Voluntary action and pilots can help test solutions, but they cannot be the main driver of a national financial inclusion strategy unless there are clear routes to scale and clear consequences if voluntary action fails. This is especially important where firms are reluctant to serve consumers who may be higher cost, higher risk or less profitable. The inclusion of a reserve power on access to banking services in the Financial Services and Markets Bill suggests that the government also recognises these limits. (Conclusion, Paragraph 34)