Since 2019, UK personal taxes (income tax and national insurance) have been increasing as a proportion of incomes and total tax revenues have been increasing as a proportion of GDP. However, in his Autumn Statement of 22 November, the Chancellor, Jeremy Hunt, announced a 2 percentage point cut in the national insurance rate for employees from 12% to 10%. The government hailed this as a significant tax cut. But, despite this, taxes are set to continue increasing. According to the Office for Budget Responsibility (OBR), from 2019/20 to 2028/29, taxes will have increased by 4.5 per cent of GDP (see chart below), raising an extra £44.6 billion per year by 2028/29. One third of this is the result of ‘fiscal drag’ from the freezing of tax thresholds.
According to the OBR
Fiscal drag is the process by which faster growth in earnings than in income tax thresholds results in more people being subject to income tax and more of their income being subject to higher tax rates, both of which raise the average tax rate on total incomes.
Income tax thresholds have been unchanged for the past three years and the current plan is that they will remain frozen until at least 2027/28. This is illustrated in the following table.
If there were no inflation, fiscal drag would still apply if real incomes rose. In other words, people would be paying a higher average rate of tax. Part of the reason is that some people on low incomes would be dragged into paying tax for the first time and more people would be paying taxes at higher rates. Even in the case of people whose income rise did not pull them into a higher tax bracket (i.e. they were paying the same marginal rate of tax), they would still be paying a higher average rate of tax as the personal allowance would account for a smaller proportion of their income.
Inflation compounds this effect. Tax bands are in nominal not real terms. Assume that real incomes stay the same and that tax bands are frozen. Nominal incomes will rise by the rate of inflation and thus fiscal drag will occur: the real value of the personal allowance will fall and a higher proportion of incomes will be paid at higher rates. Since 2021, some 2.2 million workers, who previously paid no income taxes as their incomes were below the personal allowance, are now paying tax on some of their wages at the 20% rate. A further 1.6 million workers have moved to the higher tax bracket with a marginal rate of 40%.
The net effect is that, although national insurance rates have been cut by 2 percentage points, the tax burden will continue rising. The OBR estimates that by 2027/28, tax revenues will be 37.4% of GDP; they were 33.1% in 2019/20. This is illustrated in the chart (click here for a PowerPoint).
Much of this rise will be the result of fiscal drag. According to the OBR, fiscal drag from freezing personal allowances, even after the cut in national insurance rates, will raise an extra £42.9 billion per year by 2027/28. This would be equivalent of the amount raised by a rise in national insurance rates of 10 percentage points. By comparison, the total cost to the government of the furlough scheme during the pandemic was £70 billion. For further analysis by the OBR of the magnitude of fiscal drag, see Box 3.1 (p 69) in the November 2023 edition of its Economic and fiscal outlook.
Support measures during the pandemic and its aftermath and subsidies for energy bills have led to a rise in government debt. This has put a burden on public finances, compounded by sluggish growth and higher interest rates increasing the cost of servicing government debt. This leaves the government (and future governments) in a dilemma. It must either allow fiscal drag to take place by not raising allowances or even raise tax rates, cut government expenditure or increase borrowing; or it must try to stimulate economic growth to provide a larger tax base; or it must do some combination of all of these. These are not easy choices. Higher economic growth would be the best solution for the government, but it is difficult for governments to achieve. Spending on infrastructure, which would support growth, is planned to be cut in an attempt to reduce borrowing. According to the OBR, under current government plans, public-sector net investment is set to decline from 2.6% of GDP in 2023/24 to 1.8% by 2028/29.
The government is attempting to achieve growth by market-orientated supply-side measures, such as making permanent the current 100% corporation tax allowance for investment. Other measures include streamlining the planning system for commercial projects, a business rates support package for small businesses and targeted government support for specific sectors, such as digital technology. Critics argue that this will not be sufficient to offset the decline in public investment and renew crumbling infrastructure.
To support public finances, the government is using a combination of higher taxation, largely through fiscal drag, and cuts in government expenditure (from 44.8% of GDP in 2023/24 to a planned 42.7% by 2028/29). If the government succeeds in doing this, the OBR forecasts that public-sector net borrowing will fall from 4.5% of GDP in 2023/24 to 1.1% by 2028/29. But higher taxes and squeezed public expenditure will make many people feel worse off, especially those that rely on public services.
