Imperial Tribute
A government with budget deficits around 6% of GDP, debt above 120%, and a worker-to-retiree ratio under three is headed for a crisis. In recent years, our model has been to expect that governments will generally choose the path of least resistance from among the options available.
In the spirit of Herman Kahn, we thought it would be useful to make a list. Kahn's approach to difficult problems was to begin with a blank whiteboard and write down every possible solution, even the unlikely ones.
There are basically four ways to solve an overindebtedness problem: cut expenses, grow out of it, broaden the tax base, or keep borrowing and kicking the can.
The government could reduce expenses in two ways: cutting waste and fraud, and through major improvements in public health. Universal Ozempic could save quite a bit of money. But the largest obligations are Social Security and Medicare, and those promises are not even included in that public debt figure that now exceeds 120% of GDP. An expense cut large enough to materially change the trajectory would amount to a partial default on benefits owed to taxpayers who paid into the system their entire working lives. Outright default on Treasury debt seems even less likely and certainly not the path of least resistance when you issue your own fiat currency.
Growing out of the problem would be the best outcome. Productive investment raises output and helps keep inflation and borrowing costs under control. Recently we have found ourselves thinking that Claude and other large language models may help. LLMs could prove to be a genuine general-purpose technology that raises the economic growth rate via increased productivity.
The demographic backdrop, however, is daunting. If debt is 120% of GDP and the government is running a meaningful primary deficit, growth does not merely have to exceed interest rates. It has to exceed them by enough to offset the primary deficit as well. At 120% debt-to-GDP, every percentage point by which interest rates exceed growth adds roughly 1.2% of GDP to the annual debt burden before accounting for the primary deficit. Growth would have to be extraordinarily strong to solve the problem by itself.
Still, growth is the one genuinely optimistic path. AI is also the one development on the horizon that might allow capital to substitute for workers who were never born. If there is a way out that does not involve financial repression, it runs through productivity.
We also considered a more unconventional solution. Call it "broadening the tax base" by broadening it very far. The Trump administration's National Security Strategy last year placed the combined economic weight of America's treaty allies and partners at roughly $35 trillion, in addition to our own $30 trillion economy. If the United States could somehow collect 5% of that allied output, it would amount to roughly $1.75 trillion per year, about equal to the current deficit.
We jokingly called the idea "Imperial Tribute."
People who dismiss foreign extraction by saying that tariffs just tax Americans are thinking too small. The hegemon does sit on top of an immense foreign income base, and a few percentage points of it really would change everything.
The problem is that Imperial Tribute is really a bet on coercive power: pay, or we hurt you. This year that power was tested at the easy end of the scale and fell short. Iran closed the Strait of Hormuz, mined it, and declared allied shipping a target, and traffic through the strait dropped by more than ninety percent. One medium-sized country, with its leader dead and its territory hit at will, was still able to fight the U.S. to a standstill by closing the Strait of Hormuz with cheap drones and setting off a global fuel crisis.
When Trump asked allies to help reopen the strait, Germany, the UK, Japan, South Korea, Australia and others flatly refused, with Berlin saying it wasn't their war. The junior partners wouldn't even share the burden of a shared-interest oil crisis, let alone hand over a surplus. (And the failed extraction didn't just fail, it produced an oil price spike and higher interest rates on government debt, tightening the overindebtedness spiral.) If the hegemon can be forced to back down by a country with 1% of its GDP, it's over for Imperial Tribute.
The failed attempt would also have highlighted a second problem. Coercive pressure does not merely risk failure. It can backfire. Higher energy prices, weaker growth, and higher interest rates would worsen the fiscal position they were intended to improve.
The closest precedent for taxing sovereign allies is the Delian League. It started as a voluntary alliance, with members paying into a shared fund to defend against Persia. (That's more or less the ancestor of the burden-sharing we now demand from NATO.) Athens turned those payments into tribute, moved the treasury to Athens, spent the money on its own temples, and put down the members who tried to leave. The resentment that built up helped cause the war that ended Athenian power.
Britain taxed India, but Britain governed India, with an army, a civil service, and a hundred years of administration. Even then the take was modest next to the cost of holding the place, and it reversed the moment the navy could no longer back it up. Britain never taxed sovereign France, because nobody can.
The Trump administration strategy paper is not a plan for empire and tribute. It is a plan for pulling back. Its authors say outright that the days of "propping up the entire world order like Atlas are over," and they say it because they already know a coercive surplus cannot be collected.
The U.S. cannot solve a trillion-dollar fiscal problem by directly extracting resources from nominal allies. Reserve currency status, Wall Street intermediation, technology rents, and geopolitical influence may all be worth something. Hegemony is not a fiscal free lunch large enough to close a 6%-of-GDP deficit.
The path of least resistance is inflation, or more exactly financial repression: holding nominal rates below the rate of nominal growth. That is how the country took its debt from about 120% of GDP down to 30% over the thirty-five years after 1945. The bondholder was the designated loser. He lost much of his real principal without a formal default ever occurring.
Inflation is the tax nobody votes on, which is why it is the path of least resistance. Explicit taxes will do some of the work (a point or two of GDP), but they can't close a six-point gap. And inflation is itself a tax, since it quietly raises real revenue through brackets and nominal gains that are not indexed. So taxation and inflation are not really rivals. (See The Missing Billionaires!) They tend to work together.
One thing about our situation is different from the postwar version, and it points to more inflation rather than less. As Carmen Reinhart and M. Belen Sbrancia observed, the postwar liquidation of debt occurred within a system of capital controls, interest-rate restrictions, and regulatory structures that created a captive audience for government debt. The government could repress financial claims gradually because investors had fewer places to go.
Those conditions no longer exist. Capital moves freely. Investors have alternatives. Much of the debt reprices relatively quickly. There is less opportunity to inflate away long-term obligations slowly and only once. The work therefore has to come from either sharper episodes of inflation or from rebuilding some version of the repression machinery.
The only thing that could alter this conclusion is faster economic growth. Even then, a productivity boom would probably not eliminate repression entirely. It would simply improve the arithmetic by widening the gap between growth and interest rates while reducing the primary deficit.
AI may be the one technology capable of putting capital to work in place of the workers who were never born. So far, however, the promised productivity gains from LLMs have not yet appeared in the aggregate data. For now, growth remains a hope rather than a forecast.
The conclusion is that the government will probably run negative real rates against paper claims for a very long time. Growth may help. Taxes may contribute. Entitlements may eventually be trimmed at the margins.
But there are not enough politically feasible claimants available to absorb the adjustment except holders of nominal claims.
For investors, that creates an uncomfortable problem. Bonds are the obvious target of repression, while large public equities increasingly trade at valuations shaped by passive flows and benchmark inclusion. That is why we have spent so much time looking at assets that are too small or too oddly structured to be swept into passive indexes. If the adjustment must fall somewhere, we would rather own the assets that politicians cannot easily print.