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<li><a href="/policy/docs/program-explainers/poverty-decline.html">Why Will Poverty Decline for Beneficiaries?</a></li>
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<li><a href="/policy/docs/program-explainers/windfall-elimination-provision.html">Windfall Elimination Provision</a></li>
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<li><a href="/policy/docs/projections/populations/divorced-spousal-2050.html">By beneficiary type</a></li>
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<li><a href="/policy/docs/projections/populations/beneficiaries-60-or-older.html">By demographic group</a></li>
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<li><a href="/policy/docs/projections/policy-options/index.html">Policy options/proposals</a></li>
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<li><a href="/policy/docs/projections/tables/beneficiaries.html">Profile of beneficiaries by race & ethnicity</a></li>
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<li><a href="/policy/docs/projections/tables/taxpayers.html">Profile of taxpayers by race & ethnicity</a></li>
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<h3>Program Explainers</h3>
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<ol class="tabsORP greentab ninetypercent">
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<li><a href="benefit-claiming-age.html"><span>Benefit<br>Claiming Age</span></a></li>
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<li class="currentTab"><a href="government-pension-offset.html"><span>Government<br>Pension Offset</span></a></li>
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<li><a href="retirement-earnings-test.html"><span>Retirement<br>Earnings Test</span></a></li>
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<li><a href="scheduled-payable.html"><span>Scheduled <abbr title="versus">vs.</abbr><br> Payable Benefits</span></a></li>
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<li><a href="special-minimum.html"><span>Special<br>Minimum Benefit</span></a></li>
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<li><a href="poverty-decline.html"><span>Why Will Poverty Decline<br>for Beneficiaries?</span></a></li>
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<li><a href="windfall-elimination-provision.html"><span>Windfall Elimination<br>Provision</span></a></li>
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</ol>
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<div class="factsheet ORPgreen">
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<h4>Government Pension Offset</h4>
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<span class="dateORP"><br>Released: May 2024</span>
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<div class="container-yellow"><p>The Social Security Fairness Act, <abbr class="spell">HR</abbr> 82, concerning the Windfall Elimination Program and Government Pension Offset, was signed into law on January 5, 2025. Upon implementation, the Social Security Fairness Act eliminates the reduction of Social Security benefits while entitled to public pensions from work not covered by Social Security. The Social Security Administration is evaluating how to implement the Act. Ongoing agency updates will be released at <a href="/benefits/retirement/social-security-fairness-act.html">https://www.ssa.gov/benefits/retirement/social-security-fairness-act.html</a>.</p><p>The fact sheet below is from the <b>historical</b> policy.</p></div>
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<p><b>BACKGROUND:</b> The <a href="/pubs/EN-05-10007.pdf">Government Pension Offset (<abbr class="spell">GPO</abbr>)</a> adjusts Social Security spousal or <span class="nobr">widow(er)</span> benefits for people who receive “non-covered pensions.” A <b>non-covered pension</b> is a pension paid by an employer that does not withhold Social Security taxes from your salary, typically, state and local governments or non-<abbr>U.S.</abbr> employers.</p>
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<p>Congress created the <abbr class="spell">GPO</abbr> in 1977 to help ensure that spousal and <span class="nobr">widow(er)</span> benefits of those with covered or non-covered lifetime earnings would be roughly equal. <sup><a href="#mna" id="mta">a</a></sup> Under Social Security's dual-entitlement rule, spouses with their own covered earnings have their spousal benefits offset dollar-for-dollar by their own earned benefit. The <abbr class="spell">GPO</abbr> has a similar intention; the offset originally was dollar-for-dollar for non-covered pensions, but Congress reduced it to <span class="nobr">two-thirds</span> in 1983. </p>
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<p><b>HOW THE <abbr class="spell">GPO</abbr> WORKS:</b> The <abbr class="spell">GPO</abbr> reduces the spousal or <span class="nobr">widow(er)</span> benefit by <span class="nobr">two-thirds</span> of the monthly non-covered pension and can partially, or fully, offset an individual's spousal/<span class="nobr">widow(er)</span> benefit, depending on the amount of the non-covered pension. The chart below shows how the <abbr class="spell">GPO</abbr> would affect spousal benefits for two non-covered pension amounts.</p>
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<div class="svgChart" id="chart1"><img src="gpo-1.svg" alt="Illustration. Title: G P O Examples for Different Non-Covered Pensions: For a hypothetical spouse of a covered worker with an $1,800 benefit. Three mini bar charts left to right. First, a single bar showing the baseline: Spousal benefit before G P O equals $900. Then another divided bar showing partial offset bar: If the spouse has a $1,000 non-covered pension, the G P O would equal $667. This GPO is smaller than the spousal benefit so the remaining benefit of $233 would be paid. Then, final bar showing full offset: If the spouse has a $1,600 non-covered pension, the G P O would equal $1,067. This GPO is larger than the spousal benefit so no benefit is paid." width="673" role="img" /></div>
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<p><b>CHARACTERISTICS OF <abbr class="spell">GPO</abbr> BENEFICIARIES:</b> <sup><a href="#mnb" id="mtb">b</a></sup> In 2022, the <abbr class="spell">GPO</abbr> applied to approximately 12.6 percent of the 5.84 million spousal or <span class="nobr">widow(er)</span> beneficiaries <sup><a href="#mnc" id="mtc">c</a></sup> (734,601 beneficiaries). Beneficiaries affected by the <abbr class="spell">GPO</abbr> had an average monthly non-covered pension of $2,690, which was nearly $865 more than the average Social Security retired worker benefit of <a href="/policy/docs/statcomps/supplement/2023/5a.html#table5.a6">$1,825 in 2022</a>. Nearly 70 percent of beneficiaries affected by the <abbr class="spell">GPO</abbr> had their entire spousal or <span class="nobr">widow(er)</span> benefit offset and had an average monthly non-covered pension of $3,502. Those with partially offset benefits had an average non-covered pension of $999.</p>
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<div class="svgChart" id="chart2"><img src="gpo-2.svg" alt="Chart set. Title: Selected Characteristics of G P O Population, 2022. Footnote b. Four pairs of data. 83% were women and 17% were men. 52% received a spousal benefit and 48% received a widow(er) benefit. 70% had a full offset and 30% had a partial offset. The average benefit before offset was $1,058 and after offset was $249." width="673" role="img" /></div>
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<div class="note">
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<p><a href="#mta" id="mna">a.</a> Social Security Administration, <a href="/policy/docs/statcomps/supplement/2023/supplement23.pdf">Annual Statistical Supplement, 2023</a>, <abbr title="page">p.</abbr> 16.</p>
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<p><a href="#mtb" id="mnb">b.</a> <abbr class="spell">GPO</abbr> beneficiary tabulations are based on unpublished data from the Social Security Administration, Office of Research, Evaluation, and Statistics.</p>
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<p><a href="#mtc" id="mnc">c.</a> Includes spouses of retired and disabled workers and disabled and non-disabled <span class="nobr">widow(er)s.</span> See Social Security Administration, <i>Annual Statistical Supplement, 2023</i>, <a href="/policy/docs/statcomps/supplement/2023/5a.html#table5.a1">Table 5.A1</a>.</p>
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