articles Ratings /ratings/en/research/articles/230509-default-transition-and-recovery-u-s-public-finance-upgrades-continue-to-surpass-downgrades-in-early-2023-12723215 content esgSubNav
In This List
COMMENTS

Default, Transition, and Recovery: U.S. Public Finance Upgrades Continue To Surpass Downgrades In Early 2023

COMMENTS

Credit Trends: U.S. Corporate Bond Yields As Of Jan. 8, 2025

COMMENTS

CreditWeek: How Will 2024's Ratings Performance Shape The Year Ahead?

COMMENTS

2023 Short-Term Corporate Default And Rating Transition Study

COMMENTS

Credit Trends: U.S. Corporate Bond Yields As Of Dec. 11, 2024


Default, Transition, and Recovery: U.S. Public Finance Upgrades Continue To Surpass Downgrades In Early 2023

Credit Quality Improved

Credit quality for United States Public Finance (USPF) rose overall in the first quarter of 2023. USPF issuers rated by S&P Global had 186 upgrades (134 non-housing and 42 housing), down from 221 upgrades in the fourth quarter of 2022 (166 non-housing and 55 housing). Downgrades fell to 56 in the first quarter of 2023 (52 non-housing and four housing), from 67 in the fourth quarter of 2022 (64 non-housing and three housing). However, the overall rise in credit quality was not in all USPF sectors, as three of eight sectors had more downgrades than upgrades in the first quarter, compared with one of eight in the previous quarter. Health care, utilities, and higher education had more downgrades than upgrades. Rating actions in this report are calculated based on the rating at the start and the end of each quarter.

Rating actions: improving finances led to most upgrades

The most cited reason for upgrades in the first quarter of 2023 was strengthening finances, which led to 56 upgrades, while deteriorating finances was the most common cause of downgrades, with 18 (see chart 1). Changes to operating outcomes were the second most common driver of rating actions in the first quarter of 2023, with improving operations leading to 26 upgrades, and weaker operations to 16 downgrades. There were no defaults for the second consecutive quarter.

Chart 1

image

Over the past 12 quarters, USPF has averaged 144 upgrades and 130 downgrades (see charts 2 and 3), with eight straight quarters of improving credit quality, following the four quarters at the height of the pandemic when downgrades averaged 247 per quarter to 40 upgrades.

Chart 2

image

Chart 3

image

Rating Distributions

Most USPF non-housing ratings were investment-grade ('BBB-' and above) at the end of the first quarter, with only 1.8% being speculative-grade ('BB+' and lower) (see table 1). For housing, just under 2% of ratings were speculative grade. USPF ratings of all kinds partly correlate to the sovereign rating on the United States, which S&P Global Ratings affirmed at 'AA+' with a stable outlook on March 16, 2023. Just more than 5% of non-housing ratings and 14.7% of housing ratings are 'AAA'. There were three upgrades to 'AAA' in the first quarter: Cottage Grove and Minnesota, upgraded from 'AA+' on an improving economy, the Metro Atlanta Rapid Transit Authority, Georgia, from 'AA+' with debt service coverage above very strong, and Santa Clara Unified School District, California, from 'AA+' on account of increasing reserves at already strong levels. There were no USPF ratings lowered from 'AAA' in the first quarter. There were 10 rising starts (obligors that started the quarter at speculative grade and upgraded to investment grade), up from two in the fourth quarter of last year, and there were three fallen angels (obligors that started the quarter at investment grade downgraded to speculative grade), down from five in the fourth quarter of last year.

