North Carolina Cooperative Extension

You Decide: Should tax expenditures be part of a budget or a budget deal?

By Dr. Mike Walden | Nov 26, 2012


Can something called “tax expenditures” be the silver bullet to avoid

a fiscal cliff and put the federal government on a better financial

footing? Maybe so! Some think tax expenditures are the key to any

budget deal in Washington.


So what exactly are tax expenditures? The term is somewhat misleading

because logic suggests it means types of spending that are taxed.

Instead, just the opposite is meant. Tax expenditures are certain

kinds of spending made by households and businesses that are not

subject to the federal income tax. So tax expenditures reduce the

amount of tax revenue available to the federal government.


To see how tax expenditures work, here’s a brief tutorial on the

federal income tax. The initial calculation of your federal income tax

comes from multiplying your taxable income by the tax rate applicable

to that income. So, if Sally Smith’s taxable income is $40,000 and the

tax rate is 15 percent, then the federal income tax owed by Sally is

$6,000 ($40,000 x 0.15). Once the initial tax owed is calculated,

there may be a further adjustment to reduce that amount.


Tax expenditures can affect the tax owed in two ways. First, tax

expenditures can reduce a taxpayer’s taxable income. Continuing with

the above example, if Sally qualified for a tax expenditure of

$10,000, then her taxable income would be reduced to $30,000, and her

income tax bill would drop to $4,500. These kinds of tax expenditures

are called tax deductions.


Second, certain kinds of tax expenditures can directly reduce the

amount of tax owed after the initial calculation of that tax bill was

made. Therefore, if Sally was eligible for this kind of tax

expenditure at the amount of $2,000, her tax owed would fall to $4,000

($6,000 minus $2,000). Such a tax expenditure is termed a tax credit.


I’m sure you’re now thinking, what are some examples of these great

tax expenditures? The tax code is loaded with them, but a few of the

more prominent are the mortgage interest deduction, the deduction for

health insurance provided by businesses to their employees, deductions

for donations to charities, a tax credit for low-income workers and a

tax credit for child care payments.


Why do tax expenditures exist? There are two competing explanations.

One says they are the result of special interest lobbying to help a

particular part of the economy. Let’s say you manufacture widgets. If

you can get a provision placed in the tax code that says people buying

widgets get either a tax deduction or tax credit for the amount they

spend on widgets, then you’ll likely see your widget sales increase.


The alternative explanation says government uses tax expenditures to

encourage spending on products and services that benefit the public

good. The tax deduction for charitable contributions is a good

example. Supporters of tax expenditures for home-buying, health

insurance and energy efficient vehicles also argue their products

benefit society at large.


Which brings us back to today. The reason tax expenditures are

potentially part of a budget deal is because they are very costly to

federal coffers. If all the tax expenditures were eliminated, current

estimates indicate annual federal government revenues would increase

by near $1 trillion. That’s enough to eliminate the annual budget

deficit. And this revenue could be raised without increasing tax

rates, which is a sticking point for many elected officials.


It’s very unlikely all tax expenditures would be axed. Indeed, one

idea floating around -- that came up during the presidential campaign

-- is that all tax expenditures would be kept, but taxpayers would be

limited to the total dollar amount they could claim. Other ideas are

to keep some tax expenditures but reduce or eliminate others or reduce

the tax expenditures available to certain taxpayers, such as

higher-income households.


Regardless of what kind of plan is put forward to revise tax

expenditures, it will be hotly debated for two fundamental reasons.

First, current users of tax expenditures will see their tax bill rise

if tax expenditures are curtailed.


Second, groups that benefit from tax expenditures -- such as

charities, the residential housing industry, child care centers and

alternative energy providers -- will likely be hurt if their tax

expenditures are curtailed.


To see how this could happen, consider Sally Smith making a $1,000

contribution to her favorite charity. With a tax deduction for that

contribution and using a 15 percent tax rate, Sally’s donation reduces

her tax bill by $150 ($1,000 x 0.15), meaning her $1,000 gift

effectively costs her $850. Charities worry that people like Sally

won’t donate quite as much without the tax deduction because the cost

of donating would be higher. Other groups benefiting from tax

expenditures have the same worry.


So keep your eye on the coming arguments over tax expenditures. You

decide if they should be a key part of any deal for fiscal frugality.


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Dr. Mike Walden is a William Neal Reynolds Professor and North

Carolina Cooperative Extension economist in the Department of

Agricultural and Resource Economics of N.C. State University’s College

of Agriculture and Life Sciences. He teaches and writes on personal

finance, economic outlook and public policy.