Welfare Reform Act 2012

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For other similarly-named Acts of Parliament, see Welfare Reform Act
(P)Welfare Reform Act 2012
Long title An Act to make provision for universal credit and personal independence payment; to make other provision about social security and tax credits; to make provision about the functions of the registration service, child support maintenance and the use of jobcentres; to establish the Social Mobility and Child Poverty Commission and otherwise amend the Child Poverty Act 2010; and for connected purposes.
Citation 5
Introduced by Iain Duncan Smith
Lord Freud
Territorial extent England, Scotland and Wales (see section 149 of the Act for Northern Ireland)
Royal Assent 8 March 2012
Commencement April 2013
Status: Unknown
Text of statute as originally enacted
Text of the Welfare Reform Act 2012 as in force today (including any amendments) within the United Kingdom, from the UK Statute Law Database

The Welfare Reform Act 2012 is an Act of Parliament in the United Kingdom which makes changes to the rules concerning a number of benefits offered within the British social security system.[1] It was enacted by the Parliament of the United Kingdom on 8 March 2012.[2]

Among the provisions of the Act are changes to housing benefit which came into force on 1 April 2013. These changes include an "under-occupancy penalty" which reduces the amount of benefit paid to claimants if they are deemed to have too much living space in the property they are renting.[3][4] Although the Act does not introduce any new direct taxes, the penalty for rooms classified as "spare bedrooms" has been characterised by the Labour Party and some in the media as the "Bedroom Tax", linking it with the public debate about the "Poll Tax" in the 1990s.[5] Advocating the Act, the Chancellor of the Exchequer stated that the changes would reduce welfare dependency and support working families.[6]


Iain Duncan Smith, sponsor of the Welfare Reform Act 2012

The main elements of the legislation are:[2]

Universal Credit[edit]

Main article: Universal Credit

The Welfare Reform Act introduces a new welfare benefit called Universal Credit which is to replace six of the main means-tested benefits and tax credits:[7][8]

The benefit is to operate as a single payment to claimants and will be available to working people on a low income and the unemployed. Its stated aim is to improve the incentive to work by making it easier for people who have temporary, low-paid work to move in and out of employment without losing benefits, and to simplify the benefits system by bringing together several benefits into a single payment. Through this scheme, it is envisaged that unemployed people will be encouraged to take on more work for any period of time that is available. The system has some similarities to a negative income tax but it is not the same as a basic income guarantee as payments are conditional on availability and means-tested.

Universal Credit is being launched in selected areas of North-West England with a UK-wide rollout planned for October 2013.

Council Tax Support[edit]

As of April 2013, Council Tax Benefit is replaced with a new system called Council Tax Support, offered under the Universal Credit scheme. Prior to this change, benefits, discounts, exemptions and reductions were paid by central government to support claimants unable to pay Council Tax due to unemployment or other circumstances. Under the reformed system, the responsibility for assessment of claims and payments is shifted to local authorities, who are empowered to set their own local criteria and benefit amounts. Benefits paid to old-age pensioners are protected and may not be varied. Local funds for Council Tax Support are provided by central government, but the budget available has been reduced by 10%, requiring councils to limit support payments.[9]

Housing Benefit[edit]

Further information: Under-occupancy penalty

Under the Act, Housing Benefit criteria now take into consideration the number of rooms and number of people occupying a property and restrict payments to allow for one bedroom per person or per couple. If it is deemed that there are too many rooms in a rented dwelling for the number of occupants, an "under-occupancy penalty" is applied which reduces housing benefit by 14% for one extra room and by 25% for two or more extra bedrooms. This aspect of the Act has been popularly referred to as the "Bedroom Tax"; conversely (and in response[10]) the government prefers to call the current arrangements a "spare room subsidy".[11] The rule applies to tenants in local authority (council) and Housing Association accommodation (the rule was already in place for private housing tenants prior to the 2012 act)[12] and a number of exemptions apply : all children under 10 years of age are expected to share a room; children under 16 of the same gender expected to share; and carers of disabled tenants who need to stay overnight are permitted to have one extra bedroom.[3] Housing Benefit is to be offered under the Universal Credit scheme.

Benefit Cap[edit]

Main article: Welfare cap

The Act now limits the total amount of money available to social security claimants. Total benefits paid to a single person may not now exceed £350 per week; the maximum available to families (single parents and couples with children) is £500 per week. The benefits limited by this new cap include:[13]

Council Tax support and free school meals do not count towards the benefit cap. Families in receipt of working tax credits are exempt from the cap, as are pensioners and claimants of certain other disability benefits (including Personal Independence Payment and Attendance Allowance).

