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INTERGOVERNMENTAL GRANTS
Key Points
1. Dollars are fungible. Even if the use of grant funds is restricted to a particular program, the grant
funds can be used to replace local funds that would have been spent on the program. The local
funds can then be spent on other programs or returned to the taxpayers through a reduction in
local taxes.
2. Because of fungibility, (a) a community may spend less of its own local funds on a public service
when it receives a grant than it would spend without the grant, and (b) the effect of categorical
grants on public service expenditure is often no different than the effect of general grants.
3. A matching grant has a more stimulative effect on expenditure than a lump-sum grant because a
matching grant has both an income effect and a substitution effect while a lump-sum grant has
only an income effect.
4. Economic theory suggests that a lump-sum grant should have the same effect on expenditure on
public services as an increase in the community’s aggregate income. The empirical evidence
indicates, however, that a lump-sum grant increases public service expenditure five times more
than an equal increase in community income.
Synopsis
Intergovernmental grants are a major source of revenue for state and local governments. State
governments receive grants from the national government and local governments receive grants from
both national and state governments. A grant may be either general or categorical, it may be either
lump sum or matching, and it may be either open-ended or closed-ended. We begin by defining each
of these pairs of terms.
Next, we show the effect of a lump-sum grant on a community’s total expenditure on a public service.
Using this lump-sum grant as a benchmark, we then demonstrate four propositions about grants: (1) a
categorical grant often has the same effect as a general grant so that the restrictions placed on use of
the categorical grant are not effective; (2) a matching grant increases a community’s expenditure on a
public service more than a lump-sum grant of the same amount; (3) a matching grant may reduce the
amount of local funds that the community spends on the public service even though total spending
increases; (4) an open-ended grant increases spending on a public service by at least as much as, and
sometimes more than, a closed-ended grant.
The most efficient structure for a grant (whether it is matching or lump sum, for example, or whether
it is general or categorical) depends on the objective of the grant. We look at several examples of
designing a grant to achieve specific objectives. We then note that, in fact, few grants from the
national government to state and local governments in the U.S. seem to be efficiently structured.
Finally, we look at an anomaly in the economics of intergovernmental grants, the flypaper effect. The
flypaper effect reflects an inconsistency between economic theory and empirical evidence. We first
describe the inconsistency and then offer four explanations. Two of the explanations claim that there
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
is really no flypaper effect. The theory is correct but the empirical evidence is misinterpreted. The
other two explanations claim that the flypaper effect is real. The empirical evidence is correct but the
theory incorrectly omits some important considerations.
Lecture Notes
b. Examples
(1) Suppose R=1.0. This means the grant matches local funding
dollar-for-dollar so that the grant provides $1.00 for each
$1.00 of local funds spent. If R=1.0, then M=1/2 and the
grant provides exactly one-half of the total expenditure on
the good or service.
(2) If R=0.5, the grant provides $0.50 for each $1.00 of local
funds spent. When R=0.5, M=1/3 so the grant provides one-
third of the total expenditure on the good or service.
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
Tax-price
Median Voter’s Demand
without Lump-sum Grant
Median Voter’s Demand
with Lump-sum Grant
MC
Public Service
E0 E1
(ΔE/E0) = (G/I0) * ηI
using the point elasticity formula where G is the grant (equal to the change in
income), I is the initial income, and ηI is the income elasticity of demand for
the public service.
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
2. Dollars are fungible. For example, a community can spend part of a general
grant on urban mass transit and part on fire protection. But if the community
receives a categorical grant designated only for urban mass transit, it can use
the entire grant for urban mass transit and reallocate some its own local funds
from urban mass transit to fire protection. The increase in urban mass transit
spending and the increase in fire protection expenditure are the same with
either the general grant or the categorical grant.
