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The Way We Tax:Utah’s State and Local Tax System
Prepared for:
Bagels & Briefings
February 24, 2015
Presentation Outline
Tax Policy Overview
Utah’s Comparative State & Local Tax Burden
Income Taxes
Sales & Use Taxes
Property Tax
Fuel Taxes
Tax Policy:Why Does it Matter?
Tax Policy – Why Does it Matter?
It’s not only the amount of revenue that matters, but also how you get it
Sound tax policy is concerned with how taxes:
• Are designed and administered
• Affect the taxpayer
• Affect the economy
Tax policy affects every citizen of Utah
Tax policy provides revenue that funds state and local public services
Elements of an Optimum Tax System
Reliable
•Sufficient
•Stable
•Certain
Equitable
•Vertical Equity
•Horizontal Equity
Simple
•For taxpayers to pay
•For tax collectors to collect
Responsive to interstate and international competition
Economically neutral
Accountable and transparent
Source: “New Realities in State Finance,” National Conference of State Legislatures
Utah Tax Base & Effective Tax Rates
$207
$70$49
1.38%
4.10%
5.98%
0%
1%
2%
3%
4%
5%
6%
7%
$0
$50
$100
$150
$200
$250
Property Tax Income Tax Sales & UseTax
Tax Base Effective Tax Rate
Tax B
ase
(billions)
Sta
tew
ide A
vera
ge E
ffectiv
eT
ax R
ate
Source: Utah State Tax Commission
Property, $2,768,460,738 ,
28%
Sales / Use (state & local), $2,954,043,75
6 , 30%
Individual Income,
$2,862,452,407 , 29%
Corporate Income,
$353,818,749 , 4%
Fuel, $364,418,535 ,
4%
Other State, $363,764,011 ,
4%
Other Local, $140,455,045 ,
1%
Utah’s Three Major State and Local Taxes:Income, Property, and Sales & Use Tax Revenues
FY 2014
Source: Utah State Tax Commission
Total Revenue: $9.807 B
$0.0
$0.5
$1.0
$1.5
$2.0
$2.5
$3.0
$3.5
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
Billions
Individual Income Tax
Sales and Use Tax - State and Local
Property Tax
Source: Utah State Tax Commission
State and Local Sales & Use, Individual Income, and Property Tax RevenuesFY 1970 to FY 2014
Real Per Capita State and Local Sales & Use, Individual
Income, and Property Tax RevenuesFY 1970 to FY 2014
$0
$200
$400
$600
$800
$1,000
$1,200
$1,400
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
Individual Income Tax
Sales and Use Tax - State and Local
Property Tax
Source: Utah State Tax Commission
Utah’s State and Local
Tax Burden:How Does It Compare?
0%
5%
10%
15%
20%
25%
Ala
ska
Nort
h D
akota
New
York
Wyom
ing
Dis
tric
t of
Colu
mbia
Haw
aii
Connecti
cut
Main
eV
erm
ont
Illinois
Min
neso
taN
ew
Jers
ey
Wis
consi
nR
hode Isl
and
West
Vir
gin
iaD
ela
ware
Califo
rnia
U.S
. A
vera
ge
Ohio
New
Mexic
oIo
wa
Nevada
Kansa
sM
ass
achuse
tts
India
na
Ark
ansa
sPennsy
lvania
Mis
siss
ippi
Ore
gon
Nebra
ska
Kentu
cky
Mary
land
Mic
hig
an
Uta
hM
onta
na
Nort
h C
aro
lina
Ari
zona
Wash
ingto
nLouis
iana
Colo
rado
Texas
Idaho
Georg
iaSouth
Caro
lina
Mis
souri
Okla
hom
aV
irgin
iaA
labam
aFlo
rida
New
Ham
psh
ire
Tenness
ee
South
Dakota
State and Local Taxes as a Percent of Personal IncomeFY 2012
Source: U.S. Department of Commerce, U.S. Census Bureau
Utah ranks
33rd
11.0
%
10.8
%
10.8
%
11.1
%
10.9
%
10.9
%
10.1
%
10.4
%
10.6
%
10.8
%
10.8
%
10.4
%
9.7
1%
9.4
3%
9.7
2%
9.6
3%
21 2220
1513
15
19 2022 23
2124
34
3835
33
0
5
10
15
20
25
30
35
40
0%
3%
