We already don’t have a surplus in payroll taxes, and will in a decade or two run out of the money already lent to the general fund. Still, that money has already been allocated and Americans have been paying for it specifically. If congress meant otherwise, they should have included it as a benefit paid for via taxes, but they didn’t set t up that way at all.
Congress only "means" what makes them look good for the next election cycle. But sooner or later, either benefits will have to be cut, or taxes raised. Either way Congress won't be able to do what they said they could do.