Table 1

Rating distribution (as of March 31, 2023)
Number of ratings
USPF ex. housing Tax secured Appropriation Utilities Health care Higher education Transportation Charter schools Housing
AAA 1108 813 64 185 0 44 2 0 317
AA 9182 5497 2323 985 113 184 80 0 1579
A 9302 5980 1669 1001 194 296 161 1 152
BBB 1343 509 241 141 91 181 32 148 56
BB 330 54 14 8 25 53 3 173 18
B 33 2 3 0 8 8 1 11 12
CCC/C 10 2 1 0 3 2 1 1 11
Totals 21308 12857 4315 2320 434 768 280 334 2145
As percentage (%)
AAA 5.20 6.32 1.48 7.97 0.00 5.73 0.71 0.00 14.78
AA 43.09 42.75 53.84 42.46 26.04 23.96 28.57 0.00 73.61
A 43.65 46.51 38.68 43.15 44.70 38.54 57.50 0.30 7.09
BBB 6.30 3.96 5.59 6.08 20.97 23.57 11.43 44.31 2.61
BB 1.55 0.42 0.32 0.34 5.76 6.90 1.07 51.80 0.84
B 0.15 0.02 0.07 0.00 1.84 1.04 0.36 3.29 0.56
CCC/C 0.05 0.02 0.02 0.00 0.69 0.26 0.36 0.30 0.51
Data as of Mar. 31, 2023. Source: S&P Global Ratings Credit Research & Insights.

Net Rating Actions Since The Pandemic Have Turned Positive for Non-Housing

At the start of the pandemic in early 2020, we saw a dramatic negative cumulation of downgrades in non-housing, reaching a low point in net rating actions in the first quarter of 2021, with 702 more downgrades than upgrades (see Chart 4). Since then, there has been a complete reversal, with cumulative net rating actions reaching zero the third quarter of 2022. The trend of positive credit quality improvements has led to a net total of 216 more upgrades than downgrades since the pandemic began.

Chart 4

image

For housing ratings, there was a similar cumulation of negative rating actions, though the drop was more shallow than non-housing (see chart 5). The bottom was reached in the first quarter of 2022, with 125 more downgrades than upgrades. The last two quarters have had dramatically improved credit quality, with 100 more upgrades than downgrades since the start of the fourth quarter of 2022, bringing the cumulative net total since the start of 2020 to 25 more downgrades than upgrades.

Chart 5

image

Large downgrades, double large upgrades

In the first quarter of 2023 there were six large rating movements of three or more notches up or down. The largest rating movement, a downgrade of ten notches, to 'BBB-' from 'AA' was on Bolingbrook, Illinois general obligation debt, which was downgraded because of failure to pay at least five timely sinking fund payments for January 2024 term bond maturity.

Table 2

Main reason for multiple notch rating changes, Q1 2023
Notch change* Total Finances Operations Debt service coverage Economy Debt Others
-7 1 1
-4 1 1
-3 2 1 1
3 1 1
4 1 1
Total 6 2 0 2 1 0 1
Data as of Mar. 31, 2023. *Negative numbers indicate downgrades. Source: S&P Global Ratings Credit Research & Insights.

2023 Q1 Rating Actions

Transportation Credit Quality Improved the Most

As a percentage of all ratings by sector on Jan. 1, 2023, transportation had the largest improvement in credit quality (see chart 6). More than 10% of all transportation ratings were raised in the first quarter, representing a sector and geographically diverse population of ratings, from airports, turnpike authorities, and port authorities. Health care had the largest share of downgrades, at 2.5% of all ratings.

Chart 6

image

State and local governments
State governments

There were two rating actions on state general obligation debt in the first quarter of 2023, with Illinois upgraded to 'A-' from 'BBB+' in March, reflecting 'our view that the recent trend of improvement in the state's financial flexibility, transparency, liquidity, and reserve position is expected to continue in the fiscal 2024 budget cycle and beyond." (For more information see "State of Illinois Series Of May 2023A, B, C, And D GO Bonds Rated 'A-', Mar. 30, 2023). The State of Missouri, which did not have any general obligation debt as of Dec. 1, 2022, was moved to NR from the 'AAA' a rating the state held since the 1960s. In February, an 'AAA' Issue Credit Rating was assigned (for more information see "Missouri; General Obligation" Feb. 9, 2023).

Local governments

Local governments had 91 upgrades and 18 downgrades in the first quarter of 2023 (see chart 7), led by finances with 37 upgrades and 11 downgrades, followed by liquidity with 19 upgrades and zero downgrades.

