Tax-Benefit Policy

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Alternatives for financing social security in Luxembourg by resident and cross-border households

Given the rapidly evolving structural socio-demographic determinants in Luxembourg (ageing, migrations, cross-border households) and social needs induced, the concern about the funding of the Luxembourg social security system is high on the agenda. This concern could become even more pressing over time, given Luxembourgs specificity in several respects. According to the 2024 Ageing Report of the EPC’s Ageing Working Group, Luxembourg might face an increase of age-related expenditure from 17.2% of GDP in 2022 to 27.9% in 2070, mostly due to pensions (+ 8.3% of GDP over the period). This is the biggest increase expected in EU-countries, a first particularity for Luxembourg. A second specificity is the importance of cross-border commuters in the Luxembourg economy. These represent 43% of total employment in 2022. Given such a context, the countrys social players are looking for avenues of reflection for future concrete proposals. This paper precisely aims to contribute to such a debate. It examines day-after impact of hypothetical parametric changes in social contributions and personal income taxes (the “alternatives”) on the distribution of household disposable income and total public financial receipts from these sources for Luxembourg. Moreover and given the importance of cross-border commuters for the country, we need a microsimulation modelling EUROMOD-based covering both residents and cross-border commuters’ households, the latter population involving an essential innovative extension to previous assessments. We emphasize the structural discrepancies between residents and cross-border households in terms of socio-economic status as well as regarding gross labor and taxable income. Consequently, we show that total receipts from residents are greater than those from cross-border households, even when controlling for population size. Next, we examine 42 alternatives based on the concerns of a key Luxembourg social partner in the context of an ongoing public debate. This examination takes into account the values achieved for a triplet of standard indicators chosen for their simplicity and acceptability to a broad public, and this within the framework of an independent external expertise : total revenues (cross-border households included), the inequality Gini coefficient and the poverty rate (the latter two for the resident population only). We then complete our detailed overview with an evaluation of each alternative according to the selected dimensions altogether. Finally, we evoke a basic “Global Performance Index” which may enlighten conclusions derived from a one or two-dimensional analysis. Although the analysis is specific to Luxembourg, the policy alternatives and methodology considered here may also be relevant for other countries with comparable socio-economic fundamentals, particularly in the context of the EU-wide concern regarding the fiscal implications of population ageing.

BEAMM project : How do we deal with data ? Statistical matching and WGAN generation.

In the framework of the BEAMM project (BElgian Arithmetic Micro-simulation Model), we propose several methods to address data issues. The core of this project is to develop a tax-benefit microsimulation model for Belgium accessible online, requiring intensive data handling. Our challenges consist in creating a unified data set containing variables from different surveys and developing a completely synthetic database for the online development of the BEAMM platform.

Constructing a historic microsimulation model to measure tax-benefit policy intentions in the Netherlands: 1950-1975

Microsimulation techniques are widely used to study the impact of (reforms in) fiscal and social policies in mature welfare states, providing interesting insights into how today policies reduce poverty, redistribute resources among population groups and shape incentives for instance to work or save. While a lot has been written on the historical emergence and expansion of welfare states on an institutional level, hardly anything is known about the impact early-stage welfare states had on the lives of ordinary people. Most European countries saw the emergence and rapid expansion of their welfare states in the three decades after the Second World War, usually referred to as the Golden Age. It is often inferred that this must have been a period in which everyone was better off, in large part attributed to strong social protection. Yet, the empirical evidence is lacking as the literature typically focuses on the top 10% and the role of top marginal tax rates.

Drivers of Income Inequality in Ireland and Northern Ireland

The distribution of income differs in Ireland and Northern Ireland. Differences in demographics, working patterns, wage levels and the tax-benefit system all contribute to these differences and could prove a barrier to increased co-operation on the Shared Island of Ireland. Using harmonised microsimulation models for Ireland (SWITCH) and Northern Ireland (UKMOD), we identify the drivers of the differences in income distribution between Ireland and Northern Ireland. Using a decomposition technique, we isolate the relative contributions of market income differences - attributable to demographics, labour market participation and wage levels - and the tax-benefit system to differences in income distribution in the two jurisdictions. In a final step, we simulate the implementation of the Irish tax-benefit system in Northern Ireland and vice versa. This exercise indicates the potential costs and distributional effect of harmonising the direct tax and welfare system across the two jurisdictions.

