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The Single-Tier State Pension: Part 1 of the Draft Pensions Bill

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The Single-Tier State Pension: Part 1 of the Draft Pensions Bill House of Commons Work and Pensions Committee The Single-tier State Pension: Part 1 of the draft Pensions Bill Fifth Report of Session 2012–13 Volume II Additional written evidence Ordered by the House of Commons to be published 26 March 2013 Published on 4 April 2013 by authority of the House of Commons London: The Stationery Office Limited The Work and Pensions Committee The Work and Pensions Committee is appointed by the House of Commons to examine the expenditure, administration, and policy of the Department for Work and Pensions and its associated public bodies. Current membership Dame Anne Begg MP (Labour, Aberdeen South) (Chair) Debbie Abrahams MP (Labour, Oldham East and Saddleworth) Mr Aidan Burley MP (Conservative, Cannock Chase) Jane Ellison MP (Conservative, Battersea) Graham Evans MP (Conservative, Weaver Vale) Sheila Gilmore MP (Labour, Edinburgh East) Glenda Jackson MP (Labour, Hampstead and Kilburn) Stephen Lloyd MP (Liberal Democrat, Eastbourne) Nigel Mills MP (Conservative, Amber Valley) Anne Marie Morris MP (Conservative, Newton Abbot) Teresa Pearce MP (Labour, Erith and Thamesmead) The following Members were also members of the Committee during the Parliament: Harriett Baldwin MP (Conservative, West Worcestershire), Andrew Bingham MP (Conservative, High Peak), Karen Bradley MP (Conservative, Staffordshire Moorlands), Ms Karen Buck MP (Labour, Westminster North), Alex Cunningham MP (Labour, Stockton North), Margaret Curran MP (Labour, Glasgow East), Richard Graham MP (Conservative, Gloucester), Kate Green MP (Labour, Stretford and Urmston), Oliver Heald MP (Conservative, North East Hertfordshire), Sajid Javid MP (Conservative, Bromsgrove), Brandon Lewis MP (Conservative, Great Yarmouth) and Shabana Mahmood MP (Labour, Birmingham, Ladywood) Powers The Committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the internet via www.parliament.uk. Publications The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the internet at www.parliament.uk/workpencom. The Reports of the Committee, the formal minutes relating to that report, oral evidence taken and some or all written evidence are available in a printed volume. Committee staff The current staff of the Committee are Carol Oxborough (Clerk), David Foster (Committee Media Adviser), James Clarke (Inquiry Manager), Judy Goodall (Committee Specialist), Daniela Silcock (Committee Specialist), Emma Sawyer (Senior Committee Assistant), Hannah Beattie (Committee Assistant). Contacts All correspondence should be addressed to the Clerk of the Work and Pensions Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 2839; the Committee's email address is [email protected] 3 List of additional written evidence (published in Volume II on the Committee’s website www.parliament.uk/workpencom) 1 Aegon Ev w1 2 Aon Hewitt Ev w2 3 aquilaheywood Ev w6 4 Aviva Ev w8 5 British Australian Pensioner Association Inc. Ev w10 6 Civil Service Pensioners' Alliance Ev w12 7 Citizens Advice Ev w14 8 EEF Ev w17 9 Madeline Fox Ev w20 10 GMB Ev w21 11 Stephen Hawley Ev w23 12 Hymans Robertson Ev w24 13 International Consortium of British Pensioners Ev w27 14 Anthony VT Johnson Ev w28 15 Lynne Johnson Ev w29 16 Jill Klee Ev w30 17 Mercer Ltd Ev w31 18 National Federation of Occupational Pensioners Ev w34 19 National Pensioners Convention Ev w36 20 James Nelson Ev w39 21 Pensions Action Group Ev w43 22 Sheila Telford, Chairman, Canadian Alliance of British Pensioners Ev w44 23 Police Federation of England and Wales Ev w45 24 Public and Commercial Services Union Ev w47 25 National Union of Rail, Maritime and Transport Workers Ev w48 26 Anne Street Ev w50 27 Towers Watson Ev w51 28 UNISON Ev w56 29 Unite Ev w56 30 Tony Lynes Ev w61 cobber Pack: U PL: COE1 [SO] Processed: [28-03-2013 14:35] Job: 028249 Unit: PG01 Source: /MILES/PKU/INPUT/028249/028249_w016_027607_w002_JH_DPB02 - Jill Klee.xml Work and Pensions Committee: Evidence Ev w1 Written evidence Written evidence submitted by Aegon Summary 1. Aegon is broadly supportive of the proposed changes to the state pension. They should make a major contribution to reducing dependency on income-related (ie means tested) benefits and thus provide a better foundation for private saving. 2. Means testing will not be entirely eliminated, however. The impact of Housing Benefit, in particular, could continue to erode the value of private savings for many people. 3. It will be important that the reforms are seen to be fair in how they take account of previous National Insurance (NI) contributions and existing entitlements. The White Paper and the Draft Bill give rise to a number of issues around the treatment of those who have been self-employed or who have contracted out of the State Second Pension (S2P) for significant periods. 