6%
9%
12%
1995
1996
1997
1998
1999
2000
2002
2004
2005
2006
2007
2008
2009
2010
2011
2012
Rank
Perc
en
t o
f P
ers
on
al
Inco
me
State and Local Taxes as a Percent of Personal IncomeUtah: FY 1995 to FY 2012
Source: U.S. Department of Commerce, U.S. Census Bureau
Taxes as a percent
Of Personal Income
Utah’s rank among the 50 states
and the District of Columbia
15 33 33 19 21 15 0
5
10
15
20
25
30
35
TotalOwn
SourceRevenue
Taxes PropertyTaxes
GeneralSalesTaxes
IncomeTaxes
FuelTaxes
Ra
nk
Am
on
g 5
0 S
tate
s a
nd
D
istr
ict
of
Co
lum
bia
How Utah ComparesUtah Taxes and Own Source Revenue as a Percent of Personal Income
FY 2012
Source: U.S. Department of Commerce, U.S. Census Bureau
Income TaxesIndividual and Corporate
Utah’s Single Rate Individual Income TaxEffective Tax Year 2008
Single Rate
• 5%
Taxable Income
• Federal AGI
• Additions
• Subtractions
Several Tax
Credits
• Taxpayer
• Retirement
Credit Phase Out
• Based on
income
• 1.3%
• 2.5%
Effect of Recent Income Tax Changes
(Tax base x tax rate) – tax credits = tax liability
New system is moderately progressive
• Old system – progressive through tax base and tax rates
• New system – progressive through tax credits
Briefing papers available (visit le.utah.gov)
Utah’s Income Tax System Remains ProgressiveTax Year 2013
0
40
80
120
160
200
0%
1%
2%
3%
4%
5%
$0 o
r le
ss
>$0 a
nd <
$10k
$10k -
<$20k
$20k -
<$30k
$30k -
<$40k
$40k -
<$50k
$50k -
<$60k
$60k -
<$70k
$70k -
<$80k
$80k -
<$90k
$90k -
<$100k
$100k -
<$125k
$125k -
<$150k
$150k -
<$175k
$175k -
<$200k
$200k -
<$225k
$225k -
<$250k
$250k -
<$500k
$500k -
<$750k
$750k -
<$1m
$1 m
illion &
over
Num
ber
of
Retu
rns
(thousa
nds)
Eff
ecti
ve T
ax R
ate
Adjusted Gross Income
Average Effective TaxRate
Source: Utah State Tax Commission
Distribution of Returns and Utah TaxTax Year 2013
0
25
50
75
100
125
150
175
$0
$50
$100
$150
$200
$250
$300
$350
$0 o
r le
ss
>$0 a
nd <
$10k
$10k -
<$20k
$20k -
<$30k
$30k -
<$40k
$40k -
<$50k
$50k -
<$60k
$60k -
<$70k
$70k -
<$80k
$80k -
<$90k
$90k -
<$100k
$100k -
<$125k
$125k -
<$150k
$150k -
<$175k
$175k -
<$200k
$200k -
<$225k
$225k -
<$250k
$250k -
<$500k
$500k -
<$750k
$750k -
<$1m
$1 m
illion &
over
Num
ber
of
Retu
rns
(thousa
nds)
Uta
h T
ax P
aid
(m
illions)
Adjusted Gross Income
Utah Tax Paid
Source: Utah State Tax Commission
Distribution of Returns and Utah Tax Tax Year 2013
Less than $80K, 78.30%
$80-125K,
13.30%
Greater than $125K, 8.40%
Returns by AGI
Less than $80K, 30.60%
$80-125K,
24.70%
Greater than $125, 44.70%
Utah Tax by AGI
Source: Utah State Tax Commission
Distribution of Returns, Exemptions, AGI, and Utah TaxTax Year 2013
Adjusted GrossIncome
% of Returns
% of Exemptions
% ofIncome (AGI)
% of Utah Income
Tax
less than $40K 52.1% 38.5% 13.9% 7.2%
$40-80K 26.2% 31.5% 26.0% 23.4%
$80-125K 13.3% 18.3% 22.5% 24.7%
$125-250K 6.5% 9.1% 18.2% 21.8%
$250K-$1M 1.7% 2.4% 11.6% 14.0%
$1M+ 0.2% 0.2% 7.8% 8.9%
100% 100% 100% 100%
Source: Utah State Tax Commission
Earmarked for public and higher education
Adjustable
• Ability to pay
• Offset regressivity of other taxes
Detailed information on taxpayers
Visible
• $ withheld from paychecks
• Annual tax return
Tax on Income
• Individuals
• “Pass-through” business entities
• Trusts and estates
Why Does the Individual Income Tax Matter?