The benefit cap will apply in England, Scotland and Wales, but it will be introduced gradually. From 15 April 2013 it will apply in the London boroughs of Bromley, Croydon, Enfield and Haringey, with a phased introduction across other parts of the UK until the entire country is covered by the end of September 2013.[13]

A study published in November 2014 by New Policy Institute and Trust for London found there to be 46,000 households affected by the introduction of the overall benefit cap in April 2013, of which 46% have been in London. [14]

Personal Independence Payment[edit]

Benefits available to people with disabilities are changed by the Act. The Personal Independence Payment (PIP) is to replace Disability Living Allowance gradually, first with an initial pilot in selected areas of North-West and North-East England which began in April 2013, with a full roll-out across Great Britain by October 2015. Claimants are required to undergo assessments to prove their eligibility for the benefit. The tests must be passed 3 months prior to claiming and claimants must be able to satisfy the requirements of the test for a period of at least 9 months after their claim. Payments are varied according to the severity of disability as decided by the tests and relate to ability to carry out daily living activities and level mobility. Claimants are also required to undergo periodic re-assessments to ensure ongoing eligibility for the benefit; depending on the type of disability, a person may be given a short award of up to 2 years or longer PIP award which would last for up to 5 or 10 years. PIP is not available to children under 16 and PIP claimants must apply before they turn 65 years old as new PIP claims cannot be made after that age. Responsibility for the tests has been outsourced by the DWP to two private companies, Atos Healthcare in the North of England, London, Southern England and Scotland, and Capita Business Services Ltd in Central England, Wales and Northern Ireland.[15][16]


The Act was introduced by the Government of David Cameron as part of the programme of austerity with the aim of reducing the amount of welfare spending in the United Kingdom.[17][18] In 2011-12, the Department for Work and Pensions reported a welfare expenditure of over £159 billion, approximately 22.8% of total government spending.[19]

Pie chart of government expenditure on benefits in the United Kingdom, 2011-12
UK Government welfare expenditure 2011–12[19]
Benefit Expenditure (£bn)
State pension £74.2
Housing Benefit £16.9
Disability Living Allowance £12.6
Pension Credit £8.1
Income Support £6.9
Rent rebates £5.5
Attendance Allowance £5.3
Jobseeker's allowance £4.9
Incapacity Benefit £4.9
Council Tax Benefit £4.8
Others £4.7
Employment and Support Allowance £3.6
Statutory Sick/Maternity pay £2.5
Social Fund £2.4
Carer's allowance £1.7
Financial Assistance Scheme £1.2
TOTAL £160.2

Reaction and analysis[edit]

Protesters in Edinburgh demonstrate against the "Bedroom Tax", March 2013

Elements of the Welfare Reform Act 2012 have been subjected to critical scrutiny in the UK Parliament and in the media. Debate about the changes to Housing Benefit has mostly focussed on the under-occupancy penalty. Detractors have widely referred to the penalty as a "bedroom tax", while government advocates of the scheme have used the term "spare room subsidy".[20][21] In Prime minister's questions on 27 February 2013, Prime Minister David Cameron remarked that the under-occupancy penalty was not a form of taxation as it did not involve deducting money from personal earnings. He also cited figures that indicated a 50% increase in national housing benefit spending over a ten-year period, and asserted that the new policy would encourage reallocation of accommodation and thereby reduce overcrowding and council housing waiting lists.[22]

Some media commentators have expressed opinions that the benefit rules may lead to a UK-wide housing crisis,[23] while others supporting the reforms have taken the view that it will help to reduce UK welfare spending and spur a fairer redistribution of rented accommodation.[24]

Critics of the new benefit rules have commented on situations where tenants who are affected by the under-occupancy penalty will be forced to move to smaller properties to avoid losing money, and have drawn attention to a shortage of housing. According to the Scottish Labour Party, an estimated 78,000 tenants across Scotland will be expected to move into one-bedroom accommodation while only 20,000 single-occupancy social housing properties are available. In some smaller communities where no single-bedroom dwellings are available, it has been claimed that tenants may be forced to move to a different town; Scottish broadcaster STV reported on the case of a Coatbridge woman who may have to leave the town which has been her home for 51 years.[25] According to the then-leader of the Labour Party Ed Miliband, an estimated 5000 people in Kingston upon Hull are to be affected by penalties, but only 73 council properties are available in the city.[26]

In an interview on BBC Radio 4's Today Programme on 1 April 2013, the sponsor of the bill Iain Duncan Smith defended the welfare changes with the argument that the new benefits system would encourage people to be in work and reduce overcrowding whilst reducing benefit costs.[27] His statement in the interview that it was possible to live on £53 per week attracted considerable media attention; he made the claim in response to a complaint by a member of the public in a telephone interview, who stated that he was supplementing his low income as a market trader with state benefits and claimed that, after benefit cuts, he would have to live on £53 per week.[28] The accuracy of the caller's account was later called into question in the media.[29]