4. The changes also need to be communicated effectively and widely understood in order for any beneficial impact in terms of encouraging private saving to be realised. Means-testing 5. The reforms proposed in the White Paper and the Draft Bill will ensure that many more people get a higher state pension as of right, without having to claim means tested uplift. This is a welcome advance in many respects. 6. The current extent of means testing in retirement means that many people currently face real disincentives to save. Many more people, for whom it would be beneficial to save, worry that they will not see the full benefit of that saving and are so also deterred. 7. As the Government has suggested, removing these disincentives will help underpin the reform of private pensions: greater certainty around what to expect from the state, combined with the requirement for employers to contribute, means that for those being automatically enrolled into a private pension now and over the coming years, it will nearly always “pay to save”. 8. It is important to note, however, that the issue of means testing in retirement is not solely a “pensions” issue. Housing Benefit and Council Tax Benefit, for example, also play a significant role for many pensioners. 9. We have not examined in detail the Government’s proposals for reform to these and other means tested benefits. Most of the debate has been around the impact on working age households. There will be important impacts on both existing pensioners and, in terms of their incentives to save while they remain in the workforce, those who will be eligible for the new single-tier pension. We hope the Committee will examine these issues and ensure they are given sufficient weight in scrutinising both these reforms and changes to the welfare system. 10. As always with issues around means testing, a balance will need to be drawn between targeting assistance where it is most needed, and ensuring that the value of private saving is not unduly eroded. Accrued Entitlements 11. Perhaps the biggest single issue the reforms set out in the Draft Bill need to address, is how to account fairly for existing entitlements and National Insurance contributions as we effect the transition from the current system to the new. 12. It is in everyone’s interests that the state pension framework is stable and commands wide public confidence. For that to be the case, it needs to be fair, and to be seen to be fair. 13. There are two distinct but related concerns in the way the Bill takes into account previous National Insurance contributions. The Self-employed 14. Under the current system, National Insurance contributions (NICs) made by the self-employed have not counted towards Additional State Pension (SERPS or S2P). Under the proposed new system, however, pre- commencement qualifying years appear to count towards the new single-tier pension in exactly the same way as those for employed persons. 15. While this may be interpreted as a generous extension of the benefits of a full state pension, it also raises questions around the existing disparity between the rates of National Insurance paid by employed and self- employed people. While this is properly a matter for the Treasury and subsequent Budgets, we feel it would be useful for the Committee to examine the Government’s intentions in this area. cobber Pack: U PL: COE1 [E] Processed: [28-03-2013 14:35] Job: 028249 Unit: PG01 Source: /MILES/PKU/INPUT/028249/028249_w016_027607_w002_JH_DPB02 - Jill Klee.xml Ev w2 Work and Pensions Committee: Evidence Contracted-out Benefits 16. It is not clear to us how the “contracted-out reduction” (Schedule 1, Part 2, paragraph 5 of the Draft Bill) will operate. We would welcome further clarity on this point and hope that the Committee will press Ministers and officials on this point. 17. The formulation in the White Paper and the Draft Bill appears to allow those with existing entitlements in contracted-out schemes effectively to “bank” those benefits and continue to build up (post-commencement) qualifying years for the single-tier state pension. This could result in their qualifying for the full amount of the single-tier pension, while also receiving the benefits of their contracted-out contributions via their contracted- out scheme. 18. Those who have spent the same period contracted in and paying full National Insurance contributions are subject to different transitional treatment. Those with an S2P entitlement may be entitled already to more than the new single pension and again can “bank” this. They do not, however, then receive any further state pension entitlement for future years of NI payments. 19. The way in which the contracted-out reduction is determined will have a bearing on relative outcomes. Communication of the Reforms 20.
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