2% is a lot! There's only fifty things you can invest 2% of GDP in before you occupy the entire economy. But the list of services people need, from food, water, shelter, heating, transportation, education, healthcare, communications, entertainment, mining, materials, construction, research, maintenance, legal services... there's a lot of things on that list. To allocate each one 1% or 2% of the economy may seem small, but pretty quickly you hit 100%.