So Mr. Bush intends to emulate a plan that helped set the
stage for Argentina's economic crisis.
Borrow, Speculate and Hope
December 10, 2004
By PAUL KRUGMAN
"The National Association of Securities Dealers," The Wall
Street Journal reports, "is investigating whether some
brokerage houses are inappropriately pushing individuals to
borrow large sums on their houses to invest in the stock
market." Can we persuade the association to investigate
would-be privatizers of Social Security?
For it is now apparent that the Bush administration's
privatization proposal will amount to the same thing:
borrow trillions, put the money in the stock market and
hope.
Privatization would begin by diverting payroll taxes, which
pay for current Social Security benefits, into personal
investment accounts. The government, already deep in
deficit, would have to borrow to make up the shortfall.
This would sharply increase the government's debt. Never
mind, privatization advocates say: in the long run, they
claim, people would make so much on personal accounts that
the government could save money by cutting retirees'
benefits. Financial markets won't believe this claim, as
I'll explain in a minute, but let's temporarily grant the
point.
Even so, if personal investment accounts were invested in
Treasury bonds, this whole process would accomplish
precisely nothing. The interest workers would receive on
their accounts would exactly match the interest the
government would have to pay on its additional debt. To
compensate for the initial borrowing, the government would
have to cut future benefits so much that workers would gain
nothing at all.
How, then, can privatizers claim that they could secure the
future of Social Security without raising taxes or reducing
the incomes of future retirees? By assuming that workers
would invest most of their accounts in stocks, that these
investments would make a lot of money and that, in effect,
the government, not the workers, would reap most of those
gains, because as personal accounts grew, the government
could cut benefits.
We can argue at length about whether the high stock returns
such schemes assume are realistic (they aren't), but let's
cut to the chase: in essence, such schemes involve having
the government borrow heavily and put the money in the
stock market. That's because the government would, in
effect, confiscate workers' gains in their personal
accounts by cutting those workers' benefits.
Once you realize that privatization really means government
borrowing to speculate on stocks, it doesn't sound too
responsible, does it? But the details make it considerably
worse.
First, financial markets would, correctly, treat the
reality of huge deficits today as a much more important
indicator of the government's fiscal health than the mere
promise that government could save money by cutting
benefits in the distant future.
After all, a government bond is a legally binding promise
to pay, while a benefits formula that supposedly cuts costs
40 years from now is nothing more than a suggestion to
future Congresses. Social Security rules aren't immutable:
in the past, Congress has changed things like the
retirement age and the tax treatment of benefits. If a
privatization plan passed in 2005 called for steep benefit
cuts in 2045, what are the odds that those cuts would
really happen?
Second, a system of personal accounts, even though it would
mainly be an indirect way for the government to speculate
in the stock market, would pay huge brokerage fees. Of
course, from Wall Street's point of view that's a benefit,
not a cost.
There is, by the way, a precedent for Bush-style
privatization. One major reason for Argentina's rapid debt
buildup in the 1990's was a pension reform involving a
switch to individual accounts - a switch that President
Carlos Menem, like President Bush, decided to finance with
borrowing rather than taxes. So Mr. Bush intends to emulate
a plan that helped set the stage for Argentina's economic
crisis.
If Mr. Bush were to say in plain English that his plan to
solve our fiscal problems is to borrow trillions, put the
money into stocks and hope for the best, everyone would
denounce that plan as the height of irresponsibility. The
fact that this plan has an elaborate disguise, one that
would add considerably to its costs, makes it worse.
And maybe the fact that serious financial experts, the sort
qualified to be Treasury secretary, understand all this is
the reason why John Snow has just been reappointed.
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