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Why FDR Called It Social Security, Not Social InvestmentElevated from Diaries "No greater tragedy exists in modern civilization than the aged, worn-out worker who after a life of ceaseless effort and useful productivity must look forward for his declining years to a poorhouse. A modern social consciousness demands a more humane and efficient arrangement." [Albany, N.Y., - February 28, 1929 - Governor Franklin D. Roosevelt, Message to N.Y. State Legislature] If you search through FDR's various speeches on Social Security, the descriptive that comes up most frequently is insurance. Social Security was proposed and established as an insurance program, whereby workers would pool their resources to help those who had already retired so that the elderly could live their remaining lives with a standard of living that at least was better than poverty. When a worker retired, those in the work force would in turn contribute to the program, so that that worker could afford basic shelter, food, and clothing. Insurance programs are by definition efforts to pool risk among many people, and Social Security was in that sense the grandest insurance program imaginable at the time, pooling together the resources of an entire nation of workers and their employers. When Franklin Roosevelt was governor of New York, poverty among the elderly in the United States exceeded 40%. Today the level of poverty among the elderly is around 10%. Social Security has not simply benefited the elderly. It has been a considerable financial benefit to the worker, who now has a nation of co-workers to help support his or her parents in their retirement. What is interesting about Franklin Roosevelt's career as a politician was that he was discussing Social Security well before an economic crisis hit the United States. Notice that his speech to the New York State legislature was in February, 1929, almost eight months to the day when the stock market would crash and herald the onset of the Depression. Poverty among the elderly was well-established before the Depression. The Depression not only made the problem much worse, it sensitized an overwhelming number of workers to the impact of poverty. There are few retirees left who remember the Depression or the stock market crash, and it should be no surprise that Republicans now find the time ripe for attacking Social Security. President Bush's speechwriter Peter H. Wehner recently wrote to Republican officials: "For the first time in six decades, the Social Security battle is one we can win -- and in doing so, we can help transform the political and philosophical landscape of the country. We have it within our grasp to move away from dependency on government and toward giving greater power and responsibility to individuals." It is the essence of Republican orthodoxy that Social Security is a massive give-away program, enfeebling the fiber of all decent Americans by making them dependent on the federal government. These criticisms of Social Security were muttered sotto voce for many years, and only now - when too few seniors can speak in its defense from their personal experience - are they being proclaimed forcefully. Yet Social Security was never viewed by the Roosevelt administration as a federal charity. From inception the assumption behind Social Security was that the federal government was an agent for the American people in managing an insurance program that provided protection against the risk of poverty for those in retirement. As with any insurance program, the more participants who can pay in premiums and share the risk, the sounder the program will be. No private sector insurance company was ever capable of providing such coverage, and while municipal or state governments might have had the means to establish such insurance, they would never have been as efficient as the federal government, with its ability to encompass all workers and employers in one single insurance program. The Bush administration describes the discussion over Social Security as a "battle" that ultimately can transform the American political and philosophical landscape. There is no battle over Social Security. There is instead an attack on Social Security and a deliberate misstatement of its function and purpose. This attack could very well succeed, partly because so few people have any memory of the situation in the U.S. prior to the establishment of Social Security, and partly because a program that collects premiums and pays out insurance proceeds to retired people is today being widely described instead as government welfare wherein FICA taxes are used to create dependency. The second prong of the attack is yet another deception - confusing the American public over the nature of Social Security by making meaningless comparisons to investment vehicles rather than insurance programs. These comparisons are important to the Republican attack on Social Security, because they tie in to the proposed "fix" for the supposed "crisis" Social Security is said to face. That fix is the concept of Personal Retirement Accounts. Individuals can opt to have a portion or perhaps all of their FICA proceeds channeled to their own retirement account, similar to IRA, 401k, or other tax-sheltered investment vehicles. President Roosevelt made it very clear that Social Security was not meant to provide all the retirement needs of American workers. People were still expected to save and invest on their own if they wanted a comfortable retirement. Social Security was intended as a supplement to this private retirement investment income, and the supplement was intended to be enough to keep retired individuals somewhat above the level of subsistence if this was the only income they had. Clearly a significant portion of retired Americans even in the 1920's had not saved enough from their investments to forestall poverty - and this despite a booming stock market at the time. What was wrong with these Americans - or perhaps more importantly - what was wrong with the markets that millions of people could not derive sufficient retirement income strictly from their investments? The problem with most investments is that they have a fixed maturity. Government or corporate bonds, bank CDs, annuities, and similar instruments all are expected to pay out principal and interest by the final maturity date. An investor planning for retirement therefore has to have some sense as to how long he or she will live, and balance risk against return with the goal of generating sufficient investment income throughout their retirement. This is virtually an impossible task for individual investors, who have not only no real knowledge as to how long they will live, but who have to assume for investment purposes that they will live for a very long time. This assumption leads to taking on riskier investments in order to generate the necessary returns for such a long period of time. If an investor expects to live to 90 because both parents lived beyond that date, a portfolio of high yield corporate bonds looks a lot more attractive than a portfolio of government securities, even though the corporate bonds have a much greater risk of default. If however you lump together 200 million Americans into one pool, it becomes much easier to make estimates about how long this pool of Americans will live. Actuarial science is very good at estimating how long people will live on average. Social Security has always relied on actuarial studies to determine its long term pay-out obligations, and the 1983 reforms of Social Security, which led to higher FICA payments by employees and employers, were predicated on actuarial studies used to estimate the longer life-spans of American workers. There is one important