American Politics and Government in Crisis

The U.S. Debt Limit debate is back in the limelight after taking a backseat to the banking sector tumult in March. Two catalysts are driving the recent headlines:

  1. This week, Republicans started to flesh out their proposal for spending cuts in exchange for raising the limit. The battle lines are now being drawn for negotiations.
  2. Tax revenue data following the April 18 filing deadline will now allow investors to better pinpoint the X-date (potential date of default). For now, it’s widely estimated to fall between June and August but estimates should shift in the coming days.

We expect to see brinkmanship on the debt limit in the months ahead, which may cause some volatility in risk assets and the U.S. dollar. We also think parts of the T-bill curve will further price in a risk premium as the X-date draws closer. Our expectation is that the debt limit will be raised ahead of a potential default as it always has. The negative consequences are just too great for political leadership across both sides of the aisle to allow it to happen. But in the meantime, there are potential steps to deal with debt limit anxiety. Investors can look to avoid those T-bills exposed to the X-date and to hedge potential volatility in risk assets and currencies.

In this note, we provide views and education on all aspects of the debt limit including the basics, the path forward and how investors can brace for potential volatility induced by another debt limit showdown. On the latter, 2011 presents one analog for how markets can respond to worries of a US default; in the month leading up to the debt ceiling deadline that August, the S&P 500 fell more than 6%; the 10-year Treasury yield rallied nearly 60 basis points (bps); while the U.S. dollar weakened by 5%-10% against alternative safe havens like the Swiss franc, gold and Japanese yen.

What is the debt limit?

At the most basic level, it is a law that denotes the maximum amount of debt outstanding the US government can have at any given time. It came into existence in 1917 when Congress loosened rules on debt sales but imposed a statutory limit. Since then it has been raised dozens of times and temporarily suspended even more, often as debt levels approach the ceiling. Only in the last 10 years or so has raising it become regularly contentious (outside of an episode in 1995), generating a number of so-called “crises” that are completely self-inflicted and not driven by market forces. The ceiling was most recently raised to $31.4 trillion in 2021.

What and when is the X-date?

As the debt limit approaches, the Treasury runs down its cash balance at the Fed and uses “extraordinary measures” to keep expenditures flowing (in essence, accounting measures that limit some government investments and reduces the amount of debt subject to the limit). The Treasury began this process back in January. That runway is broadly estimated to last until at least June – the so-called X-date or the day cash officially runs out and the government may not be able to pay maturing debt. Congress needs to either temporarily suspend the debt limit or raise it prior to the X-date or it risks missing coupon or principal payments on Treasury securities (i.e. default).

Estimates for the X-date currently range from early-June to August. April tax revenue data will allow estimates to lock in on a more precise date. While we still don’t have data following the April 18 deadline, the early read is that taxes are coming in a bit weaker than expected and may push the X-date to earlier end of the range.

How has this happened in the past?

While debt limit impasses are now common, 2011 carries the most notoriety. Congress increased the ceiling just days before the X-date, the closest call on record. Days later, S&P downgraded the US to AA+. Risk assets reacted negatively: The dollar rallied against risk-sensitive currencies but sold off against other safe havens (CHF, JPY and gold), while stocks sank and credit spreads widened. However, Treasuries rallied strongly. The outsized reaction was likely compounded by fears of a double-dip recession amid elevated worries on fiscal matters with the Tea Party rising in popularity and the Euro crisis unfolding.

Outside of 2011, markets have largely taken brinkmanship in stride. While 2015 appears to have been a volatile period, credit spread widening was more driven by energy market issues and an industrial recession. The Treasury selloff in 2018 was driven by worries of Fed tightening rather than the debt limit, in our view. In late-2021, increasing the limit went down to the wire but with limited impact for risk assets.

How are negotiations progressing?

Republicans have started to detail their negotiating stance for a debt limit increase. Over the weekend, a proposal for spending cuts was leaked to the press. On Monday House Speaker Kevin McCarthy gave a speech at the NYSE and appeared on CNBC calling for spending cuts in order to raise the limit. The bill has not been finalized yet but media reports call for a $4.5 trillion reduction in budget deficits in over a decade in exchange for a temporary suspension of the limit through March of 2024 or a $1.5 trillion increase. The details include a significant reduction to non-defense discretionary spending, a reversal of student debt cancellation, social program work requirements and a return of unused COVID-19 funds.