- Fiscal drag
Sky News Politics Hub on X, Sophy Ridge (22/11/23)
- Fiscal drag
Sky News Politics Hub on X, Beth Rigby (22/11/23)
- Autumn Statement 2023 response
IFS, Stuart Adam, Bee Boileau, Isaac Delestre, Carl Emmerson, Paul Johnson, Robert Joyce, Martin Mikloš, Helen Miller, David Phillips, Sam Ray-Chaudhuri, Isabel Stockton Tom Waters, Tom Wernham and Ben Zaranko (22/11/23)
- Autumn Statement: Jeremy Hunt cuts National Insurance but tax burden still rises
BBC News, Brian Wheeler (23/11/23)
- The hidden tax rise in the Autumn Statement
BBC News, Michael Race (23/11/23)
- How is National Insurance changing and what is income tax?
BBC News (23/11/23)
- UK income tax: how fiscal drag leads to people falling into higher rates
The Guardian, Antonio Voce and Ashley Kirk (22/11/23)
- Will I be pulled into a higher tax band? How ‘fiscal drag’ affects your pay
i News, Alex Dakers (23/11/23)
- Fiscal drag could cost high earners £4,000 by 2027
MoneyWeek, Marc Shoffman (16/11/23)
- Why the UK government’s tax cuts still leave workers worse off
CNBC, Elliot Smith (23/11/23)
- National insurance cuts swamped by stealth tax rise, says fiscal watchdog
Financial Times, Emma Agyemang (22/11/23)
- Frozen income tax bands eat into benefits of NI cut, say experts
FT Adviser, Tara O’Connor (23/11/23)
- Jeremy Hunt’s fiscal fudge
Financial Times editorial (22/11/23)
Report and data from the OBR
- Would fiscal drag occur with frozen nominal tax bands if there were zero real growth in incomes? Explain.
- Examine the arguments for continuing to borrow to fund a Budget deficit over a number of years.
- When interest rates rise, how much does this affect the cost of servicing public-sector debt? Why is the effect likely to be greater in the long run than in the short run?
- If the government decides that it wishes to increase tax revenues as a proportion of GDP (for example, to fund increased government expenditure on infrastructure and socially desirable projects and benefits), examine the arguments for increasing personal allowances and tax bands in line with inflation but raising the rates of income tax in order to raise sufficient revenue?
- Distinguish between market-orientated and interventionist supply-side policies? Why do political parties differ in their approaches to supply-side policy?
The Autumn Statement was announced by Jeremy Hunt in Parliament on Thursday 17th November. This was Hunt’s first big speech since becoming Chancellor or the Exchequer a few weeks ago. He revealed to the House of Commons that there will be tax rises and spending cuts worth billions of pounds, aimed at mending the nation’s finances. It is hoped that the new plans will restore market confidence shaken by his predecessor’s mini-Budget. He claimed that the mixture of tax rises and spending cuts would be distributed fairly.
What is the Autumn statement?
The March Budget is the government’s main financial plan, where it decides how much money people will be taxed and where that money will be spent. The Autumn Statement is like a second Budget. This is an update half a year later on how things are going. However, that doesn’t mean it is not as important. This year’s Autumn Statement is especially important given the number of changes in government in recent months. The Statement unfortunately comes at a time when the cost of living is rising at its fastest rate for 41 years, meaning that it is going to be a tough winter for many people.
It was expected that the Statement was not going to be one to celebrate, given that the UK is now believed to be in a recession. The Office for Budget Responsibility (OBR) forecasts that the UK economy will shrink by 1.4% next year. However, Hunt said that his focus was on stability and ensuring a shallower downturn. The Chancellor outlined his ‘plan for stability’ by announcing deep spending cuts and tax rises in the autumn statement. He said that half of his £55bn plan would come from tax rises, and the rest from spending cuts.
The Chancellor plans to tackle rising prices and restore the UK’s credibility with international markets. He said that it will be a balanced path to stability, with the need to tackle inflation to bring down the cost of living while also supporting the economy on a path to sustainable growth. It will mean further concerns for many, but the Chancellor argued that the most vulnerable in society are being protected. He stated that despite difficult decisions being made, the plan was fair.
