Paul Ryan’s widely discussed budget proposal prominently features several charts designed to emphasize the severity of our budget problems. It’s easy to remember these long-term forecasts by using a lot of 80s: in 2080, government spending is projected to be a little less than 80 percent of GDP, and accumulated debt is projected to be over 800 percent of GDP.
The one thing that I can state with some confidence about these specific forecasts is that they are wrong. In the real world, something — either more prudent management of our federal fiscal affairs, or else a painful and destabilizing crash — will intervene.
The long-term forecasts, however, illustrate the crucial point that we are sitting on the mother of all bubbles. Many, probably most, Americans anticipate a stream of consumption that will be provided for them into old age by the government (i.e., other taxpayers). Unfortunately, most American taxpayers do not anticipate the kind of enormous increase in taxes that would be required to pay for this stream of benefits. One or both of these expectations will not be met. Americans as a whole are simply less wealthy, in the most useful sense of rationally anticipatable future material consumption, than they think they are. And the size of this disconnect is vastly greater than, for example, the size of the housing-price bubble that just popped.
The only good news is that most of this unfunded spending anticipated under current law is decades away. This matters a lot. If we faced a total collapse of our economy 75 years from now, but could keep pushing the deadline out by about one year per year, it would remain theoretical.
But the bad news is that, in this instance, the combination of the debt we have just put on our balance sheet, plus the deficits that are scheduled to be created by these programs over the next 10 to 20 years, means that we need to confront this problem soon. We have increased public debt from about 40 percent of GDP in 2005 to about 70 percent of GDP by the end of this year; and we are projected to exceed the historical peak debt of about 100 percent of GDP (achieved at the close of World War II) within the next 15 years; thereupon we enter uncharted territory.
The borrowing capacity of the U.S. government is vast, but it is not limitless. At some point that nobody can predict, we will not be able to borrow enough to continue spending n the manner that current law assumes without extremely large negative effects. This is the way the bubble will very likely pop, if we let it come to that: a funding crisis for the U.S. government. This is very unlikely in 2011, or 2012 or 2013; but over 20 years, we are playing with fire. In essence, we don’t need to care that much about the projections for 2080, because long, long before that, we’re going hit the wall, unless we somehow address the problem.
The rational goal is to push the point of crisis out well beyond the current planning horizon. There is no “long-term solution” that can ever be achieved by any budget deal. In the end, the ballast in the entitlement and budgeting system that prevents it from going haywire in the long run is the good sense of the American electorate. That’s why neither the conservative emphasis on the character of the people, nor the progressive focus on maintaining social consent for the capitalist system, is entirely misplaced.
The ball we need to keep our eye on is not so much the theoretical ultimate cost, as how much time we have left before we crash. We should want a set of entitlement rules that we believe to be sustainable in perpetuity, but we need to push out the date at which we would have a crisis.
As a result, I think that a lot of the discussion of the Ryan plan, and of President Obama’s speech, has missed the point because it has been excessively focused on statements about what “we” will do many years from now. Setting a general direction and showing that it is possible to get tax receipts to equal expenditures is helpful in creating political momentum. It is also useful in that, on the margin, it can get lenders to the U.S. Treasury to be more comfortable with the safety of their investment.
But beyond this, long-term targets are mostly a sound-and-light show, because we can’t really control today what spending and taxation levels will be in 2065 or something, as each future Congress can change whatever it wants. These out-year targets are very much like proposed laws that would “guarantee” that carbon dioxide emissions will be 80 percent below today’s level in 2050. They will, unless and until that future electorate decides that they don’t want to forgo the economic consumption that this would require any more than we do in 2011.
A real plan to address our debt problems, then, should focus on two key elements: (1) putting in place mechanisms for influencing future legislatures that we cannot command, and (2) enacting structural reforms that will simultaneously encourage general economic growth as they do this.