Republican leadership is meeting this week to iron out the details of the bill. Even if the GOP is able to pass the bill in House over the next few weeks (an uncertainty given its slim majority and fractured caucus), the proposal will likely be a non-starter for Democrats as it impacts some of President Biden’s key programs. Democrats have publicly pushed for a ‘clean’ bill that only raises the limit. But there may be room for compromise smaller non-defense spending cuts, unused COVID funds and energy permitting reform1. Either way, there is limited incentive for either side to make concessions well ahead of the X-date and negotiations look set to go down to the wire

How could this to play out?

There are three broad scenarios. Our expectation is that even if it comes down to the wire, the debt limit is increased ahead of the X-date (#1). But it is possible we go through the X-date; in that event, payments on Treasury debt can still be made (#2) or delayed (#3).

1) Debt ceiling increased ahead of the potential default date (X-date). Has Always Happened.

This has happened every time we’ve been up against the limit in the past 100 years. We may see some brinkmanship that boosts yield on T-bills maturing in the wake of X-date but this would only be a temporary factor. We think this is the most likely outcome but it doesn’t mean there won’t be market volatility.

2) Go through X-date without an increase but Treasury still makes interest payments and avoids technical default. Never Happened Before.

This could be accomplished in several ways. Most likely in our view is prioritization of security payments at the expense of cuts to spending on discretionary items. It would in effect look like a government shutdown (which have always resulted from failure to pass a budget and not directly due to the debt ceiling). The Treasury was reportedly prepared to do this in 2011 and 2013. This would represent a big drop in government spending and direct hit to economic activity on top of financial market sentiment.

Other ways to avoid default include simply ignoring the debt limit on grounds it violates the fourteenth amendment (likely inviting a long legal battle). Or the Treasury could mint a coin denominated at whatever amount they choose and deposit at the Fed, providing funds to be used without increasing debt levels (unlikely but widely cited as a far-fetched option)

3) Go through X-date and delay payments – a technical default. Never Happened Before.

This is the worst case scenario. Nobody knows the full consequences. But this would likely be a major negative for most financial assets. See hedging section for cross-asset thoughts.

For the technical details - this would not kick off some sort of bankruptcy process for all Treasury securities like one would expect for a corporate default. There are no details on what constitutes a default or bankruptcy proceedings in the closest thing Treasuries have to a prospectus.

Even if defaulted on, Treasury securities could continue to trade as normal or be used as repo collateral if Treasury announces its intention to postpone a payment date in advance (the day before the payment is due). The price impact on defaulted Treasuries may be limited if markets expect just a temporary delay to payments.

We see very low probability this happens but if it does, it likely elicits a negative enough market response to get Congress moving (similar to say the failed vote on TARP in 2008). But then, even if the debt limit is subsequently raised, there are questions over whether Treasuries would need to trade with a permanent increased risk premium.

This most likely leads to further credit rating downgrades, certainly while the US is in default, and even after payments have been made following an eventual increase in the limit.

Further downgrades to the sovereign potentially leads to downgrades in the GSE and muni space as well. Specific agency or muni credits linked to the federal credit rating include: certain AAA housing bonds, AAA state HFAs, AAA higher education and not-for-profits, and AAA infrastructure issuers.

How is this impacting T-bill valuations?

Historically, yields on T-bills due to mature directly after the X-date cheapen in the few weeks leading up to it. This was visible in 2021 when T-bill yields for late-October maturities (immediately after the X-date) spiked at the start of the month and then dropped once an agreement started working its way through Congress.

Debt limit angst is already likely contributing to some of the dislocation in the T-bill curve, where the 1 million on the run bill has rallied approximately 125 basis points since April 3 and is trading roughly 150 basis points below the federal funds rate. Money market funds are favoring the very front end of the curve as a means to avoid maturities in line with the potential X-date. That is exacerbated by the huge inflows into money funds since SIVB’s collapse which occurred during a seasonal period of low issuance as tax season boosts government revenue. The debt limit has also capped issuance as Treasury cannot issue to rebuild its cash levels. Until the limit is raised, we expect to see dislocations in the T-bill curve, with tight valuations in some areas and potential risk premium building in others.

What to do about it? While we do think bills will be paid, avoiding maturities near the X-date might prevent undue anxiety. Investors who need to have liquidity at that time could use a CD or another alternative, such as a structured product that can offer higher yields than deposits with diversified counterparty risks. Extending to a maturity beyond the X-date could work but there is always the possibility it gets delayed.

