Fiscal redistribution cycles: four decades of social assistance in the UK

This paper describes the evolution of fiscal redistribution (FR) in the UK through social assistance transfers over the last four decades and the contribution of each of its determinants: budget effort (the share of national income devoted to redistributive transfers) and transfer progressivity (the extent to which these transfers are concentrated on lower-income households). Trends in FR have been driven by a combination of economic and political cycles. Over the 1980s and 1990s, the heavy reliance on means-tested transfers indexed to prices resulted in FR fluctuating over the ‘economic cycle’. Over recent decades, FR has been driven primarily by ‘political cycles’. Under a Labour government (1997–2010), a large expansion of coverage of in-work benefits resulted in an unprecedented, sustained increase in effort which, despite decreasing progressivity, was large enough to ensure a continuous rise in FR. This increase was reversed under a Conservative-led government from 2010 in the context of fiscal austerity, which decreased effort and increased progressivity as remaining transfers were concentrated more on lower-income households. A striking feature over the last four decades has been the sharp decline in FR to the poorest income decile under different political leadership as emphasis has shifted to reducing in-work rather than out-of-work poverty and ‘making work pay’.