Savings are low, debt is mounting, the dollar is weak, and the economy is projected
to grow more slowly in this century than the last. But thats not the half
of it. What we really have to worry about, according to a chorus of prophets,
is the prospect of Americans living too long. This failure to die in a timely
fashion apparently means no end of trouble for younger citizensand even
represents some kind of accounting swindle in which the long-lived threaten
to take more out of the economy and Social Security than they ever put into
it!
This is the sort of tortured reasoning that Americansespecially younger
Americansconfront when trying to understand what remedies are needed to
keep a basic safety net in place for retirement. According to President Bush
and his allies, the transition to a longer-lived society lies in stripping out
some of the funds currently going to Social Security and using them for personal
accounts, largely invested in the stock market. Bushs plan for partially
privatizing the program is marketed to young adults as a much better deal for
them than the current system.
It is not surprising that the notion is appealing. Todays youth have
grown up during a time when investment in the stock market among ordinary Americans
has grown markedly. Further, a lot of 20-somethings who have graduated from
college are more likely to be juggling sizeable student loans than Bush investment
portfolios. And young people in general are just beginning to learn the hard
lessons of easy credit-card debt, car payments, and stagnant wages. Holding
out the seductive chance to invest a small portion of ones payroll taxes
in stocks sounds like getting something for nothing. In addition, young people,
like the rest of us, have been exposed to a relentless campaign based on the
false notion that Social Security wont survive the retirement of the baby-boomer
generation.
But recent analyses show that if Social Security is converted to a system of
private accounts, younger Americans would be the ones whod bear the greatest
share of the trillions of dollars in extra costs required for the transition
to the promised land of privatization. These costs derive from the combined
effects of benefit reductions and huge increases in federal borrowing to finance
the proposed new accounts. Meanwhile, the current system would continue to rely
on payroll taxes for existing benefits for present and soon-to-be retirees.
There is another reason for caution. When you are young, you should assume
that youll be one of lifes winners, to be sure. But experience should
teach us that not everybody comes out on top, either in the lottery of life
or in the stock market. And, should many of these new private accounts go south
because of market declines or other misfortunes, the younger generation, in
its own old age, would find itself lobbying its own children and some future
Congress to bail them out of looming poverty. After all, markets work because
they produce unequal resultsjust what young people count on whether they
go to work on Wall Street or buy the occasional lottery ticket.
Rejecting the fact that private accounts are no guarantee of future prosperity,
consider the cumbersome accountants language of the nonpartisan Congressional
Budget Office (CBO). To raise the rate of return for future generations
by moving to a funded system, some generations must receive rates of return
even lower than they would have gotten under the pay-as-you-go system,
the CBO recently reported. In other words, one generation must pay for the cost
of retirement for two: those ahead of them, and their own.
The CBO also analyzed the second of the three private account proposals from
the Presidents Commission to Strengthen Social Security, the proposal
that some think will be the basis for the plan that will be sent to Congress.
The CBO compared the commissions plan to two possible scenarios for the
traditional Social Security system, one with payments continuing in full indefinitely
and the other with the trust fund becoming depleted in a few decades and payments
to retirees shrinking from 80 percent to 70 percent of their current levels.
In both scenarios, nearly all those born between 1960 and today would do worse,
on average, under privatization proposals.
Another analysis of the commissions plan two by economists
Peter Diamond and Peter Orszag found that a worker who was 25 years old in 2002
and retired in 2041 at age 65 would see his or her retirement benefits reduced
by 25 percent compared with benefits scheduled under current law; a 35-year-old
worker would see a reduction of 17.4 percent. Pity the 15-year-old who hadnt
even started working in 2002; he or she would see a 31.8-percent loss in benefits
by retirement age.
Another way to create private accounts is to divert general funds collected
from income and other non-payroll taxes to Social Security. Senator John Sununu
and Representative Paul Ryan have proposed plans along those lines, requiring
about $7.1 trillion (in present value dollars) to be transferred from general
revenues over time. While that approach might mean that young people wouldnt
suffer short-term benefit cuts, any proposal that funds current benefits through
general revenues would add to debt that eventually would be paid back by todays
younger generations and their children through increased taxes and reduced government
services.
* * *
The closer young people look at privatization proposals, the less appealing
they will find them. In December, a Washington Post/ABC News poll showed that
support for private accounts among 18- to 30-year-olds dropped from 67 percent
to 45 percent when respondents were told that such accounts could cost as much
as $2 trillion. No doubt support will drop even more sharply as young people
come to understand how their benefits could decline with private accounts. Since
Social Security started in the 1930s, younger generations have been expected
to help support their parents generations in their retirement. It is a
lot to ask them to both support older generations and pay for the transition
to private accounts through reduced benefits, increased taxes, or both.
On top of that price tag, young people would also confront new risks associated
with the markets ups and downs, future inflation, and administrative and
annuitization costs. A recent New York Times analysis calculated that over a
lifetime, a medium-wage worker participating in a Bush-style privatization plan
would retire with an account worth only a total $100,000. Even those who paid
the maximum in payroll taxes would have only $140,000.
Todays Social Security has been enormously effective in reducing poverty
among the elderly, protecting relatives of deceased workers and the disabled,
and providing a reliable source of retirement income. Social Securitys
long-term financing challenges can be met through relatively minor adjustments,
which would enable future generations to count on a program that would serve
them as well as it has todays retirees and generations before them.
The modest changes required to keep Social Security payments at the current
rate, adjusted for inflation, lack the sex appeal of privatization. That may
be because privatization proponents are telling only half the story. But isnt
the truth the least one generation owes the next? Forget the accounting tricks.
The bottom line is that we areand, one hopes, always will bein this
together.
Richard C. Leone is president of The Century Foundation and co-editor of
Beyond the Basics: Social Security Reform. Libby Perl is a program officer at
The Century Foundation. This article originally
appeared in the February 2005 issue of The American Prospect.
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