Corporate Franchise & Income Tax RevenuesFY 1970 to FY 2014
$0
$50
$100
$150
$200
$250
$300
$350
$400
$450
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
Millions
Source: Utah State Tax Commission
Corporate Franchise & Income Tax Revenue
by % of Business in UtahTax Year 2012
Businesses that conduct 0% to
5% of total business in Utah
67%
Businesses that conduct 5% to 100% of total
business in Utah
33%
Source: Utah State Tax Commission
Earmarked for public and higher education
Volatile revenues
Tax on income
• Generally C-corporations
Why Does the Corporate
Franchise & Income Tax Matter?
Sales & Use TaxesState and Local
Certain admissions, such as movie tickets
Sales of food (reduced rate may apply)
Sales of certain telecommunication, utility, or
passenger services (reduced rate may apply)
Retail sales of tangible personal property
The Utah Sales and Use Tax Base:What Do We Tax?
“Use tax”
Products transferred electronically
Certain hotel or motel charges
Certain services, such as cleaning and
repair of tangible personal property
The Utah Sales and Use Tax Base:What Do We Tax?
All
TransactionsWhat we do
tax.
The Utah Sales and Use Tax Base:What Don’t We Tax?
Exclusions (transactions that are not
part of the tax base)
Selected exclusions
• Professional services
• Personal care services
Exemptions
• Currently 70+ exemptions
• Estimated FY 2013 state revenue effect: $697M
The Utah Sales and Use Tax Base:What Don’t We Tax?
The Utah Sales and Use Tax Base:What Don’t We Tax?
Source: Utah State Tax Commission
Examples of sales and use tax exemptions:
• Motor, special, aviation fuels ($277M)
• Manufacturing machinery & equipment ($110M)
• Prescription drugs ($59M)
• Farm machinery & equipment ($39M)
• Natural gas, electricity, coal for industrial use ($25M)
• Food stamps & WIC ($8M)
• Certain religious / charitable sales & purchases ($7M)
Depends on what is being taxed
Sales and Use Tax RateWhat’s the Rate?
State Tax
Rate +Sum of
Local Tax
Rates
Total Tax
Rate=
Depends on which local taxes
are imposed
Location of transaction
matters
The state tax rate depends on what is being taxed
Examples
Sales and Use Tax Rates
Food and food ingredients → 1.75%
Residential fuels → 2.00%
General → 4.70%
Counties, cities, and towns are authorized to impose a variety of local option sales and use taxes
Most local option sales and use taxes tax the same transactions taxed at the state level
Local Option Sales and Use Tax Rates
Imposed for general purposes
Local Option Sales and Use Tax Rates
• Local option 1.00%
• County option 0.25%
Revenue
collected Deposited
General Fund of
county, city, or
town
Imposed only for a specified purpose
Local Option Sales and Use Tax Rates
• Public transit tax, up to 0.30%
• County “zoo, arts, and parks tax,” 0.10%
Imposed only on certain transactions
Local Option Sales and Use Tax Rates
• County transient room tax, up to 4.25%
• County tax on food sold by restaurants, up to 1.00%
State and Local Sales and Use TaxRates Over Time1970 to 2014
1 23 4 5
9 10 11 13 15 16
0%
1%
2%
3%
4%
5%
6%
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
State Sales Tax Rate Local Sales Tax Rate (derived)
Source: Utah State Tax Commission
State and Local Sales and Use TaxShare of Revenues Over TimeFY 1970 to FY 2014
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
State Share of Sales Tax Revenue
Local Share of Sales Tax Revenue
Source: Utah State Tax Commission
State and Local Sales and Use TaxGeneral Purpose and Earmarked Revenues Over TimeFY 1970 to FY 2014
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
General Purpose Sales Tax Revenue
Earmarked Sales Tax Revenue
Source: Utah State Tax Commission
Sales & Use Tax BaseYear-Over Percent Change FY 1978 Q4 to FY 2013 Q3
-15%
-10%
-5%
0%
5%
10%
15%
20%
1978.4
1979.4
1980.4
1981.4
1982.4
1983.4
1984.4
1985.4
1986.4
1987.4
1988.4
1989.4
1990.4
1991.4
1992.4
1993.4
1994.4
1995.4
1996.4
1997.4
1998.4
1999.4
2000.4
2001.4
2002.3
2003.4
2004.4
2005.4
2006.4
2007.4
2008.4
2009.4
2010.4
2011.4
2012.4
2013.4
Source: Utah State Tax Commission
0%
10%
20%
30%
40%
50%
60%
70%
80%
1960
1962
1964
1966
1968
1970
1972
1974
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
Sales Tax Base as a % of Utah GDP
Sales Tax Base as a % of Utah Personal Income
Sales & Use Tax BaseGross Taxable Sales as a % of GDP and Personal Income1960 to 2013
Over the long term, the sales and use tax base is gradually
declining relative to the economy as a whole.
