Thats the point. Shifting the complete responsibility of retirement saving on middle and low income workers during a 30 year flat wage economy has created a retirement disaster.
The 401k was created for high income executives to defer paying taxes.
This is largely true, and I'd add that the 401K was sold as an ADDITION to the defined benefit pension, not a *replacement* for it. In that sense it has truly been a trojan horse.
It's easy for people with higher incomes and "simple tastes" to simply say it's the workers' own fault for not maxing out their 401Ks, starting at an early age; it is true that those who did that in their 20s and 30s and just let it ride in a stock index fund will likely be just fine. But how hard is it to do that on a moderate income, dealing with mortgages, flat wages, kids, college funds , student loan debt...
I was lucky. The 401K worked well for me, even after my first Megacorp froze my pension. With no student loan debt and solid savings coming out of college (one perk for living with your parents and going to a state commuter school with a part-time job on the side), I was able to be pretty aggressive with it, saving close to 10% in my early 20s and getting that up to the maximum they would allow at the time (12%) in my late 20s and early 30s. After that I was putting in maybe 13-15% a year until the day I was whacked. Next thing I knew, I was a millionaire on paper, the "millionaire next door", thanks to my 401K investments since the late 1980s.
So it can work... but it requires a discipline few 20- and 30-somethings have.... and a fair bit of luck. I also had luck that both Megacorps had pretty generous matches. (M1 gave 60 cents on the dollar for the first 8%; M2 matched dollar for dollar up to $5K per year, and who doesn't like free money?) This is what helped me rest easy when I was laid off. I don't even need to touch it for income, but if push comes to shove, I can 72(t) some or all of it.
That all said, I won't take the "if I can do it, so can everyone else" road. I had a lot of luck and a perfect storm of variables where the winds blew in my favor.