One thing that helps to address the first requirement is to try to establish enduring public opinion, which is the primary real benefit of the debate and long-term targets that I referenced above, as this will hopefully have some effect on the political landscape confronting Congress for years. Another is to force some real spending cuts now, not just in the future, which affects both the future baseline and mindset. But the most important thing is to change the rules of the game. That is, to tilt the playing field so as to bias the system toward reducing deficits as compared to the current system each year. Of course, there are no absolutes — anything can be changed by a future Congress, or if necessary, via constitutional amendment. The goal of the policymaker who wants to deflate the bubble is to make it much harder to do this than simply by passing a budget with X instead of Y dollars for some purpose. Paul Ryan is a skilled budget technician, and seems to me to have prioritized a number of features that will help to serve this purpose. This is the boring, nerdy-sounding stuff like “Create a budget point of order against legislation that would increase net mandatory spending beyond the ten-year window of the budget resolution,” and “Close the loophole that allows discretionary limits to be circumvented through advance appropriations” that form much of the guts of the plan.
The second requirement is that the plan should look hard for two-fers that create structures that both help the deficit problem, but also help growth in the long-term. One example of this is to get the tax code simpler and broader. Reducing or eliminating a large number of deductions (business and personal), convoluted subsidies and so on, not only helps with the short-term debt problem, but should help the economy grow over time by getting rid of distortions. This is a major emphasis of the sensible Bowles-Simpson report, and there are numerous (too timid in my view, but I don’t have to get elected to anything) instances of this in the Ryan plan, such as reform of the corporate tax structure, eliminating some agricultural and energy subsidies, and winding down government sponsorship of the mortgage lending business. Another example is decentralizing decision-making through exactly the kind of block grants of Medicaid and “voucherization” (in the conceptual sense, via premium support) of Medicare that Ryan has proposed. Rates and spending levels can always be changed back in the face of inevitable future “crises,” but structures are much harder to undo. Again, this can be used to get costs down short-term, but their major benefit is helping growth decades out. The silver lining of this crisis is that by being honest with ourselves about our current situation, we can hopefully establish a practical platform for future growth and prosperity.
Paul Ryan’s willingness to stand up and provide a comprehensive and understandable projection of balanced total inflows and outflows for the U.S. federal government is what marks him as serious about this problem; but the specific proposals to reduce spending now, to change the rules of the game, and to restructure the welfare state in ways that will encourage long-term growth, are what make the Ryan plan serious.
Ideally, these various strands would be combined by a national leader into an overall program that combines a long-term vision, sustained public support, changed rules of the game, and institutional structures designed for the 21st century rather than the 20th to partially lock-in a program over a long period of time. A great model for doing exactly this is the combination of FDR’s brilliant political messaging, the creation of powerful rent-seeking constituencies, and laws that set benefit changes on autopilot unless Congress proactively changes them (rather than, for example, demanding “zero based” budgeting for Social Security each fiscal year), that created the entitlement system that we are now trying to reform. All products of human agency have a finite lifespan. Like the FDR vision of the entitlement state that now appears to be in its death throes, whatever we put in place will eventually become antiquated and have to be replaced. Our job is to make sure that this happens 75 years from now, not 10 years from now.
Should we take anything you have to say seriously about budget matters since you were spectacularly wrong regarding TARP?
Reply to this commentLinkReport AbuseThere is an underlying issue that poisons any proposal to solve the problem, whether the proposal is economically viable or not: "We." The issue of "we" was identified by someone at NRO (Derb?) a year or two ago. It relates to the biggest problem, entitlements. Here's the skinny:
At the time Social Security was created, the aging population and the younger population were sociologically and ethnically continuous. The immigration deluge of the pre-WWI era had halted. The people who were aging were the parents and grandparents of the workers. never mind that the LOL down the street was not your own grannie; she was someone like you, the grandmother of someone who was in many ways like yourself.
Nowadays, that is no longer true. The baby bust of those people already living in the USA, along with the new immigration deluge (educated or not, legal or not, no relevance) means that the elderly generation are no longer the mirror of the working generation. That LOL down the street is not your grannie, and she's not the grandmother of anyone like yourself. Why not throw her under the bus?
Reply to this commentLinkReport AbuseJim's position on TARP was that it was necessary to avert an absolute crisis in the short term, but that vigilance was needed to make sure it was not then abused. The former is at this point non-falsifiable, and the latter is manifestly true. What did he get "spectacularly wrong"?
Thought-provoking stuff as always, Jim!