Does the debt limit pose any risks to money market funds?

The key risks for a money market fund (MMF) are 1) holding defaulted securities or 2) investor redemptions in fear of a MMF holding defaulted securities. We think the likelihood of Treasury defaulting is low and MMF are continuing to be a major beneficiary of Fed rate hikes. As we have experienced with prior hiking cycles, bank deposit rates have lagged money market rates and MMF assets under management have surged. We expect investors to continue to migrate to money funds until a Fed cutting cycle begins.

It’s possible you see floating net asset values (NAV) price lower if debt ceiling brinkmanship ensues. hat said, no stable NAV JPM MMF has ever “broken the buck”. Regulations and low weighted average maturities make us confident that track record will remain intact. 2a-7 regulations require high percentages of daily and weekly liquid assets to manage potential outflows. Adding even more liquidity to meet potential outflows, the Feds reverse repo facility holds over $2 trillion of MMF assets at an overnight tenor. For stable NAV funds such as liquid funds, a good case study was March of 2020 when short term funding markets saw tremendous outflows and the funds still came nowhere near the levels where the fixed $1 NAV would come into question.

Are Credit Default Swaps a good way to hedge?

While its possible CDS pay off in a tail risk event, there is also the potential for no payoff if the limit is raised ahead of the X-date or even if we go through the X-date for a day or two but it doesn’t trigger the three day grace period.

Credit default swaps are a derivative instrument offering insurance against default of an underlying issuer. CDS spreads show the price to lock in an insurance agreement. Going long a CDS at 100 basis points implies paying $10 a year to insure $1,000 worth of credit exposure. The cost of insuring against a US government default has increased recently. 1Y US CDS (priced in EUR) are currently 107 basis points versus a peak of 80 basis points back in 2011.

While US Treasury bond documents do not define a default, ISDA can declare a credit event has occurred if Treasury delays payment by three days (the grace period). That would trigger a payoff based on the price of the Cheapest-to-Deliver Treasury (i.e., lowest priced bond). Currently the T ¼ of 2050 is trading at ~$55, meaning a long CDS position would pay off $45 for $100 of exposure.

We can use these prices to derive the market-implied probability of default.2

Probability of Default = CDS Spread / Loss Given Default

With 1Y CDS at a 100 basis points spread, that implies a 2.5% chance of default, below the peak of 6% in 2011.

How else to hedge market volatility from the debt limit?

We think the most clear-cut way to hedge an unruly debt limit episode is to play for a risk off environment. 2011 presents one analog for how markets can respond to worries of a US default. The table below shows the performance of various assets in the six months leading up to the August 2011 debt limit deadline, as well as the six months after. The S&P 500 declined 6% in the month leading up to August X-date, while total returns in the credit space remained resilient given the large decline in risk-free rates. Elsewhere, the Swiss franc and gold rallied as much as 10% against the USD while JPY rallied 5% over that time. EURUSD was flat but there were other issues happening then like the European sovereign debt crisis that aren’t present today. Notably, more risk sensitive currencies like EMFX did not provide a safe haven as negotiations went down to the wire.

All told, we would look to short USD positions versus alternative safe havens and equity hedges as the most direct protection against a disorderly debt ceiling episode. Meanwhile, we are not worried about long duration Treasury yield positions as they would most likely benefit from the negative growth implications an episode could result in.

Past performance is no guarantee of future results and investors may get back less than the amount invested. It is not possible to invest directly in an index.

References

1.

Piper Sandler, April 16 2023.

2.

JPM IB Global Credit Research, February 2023.

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Any views, strategies or products discussed in this material may not be appropriate for all individuals and are subject to risks. Investors may get back less than they invested, and past performance is not a reliable indicator of future results. Asset allocation/diversification does not guarantee a profit or protect against loss. Nothing in this material should be relied upon in isolation for the purpose of making an investment decision. You are urged to consider carefully whether the services, products, asset classes (e.g. equities, fixed income, alternative investments, commodities, etc.) or strategies discussed are suitable to your needs. You must also consider the objectives, risks, charges, and expenses associated with an investment service, product or strategy prior to making an investment decision. For this and more complete information, including discussion of your goals/situation, contact your J.P. Morgan representative.

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