Evaluating the results of a social benefit simulation using individual administrative data on benefit receipt

The simulation of social benefits is an important application of tax-benefit microsimulation models in social policy research. Simulation outcomes inform about the (potential) effects of social policies and policy reforms. Furthermore, tax-benefit simulations allow for an evaluation of the interactions of different benefits in complex benefit systems. However, the quality of the simulation outcomes has consequences for the assessment of the effectiveness of the policy. An increasing number of recent studies on benefit non-take-up as one measure for the ineffectiveness of social policies explicitly address the difficulties in determining benefit entitlements using tax-benefit microsimulation models (Tasseva 2016, Bruckmeier et al. 2021, Doorley and Kakoulidou 2024, Bargain et al. 2012, Harnisch 2019). Consequently, the validation of the simulation outcomes is an important step in the application of tax-benefit simulations. Our study contributes to the literature on validating the results of tax-benefit simulation models. We examine how well the results of an open-source tax-benefit microsimulation model for Germany (GETTSIM) on means-tested minimum income (UBII) entitlements match the benefits contained in administrative data on UBII. Our analysis has two objectives: First, the results should provide an assessment of the validity of the UBII simulation results using GETTSIM. Second, generalized conclusions for policy and non-take-up analyses based on tax-benefit microsimulation models will be drawn. The results show that UBII entitlements are in most cases correctly simulated. In an adapted version of GETTSIM we have used, only for 3 to 4 percent of all observations no UBII entitlement was simulated (beta error). The simulation also allowed a precise distinction between UBII and existing similar benefits (housing and means-tested child benefit) for most observations. A closer look at individual deviations between recorded and simulated entitlements reveals significant deviations for migrants, especially from crisis countries, which was particularly relevant in 2017 and 2018. Furthermore, for households with many family members, with children or employed persons, the simulation at the individual becomes less precise. The results also provide some insights for the analysis of eligibility based on tax-benefit simulations in general. In social policy systems with overlapping benefits, even with very good data quality, misspecification of benefit entitlements cannot be avoided to a relevant extent, especially when the benefits pursue similar objectives and discretionary decisions occur at the administrative level. Since the mean values of various large sociodemographic groups are relatively accurately determined in the simulation, calibrating the simulated recipient numbers can compensate for these inaccuracies. The analysis at the individual level has shown that simulation quality decreases particularly for subgroups with more complex life circumstances, such as households with children. This applies in particular to comprehensive last-resort minimum income systems that provide benefits in the household context and take all types of household income into account. Temporary special circumstances, like a national or global crisis, can also lead to simulation results that do not reflect actual payments. In crisis years, consideration should be given to excluding certain particularly affected subgroups from the analysis or to choose other simulation years, if possible.

From Annual to Monthly Simulation of Social Assistance in Sweden

FASIT is a microsimulation model primarily used by the Swedish Parliament and Government to calculate the effects of various regulatory changes. Statistics Sweden (SCB) is responsible for the maintenance and development of the model. This presentation explores experiences moving from annual to monthly data when simulating social assistance.

Imputing lifetime incomes: Baseline projections for the UK

Most studies that report distributional comparisons of income focus on income evaluated over periods that vary between one week and one year. Distributional studies of weekly income recognise the importance of short-term constraints, particularly in relation to material deprivation and poverty. Distributional studies of annual income recognise the capacity of many people to save the proceeds of temporary income peaks to carry them through temporary income troughs. Income measured over longer periods is rarely analysed due to the relative (in)availability of survey data, rather than any more fundamental motivation. Unfortunately, analysis of lifetime incomes for contemporary population cross-sections is complicated in part by the limited historical context captured by existing panel studies, and in part because future incomes are unobservable. Microsimulation is one method to fill gaps in the available statistical record. This study describes how microsimulation methods were used to project lifetime incomes for a contemporary population cross-section of the UK.