Duncan Smith also expressed his support for the changes to disability benefits brought about by the Act. He was critical of the older system of disability benefits which awarded an allowance to claimants with no further systematic checks to assess if the claimant's condition had improved or worsened. Duncan Smith stated that, by requiring claimants to undergo periodic assessments, the system could be targeted at those most in need whilst preventing payments being made to people who had recovered from a temporary disability.[30] The UK disability rights organisation Scope was critical of the changes and, while it expressed support in principle for assessing claimants more carefully, took the view that the assessment criteria were flawed, would cause undue hardship to disabled people and were too strongly focused on cutting welfare budgets.[31] Work capability assessments carried out by the private contractor Atos Healthcare were subjected to critical scrutiny in Parliament following a number of controversial decisions in which disabled individuals were denied benefits and required to look for work. In a few cases, the individuals concerned were reportedly driven to suicide by their experience.[32]

On 21 February 2014 five disabled tenants of social housing lost a Court of Appeal case against the benefit reforms. The group claimed that the effects of the welfare reforms did not take into account the accommodation needs of disabled people and that it was in breach of the European Convention on Human Rights. The Court of Appeal decided they could not intervene in the benefit changes.[33]

In June 2014, a Trust for London-funded report by Child Poverty Action Group found there to be sixteen London boroughs that have more households claiming housing benefit than there are affordable properties, with families relying heavily on short term discretionary housing payments from councils to stay in their homes. The report concluded that London councils are struggling to find local housing for local families as a result of reform.[34]

In July 2014, a report was published by the DWP that said only one in 20 claimants affected by the change had downsized their property. In response to this, the Liberal Democrats signalled a change in their support for the policy, with both Nick Clegg and Danny Alexander stating that they would like to see changes to the way it is implemented.[35]

A report published in January 2015 by the London School of Economics and Political Science, partly funded by Trust for London, presented modelling to suggest changes to direct taxes, tax credits and benefits from May 2010 to 2014/15 were together fiscally neutral, rather than contributing to deficit reduction.[36]



In Scotland, there were two major demonstrations on 30 March 2013 against the changes to welfare:

Participants in the protests include the Scottish Socialist Party and the Radical Independence Campaign. There were Yes Scotland and Scottish Green Party banners present at both events. Some parliamentarians from the Scottish National Party and the Scottish Labour Party issued statements of support.[38]

North West England[edit]

On Monday, 22 July 2013, a man in Runcorn benefits advice office cut his own throat in protest of the bedroom tax. The injuries were not fatal.[39]


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  3. ^ a b c National Housing Federation. "Bedroom tax". housing.org.uk. 
  4. ^ "How will the housing benefit changes work?". BBC News. 15 March 2013. Retrieved 2 April 2013. 
  5. ^ O'Hagan, Ellie Mae (1 April 2013). "The bedroom tax's authors were either careless or cruel – it must be fought". The Guardian. Retrieved 2 April 2013. 
  6. ^ "'Every penny matters': Osborne borrows Morrisons slogan in 'man of the people' speech to supermarket staff defending cuts to benefits". Daily Mail. 2 April 2013. Retrieved 2 April 2013. 
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  21. ^ Duncan Smith, Iain (7 March 2013). "Britain cannot afford the spare room subsidy". The Telegraph. Retrieved 4 April 2013. 
  22. ^ "Oral Answers to Questions (Prime Minister's Questions)". House of Commons. Hansard. 27 February 2013. Retrieved 4 April 2013.  Video version
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  30. ^ "Last-minute rush to avoid tough new test for disability benefit as Iain Duncan Smith praises reform of 'ridiculous' system". Daily Mail. 8 April 2013. Retrieved 8 April 2013. 
  31. ^ "Disability Living Allowance replaced by PIP scheme". BBC News. 8 April 2013. Retrieved 8 April 2013. 
  32. ^ "Atos comes under attack in emotional Commons debate". The Guardian. 17 January 2013. Retrieved 8 April 2013. 
  33. ^ "Five lose housing benefit cut appeal". BBC News. Retrieved 21 February 2014. 
  34. ^ "Families on the Brink: welfare reform in London". trustforlondon.org.uk. 
  35. ^ "Nick Clegg defends bedroom tax policy shift". The Guardian. 17 July 2014. 
  36. ^ "The Coalition’s Record on Cash Transfers, Poverty and Inequality 2010-2015". Retrieved 27 July 2015. /
  37. ^ "Thousands rally in Glasgow to protest Coalition's ‘bedroom tax’". 30 March 2013. Retrieved 13 August 2013. 
  38. ^ a b "Bedroom tax: Thousands protest across Scotland". 31 March 2013. Retrieved 13 August 2013. 
  39. ^ "Man cuts throat with knife in bedroom tax protest". Liverpool Echo. 26 July 2013. 

External links[edit]