Chart 7

image

Utilities

For the first quarter, utilities had five upgrades and eight downgrades, with debt service coverage and operations accounting for four rating actions each, one upgrade and three downgrades.

Chart 8

image

Health care

For the first quarter, health care had five upgrades and 14 downgrades, led by operations with eight downgrades, followed by finances with seven rating actions (three upgrades and four downgrades).

Chart 9

image

Higher education and charter schools

For the first quarter, higher education and charter schools had 13 upgrades and 12 downgrades, led by finances, with seven (five upgrades and two downgrades).

Chart 10

image

Transportation

For the first quarter, transportation had 29 upgrades and zero downgrades, led by operations, with 11, followed by finances(correct?), with six rating actions (three upgrades and three downgrades).

Chart 11

image

Housing

For the first quarter, housing had 52 upgrades and four downgrades, led by criteria, with 38, followed by debt, with eight rating actions (six upgrades and two downgrades).

Chart 12

image

Appendix

Table 3

Q1 2023 upgrades and downgrades
Sector Upgrades Downgrades Defaulted
Total USPF ex. housing 134 52 0
State and local* 91 18 0
Tax secured 67 18 0
Appropriation 24 0 0
Utilities 5 8 0
Health care 5 14 0
Higher education 7 9 0
Charter schools 6 3 0
Transportation 20 0 0
Housing 52 4 0
Data as of Mar. 31, 2023. *Includes tax-secured and appropriation securities. Source: S&P Global Ratings Credit Research & insights.

