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Income Security in Old AgeInternational Labour Organization, June 21, 2000 Even in the industrialised countries, despite the extraordinary successes
achieved by social security pension systems, old age still spells insecurity
for certain groups in the population,” according to the ILO’s World
Labour Report, 2000. The report says that women are particularly affected by
the absence of old-age provision, since their pension entitlements tend to
be much lower than those of men and their life expectancy is longer. The problem of poverty in old age is particularly acute in the developing
countries of sub-Saharan Africa and in some other parts of the developing
world, where coverage by social security pension systems is lower than 10%
of the labour force. Workers in the informal sector are also at risk of poverty or dependance
upon general social assistance in old age due to the low wages and nearly
total absence of any form of old age provision in informal sector jobs. “Pension systems,” the ILO report says, “still have much unfinished
business: at the same time they need to adapt to increasing life expectancy
and to changes in labour markets and in gender roles.” By far the most pressing need is “to provide greater income security
for the elderly in most developing countries.” The report explores two
options: non-contributory pensions, which are government-funded, universal
schemes paying benefits to all residents of a certain age, and contributory
pensions, which are based on earnings from participation in the labour
force. Non-contributory pensions face many obstacles in developing countries
where budgetary resources are scarce and tax systems chronically weak.
However the ILO insists that “such schemes need not prove excessively
expensive as long as the pension age is set sufficiently high.” Almost
invariably, benefits provided by such schemes are very low and while they in
no way replace earnings from work, “they can still mean a lot to those who
receive them.” In South Africa, the pension takes the form of a means-tested
benefit granted to women from age 60 and men from age 65 with the amount
varying according to the individual’s income. The maximum amount payable
is the SA rand equivalent of just under US$ 100 (about 10% of average
earnings in manufacturing). Though it was initially designed to benefit a
small section of society, mostly poor whites, the pension benefit has ceased
to be linked to race and is delivered widely using the latest cash dispenser
and security technology, even in rural areas. While universal pension schemes, which are payable to all residents of
pensionable age, cost governments more, they do have a number of advantages,
including administrative feasibility, political support from all sections of
the community and high levels of public confidence. Contributory pension schemes do not normally cover people not earning
income from work and even many who are in work prove reluctant to pay social
security contributions. The ILO says that “the governance of social
security schemes in many developing countries has been so weak that
satisfactory compliance rates have often not been achieved, even among the
limited groups of workers who should legally be covered by the scheme.” Mandatory retirement savings schemes have lately attracted a good deal of
attention, but like other contributory schemes they suffer from the problem
of limited coverage. More important, their benefits are unpredictable, they
provide lower pensions to women because of their greater life expectancy,
and their administrative costs are extremely high. The report shows that
workers in one Latin American country with such a system are on average
having to pay 36 cents in administrative charges for every $ saved and that
for the lower paid the burden is even higher. In spite of these
problems, mandatory savings schemes have been introduced by various
countries in Latin America and in Central and Eastern Europe, with the
encouragement of international financial institutions. Industrialised countries are increasingly making use of a
“public-private” mix in providing for old age, although in most
countries “private occupational pensions play little part in providing
retirement income.” They do have an important role in about a dozen
high-income countries, in particular Japan, the Netherlands,
the United Kingdom and the United States. But even in these
countries private pensions are less important than social security benefits
for most retirees. Some countries, such as Switzerland, have made
these schemes a mandatory supplement to the social security scheme for all
employees. In most countries, pensions constitute the largest element of social
protection expenditure, usually exceeding the amount spent on health care.
Nevertheless, the percentage of GDP devoted to pensions varies enormously
between countries. In nearly all countries, pension systems are maturing as
the number of people drawing benefits rises and entitlements increase.
Populations are also ageing as a result of falling birth rates and, to a
lesser extent, greater life expectancy. In order to balance the commitments of pension systems with the resources
that will be available to them, a number of options for reform are under
review. These include: increasing contribution rates; cutting benefit rates;
modifying the conditions for receiving benefit, for example, by raising
pensionable age or the required number of years of contribution or by
applying a means test. Of particular interest in reform projects, says the ILO, is the relation
between pensions and gender. Many women reach retirement age with low or
even zero pension entitlements because of their unpaid work as carers or
related factors such as the marginal, temporary or informal nature of much
female employment. While social protection systems still tend to treat unpaid carers as
dependants of the breadwinner, the ILO report cites various measures taken
to enhance the social protection of people engaged in unpaid work, who are
overwhelmingly female. Retirement accounts in some European countries,
including Germany, Norway and Sweden, are credited with
contributions for periods of care activity. In Ireland and the UK a
procedure called home responsibilities protection compensates for years of
low earnings in the computation of pension benefits. Gender discrimination
in the form of survivor’s benefits has also been abolished in the social
security systems of many countries, including the US and most EU Member
States. The ILO analysis concludes that while income security in old age often
poses a much greater problem for women than for men, “equal treatment of
men and women is gradually being introduced into social protection laws.”
But there is still a long way to go and equality has sometimes made things
worse for women. In response to the maturing of pension schemes, the ILO cautions against
“radical reforms which replace social insurance by privately managed
mandatory retirement savings systems” insisting that “such systems may
prove to be more useful as a complement to than a substitute for social
insurance.” “Governments must recognize that they also have a responsibility to
provide a social minimum for elderly people with no other income and that
they should provide a framework which enables people to make their own
supplementary provision for old age,” says the ILO report. The ILO analysis concludes that “contributory social security schemes
remain the instrument best suited as the main source of retirement income
for workers in the vast majority of countries.” The main priorities it
says, need to be on increasing pension insurance coverage and improving
governance.
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