Increasing the minimum wage to decrease labor cost ? An analysis by microsimulation for the case of France

This paper analyzes the reduction in total labor costs induced by an increase in the minimum wage in France. Using the Ines microsimulation model developed by the French National Statistical Institute (Insee), I simulate a 2% increase in wages for all workers paid at the minimum wage. Due to the complex of exemptions of the French socio-fiscal system, an increase in the minimum wage leads to a reduction in employers’ social security contributions (SSCs) for workers earning between 1.01 and 3.5 times the minimum wage. I confirm existing results from L’horty (2000): overall, a 1% increase in the minimum wage reduces employers’ SSCs by approximately €1.67 billion.

Integrating Labor Demand Frictions in a Random Utility Random Opportunity Labor Supply Model

This paper studies labor market responses to tax policy using a structural labor supply model estimated within a Random Utility - Random Opportunity framework. The RURO model represents labor supply as a choice among a finite set of work options, where individuals compare the utility of different employment and hours combinations given the opportunities available to them. Preferences are modeled in a random utility framework, while heterogeneity in job availability and constraints is captured through the opportunity structure. This allows the model to account for both choice behavior and limitations in feasible options. We combine this structural labor supply framework with a detailed microsimulation model based on Belgian administrative data, allowing for an accurate mapping from labor supply choices to disposable income and fiscal outcomes.

Missing Out on Social Assistance: The Consequences of Benefit Non Take-Up in the UK

Benefit non take-up refers to situations in which individuals or households do not claim social benefits to which they are legally entitled, due to low expected financial gains or costs associated with claiming, including administrative complexity, time and effort, stigma (Moffitt, 1983). While public debate has often focused on benefit fraud, non take-up is considerably more widespread (Ko and Moffitt, 2022). Low take-up undermines the redistributive capacity of welfare states and limits their effectiveness in protecting households against poverty and economic insecurity (Van Oorschot, 1991; Matsaganis et al., 2008). An alternative interpretation, however, views non take-up as a screening mechanism that contains public expenditure by discouraging claims from less needy households (Nichols and Zeckhauser, 1982). In the UK, existing micro-level studies of benefit take-up are relatively dated and rely largely on cross-sectional data (Blundell et al., 1987; Pudney et al., 2006; Zantomio et al., 2010). As a result, there is little evidence on the longer-term consequences of non take-up, partly due to the lack of longitudinal data linking benefit eligibility to observed outcomes. This study addresses this gap by combining longitudinal survey data with tax-benefit microsimulation, complementing recent work on the determinants of non take-up in the UK (Vella and Richiardi, 2024) by focusing instead on its consequences. The main objective of the study is to examine the consequences of non take-up of means-tested benefits for eligible individuals over time, with a focus on labour market outcomes, poverty, physical and mental health, and subjective wellbeing. The analysis combines the UK Household Longitudinal Study (UKHLS) with the UK tax-benefit microsimulation model, UKMOD. UKHLS provides annual panel data on income, employment, household composition, health, and wellbeing. Embedding UKMOD within a longitudinal survey represents a key methodological innovation, allowing benefit eligibility to be reconstructed consistently over time and take-up to be modelled dynamically. Non take-up is identified by comparing observed benefit receipt, based on self-reported information in UKHLS, with simulated eligibility derived from UKMOD. The analysis covers the main social assistance programmes in the UK, namely Universal Credit and its legacy benefits, Pension Credit, and Child Benefit. Prior research shows that eligible individuals who claim benefits differ systematically from those who do not, with non-claimants typically having higher incomes, higher levels of education, and lower dependency loads. In addition, take-up is subject to state dependency, in the sense that individuals who claim benefits once are likely to continue claiming in subsequent periods, and vice versa. To address this selection, propensity score matching is used to construct comparable groups of eligible claimants and eligible non-claimants based on observed characteristics measured prior to take-up. Outcomes are then analysed using a difference-in-differences design, comparing changes over time between the two groups. In addition, individual fixed effects regressions are estimated, exploiting within-person variation in take-up status across waves.