What was announced?
The government’s overall strategy appears to assume that, by tightening fiscal policy, monetary policy will not have to tighten as much. The hopeful consequence of which is that interest rates will be lower than they otherwise would have been. This means interest-rate sensitive parts of the economy, the housing sector in particular, are more protected than it would have been.
The following are some of the key measures announced:
- Tax thresholds will be frozen until April 2028, meaning millions will pay more tax as their nominal incomes rise.
- Spending on public services in England will rise more slowly than planned – with some departments facing cuts after the next election.
- The state pensions triple lock will be kept, meaning pensioners will see a 10.1% rise in weekly payments.
- The household energy price cap per unit of gas and electricity has been extended for one year beyond April but made less generous, with typical bills then being £3000 a year instead of £2500.
- There will be additional cost-of-living payments for the ‘most vulnerable’, with £900 for those on benefits, and £300 for pensioners.
- The top 45% additional rate of income tax will be paid on earnings over £125 140 instead of £150 000.
- The UK minimum wage (or ‘National Living Wage’ as the government calls it) for people over 23 will increase from £9.50 to £10.42 per hour.
- The windfall tax on oil and gas firms will increase from 25% to 35%, raising £55bn over the period from now until 2028.
The public finances
A key feature of the Autumn Statement was the Chancellor’s attempt to tackle the deteriorating public finances and to reduce the public-sector deficit and debt. The following three charts are based on data from the OBR (see data links below). They all show data for financial years beginning in the year shown. They all include OBR forecasts up to 2025/26, with the forecasts being based on the measures announced in the Autumn Statement.
Figure 1 shows public-sector current expenditure and receipts and the balance between them, giving the current deficit (or surplus), shown by the green bars. Current expenditure excludes capital expenditure on things such as hospitals, schools and roads. Since 1973, there has been a current deficit in most years. However, the deficit of 11.5% of GDP in 2020/21 was exceptional given government support measures for households and business during the pandemic. The deficit fell to 3.3% in 2021/22, but is forecast to grow to 4.6% in 2022/23 thanks to government subsidies to energy suppliers to allow energy prices to be capped. (Click here for a PowerPoint of this chart.)
Figure 2 shows public-sector expenditure (current plus capital) from 1950. You can see the spike after the financial crisis of 2007–8 when the government introduced various measures to support the banking system. You can also see the bigger spike in 2020/21 when pandemic support measures saw government expenditure rise to a record 53.0% of GDP. It has risen again this financial year to a predicted to 47.3% of GDP from 44.7% last financial year. It is forecast to fall only slightly, to 47.2%, in 2023/24, before then falling more substantially as the tax rises and spending cuts announced in the Autumn Statement start to take effect. (Click here for a PowerPoint of this chart.)
Figure 3 shows public-sector debt since 1975. COVID support measures, capping energy prices and a slow growing or falling GDP have contributed to a rise in debt as a proportion of GDP since 2020/21. Debt is forecast to peak in 2023/24 at a record 106.7% of GDP. During the 20 years from 1988/89 to 2007/8 it averaged just 30.9% of GDP. After the financial crisis of 2007–8 it rose to 81.6% by 2014/15 and then averaged 82.2% between 2014/15 and 2019/20. (Click here for a PowerPoint of this chart.)
The government has been keen to stress that Mr Hunt’s statement does not amount to a return to the austerity policies of the Conservative-Liberal Democrat coalition government, in office between 2010 and 2015. However, Labour Shadow Chancellor, Rachel Reeves, said Mr Hunt’s Autumn Statement was an ‘invoice for the economic carnage’ the Conservative government had created. There have also been some comments raised by economists questioning the need for spending cuts and tax rises on this scale, with some saying that the decisions being made are political.
Paul Johnson, the director of the Institute for Fiscal Studies has commented on the plans, stating that the British people ‘just got a lot poorer’ after a series of ‘economic own goals’ that have made a recovery much harder than it might have been. He went on to say that the government was ‘reaping the costs of a long-term failure to grow the economy’, along with an ageing population and high levels of historic borrowing.
