The nation's retirement system is giving the wealthiest Australians twice as much financial support as those on the lowest incomes, says a government paper that could spark a renewed fight over superannuation tax breaks.

Government payments and tax concessions are worth more than $700,000 over time to those in the top 10 per cent of the workforce by income, but the benefits amount to less than $350,000 for those in the lowest decile.

"Where one generation is required to fund their own retirement as well as the retirement of a previous or future generation, they may view this as inequitable," the paper says. Credit:Glenn Hunt

The contrast is a key feature of a Treasury paper released on Friday to guide the Morrison government's review of the retirement system, signalling changes to make the system fairer.

The three-person panel leading the government's review is not recommending any changes at this stage. It is instead calling for community responses to the discussion paper but has signalled its interest in making sure the system is fair for younger taxpayers as well as those in retirement.