Understanding the Social Security Trust FundsFew budgetary concepts generate as much unintended confusion and deliberate misinformation as the Social Security trust funds. Political candidates of both parties accuse their opponents of “raiding” the trust funds.[1] Some writers disparage the trust funds as “funny money,” “IOUs,” or a “fiction.”[2]
All these claims are nonsense. In fact, the Social Security trust funds are invested in Treasury securities that are every bit as sound as the U.S. government securities held by investors around the globe; investors regard those securities as being among the world’s very safest investments. This brief paper provides some basic information about the Social Security trust funds.
How Do the Trust Funds Work?
Social Security’s financial operations are handled through two federal trust funds — the Old-Age and Survivors Insurance (OASI) trust fund and the Disability Insurance (DI) trust fund. Although legally distinct, they are often referred to collectively as “the Social Security trust fund.” All of Social Security’s payroll taxes and other earmarked income are deposited in the trust funds, and all of Social Security’s benefits and administrative expenses are paid from the trust funds.
In years when Social Security collects more in payroll taxes and other income than it pays in benefits and other expenses — as it has each year since 1984 — the Treasury invests the surplus in interest-bearing Treasury bonds and other Treasury securities. Social Security can redeem these bonds whenever needed to pay benefits. The balances in the trust funds thus provide legal authority to pay Social Security benefits when the Social Security program’s current income is insufficient by itself.
What Is the Trust Funds’ Financial Status?
Social Security is adequately financed in the short term but faces a modest long-term financial shortfall amounting to 1.0 percent of gross domestic product (GDP) over the next 75 years, the period that the program’s actuaries use in evaluating the program’s long-term finances.[3] Social Security has run a surplus in every year since 1984, as was anticipated when Congress enacted and President Reagan signed the legislation based on the recommendations of the Greenspan Commission in 1983. The authors of the 1983 legislation purposely designed program financing in this manner to help pre-fund some of the costs of the baby boomers’ retirement.
Under current projections, the combined Social Security trust funds will continue to run annual surpluses until 2020. The interest income that the trust funds earn on their bonds, as well as the proceeds the trust funds will receive when their bonds are redeemed, will enable Social Security to keep paying full benefits until 2033.
In 2033, the combined trust funds are projected to run out of Treasury bonds to cash in. At that point, if nothing else is done, Social Security could still pay more than three-quarters of its scheduled benefits using its annual tax income. Contrary to a common misunderstanding, benefits would not stop. Of course, paying three quarters of promised benefits is not an acceptable way to run the program, and Congress should take action well before 2033 to restore long-term solvency to this vital program.
Most analyses of Social Security focus on the combined OASI and DI trust funds, since both programs are integral parts of Social Security, but the two trust funds are, in fact, separate. The DI trust fund faces exhaustion in 2016, and the much larger OASI fund is projected to last until 2034. Congress must therefore take action before late 2016 to replenish the DI trust fund. Increasing the share of the payroll tax that is allocated to DI (and reducing the OASI share) would assure that both the OASI and DI programs remained solvent through 2033. Congress has reallocated payroll tax revenues many times in the past, and doing so has not been controversial.[4]
How Are the Trust Funds Invested?
The Social Security trust funds are invested entirely in U.S. Treasury securities. Like the Treasury bills, notes, and bonds purchased by private investors around the world, the Treasury securities that the trust funds hold are backed by the full faith and credit of the U.S. government. The U.S. government has never defaulted on its obligations, and investors consider U.S. government securities to be one of the world’s safest investments.
The Treasury securities held by the trust funds have some special features that make them even more attractive investments than other Treasury securities. First, the trust funds’ investments do not fluctuate in value and can always be redeemed at par. Even if the securities must be redeemed early, Social Security is guaranteed not to lose money on its investment. Second, all of the securities purchased by the trust funds — even short-term securities that will mature in one or two years — earn interest at the same rate as medium- and long-term Treasury securities (those not due or callable for at least four years).
By the end of 2013, the trust funds had accumulated nearly $2.8 trillion worth of Treasury securities, earning an average interest rate of 3.8 percent during that year. The annual report of Social Security’s board of trustees lists the specific securities owned by the trust funds, their maturities, and interest rates. The trustees project that the trust funds will earn $99 billion in interest income in 2014.[5]
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Paul N. Van de Water worked for over 18 years at the Congressional Budget Office. From 1994 to 1999 he was Assistant Director for Budget Analysis. In that capacity he supervised the agency’s budget projections, analyses of the President’s budget, cost estimates of legislative proposals, and estimates of the cost of federal mandates on state and local governments. As Deputy Assistant Director for Budget Analysis from 1992 to 1994, he coordinated CBO’s analysis of the Clinton Administration’s health plan and other proposals to reform the financing and delivery of health care.
Van de Water holds an A.B. with highest honors in economics from Princeton University and a Ph.D. in economics from the Massachusetts Institute of Technology.