Disapproval also came from Conservative MP, Jacob Rees-Mogg, who criticised the government’s tax increases. He raised concerns about the government’s plans to increase taxation when the economy is entering a recession. He said, ’You would normally expect there to be some fiscal support for an economy in recession.’
High inflation and rising interest rates will lead to consumers spending less, tipping the UK’s economy into a recession, which the OBR expects to last for just over a year. Its forecasts show that the economy will grow by 4.2% this year but will shrink by 1.4% in 2023, before growth slowly picks up again. GDP should then rise by 1.3% in 2024, 2.6% in 2025 and 2.7% in 2026.
The OBR predicts that there will be 3.2 million more people paying income tax between 2021/22 and 2027/28 as a result of the new tax policy and many more paying higher taxes as a proportion of their income. This is because they will be dragged into higher tax bands as thresholds and allowances on income tax, national insurance and inheritance tax have been frozen until 2028. Government documents said these decisions on personal taxes would raise an additional £3.5bn by 2028 – the consequence of ‘fiscal drag’ pulling more Britons into higher tax brackets. The OBR expects that there will be an extra 2.6 million paying tax at the higher, 40% rate. This is going to put more pressure on households who are already feeling the impact of inflation on their disposable income.
However, this pressure on incomes is set to continue, with real incomes falling by the largest amount since records began in 1956. Real household incomes are forecast to fall by 7% in the next few years, which even after the support from the government, is the equivalent of £1700 per year on average. And the number unemployed is expected to rise by more than 500 000. Senior research economist at the IFS, Xiaowei Xu, described the UK as heading for another lost decade of income growth.
There may be some good news for inflation, with suggestions that it has now peaked. The OBR forecasts that the inflation rate will drop to 7.4% next year. This is still a concern, however, given that the target set for inflation is 2%. Despite the inflation rate potentially peaking, the impact on households has not. The fall in the inflation rate does not mean that prices in the shops will be going down. It just means that they will be going up more slowly than now. The OBR expects that prices will not start to fall (inflation becoming negative) until late 2024.
The overall tone of the government’s announcements was no surprise and policies were largely expected by the markets, hence their muted response. However, this did not make them any less economically painful. There are major concerns for households over what they now face over the next few years, something that the government has not denied.
It has been suggested that this situation, however, has been made worse by historic choices, including cutting state capital spending, cuts in the budget for vocational education, Brexit and Kwasi Kwarteng’s mini-Budget. It is evident that Britons have a tough time ahead in the next year or so. The UK has already had one lost decade of flatlining living standards since the global financial crisis and is now heading for another one with the cost of living crisis.
- Autumn Statement 2022: Key points at-a-glance
BBC News (17/11/22)
- Autumn statement 2022: key points at a glance
The Guardian, Richard Partington and Aubrey Allegretti (17/11/22)
- Next two years will be ‘challenging’, says Chancellor Jeremy Hunt – as disposable incomes head for biggest fall on record
Sky News, Sophie Morris (18/11/22)
- What the Autumn Statement means for you and the cost of living
BBC News, Kevin Peachey (17/11/22)
- Autumn Statement: Jeremy Hunt warns of challenges as living standards plunge
BBC News, Kate Whannel (17/11/22)
- Autumn Statement: BBC experts on six things you need to know
BBC News (17/11/22)
- Autumn statement 2022: experts react
The Conversation (17/11/22)
- Autumn Statement Special: Top of the Charts
Resolution Foundation, Torsten Bell (18/11/22)
- Jeremy Hunt’s autumn statement is a poisoned chalice for whoever wins the next election
The Conversation, Steve Schifferes (18/11/22)
- UK households face largest fall in living standards in six decades
Financial Times, Delphine Strauss (17/11/22)
- How the autumn statement brought back the ‘squeezed middle’
The Guardian, Larry Elliott (18/11/22)
- The British people ‘just got a lot poorer’, says IFS thinktank
The Guardian, Anna Isaac (18/11/22)
- Autumn Statement: Hunt has picked pockets of entire country, Labour says
BBC News, Joshua Nevett (17/11/22)
- UK government announces budget; country faces largest fall in living standards since records began
CNBC, Elliot Smith (17/11/22)
- The first step to Britain’s economic recovery is to start telling the truth
The Observer, Will Hutton (20/11/22)
- Autumn Statement 2022 response
Institute for Fiscal Studies, Stuart Adam, Carl Emmerson, Paul Johnson, Robert Joyce, Heidi Karjalainen, Peter Levell, Isabel Stockton, Tom Waters, Thomas Wernham, Xiaowei Xu and Ben Zaranko (17/11/22)
- Help today, squeeze tomorrow: Putting the 2022 Autumn Statement in context
Resolution Foundation, Torsten Bell, Mike Brewer, Molly Broome, Nye Cominetti, Adam Corlett, Emily Fry, Sophie Hale, Karl Handscomb, Jack Leslie, Jonathan Marshall, Charlie McCurdy, Krishan Shah, James Smith,
Gregory Thwaites & Lalitha Try (18/11/22)
- What do you understand by the term ‘fiscal drag’?
