M Y working view of the balance of payments, a reasonably commonplace one, places it on three levels. At the bottom and most basic for policy is the net balance of goods and services. This yielded a surplus of $3.8 billions in 1960, $5.4 billions in 1961 and $4.8 billions in 1962, the result of a merchandise surplus of roughly the same size and a (net) investment income which had reached $3.3 billions in 1962. Against this were military expenses (amounting to $3.1 billions in 1962), net travel outlays (amounting to about a billion in 1962) and a variety of other payments and remittances including United States Government grants of nearly $2 billions. Preliminary figures for 1963 show an improvement in the net balance of about a billion dollars, the result of further increases in investment income, a modestly larger increase in exports than in imports and a slight decline in military spending.' At the next level are the long-term private capital outflows ($2.8 billions net in 1962) and government loans (amounting net to $1.5 billions in 1962). This outflow creates a corresponding claim by Americans on overseas resources and portends a possible later improvement in the payments balance as the result of interest, dividends and repatriated earnings. These items were evidently about the same in total in 1963 as 1962. But this was as the result of a sharp curtailment of private capital outflow in the second half of the year following a very large increase in the first half. Long-term outflows are continuing at a low level as this is written in early 1964. In 1962 all the foregoing transactions the so-called basic balance involved a deficit of $2.1 billions. There has been a deficit in this account in every year since 1947. At its highest in 1959 it amounted to $4.7 billions.2 In late 1963 and early 1964, the movement in this deficit was sharply down. The third level is ultimately derivative from the foregoing. Dollar claims accumulate as the result of the foregoing commercial transactions and capital movements. They can be held in the form of dollar deposits or converted into foreign currencies or gold. In the main they have been held in dollars and thus the large accumulation of current dollar claims in recent years -from around $7 billions in 1950 to some $25 billions at present. But some $7 billions has been converted to gold and removed from the monetary gold stock in the last six years. This has been the most visible and publicized aspect of the balance of payments problem and also the one that is most purely a consequence, rather than a cause, of changes at the other levels. Few public problems can ever have been so ingeniously contrived to maximize difficulty as that of the balance of payments. There has continued to be a question as to whether there is a problem. There has been a puzzling choice between real and spurious solutions. And each of the real solutions has been protected by a stout framework of vested ideological and economic interest reinforced, in some cases, by distinctly non-secular conviction. The sources of difficulty may be dealt with under the following heads: (1) The question as to whether there is a problem; 'In the last three years, apart from secondary discussions and memoranda, I have been concerned with the balance of payments problem on two major occasions. In 1961, during the first weeks of the new administration, I had general coordinating responsibility for the special message which was transmitted to the Congress in February, 1961. On my return from India in the summer of 1963, I was asked by President Kennedy to review the problem and report. This paper draws on this experience. But, as will be evident from the context, it does not reflect accepted policy and cannot be read as any indication thereof. Moreover it was, in some measure, my task in 1963 to consider ultimately rather than presently necessary action. 2 Data from Statistical Supplement to Survey of Current Business (1963), and Survey of Current Business (June, 1963), as used in The United States Balance of Payments in 1968, The Brookings Institution (Washington, D.C., 1963). Appendix Tables for 1963 from Economic Report of the President.