investment that has no maturity - equities - and stocks are the favored investment du jour for Republicans touting their Personal Retirement Account proposal for Social Security. One hears that American workers through these accounts will finally have "control" over their retirement investments, and that they will be able easily to beat the paltry 2% annual return offered by Social Security because they will now be able to receive the sure-fire superior returns offered by equities. Never mind that the 2% annual supposed return for Social Security is a meaningless concept when talking about an insurance program. Never mind too that when Republicans talk about the long term returns from the stock market they like to pull out 8% annual or higher numbers that are equally meaningless, partly because these average returns tend to leave out important costs such as brokerage fees. More important, to get to that average you have to look at nearly a century of stock market performance, and over such a long period of time it is easy to overlook long stretches of losing performance by the stock market for anywhere from 15 - 24 years. Heaven help those Americans who are simply bad at investing (which actually describes most Americans), or whose prime productive working and investment years coincide with one of these long stretches of bad performance by the stock market. If these unfortunate investors can't achieve the miracle average return in equities that the Republicans constantly talk about, and if they opt out entirely from Social Security and put all their retirement hope in their investment program, there inevitably will be millions of Americans who will find themselves spending retirement in poverty. This increase in poverty is guaranteed not simply because of these investment problems, but because the United States will have abandoned the powerful tool of shared risk that is possible from an insurance pool consisting of all workers and employers. It is this shared risk which allows Social Security to make payments to each retired worker for as long as they live. This is perhaps the greatest benefit of Social Security - it is lifetime security covering one's basic subsistence requirements. Social Security removes the risk from individual workers of having to generate investment income for as long as they live, and Personal Retirement Accounts shift that burden right back on to the worker. This is why Franklin Roosevelt called it Social Security rather than Social Investment. He knew that workers on their own would struggle to produce enough investment proceeds over their working life to allow them to retire with the basic necessities for as long as they lived. He knew too that only an insurance program could provide such a guarantee, and the broader the participation in that insurance program, the stronger the financial promise would be. The federal government was the only logical choice for managing such a program. Franklin Roosevelt's insights about retirement and the differences between insurance and investments were obvious to many other people in the 1920's and 1930's. Another insight that became established wisdom during that period, and which lasted well into the 1960's, was that the stock market was too risky a place to trust for one's retirement investments. This insight was borne out of many years of wealth destruction by the stock market. It was in the 1970's that Wall Street began to propagate the notion that equities provided superior returns to all other investment alternatives. The academics who first propounded this view were cautious to point out that this superior return was the product of long term averaging, and interregnums of flat or down markets could last many years. This reality became lost in Wall Street's avidity to look at stock market performance as the only true and reliable indicator of a company's success. The Republican Party has adapted this philosophy to the political realm, by placing their trust in the markets as a wiser and more efficient arbiter of social policy than government ever could be. Indeed, you might describe the Republican faith in the markets not simply as a philosophy, but as a form of idolatry. In the current intra-party debate over whether the Bush administration should allow partial or full FICA proceeds to be channeled into Personal Investment Accounts, Newt Gingrich, former Republican House speaker, says "The president should go for a very large account because it's going to take exactly the same amount of energy to get a large account as a small one, and you get a dramatically bigger reward with a large account." In other words, according to the Republican Party leadership, it is guaranteed that you will get superior returns from these Personal Investment Accounts versus opting for traditional Social Security. Therefore, the more you can invest in the account, and the more you can remove from paying into Social Security, the greater your retirement income will be. It is this fallacious reasoning that has brought the Republican Party to an unquestioning faith in Personal Investment Accounts. Unfortunately, allowing any form of Personal Investment Account will ultimately destroy Social Security. If partial FICA allocations are allowed at first, it is only a matter of time before workers pressure government to allow them to invest all FICA proceeds in their Personal Investment Account. And once workers are allowed to opt out of the insurance pool in any form, the integrity of the insurance coverage is compromised. The pay-out assumptions become much more difficult to make, not knowing how many workers are going to elect to pay into the insurance program. At that point, a myth that the Republican Party has been circulating for 20 years - that Social Security will not have enough money to pay out benefits to existing workers when they retire - will become a reality. For the longest time the Democratic Party had millions of supporters behind Social Security because they had a living memory of what life was like without it. Social Security was the "third rail" of politics, but with the passing of the last generation to remember the Depression, the third rail has been de-electrified. The Democrats now have a difficult task in defending Social Security, partly because Americans can't seem to tell the difference between an insurance program and an investment program, and also because most Americans have been in the work force since 1980 and have only known a stock market that has moved up on average 16% a year (at least until the 2000-2002 bear market). For these workers, completely unfamiliar as they are with prolonged bear markets, the Republican Party's siren song of superior stock market returns is almost irresistible. Perhaps Santayana was right - those who fail to remember history are condemned to repeat it. If Social Security is "reformed" by the Republicans, Americans who have no actual memory of large-scale poverty among retired people will now be condemned to relive this experience by slowly demolishing the one program that provides them with lifetime protection against such poverty. The attack on Social Security by the Republican Party is a test of the American public's ability to understand America's history. If this history were well understood, there would be no debate or discussion of Social Security reform and no prospect for Personal Investment Accounts. The Republican Party's proposals would be seen for what they are: an attempt to undermine a basic retirement protection for Americans, based on an irrational distrust of any federal government social program, and a misplaced faith in the markets as an answer for all financial problems. Numerian January 11, 2005 - 1:53pm
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