- Provide a critique of the Autumn Statement from the left.
- Provide a critique of the Autumn Statement from the right.
- What are the concerns about raising taxation during a recession?
- Define the term ‘windfall tax’. What are the advantages and disadvantages of imposing/increasing windfall taxes on energy producers in the current situation?
On March 23, Rishi Sunak, the UK’s Chancellor of the Exchequer, delivered his Spring Statement, in which he announced changes to various taxes and grants. These measures were made against the background of rising inflation and falling living standards.
CPI inflation, currently at 6.2%, is still rising and the Office for Budget Responsibility forecasts that inflation will average 7.4% this year. The poor spend a larger proportion of their income on energy and food than the rich. With inflation rates especially high for gas, electricity and basic foodstuffs, the poor have been seen their cost of living rise by considerably more than the overall inflation rate.
According to the OBR, the higher inflation, by reducing real income and consumption, is expected to reduce the growth in real GDP this year from the previously forecast 6% to 3.8% – a much smaller bounce back from the fall in output during the early stages of the pandemic. Despite this growth in GDP, real disposable incomes will fall by an average of £488 per person this year. As the OBR states:
With inflation outpacing growth in nominal earnings and net taxes due to rise in April, real living standards are set to fall by 2.2 per cent in 2022/23 – their largest financial year fall on record – and not recover their pre-pandemic level until 2024/25.
The Chancellor announced a number of measures, which, he argued, would provide relief from rises in the cost of living.
- Previously, the Chancellor had announced that national insurance (NI) would rise by 1.25 percentage points this April. In the Statement he announced that the starting point for paying NI would rise from a previously planned £9880 to £12 570 (the same as the starting point for income tax). This will more than offset the rise in the NI rate for those earning below £32 000. This makes the NI system slightly more progressive than before. (Click here for a PowerPoint of the chart.)
- A cut in fuel duty of 5p per litre. The main beneficiaries will be those who drive more and those with bigger cars – generally the better off. Those who cannot afford a car will not benefit at all, other than from lower transport costs being passed on in lower prices.
- The 5% VAT on energy-saving household measures such as solar panels, insulation and heat pumps will be reduced to zero.
- The government’s Household Support Fund will be doubled to £1bn. This provides money to local authorities to help vulnerable households with rising living costs.
- Research and development tax credits for businesses will increase and small businesses will each get another £1000 per year in the form of employment allowances, which reduce their NI payments. He announced that taxes on business investment will be further cut in the Autumn Budget.
- The main rate of income tax will be cut from 20% to 19% in two years’ time. Unlike the rise in NI, which only affects employment and self-employment income, the cut in income tax will apply to all incomes, including rental and savings income.
The Chancellor announced that public finances are stronger than previously forecast. The rapid growth in tax receipts has reduced public-sector borrowing from £322 billion (15.0 per cent of GDP) in 2020/21 to an expected £128 billion (5.4 per cent of GDP) in 2021/22, £55 billion less than the OBR forecast in October 2021. This reflects not only the growth in the economy, but also inflation, which results in fiscal drag.
Fiscal drag is where rises in nominal incomes mean that the average rate of income tax rises. As tax thresholds for 2022/23 are frozen at 2021/22 levels, a greater proportion of incomes will be taxed at higher rates and tax-free allowances will account for a smaller proportion of incomes. The higher the rate of increase in nominal incomes, the greater fiscal drag becomes. The higher average rate of tax drags on real incomes and spending. On the other hand, the extra tax revenue reduces government borrowing and gives the government more room for extra spending or tax cuts.
