Superannuation tax concessions will cost the budget $24.6 billion in 2008–09 (Treasury
2009), rivalling the $26.7 billion annual cost of the age pension and constituting a fifth of
income tax revenue ($130 billion per annum). Tax expenditures (see Definitions, Appendix A),
of which the super tax concession is by far the largest, are one of the fast growing
areas of total government spending.
Measured tax expenditures are projected to rise as a proportion of GDP from 5.3 per cent
in 2004–05 to 6.9 percent in 2011–12. They will fall in 2008–09, however, partly as a
result of personal income tax cuts and partly as a result of lower superannuation fund
earnings.
The growth in the cost of the tax concessions for superannuation will continue unless
current policy settings are changed significantly. This is because the age dependency ratio
(the proportion of the population aged over 65) is expected to almost double to 25 per
cent over the next 40 years, while the number of people with large superannuation
entitlements will also grow substantially as the superannuation guarantee system comes
to full maturity.
Australian superannuation fund assets, currently over $1 trillion, are expected to reach
almost $9 trillion in 2041 (Rothman and Tellis 2008). As the size of the tax concessions
are related to the size of the accumulated lump sum, by virtue of the low tax rate on fund
earnings, the forecast growth in superannuation assets ensures that there is a question
mark over whether the current system will be sustainable.
Superannuation tax concessions have long been a bone of contention for the welfare
sector, which views them as redistributing scarce resources away from low-income
earners towards the secure and privileged well-off. This has created a political
battleground, with the welfare groups lining up against the super industry represented
most notably by ASFA. Reform options are canvassed, for example, in ACOSS 2002 and
2006 and the Brotherhood of St Laurence 2008.1 Other welfare and consumer bodies
have also argued for a fairer and more efficient system. Some of the specific reforms
suggested in this paper are very similar to those of ACOSS
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