"Do market economies allocate risk efficiently? If not, what government
policies can improve the allocation of risk? These are classic questions
of economic theory. One celebrated answer comes from the Arrow-
Debreu theory of general equilibrium. This theory teaches that under
certain conditions—in particular, if contingent-claims markets are complete—
the allocation of risk will be Pareto efficient. In other words,
with complete markets, society can let the invisible hand allocate risk.
"This paper explores a deviation from Arrow-Debreu theory that arises
from the fact that not everyone is born at the beginning of time. In an
overlapping-generations economy, markets must be incomplete, because
a person cannot engage in risk-sharing trades with those who are not
yet born. The risks associated with holding capital assets, for instance,
can be shared with others alive at the same time, but they cannot be
shared with future generations. As a result, the allocation of risk need
not be efficient, and government policy may be able to make Pareto
improvements..."
"This approach builds on two traditions. The first is the Arrow-Debreu
theory of general equilibrium. In essence, our thought experiment
opens up all markets that are assumed to exist in Arrow-Debreu theory
but, in fact, cannot exist in an overlapping-generations economy. The
second tradition is the Rawlsian approach to social justice. Our thought
experiment envisions a hypothetical time period in which all generations
are alive in an "original position" behind a "veil of ignorance." In Rawls's
(1971) work on social insurance, the ignorance concerns cross-sectional
uncertainty about one's station in life. Here, the ignorance concerns
time-series uncertainty about whether one is born into a lucky or unlucky
generation.
"This theoretical investigation is motivated by practical issues of public
policy. The government influences the allocation of risk among generations
in many ways, most notably through the social security system.
A benevolent policy maker might try to use these instruments to achieve
the allocation of risk that the invisible hand would reach if it could.
That is, the policy maker might try to implement the outcome that
people would achieve on their own if, as in our thought experiment,
they were able to fully trade risks. Our goal, therefore, is not only to
examine how different the world would be with complete markets but
also to discuss how, without such markets, government policy might
substitute for them. This analysis sheds light, for instance, on how the
social security trust fund should be invested and how benefits should
respond to macroeconomic shocks..."
"We find a simple policy that does so: a fully funded social security system in which the system's
trust fund holds equity. In this system, benefits are adjusted in response
to shocks to equity returns to keep the system solvent.
There is, however, more than one way for policy to achieve any given
allocation of risk. Policy makers can also implement the completemarkets
equilibrium if the social security trust fund holds safe debt. Yet
in this system, benefits must be adjusted in what, at first glance, may
seem a surprising way: they must be negatively indexed to equity returns...
"Conclusion...
An obvious but important result from our analysis is the suboptimality
of private retirement accounts—a possible social security reform
that has received much attention in recent years. Private retirement
accounts merely replicate the equilibrium without any intergenerational
risk sharing. That is, private retirement accounts leave all generations
facing more risk than they should.
Another robust conclusion from our analysis is that the government
should spread capital risk among generations in a way that appears
absent from current policy. If equity claims to capital are held privately,
as they are now, then optimal intergenerational risk sharing requires
that social security benefits be negatively indexed to the capital return:
social security benefits should be cut when the stock market is doing
well. In the absence of such negative indexation, the government should
invest the social security trust fund directly in capital. Negative index
ation and government ownership of capital seem to be the only mechanisms
that allow current capital risk to be shared optimally with future
generations.
"Several recent proposals for social security reform have, in fact, included
such provisions. The Clinton administration, for instance, proposed
investing the social security trust fund in equities, as envisioned
in our proposition 4. The negative indexation of benefits to equity
returns may seem less likely, but in fact it is part of the Feldstein proposal
for social security reform (see, e.g., Feldstein and Samwick 1999; Feldstein
and Ranguelova 2001). In this plan, individuals would have private
accounts invested in capital markets; the more they earn in these accounts,
however, the less they would receive in supplemental benefits.
This "clawback" provision, as it is often called, resembles the negative
indexation envisioned in our proposition 5. Either approach could implement
the complete-markets equilibrium, raising the expected welfare
of all generations. In theory, intergenerational risk sharing offers the
prospect of a free lunch.
"Admittedly, given economists' limited understanding of these issues,
it may be too early to jump to policy conclusions. The model in this
paper makes many strong assumptions: individuals within a generation
are homogeneous, capital returns are exogenous, all generations are
the same size, and so on. Addressing real-world issues of social security
reform will require relaxing these assumptions. Fortunately, the concept
of a complete-markets equilibrium—the equilibrium in an overlappinggenerations
model with complete Arrow-Debreu contingent-claims markets
in a Rawlsian original position—is quite general. Future work could
investigate the nature of the complete-markets equilibrium and the institutions
that can implement it in a richer variety of settings."
http://0-www.journals.uchicago.edu.oasys.lib.oxy.edu/JPE/journal/issues/v115n4/10350/10350.web.pdf