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To follow up on Peter's point, why shouldn't the pension industry be made to pay for its own oversight? Levies to fund regulation are nothing new (the UK has a per-member charge to pay for TPR's budget), and as you note, right now funding comes from general taxation.

Is it surprising that the Commission wants to move away from a general taxation model? As the industry often points out, the IORP Directive only impacts a handful of countries. Therefore you could also ask: Why should citizens in a non-DB nation pay for someone at EIOPA to conduct a DB stress test on UK funds?

You can easily make the expenditure transparent by the ESAs needing to publish detailed work plans with cost estimates, justifying on a year-by-year basis the cost of a levy.