Table 4

Upgrade/downgrade# history
USPF ex. housing Tax secured Appropriation Utilities Health care Higher education Transportation Charter schools@ Housing*
Up Down Up Down Up Down Up Down Up Down Up Down Up Down Up Down Up Down
1/1/2001 154 38 62 5 64 1 16 9 5 21 5 2 2 0 0 0 5 7
4/1/2001 741 106 83 3 630 67 23 4 1 20 3 12 1 0 0 0 32 11
7/1/2001 126 47 49 4 42 3 13 5 2 22 5 5 15 8 0 0 14 14
10/1/2001 100 14 57 3 20 4 11 2 3 4 7 1 2 0 0 0 24 7
1/1/2002 174 38 98 5 45 1 15 7 4 6 7 5 5 14 0 0 3 7
4/1/2002 108 105 59 9 21 64 20 6 1 11 1 5 6 10 0 0 3 24
7/1/2002 72 38 40 2 9 10 19 3 2 18 1 1 1 4 0 0 0 17
10/1/2002 103 127 57 13 26 72 12 15 4 19 2 7 2 1 0 0 6 17
1/1/2003 85 66 41 5 18 33 11 2 5 17 7 8 3 1 0 0 5 19
4/1/2003 87 46 52 10 6 1 13 1 5 21 6 7 5 5 0 1 4 24
7/1/2003 80 132 45 7 18 79 12 4 3 11 2 29 0 2 0 0 10 25
10/1/2003 126 92 56 15 26 28 17 7 11 30 16 8 0 4 0 0 23 9
1/1/2004 105 98 63 16 8 58 12 3 14 18 3 3 5 0 0 0 24 6
4/1/2004 97 66 53 11 17 34 16 8 8 9 2 3 1 1 0 0 2 11
7/1/2004 189 130 48 13 102 100 31 1 5 10 1 4 1 2 1 0 19 19
10/1/2004 122 58 65 10 22 22 19 9 9 14 6 3 1 0 0 0 11 10
1/1/2005 152 35 62 11 39 13 15 3 13 7 22 1 1 0 0 0 76 12
4/1/2005 109 66 53 10 25 42 8 2 16 10 4 2 3 0 0 0 5 96
7/1/2005 215 39 52 13 133 7 12 3 12 8 6 4 0 4 0 0 29 11
10/1/2005 153 109 75 44 24 23 22 7 20 18 10 8 2 7 0 2 13 37
1/1/2006 114 47 38 9 47 13 10 3 11 14 7 6 1 1 0 1 12 9
4/1/2006 252 22 68 10 144 1 14 2 14 6 9 3 3 0 0 0 27 8
7/1/2006 405 29 338 8 18 1 25 2 13 18 8 0 3 0 0 0 49 13
10/1/2006 194 38 99 13 37 5 22 6 12 10 12 3 12 0 0 1 34 3
1/1/2007 178 26 97 11 51 0 21 2 4 11 2 1 3 0 0 1 49 1
4/1/2007 180 56 75 28 63 11 25 2 9 8 7 5 1 2 0 0 9 4
7/1/2007 161 24 94 3 38 3 10 2 7 15 6 0 5 1 1 0 15 11
10/1/2007 165 49 76 13 32 8 25 1 10 19 15 4 4 1 3 3 10 10
1/1/2008 237 34 127 10 47 2 41 2 7 18 9 1 6 1 0 0 6 16
4/1/2008 632 31 417 7 103 2 96 1 5 20 9 0 1 1 1 0 7 63
7/1/2008 595 31 300 6 232 1 42 2 4 21 12 0 5 1 0 0 13 36
10/1/2008 667 43 291 6 60 4 297 0 7 28 5 4 6 1 1 0 31 30
1/1/2009 758 210 525 17 140 152 81 5 4 29 1 3 3 4 4 0 22 152
4/1/2009 614 83 331 16 116 41 149 1 5 22 6 3 7 0 0 0 16 74
7/1/2009 403 32 227 4 90 4 67 8 3 11 10 1 6 4 0 0 8 32
10/1/2009 454 60 316 12 77 28 33 1 12 12 13 3 1 4 2 0 8 32
1/1/2010 683 278 523 47 88 209 58 7 8 10 2 2 2 3 2 0 7 73
4/1/2010 578 94 445 54 76 16 40 4 8 16 6 2 1 2 2 0 8 37
7/1/2010 256 40 158 18 34 2 44 4 7 10 11 3 1 3 1 0 8 60
10/1/2010 238 59 148 26 18 17 30 3 19 7 17 1 4 4 2 1 33 66
1/1/2011 445 300 243 68 105 212 56 6 13 2 16 5 6 4 6 3 22 15
4/1/2011 190 96 99 58 33 18 26 6 22 9 2 3 7 1 1 1 5 37
7/1/2011 94 126 38 53 9 49 28 4 16 12 2 5 0 2 1 1 13 1290
10/1/2011 75 112 23 54 3 11 29 18 9 14 9 6 1 4 1 5 11 33
1/1/2012 126 90 43 40 24 22 44 12 11 10 2 4 2 0 0 2 8 58
4/1/2012 178 139 79 68 26 39 46 14 13 8 9 7 5 0 0 3 9 9