The growth in poverty
With incomes of the poor not keeping pace with inflation, many people are facing real hardship. While the Spring Statement will provide a small degree of support to the poor through cuts in fuel duty and the rise in the NI threshold, the measures are poorly targeted. Rather than cutting fuel duty by 5p, a move that is regressive, removing or reducing the 5% VAT on gas and electricity would have been a progressive move.
Benefits, such as Universal Credit and the State Pension, are uprated each April in line with inflation the previous September. When inflation is rising, this means that benefits will go up by less than the current rate of inflation. This April, benefits will rise by last September’s annual inflation rate of 3.1% – considerably below the current inflation rate of 6.2% and the forecast rate for this year of 7.4%. This will push many benefit recipients deeper into poverty.
One measure rejected by Rishi Sunak is to impose a temporary windfall tax on oil companies, which have profited from the higher global oil prices. Such taxes are used in Norway and are currently being considered by the EU. Tax revenues from such a windfall tax could be used to fund benefit increases or tax reductions elsewhere and these measures could be targeted on the poor.
- Overview of the March 2022 Economic and fiscal outlook
Office for Budget Responsibility (23/3/22)
- Spring Statement: Key points at a glance
BBC News (23/3/22)
- Spring statement 2022: key points at a glance
The Guardian, Richard Partington and Jessica Elgot (23/3/22)
- People face biggest drop in living standards since 1956
BBC News (23/3/22)
- Spring Statement: Rishi Sunak accused of not doing enough for poorest households
BBC News (24/3/22)
- Chancellor provides minimal help to households on cost of living crisis
Financial Times, Chris Giles (23/3/22)
- Britain’s poorest left to bear brunt of squeeze on cost of living
Financial Times, Delphine Strauss (23/3/22)
- Spring statement: How does Rishi Sunak’s national insurance change affect you?
Sky News, Daniel Dunford and Ganesh Rao (24/3/22)
- Spring Statement 2022 – An initial response from IFS researchers
Institute for Fiscal Studies Press Release, Stuart Adam, Carl Emmerson, Paul Johnson, Helen Miller, Isabel Stockton, Tom Waters and Ben Zaranko (23/3/22)
- Chancellor prioritises his tax cutting credentials over low-and-middle income households with £2 in every £3 of new support going to the top half
Resolution Foundation press release (23/3/22)
- Richest handed £480 boost in Spring Statement, say researchers
- UK’s most vulnerable face crunch as Rishi Sunak helps better-off
The Guardian, Larry Elliott and Heather Stewart (23/3/22)
- Rishi Sunak tackled over failure to help poorest families
The Guardian, Richard Partington and Aubrey Allegretti (24/3/22)
- A Spring Statement for White Wealth Drivers
Byline Times, Stan Norris (23/3/22)
- Rishi Sunak’s Fiscal Drag Race
Evening Standard, Jack Kessler (23/3/22)
- Rishi Sunak fails to address the hit to living standards
Financial Times, Martin Wolf (23/3/22)
- Why Rishi Sunak refused a windfall tax on oil and gas companies
The New Statesman, Philippa Nuttall (23/3/22)
OBR data and analysis
- Are the changes made to national insurance by the Chancellor progressive or regressive? Could they have been made more progressive and, if so, how?
- What are the arguments for and against cutting income tax from 20% to 19% in two years’ time rather than reversing the current increases in national insurance at that point?
- What will determine how rapidly (if at all) public-sector borrowing decreases over the next few years?
- What are automatic fiscal stabilisers? How does their effect vary with the rate of inflation?
- Examine the public finances of another country. Are the issues similar to those in the UK? Recommend fiscal policy measures for your chosen country and provide a justification.
The housing market and what to do about bubbles, second homes and first time buyers is likely to be one of many battle grounds at the next election. For many years, the idea of a mansion tax has been debated and the Shadow Chancellor, Ed Balls, has outlined plans for a mansion tax under a Labour government.