Budget line
a without grant
Budget line
with grant
Urban transit
E1 E2 b d
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
Budget line
f
a without grant
Budget line
with grant
Urban transit
E0 E1 E2 b d
b. Both the general grant and the categorical grant have the same effect
on urban mass transit spending. Restricting use of the grant to urban
mass transit has no effect on total expenditure because the grant
simply replaces other funds that the community would have spent on
urban mass transit, allowing those funds to be reallocated to other
publicly- or privately-provided services.
d. Note that in both cases the grant completely replaces local funds that
would be spent on urban mass transit without the grant. With the
grant, the community spends none of its local funds on urban mass
transit.
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
C. A matching grant is more stimulative than a lump-sum grant of the same amount. See
PowerPoint Slides Figure 7-4.
3. Let P be the price to local taxpayers for each $1.00 of expenditure on the
public service. Then,
a. If there is no grant, R=0, M=1, and P=$1.00. The local taxpayers pay
the entire cost of the good or service. The price to them of each
dollar of expenditure on the public service is exactly $1.00.
b. If R=1, then M=1/2, and P=$0.50. The price to the local taxpayers
for an additional $1.00 expenditure on the public service is $0.50.
The grant reduces the tax-price to the community’s taxpayers by 50
percent.
c. If R=0.5, M=1/3, and P=$0.67. The price to the local taxpayers for
an additional $1.00 expenditure on the public service is $0.67. The
grant reduces the tax-price to the community’s taxpayers by 33.3
percent.
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
Tax-price
Median Voter’s
Demand
P0 MC=Tax-price
without grant
Tax-price
P1 with grant
Public Service
E0 E1 E2
b. The increase in expenditure, Δ E=E2-E0, expressed as a percentage of
the original expenditure level, E0, depends on the median voter’s
price elasticity of demand:
(ΔE/E0) = (G/P0) * ηP
using the point elasticity formula where G is the grant (equal to the
price reduction), P is the initial marginal tax-price of the public
service, and ηP is the price elasticity of demand. (Note that the price
elasticity of demand incorporates both the income effect and the
substitution effect.)
D. A matching grant may reduce spending on the public service by the recipient
government from its own local funds.
2. Suppose the median voter’s demand for the public service is inelastic with
respect to the tax-price. (According to Fisher, Table 4-1, the demand for most
public services is inelastic.) The matching grant reduces the price, but the
percentage increase in the median voter’s desired expenditure on the public
service is smaller than the percentage reduction in price. Therefore, the
community actually spends less of its own local funds on the public service
with the grant than it would spend without the grant.
3. Example
b. Suppose the grant reduces the tax-price to the median voter to $0.50.
Now, for each dollar of expenditure on urban mass transit, the
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
community spends only $0.50 and the grant provides the other $0.50.
The community has $0.50 to use for an increase in urban mass transit
or for an increase in spending on other public services or to reduce
local taxes, allowing taxpayers to spend more on privately-provided
goods and services.
c. The grant reduces the tax-price by 50%. Suppose the median voter’s
elasticity of demand for urban mass transit is 0.40. Then, her/his
desired mass transit expenditure increases by $0.20 (=0.40*$0.50),
from $1.00 to $1.20. The grant provides $0.60 and the community
provides the other $0.60. Total spending on urban mass transit
increases from $1.00 to $1.20, but spending by the community from
its own funds decreases from $1.00 to $0.60.
4. The community uses part of the grant to replace some of its own spending on
the public service, reallocating its funds to other purposes. To the extent that
a matching grant simply replaces local spending, it is equivalent to a general
lump-sum grant of the same amount.
2. As long as the closed-ended grant is less than the maximum, it has the same
effect on expenditure as an open-ended grant.
a. Both grants increase the median voter’s income (income effect) and
reduce the median voter’s marginal tax-price (substitution effect).
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ECO 4554: Economics of State and Local Government
Intergovernmental Grants
(2) Thus, when total expenditure reaches $300, the grant reaches
its maximum of $100. The grant increases the total resources
available to the community by $100, but it no longer reduces
the community’s tax-price for the public service. It becomes
equivalent to a lump-sum grant of $100.