Chief U.S. Economist Michael Feroli and Senior U.S. Economist Jesse Edgerton. “For this reason another stimulus bill seems inevitable.”

A staggering 16.8 million U.S. workers filed for unemployment benefits over the three weeks ending April 4, and the U.S. economics team projects the April jobs report could indicate about 25 million jobs lost since the March survey week. The U.S. economists also estimate that the CARES Act points to around 3% of GDP stimulus this year with the patchwork of policy supports in the package focusing heavily on income support for rising unemployment, which could spike to 20% in April.

As harrowing as these numbers are, with the added federal funds coming shortly, the unemployment checks will provide an important cushion for consumer spending, but the cost is that the fiscal deficit will reach a new peacetime high of 12% of GDP.

With the imposition of stay-at-home orders for a majority of states, the virus is now impacting activity in essentially all sectors of the economy. The U.S. fiscal deficit will be greater than $2 trillion and 10% of GDP in both fiscal years 2020 and 2021. The federal rescue will result in a record $2.4 trillion of net Treasury supply in 2020.

“As harrowing as these numbers are, with the added federal funds coming shortly, the unemployment checks will provide an important cushion for consumer spending,” added Edgerton. “But the cost is that the fiscal deficit will reach a new peacetime high of 12% of GDP.”

Meanwhile, businesses have borrowed at low interest rates over the last 10 years, leaving the ratio of business debt-to-GDP at all-time highs.

Record U.S. debt levels alongside record fiscal deficits

Source: Federal Reserve, J.P. Morgan. Grey bars indicate recession

Line chart showing the record U.S. debt levels alongside record fiscal deficits.
Federal government deficit projections, $ billions
FY2020 FY2021
Pre-COVID-19 CBO Forecast 1,073 1,002
+ Revenue Effects of downturn 250 400
+ Automatic spending effects 150 200
+ Fiscal stimulus 900 400
Total 2,373 2,002
JPM deficit forecast 2,400 2,000
As % of GDP 12% 10%

Source: CBO, J.P. Morgan

 

What are the key components of the CARES Act?

While the public health response has been disjointed, the fiscal response has been more vigorous. The $2.3 trillion stimulus bill passed by Congress includes:

  • A $350 billion Paycheck Protection Program (PPP) for small businesses delivered by the Small Business Administration through private lenders in the form of loans to pay workers, rent, and utilities for eight weeks that will be forgiven if headcount at the end of June is similar to what it was in February without large reductions to pay. (At least 75 percent of the forgiven amount must have been used for payroll.)
  • All lower and middle-income Americans will receive a $1,200 check for individuals, and $500 for each child, which will quickly get about $290 billion into the hands of American consumers.
  • The duration of unemployment benefits is extended an additional 13 weeks, as often happens in downturns, and normal benefits are topped up with an additional $600 per week. There is also a new program for the self-employed and contractors who wouldn’t otherwise qualify for normal benefits.
  • $150 billion for state and local governments, which will surely see their finances deteriorate in coming months.
  • $117 billion for hospitals and veterans’ health care, including for measures directly related to COVID-19.
  • Direct federal spending was increased in a number of areas, including $25 billion for food stamps, $24 billion for USDA, and $10 billion for the post office.
  • The Treasury received $500 billion for aid to industry, nonprofits, states, and cities. Some of this will be directed toward industries that have been particularly hard hit, notably the airlines. But the majority of it will be used to partner with the Fed.

Key funding provisions in the CARES Act

Business-focused provisions Estimated cost (billions)
Loans and guarantees for large businesses and gov'ts $510
Small business loans and grants $377
Business tax breaks $280
Support to transportation and transit providers $72
Household and other provisions Estimated cost (billions)
Direct payments of $1200/adult and $500/child $290
Unemployment benefit boost of $600/week and extension $260
Hospital, Medicare, and other health-related funding $180
Aid to state and local governments $150
FEMA disaster assistance funds $45
Increased food stamp, nutrition, and housing funds $42
Education Stabilization Fund and related programs $32
Other spending $25
Individual tax breaks $20
Total $2,283

Source: CRFB.org, J.P. Morgan

Despite these extraordinary actions, J.P. Morgan’s US economists expect real GDP to decline by 40.0% annualized in 2Q. Although they continue to look for growth to rebound in 2H, at an 18.0% average pace, they forecast full-year (Q4/Q4) growth at -6.9%.

“A fourth fiscal stimulus bill for as much as an additional $1 trillion is already being discussed, focused on providing greater support for local and state governments, and funding improvements in health and digital infrastructure,” said Joyce Chang, Chair of Global Research.

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