The policy would see houses valued at between £2 and £3 million pay £250 a month as a mansion tax. Those owning a home worth tens of millions and those with second homes would pay more under the mansion tax, which would be based on a progressive system. Concerns have been raised about the impact of this tax on home-owners in areas like London, where average house prices are considerably higher than the UK average. Ed Balls has sought to reassure homeowners that payment of the mansion tax could be deferred if earnings do not reach the £42,000 threshold. However, critics have suggested that this policy will only make things worse for middle income households who will not be able to defer such a payment if their income is £43,000. Labour’s MP for Greenwich, Nick Raynsford said, ‘What it does is create a cliff edge. It will still hit people who are asset rich but cash poor.” Writing in the Evening Standard, Ed Balls said:
“Long-standing residents who now find themselves living in high-value homes but do not have an income high enough to pay the higher or top rate of income tax — in other words earn less than £42,000 a year — will be guaranteed the right to defer the charge until the property changes hands.
So a tax on the highest value properties will be done fairly and carefully to help fund our NHS for the future.
Ordinary Londoners should be protected and wealthy foreign investors must finally make a proper tax contribution in this country.”
Although similar in its objective to the Liberal Democrat’s mansion tax, the amount of the tax as a percentage of the value of the home under Labour is significantly lower. It is likely to be between 0.1% and 0.15% of the home’s valued, compared to the 1% levy proposed by the Liberal Democrats.
One debate now surrounds the amount that this tax is expected to raise, especially given the revenue has been ear-marked to finance the NHS. The number of homes whose value is estimated to fall between £2m and £3m varies considerably and hence so would the revenues raised from such a tax. However, the income generated by even the most generous estimates will not come close to raising the ear-marked figure of £1.2bn. As such, there are suggestions that the tax levied on houses worth more than £3m; on foreign owners of residences in the UK and second homes will need to be significant to make up the short fall. A spokesperson for the Conservatives said:
“Serious questions have now been raised about how much revenue Labour would be able to raise from the tax …This is a further unravelling of the policy, which faced fierce criticism after it was revealed that no money would be raised until halfway through the next parliament, and the proposals for mass valuations of family homes was widely slammed as unworkable.”
The UK residential research director of Savills estate agency, Lucian Cook, added:
“Given Labour’s stated ambition to raise £1.2bn, that would leave at least £1.08bn to be raised from the remaining 57,000 properties, possibly more to account for tax leakage elsewhere in the system.”
The impact of the mansion tax will depend on exactly how it is imposed and the thresholds, together with how the threshold changes with the housing market. In the UK, we have seen some houses increase in value by huge amounts in just a few months and with a mansion tax, any such increase in price could move more home-owners into the new progressive tax system. Some argue that it is a tax on Londoners. The following articles consider the proposed policy by Labour.
Ed Balls seeks to reassure London home owners over mansion tax plans The Guardian, Patrick Wintour (20/10/14)
Ed Balls: Mansion tax would start at £250 a month BBC News (20/10/14)
‘Mansion tax’ will mean bill of £250 a month, says Ed Balls Financial Times, Emily Cadman, Kate Allen, Vanessa Houlder and George Parker (20/10/14)
Mansion tax can be deferred in you earn less than £42,000, Ed Balls insists as he reveals details of levy on £2million homes Mail Online, Matt Chorley (20/10/14)
Ed Balls: Mansion tax will cost homeowners £250 a month London Evening Standard (20/10/14)
Middle-class families hit by Labour’s mansion tax The Telegraph, Steven Swinford (20/10/14)
Balls says mansion-tax threshold to rise with home values Bloomberg, Svenja O’Donnell (20/10/14)
- How does a progressive tax system work?/li>
- Why are some critics arguing that this mansion tax would just be a tax on Londoners?
- What objective is the £42,000 income threshold trying to achieve? Do you think that critics are correct in their assertion that it penalises middle income households?
- Fiscal drag is mentioned in the BBC News article as a potential problem with the mansion tax proposed by Labour and that houses may move into the taxable threshold. What is fiscal drag and why is it a potential concern?
- How might such a policy affect the incentives of foreigners to invest in the UK housing market? Would this be a good or a bad thing and for who?
