Every year about this time the Social Security Administration Trustees release their report on the financial condition of the Social Security system. Every year the report elicits cries of anguish and consternation about the "bankruptcy" of the system and the need for reform. Every year I feel the need to set the record straight, and so here I go.
Robert Samuelson proposes that we go ahead and declare the Social Security system bankrupt right now so that we delay no longer in making the tough decisions required to restore solvency:
It's increasingly obvious that Congress and the president (regardless of the party in power) will deal with the political stink bomb of an aging society only if forced. And the most plausible means of compulsion would be for Social Security and Medicare to go bankrupt: trust funds run dry; promised benefits exceed dedicated payroll taxes. The sooner this happens, the better.A snide response to Samuelson's piece is
here. This time I'll take the high road and appeal to some basic economic logic, leaving the snark to others.
First, what is the evidence that Social Security is or will eventually be "bankrupt"? Samuelson:
That the programs will ultimately go bankrupt is clear from the trustees' reports. On pages 201 and 202 of the Medicare report, you will find the conclusive arithmetic: Over the next 75 years, Social Security and Medicare will cost an estimated $103.2 trillion, while dedicated taxes and premiums will total only $57.4 trillion. The gap is $45.8 trillion.According to the table on page 201 to which Samuelson refers, $38.1 trillion of the $45.8 trillion deficit is the deficit in the Medicare system, $7.7 trillion is Social Security. So the Medicare-Social Security "crisis" is largely a Medicare crisis, i.e. a health care crisis. Congress is, at the behest of the Obama Administration, working on health care reform even as we speak. Agree or disagree with Obama's proposals, you can't accuse him or the other politicians in Congress of ducking this issue.
But the $7.7 trillion long-range deficit in Social Security is still a lot of money, right? Well, not really. The total $45.8 trillion shortfall is just 5.8 percent of GDP over the 75-year projection period. $7.7 trillion is about 0.97 percent of total GDP over that period. 0.97 percent of today's GDP is about $140 billion. $140 billion is an uncomfortable sum to have to spend, but if that's what it took to save the Social Security system I'm sure our government would have little difficulty filling the gap.
Let's take a closer look at the concept of bankruptcy as it applies to the Social Security system. The Trustees' report says that under current law, Social Security expenditures will surpass dedicated revenue and the money in the SS trust fund in 2037. That's the date people refer to when they declare that the system will be bankrupt. But all this means is that in 2037, some other source of funding will be needed to keep the benefits flowing. Congress could at that date raise FICA taxes, raise income taxes, impose a new tax whose revenues would be devoted to Social Security, or cut benefits. The concept of bankruptcy comes up only because we decided long ago to fund Social Security through dedicated payroll taxes, and those dedicated taxes, under current law, will be insufficient in 2037. We could easily apply the same concept to another part of the budget, say the defense budget. We've made a de facto commitment to spend something like four percent of our GDP on the military every year until the end of time. Under current law, there are no taxes dedicated to the funding of the defense budget, so every year we have a "deficit" in the defense budget of 4 percent of GDP. The present value of this deficit over the infinite horizon is 80 percent of GDP if we assume a discount rate of five percent. So the defense budget is bankrupt! And so is just about every component of our budget!
So what is the Social Security problem? The problem is that whereas today we spend about 4.8 percent of GDP on Social Security benefits, spending is projected to rise to 6.2 percent of GDP in 2034 and then level off at about 5.8 percent of GDP after 2050. Meanwhile because of a slowdown in the growth of the working population, revenues from GDP are expected to fall from 5 percent currently to 4.4 percent by 2083. So we have to figure out how to fill a 1.8 percent of GDP funding gap half a century from now.
The Robert Samuelsons of the world want us to start making changes now to save the system. But changes to tax rates or benefits today would not have any direct impact on our ability to meet the funding challenge in the far-off future. Our ability to finance our retirement system in 2083 will depend on how big the U.S. economy is in 2083. Taxing workers more today in order to add money to the Social Security trust fund does not make the economy bigger in 2083. A bigger trust fund would mean that the the Social Security system could go a few more years past 2037 paying its bills out of the accumulated money in the fund. The Social Security Administration would sell off the Treasury bonds it holds to raise the money it needs. If it didn't have money in its trust fund, the U.S. Treasury would have to borrow the money the system needs by issuing Treasury bonds. Either way, our government is selling bonds to the public. All raising taxes now accomplishes is to put off the date when this is done by the Treasury rather than the Social Security Administration.
What will help solve the financing needs of the Social Security system? Anything that makes GDP bigger in the future. A higher savings rate might do it. This could be accomplished by raising FICA taxes, but it could also be accomplished by reinstating a hefty estate tax, cutting defense expenditures, or anything else that reduces our budget deficit. We could make our GDP bigger in the future by investing more in education or R&D in industries of the future such as "green technology". Of course, reducing our budget deficit, improving education, and developing new technologies are things that we probably want to do anyway. So my recommendation for dealing with the Social Security problem: ignore it now, deal with the financing problem when the time comes. For now, just focus on making sound macroeconomic policy decisions.