Reply to this commentLinkReport AbuseThe Social Security System was created during the Great Depression. It was never meant to be a "retirement" plan. It was a plan designed to keep the elderly from starving, and to have a roof over their head. It wasn't for granny to move to a condo in Boca; it was to allow granny to help out with the expenses when she moved in with other family members.
Retirement is expensive; if I want high-end creature comforts I expect to keep working, or latch onto a great retirement plan. If not, I see a 1 bedroom, 2-story walk-up apartment in my future.
Reply to this commentLinkReport AbuseManzi writes that long-term fiscal sanity rests upon "the good sense of the American electorate."
So that means we already know the outcome: Game over.
Besides the electorate's adamant stupidity in 2008 [see below], there's the electorate's dedicated (and getting worse) long-term ignorance.
Things like thinking that foreign aid is a major factor in the federal budget. (As policy, I would zero it out, but it's insignificant financially).
Things like the incessant complaint that "Congress stole the money in the Social Security Trust Fund!" (From the start in the late 1930s, the money collected for FICA and not paid out in immediate benefits was to be used in general operations of the federal government, with IOUs written to the "trust fund," making the trust fund an accounting device, not an economic resource. Congress stole nothing, although they can reasonably be charged with having used the money foolishly.)
Regarding 2008, an amazing fraction of that supposedly sensible American electorate was snookered by Wonderboy, even though his proclivities were clear to anyone paying attention.
But before that, the fact that McCain got the Repub nomination was a direct result of the stupidity of Repub voters in Florida's winner-take-all Repub primary: This coterie of idiots was actually able to think that McCain was strong on border security, and McCain edged out Romney with about 33% of the vote to Romney's 32 or 31%.
Not that average Florida voters are arguably any stupider and more careless than average voters in any other state. It's just that they were in the crucial spot in 2008.
And, more generally, with the tidal wave of low-skilled, little-educated immigrants from countries with histories of abysmal governance (and zero history of responsible self-government), the quality of the American electorate is just growing worse over time.
Reply to this commentLinkReport AbuseTARP passed because of the "armageddon scenario" that Paulson and Bernanke presented to Congress behind closed doors in September 2008. No GOP member of Congress who voted for TARP barely two weeks later did so in bad faith-- they did so because they were told, in the CLEAREST POSSIBLE TERMS, that failure to pass the TARP would lead to an widespread collapse of the financial sector, not in 2009, not today, but in a *matter of days*.
Did TARP work to avert that scenario? We will never know-- it's *impossible* to know, especially since so much of American and global finance is tied to psychological perception and irrational mood swings. Had TARP failed to pass, perhaps the banking sector would have survived-- rationally, we know today, it *SHOULD* have survived-- but given the paranoia of the moment, it is *equally* as likely that the international bond market and U.S. stock market would have overreacted to the armageddon scenario.
It was an emergency, and the smartest economists we knew were holding a gun to America's head. To me, any member of Congress who DIDN'T vote for TARP based on those circumstances at the time was frankly irresponsible.
No, the true unfortunate circumstance is not implementing a more effective sunset provision into TARP, and explicit rules against redirection of any of the TARP funds. Once the situation stabilized-- or once we knew the situation wasn't nearly as bad as EVERYONE had feared-- then TARP should have gone away.
THAT was the logical position, and I say that as a complete economic conservative. I would not have built the financial system this nation had in September 2008-- no conservative would-- but at the moment of fear, one can't simply wish for a different scenario, one has to deal with the situation at hand.
But sure, go ahead, keep riding that "Voting for TARP" deal as a conservative litmus test. Good luck with that.
Reply to this commentLinkReport Abuse@Dave
great points..
Reply to this commentLinkReport AbuseI am not an expert like Mr Manzi, but the US Governments borrowing regime is already following apart. Our current borrowing is being underwritten by the Fed monetizing our debt (ie we're printing money when the Fed buys our bonds).
The budget deficit is $1.67 trillion this year, that is 2.5% of world GDP. Maybe Mr Kudlow or some NRO person with more economic sense than I can jump in here but my understanding is that the cliff that Obama is driving us towards is not years away but just around the corner.
Reply to this commentLinkReport AbuseThe wisdom of the American people can save us in the long run. The majority of Americans are now skeptical of global warming despite years of propaganda.
Dagger!
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