2011 고3 10월 어법인데요 왜 답이 2번인지 잘 모르겠어요 ㅠㅠ

21.다음 글의 밑줄 친 부분 중, 어법상 틀린 것은?
democracies require more equality if they are ①to grow stronger. the problem is that globalization pushes in the opposite direction; by placing a premium on high skills that make workers more ②competitively, it increases income inequality between the highly skilled minority and the rest. in this situation, it is not sufficient ③to reduce economic insecurity by expanding the social safety net. instead, a country must begin to make the transition from a welfare state to a workfare state, with an emphasis on creating a more highly skilled labor force and ④improving access to the labor market for women and low‑income youth. to expand job creation, new social policies must also provide better incentives for entrepreneurship and innovation. only then can social policies ⑤be considered key factors of production, beyond their role as instruments of social protection.