- The revenues generated from houses between £2 and £3m will not be sufficient to generate £1.2bn. What are the implications for how progressive the mansion tax would need to be and how this might affect homeowners?
According to the Budget 2010 Report, public sector current receipts in 2010-11 will be £541 billion. With expected public sector expenditure of £704 billion this leaves a deficit of £163 billion. Of these receipts, £146 billion or 27% is expected to come from income taxation. Several notable developments in the income tax system for 2010/11 include: the freezing of personal allowances, an income limit for personal allowances for those under 65, and the introduction of an additional income tax band.
Personal allowances are amounts of income that can be earned without being liable to income tax. This amount is to be frozen in 2010/11 at the level of 2009/10 so that for an individual under 65, this limit will remain at £6,475. Allowances are typically raised each year in accordance with the rate of price inflation. This then helps to reduce, in part, what is called fiscal drag. Fiscal drag occurs when there is an increase in the proportion of income taken in income tax as a result of allowances not being adjusted for inflation or for the rate of growth in earnings. In other words, by not increasing the amount of income exempt from taxation in 2010/11, any individual whose earnings rise will pay a higher proportion of their earnings in income taxation.
Another change in 2010-11 is the introduction of an income limit on personal allowances for those earning over £100,000. For every £1 earned above this limit, 50 pence will be taken from the allowance. Hence, given the allowance of £6,475 an individual earning £112,950 or more (i.e. £12,950 over the limit) will, in effect, no longer receive any personal allowance.
Now consider changes to the tax brackets. In 2009/10, an individual with an income tax liability of up to £37,400 (i.e. earnings of up to £43,875, once the personal allowance has been taken into account) pays income tax at 20%. This is the ‘basic rate’ band. With a liability of over £37,400, the excess (i.e. the amount over £37,400) is subject to tax at 40%. This is known as the ‘high rate band’. From the 1st April 2010, there is to be an ‘additional rate’ of 50%. The 50% rate will apply to taxable income over £150,000, while taxable income up to £37,400 will continue to be taxed at 20% and that between £37,401 and £150,000 will be taxed at 40%.
Now, an illustration of how the changes for 2010/11 will affect two individuals. Firstly, consider somebody on £110,000. Their tax allowance is ‘reduced’ by £5,000 to £1,475 and so they have a tax liability of £108,525. Of this, they will pay £7,480 at the basic rate (20% of £37,400) and £28,450 at the higher rate (40% of £71,125). With a tax bill of £35,930, their average rate of income tax in 2010-11 will be 32.66%. In 2009/10, the total tax bill will have been £33,930 (20% of £37,400 plus 40% of £66,125) and so an average rate of tax 30.85%
Finally, consider an individual on £200,000. Their income tax bill in 2010/11 will be £77,520 (20% of £37,400 plus 40% of £112,600 plus 50% of £50,000) and so they will face an average rate of tax income tax of 38.76%. In 2009/10 the tax bill would have been £69,930 (20% of £37,400 plus 40% of`£156,125), an average rate of income tax of 34.97%
The £20 billion tax raid about to hit The Times, Lauren Thompson (27/3/10)
How to beat the new 50% top rate of tax The Times , Mark Atherton (27/3/10)
Budget 2010: Darling draws election battle lines BBC News (24/3/10)
High earners will feel like they have taken a pummelling The Scotsman, Jeff Salway (27/3/10)
For the full Budget Report, see Budget 2010: Complete Report HM Treasury, March 2010
(The above consists of the two elements, Economic and Fiscal Strategy Report and Financial Statement and Budget Report. It’s a fairly large pdf file and may take a few seconds to download.)
For the particular measures and their impact on government expenditure and/or revenue, see Annex A: Budget policy decisions of the Financial Statement and Budget Report.
See also Rates and allowances – Income taxation HM Revenue and Customs
(Note: from here you can also link to other tax rates.)
- Consider the efficiency and equity arguments for and against the income tax changes in 2010/11.
- What do you understand by the terms the marginal rate of tax and the average rate of tax?
- How will the changes to the income tax system in 2010/11 affect the marginal and average income tax rates? You could perhaps try plotting these in a chart for different gross incomes.
- How can fiscal drag occur even if personal allowances are raised by the rate of inflation?