One of the most influential
ideas in Washington these days is that Social Security and Medicare are
on the verge of going bust. Earlier this month, Senator Lindsey Graham
warned of the “imminent bankruptcy” of these insurance programs for the
elderly, and Republican leaders are citing the threat of insolvency as a
reason that entitlement reform must be part of any fiscal-cliff deal.
The argument sounds reasonable enough, but it’s really a bid to turn the
great political strength of these programs—the fact that they were
designed to be self-supporting—into a weakness.
Unlike most
government programs, Social Security and, in part, Medicare are funded
by payroll taxes dedicated specifically to them. Some of the tax revenue
pays for current benefits; anything that’s left over goes into trust
funds for the future. The programs were designed this way for political
reasons. When F.D.R. introduced Social Security, he calculated that
funding it through a payroll tax rather than out of general tax revenue
would make people think of the program not as welfare but as an
entitlement—as something that they had paid for and had a right to. Many
liberals initially opposed the idea, because payroll tax rates aren’t
progressive (everyone pays the same rate) and because they tax only
labor income. But the system proved as resilient as F.D.R. had
predicted, and when Lyndon Johnson introduced Medicare, in the
nineteen-sixties, he adopted it, too. Over the years, Social Security
and Medicare taxes have risen sharply, to the point where payroll taxes
account for thirty-six per cent of all federal revenue. Today, most
American households pay more in payroll taxes than in income tax. Yet
there’s little public hostility to these taxes, and the programs they
fund remain enormously popular.
But the trust-fund strategy has an
Achilles’ heel: funds can run out of money. Projections show that,
owing to an aging population and rising health-care costs, the Medicare
Trust Fund will become insolvent in 2024 and Social Security in 2033.
The image of empty coffers is a powerful one: half of all Americans aged
between eighteen and twenty-nine don’t think that Social Security will
exist when they retire. That’s a bizarre thing to believe about an
important government program. No one ever says, “I don’t think the U.S.
Army will be there when I get old” or talks about the Defense Department
“going broke.” We assume that there will always be a need for the
military, and that we’ll end up paying the taxes that are necessary to
fund it. But, because Social Security and Medicare have always been
self-supporting, it’s easy to believe that they’ll just vanish if the
trust funds dry up. This isn’t the case. Relatively minor tweaks to
Social Security will allow it to keep paying full benefits for many
decades. And, if we wanted, we could supplement funding for both
programs with general government revenue. That’s what most European
countries do, and, indeed, parts of Medicare are already paid for out of
general revenue. The only way that Social Security and Medicare can go
“bankrupt” is if we let them.