Navigating Trade-offs in German Social Benefit Reform

The current German system of means-tested social benefits, which include citizen’s benefit, housing benefit, and supplementary child benefit, is characterized by high effective marginal tax rates, which are often higher than 90 percent across wide income brackets. As a result, even substantial increases in working hours typically yield small gains in disposable household income. These high effective marginal tax rates apply not only to citizen’s benefit, but also to the housing benefit and supplementary child benefit. Additionally, the coexistence of competing benefits – citizen’s benefit on the one hand, housing benefit and supplementary child benefit on the other – makes the social benefits system complex to navigate for those affected. For these reasons, and against the backdrop of considerable fiscal pressures, there is currently intense political and academic debate about reforming the system.

Shifting the Tax Burden from Consumption to Income in Croatia: Preserving Efficiency while Reducing Inequality

This paper analyses the distributional effects of a fiscally neutral tax reform in Croatia that shifts the tax burden from consumption to labour income, capital income, and property. Such a reform can be considered justified given the imbalances of the Croatian tax system, which is characterised by an exceptionally high share of indirect taxes and relatively low taxation of labour, capital, and property income compared to the EU average, contributing to regressivity and greater income inequality.

Taxing Couples as Singles? A Structural Analysis of Labor Supply for Belgium

Joint taxation of married couples remains a central feature of many income tax systems, with significant implications for labor supply and household welfare. By pooling partners’ incomes into a single tax base, joint filing can create disincentives for secondary earners and generate marriage-related penalties, raising concerns about efficiency and equity. This paper studies the impact of joint taxation on the labor supply of couples in Belgium, where the personal income tax is formally individual but substantially adjusted at the household level. We estimate a Random Utility Random Opportunity (RURO) model of labor supply using rich administrative data linking tax records and demographic information. Using the FANTASI microsimulation model of the Belgian personal income tax, we perform a counterfactual analysis of a shift from joint to individual taxation.

The development of an integrated framework combining economic efficiency, social justice, and ecological effectiveness using microsimulation modelling

This research explores how microsimulation modelling can be used to develop an integrated framework that evaluates economic efficiency, social justice, and ecological effectiveness simultaneously.

The Distributional Effects of Carbon Pricing in Germany

Even though economists prefer the instrument of carbon pricing to reduce greenhouse gas emissions over regulatory policies, fears of regressive effects that disproportionately burden low-income households lead to low public support, hindering the political feasibility of carbon pricing. In light of an ongoing policy debate and lacking evidence for the German context, this paper investigates the distributional effects of carbon pricing in Germany, as well as possible redistributive polices. I analyze three channels through which carbon pricing affects the distributional outcome: the direct price effect, the indirect price effect and the behavioral response. I then compare a lump-sum transfer, a targeted transfer per income deciles and reductions in labor and income taxes as redistributive policies, providing evidence on their effect on counteracting adverse distributional consequences from carbon pricing.

The impact on income and labour supply of the limitation of the unemployment benefit in Belgium

Nearly half of the unemployed persons are excluded from the unemployment benefit system by the re-form which has been gradually implemented since 1 January 2026 in Belgium, particularly those with a long unemployment history. The main feature of the reform is to limit the duration of unemployment benefit payments to a maximum of two years, depending on work experience, instead of unlimited payments in time as in the old system. Further, the progressivity of the benefit scheme has been strengthened by an increase of 10% of the ceiling amount during the six first months of unemployment, and a re-duction to a lump sum for unemployed persons who are entitled to payments after one year of unemployment. This paper gives the ex-ante evaluation results on income and labour supply of this reform. The simulation exercise concludes that approximately one third of the excluded persons are expected to return to work, approximately 40% are predicted to receive the social minimum income. The remaining fourth withdraw from the labour market without replacement income, resulting in a significant loss of disposable revenue. Nonetheless the impact on the poverty rate is moderate. Older unemployed, aged 55 years and over, are particularly affected by the reform as more than three fourth of them lose their benefit, representing nearly 22% of the excluded sample. Regional differences are substantial, with Flanders being the least impacted and Brussels-Capital region the most. To fulfil the evaluation, we use: