WASHINGTON -- What we're seeing in Greece is the death spiral of the
welfare state. This isn't Greece's problem alone, and that's why its
crisis has rattled global stock markets and threatens economic recovery.
Virtually every advanced nation, including the United States, faces the
same prospect. Aging populations have been promised huge health and
retirement benefits, which countries haven't fully covered with taxes.
The reckoning has arrived in Greece, but it awaits most wealthy
societies.
Americans dislike the term "welfare state" and substitute the bland
word "entitlements." The vocabulary doesn't alter the reality. Countries
cannot overspend and overborrow forever. By delaying hard decisions
about spending and taxes, governments maneuver themselves into a cul de
sac. To be sure, Greece's plight is usually described as a European
crisis -- especially for the euro, the common money used by 16 countries
-- and this is true. But only up to a point.
Euro coins and notes were introduced in 2002. The currency clearly
hasn't lived up to its promises. It was supposed to lubricate faster
economic growth by eliminating the cost and confusion of constantly
converting between national currencies. More important, it would promote
political unity. With a common currency, people would feel "European."
Their identities as Germans, Italians and Spaniards would gradually
blend into a continental identity.
None of this has happened. Economic growth in the "euro area" (the
countries using the currency) averaged 2.1 percent from 1992 to 2001 and
1.7 percent from 2002 to 2008. Multiple currencies were never a big
obstacle to growth; high taxes, pervasive regulations and generous
subsidies were. As for political unity, the euro is now dividing
Europeans. The Greeks are rioting. The countries making $145 billion of
loans to Greece -- particularly the Germans -- resent the costs of the
rescue. A single currency could no more subsume national identities than
drinking Coke could make people American. If other euro countries
(Portugal, Spain, Italy) suffer Greece's fate -- lose market confidence
and can't borrow at plausible rates -- there would be a wider crisis.
But the central cause is not the euro, even if it has meant Greece
can't depreciate its own currency to ease the economic pain. Budget
deficits and debt are the real problems; and these stem from all the
welfare benefits (unemployment insurance, old-age assistance, health
insurance) provided by modern governments.
Countries everywhere already have high budget deficits, aggravated by
the recession. Greece is exceptional only by degree. In 2009, its budget
deficit was 13.6 percent of its gross domestic product (a measure of its
economy); its debt, the accumulation of past deficits, was 115 percent
of GDP. Spain's deficit was 11.2 percent of GDP, its debt 56.2 percent;
Portugal's figures were 9.4 percent and 76.8 percent. Comparable figures
for the United States -- calculated slightly differently -- were 9.9
percent and 53 percent.
There are no hard rules as to what's excessive, but financial markets
-- the banks and investors that buy government bonds -- are obviously
worried. Aging populations make the outlook worse. In Greece, the
65-and-over population is projected to go from 18 percent of the total
in 2005 to 25 percent in 2030. For Spain, the increase is from 17
percent to 25 percent.
The welfare state's death spiral is this: Almost anything governments
might do with their budgets threatens to make matters worse by slowing
the economy or triggering a recession. By allowing deficits to balloon,
they risk a financial crisis as investors one day -- no one knows when
-- doubt governments' ability to service their debts and, as with
Greece, refuse to lend except at exorbitant rates. Cutting welfare
benefits or raising taxes all would, at least temporarily, weaken the
economy. Perversely, that would make paying the remaining benefits
harder.
Greece illustrates the bind. To gain loans from other European
countries and the International Monetary Fund, it embraced budget
austerity. Average pension benefits will be cut 11 percent; wages for
government workers will be cut 14 percent; the basic rate for the value
added tax will rise from 21 percent to 23 percent. These measures will
plunge Greece into a deep recession. In 2009, unemployment was about 9
percent; some economists expect it to peak near 19 percent.
If only a few countries faced these problems, the solution would be
easy. Unlucky countries would trim budgets and resume growth by
exporting to healthier nations. But developed countries represent about
half the world economy; most have overcommitted welfare states. They
might defuse the dangers by gradually trimming future benefits in a way
that reassured financial markets. In practice, they haven't done that;
indeed, President Obama's health program expands benefits. What happens
if all these countries are thrust into Greece's situation? One answer --
another worldwide economic collapse -- explains why dawdling is so
risky.