7/1/2012 140 149 66 79 27 39 26 8 14 10 3 7 3 0 1 6 3 39
10/1/2012 136 87 73 44 19 11 28 10 6 11 4 6 6 1 0 4 18 12
1/1/2013 200 128 83 88 85 15 19 11 9 6 4 3 0 1 0 4 6 12
4/1/2013 203 96 111 45 36 19 27 8 18 13 7 6 4 1 0 4 13 27
7/1/2013 274 118 163 49 70 19 24 15 7 10 5 10 5 3 0 12 9 13
10/1/2013 766 170 545 64 170 60 33 5 5 21 9 11 4 1 0 8 33 75
1/1/2014 681 163 520 80 109 41 17 15 14 10 7 8 12 1 2 8 9 4
4/1/2014 586 288 448 90 84 145 31 10 12 18 8 19 3 0 0 6 16 10
7/1/2014 738 368 460 93 236 228 28 8 9 14 4 10 1 0 0 15 33 8
10/1/2014 279 83 117 40 124 7 22 12 8 9 1 8 7 0 0 7 77 32
1/1/2015 235 161 143 70 35 42 27 7 24 18 3 18 2 0 1 6 23 4
4/1/2015 274 139 144 61 64 33 33 12 21 15 5 11 5 1 2 5 10 3
7/1/2015 319 156 139 52 112 55 34 24 19 3 3 12 11 2 1 8 22 2
10/1/2015 228 109 137 52 16 17 36 19 19 10 4 5 14 1 2 5 8 2
1/1/2016 267 138 143 61 39 30 47 20 8 6 21 14 7 1 2 6 19 18
4/1/2016 236 155 117 54 26 40 52 17 9 15 22 15 9 2 1 12 19 43
7/1/2016 205 156 102 45 49 66 33 14 12 7 6 15 2 1 1 8 11 3
10/1/2016 220 271 106 50 25 158 51 28 8 11 19 13 5 1 6 10 14 9
1/1/2017 251 272 137 76 41 128 53 27 8 12 4 12 5 0 3 17 10 24
4/1/2017 228 120 99 67 91 19 13 6 11 4 1 19 7 0 6 5 9 9
7/1/2017 157 153 90 53 25 57 20 16 5 14 8 4 4 2 5 7 12 5
10/1/2017 234 115 145 65 42 18 22 6 7 7 8 8 5 2 5 9 7 7
1/1/2018 552 97 339 53 177 8 19 8 8 7 3 10 0 2 6 9 3 32
4/1/2018 312 168 176 75 75 57 19 13 16 9 3 6 15 0 8 8 7 42
7/1/2018 276 146 132 84 87 9 26 21 6 14 3 11 19 2 3 5 28 13
10/1/2018 232 155 132 98 54 28 22 12 6 8 1 6 17 0 0 3 21 24
1/1/2019 285 108 184 65 52 19 30 10 6 6 5 5 8 0 0 3 0 11
4/1/2019 261 117 171 58 41 12 24 22 10 7 6 8 7 5 2 5 8 30
7/1/2019 199 106 120 63 37 13 30 10 3 5 7 7 0 0 2 8 2 71
10/1/2019 217 114 131 69 37 5 26 17 4 7 4 14 10 0 5 2 5 31
1/1/2020 112 106 58 53 21 7 21 17 6 9 3 16 2 1 1 3 21 7
4/1/2020 8 172 4 91 0 33 4 9 0 13 0 14 0 8 0 4 2 43
7/1/2020 13 247 7 103 1 25 4 15 0 7 0 23 0 71 1 3 15 83
10/1/2020 28 314 11 68 1 168 9 16 0 6 1 20 4 28 2 8 24 39
1/1/2021 52 81 25 30 2 17 14 14 0 7 1 11 9 2 1 0 18 9
4/1/2021 105 74 59 28 14 18 20 16 1 3 5 5 1 1 5 3 4 6
7/1/2021 206 70 118 35 56 9 19 16 6 7 2 2 0 0 5 1 10 18
10/1/2021 156 56 81 25 15 5 16 10 13 5 7 6 21 1 3 4 5 15
1/1/2022 305 51 106 22 162 4 14 15 3 4 4 6 14 0 2 0 2 8
4/1/2022 186 62 92 37 41 2 16 5 9 8 7 7 13 0 8 3 4 2
7/1/2022 169 75 89 34 12 4 33 16 3 11 1 6 29 2 2 2 12 12
10/1/2022 166 64 81 25 25 5 22 12 3 10 11 10 23 1 1 1 55 3
1/1/2023 134 52 67 18 24 0 5 8 5 14 7 9 20 0 6 3 52 4
Data as of Mar. 31, 2023. #Downgrades include defaults. '@All active charter school ratings are included in this category. Prior ratings often were categorized as appropriation debt. *Only tracked annually prior to 2006. Source: S&P Global Ratings Credit Research & Insights.

