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Historically, debt financing of the US Federal Government
has occurred at two levels. Direct spending authorized by Congress was
financed by the US Treasury through the issuance of
Treasury securities.
Entities formed by Congress might also issue debt. These entities fall
into two categories:
Federal
agencies are a part of the Federal Government and include entities like
the Federal Housing Administration, Export-Import Bank and Small Business
Administration.
Government
sponsored enterprises (GSE) are private
corporations chartered by the
Federal Government and granted privileges so they can advance
specific purposes.
Debt obligations of these entities are collectively
called agency securities or simply
agencies.
Having federal agencies competing with the US Treasury for
investors' funds drove up the government's cost of financing. It also
imposed incremental costs due to the redundancy of each agency maintaining
a separate debt issuance program. In 1973, Congress formed the
Federal Financing Bank. Under the
general supervision of the Secretary of the Treasury, it consolidated the debt
issuances of federal agencies. Since then, the Tennessee Valley Authority
has been the only federal agency to issue significant amounts of its own
securities.
As private corporations, GSEs still issue their own debt.
The vast majority of issuances are by
Fannie Mae,
Freddie Mac and the
Federal
Banks. Agency securities are less standardized than are
Treasuries. There are discount notes, which are comparable with
Treasury bills, as well as
fixed and floating rate medium term
notes. Agencies directly issue some
zero-coupon securities.
Like corporate bonds, many longer-term issues are
callable.
Agencies are exempt
securities, and interest on many are exempt from state and local taxes. Securities are
publicly offered in various ways through investment banks or direct sales
to investors. In the late 1990s, Fannie Mae started auctioning
standardized bills and notes to the public in much the same way that the
Treasury auctions its securities. The goal was to increase
liquidity and to establish agency
yields as somewhat of a benchmark
comparable to Treasury yields or
swap rates. Freddie Mac
and the Federal
Banks launched similar benchmark securities
programs.
As with most debt instruments, the secondary market for
agencies is entirely over the
counter. There are several trillion dollars of agencies outstanding. The liquidity of issues varies. Agencies are generally not as
liquid as Treasuries, but most are more liquid than
corporate bonds.
Agencies pose
credit
risk, but this is considered minimal. All GSEs have stable businesses,
and several have authority to borrow from the US Treasury. While there may
be no explicit government guarantees, there is a widespread belief that
the Federal Government will intervene to prevent any GSE from defaulting
on its debt.
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