Related Research:

This report does not constitute a rating action.

Primary Credit Analysts:Nick W Kraemer, FRM, New York + 1 (212) 438 1698;
nick.kraemer@spglobal.com
Zev R Gurwitz, New York + 1 (212) 438 7128;
zev.gurwitz@spglobal.com
Research Contributor:Yogesh Kumar, CRISIL Global Analytical Center, an S&P affiliate, Mumbai

No content (including ratings, credit-related analyses and data, valuations, model, software, or other application or output therefrom) or any part thereof (Content) may be modified, reverse engineered, reproduced, or distributed in any form by any means, or stored in a database or retrieval system, without the prior written permission of Standard & Poor’s Financial Services LLC or its affiliates (collectively, S&P). The Content shall not be used for any unlawful or unauthorized purposes. S&P and any third-party providers, as well as their directors, officers, shareholders, employees, or agents (collectively S&P Parties) do not guarantee the accuracy, completeness, timeliness, or availability of the Content. S&P Parties are not responsible for any errors or omissions (negligent or otherwise), regardless of the cause, for the results obtained from the use of the Content, or for the security or maintenance of any data input by the user. The Content is provided on an “as is” basis. S&P PARTIES DISCLAIM ANY AND ALL EXPRESS OR IMPLIED WARRANTIES, INCLUDING, BUT NOT LIMITED TO, ANY WARRANTIES OF MERCHANTABILITY OR FITNESS FOR A PARTICULAR PURPOSE OR USE, FREEDOM FROM BUGS, SOFTWARE ERRORS OR DEFECTS, THAT THE CONTENT’S FUNCTIONING WILL BE UNINTERRUPTED, OR THAT THE CONTENT WILL OPERATE WITH ANY SOFTWARE OR HARDWARE CONFIGURATION. In no event shall S&P Parties be liable to any party for any direct, indirect, incidental, exemplary, compensatory, punitive, special or consequential damages, costs, expenses, legal fees, or losses (including, without limitation, lost income or lost profits and opportunity costs or losses caused by negligence) in connection with any use of the Content even if advised of the possibility of such damages.

Credit-related and other analyses, including ratings, and statements in the Content are statements of opinion as of the date they are expressed and not statements of fact. S&P’s opinions, analyses, and rating acknowledgment decisions (described below) are not recommendations to purchase, hold, or sell any securities or to make any investment decisions, and do not address the suitability of any security. S&P assumes no obligation to update the Content following publication in any form or format. The Content should not be relied on and is not a substitute for the skill, judgment, and experience of the user, its management, employees, advisors, and/or clients when making investment and other business decisions. S&P does not act as a fiduciary or an investment advisor except where registered as such. While S&P has obtained information from sources it believes to be reliable, S&P does not perform an audit and undertakes no duty of due diligence or independent verification of any information it receives. Rating-related publications may be published for a variety of reasons that are not necessarily dependent on action by rating committees, including, but not limited to, the publication of a periodic update on a credit rating and related analyses.

To the extent that regulatory authorities allow a rating agency to acknowledge in one jurisdiction a rating issued in another jurisdiction for certain regulatory purposes, S&P reserves the right to assign, withdraw, or suspend such acknowledgement at any time and in its sole discretion. S&P Parties disclaim any duty whatsoever arising out of the assignment, withdrawal, or suspension of an acknowledgment as well as any liability for any damage alleged to have been suffered on account thereof.

S&P keeps certain activities of its business units separate from each other in order to preserve the independence and objectivity of their respective activities. As a result, certain business units of S&P may have information that is not available to other S&P business units. S&P has established policies and procedures to maintain the confidentiality of certain nonpublic information received in connection with each analytical process.

S&P may receive compensation for its ratings and certain analyses, normally from issuers or underwriters of securities or from obligors. S&P reserves the right to disseminate its opinions and analyses. S&P's public ratings and analyses are made available on its Web sites, www.spglobal.com/ratings (free of charge), and www.ratingsdirect.com (subscription), and may be distributed through other means, including via S&P publications and third-party redistributors. Additional information about our ratings fees is available at www.spglobal.com/usratingsfees.

 

Create a free account to unlock the article.

Gain access to exclusive research, events and more.

Already have an account?    Sign in