Source: US Dept of Commerce, Bureau of Economic Analysis
The Sales & Use Tax BaseWhy is It Declining Over the Long Term?
Changing purchasing patterns
• Movement to more of a service-based economy
• Many services excluded from sales & use tax base
Cross-border shopping
• Internet, phone, and catalogue purchases
Technological change
• Digitization of goods (software, books, music)
Legislated exemptions
Sources: “E-Commerce in the Context of Declining State Sales Tax Bases”
Donald Bruce & William Fox. National Tax Journal. Vol. LII No. 4, Part 3.
US Personal Consumption Expenditures1929-2012
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1929
1933
1937
1941
1945
1949
1953
1957
1961
1965
1969
1973
1977
1981
1985
1989
1993
1997
2001
2005
2009
Durable goods Nondurable goods except food
Food Medical services
Non-medical services
Source: US Dept of Commerce, Bureau of Economic Analysis
Sales and Use Tax RevenueWhere Does the Money Go?FY 2014
State Earmarked,
$453,855,085 , 15%
State not Earmarked,
$1,656,806,222 , 54%
General Local Option,
$496,435,229 , 16%
General County Option,
$124,399,383 , 4%
Local Transportation, $273,858,547 ,
9%
Other Local (ZAP/RAP, rural hospital, resort
community, etc.), $54,552,089 , 2%
Source: Utah State Tax Commission
Most significant source of revenue to state government and state higher education system
Significant source of revenue to local governments, Utah Transit Authority, and other public transit districts
Tax on consumption
Politically more popular less unpopular than other taxes
Impacts zoning decisions
Why Does the Sales and Use Tax Matter?
Property Tax
General Rule
• All tangible property shall be:
• Assessed at a uniform and equal rate in proportion to its fair market value; and
• Taxed at a uniform and equal rate
Exceptions to General Rule
Property Tax Exemptions
The Property Tax: Embedded in the Utah Constitution
The Legislature may by statute:
• Provide for agricultural land to be assessed based on its value for agricultural purposes
• Determine the manner and extent of taxing livestock
• Determine the manner and extent of taxing or exempting intangible property
• Exempt tangible personal property required to be registered for use on a public highway, waterway, or land or in the air
• Provide for the remission or abatement of the taxes of the poor
Exceptions to the General Rule
The Utah Constitution Exempts:
• Government owned property
• Nonprofit entity-owned property used for religious, charitable, or educational purposes
• Burial places
• Farm equipment and machinery
• Water rights and facilities used to irrigate land owned by the owner of the water rights and facilities
• Nonprofit entity-owned water rights and facilities used to irrigate land, provide domestic water, or provide water to a public water supplier
Constitutionally Mandated Exemptions
Inventory
Up to 45% of residential property value
Household furnishings, furniture, and equipment
Tangible personal property that generates an inconsequential amount of revenue
Property owned by a disabled veteran or unmarried surviving spouse or orphan
Selected Discretionary Property Tax
Exemptions
Property
Tangible
Intangible(not taxed)
Exempt
Real
Personal
Land
Improvements
Commercial Residential
CentrallyAssessed
Primary Secondary
Examples:GovernmentCharitableReligiousEducationalFarm EquipLivestockInventoriesIrrigation45% of Primary Res.Household furnishings
BusinessEquipment &Furnishings
Mines
Utilities
Transportation
Vehicles
Other
Age Based 1
Agricultural Land Improved
Unimproved
MoneyStocksBonds“Goodwill”“Going concern”
The Property Tax “Tree”What is and is not taxed?
Value Based 2
Source: Office of Legislative Research and General Counsel.
Property TaxesWhere Does the Money Come From?2013 Tax Year
Primary Residential,
1,305,225,398, 46%
Commercial, 621,661,679,
22%
Other Real, 288,434,721,
10%
Personal, 182,322,224,
6%
Motor Vehicles,
167,277,75…
Natural Resources,
117,577,461, 4%Utilities,
174,296,198, 6%
Source: Utah State Tax Commission
Property TaxesWhere Does the Money Go?2013 Tax Year
Schools55%
Counties18%
Municipalities14%
Special Districts
13%
Source: Utah State Tax Commission
School Basic Levy History1980-2013
0.000000
0.000500
0.001000
0.001500
0.002000
0.002500
0.003000
0.003500
0.004000
0.004500
0.005000
$0
$50
$100
$150
$200
$250
$300
$3501980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
Basi
c L
evy R
ate
Basi
c L
evy R
evenue
Millions
Year
Basic Levy Revenue Basic Levy Rate
Source: Utah State Office of Education
Effective Property Tax RatesPrimary Residential Property and All Property1995 – 2013
0.00
0.20
0.40
0.60
0.80
1.00
1.20
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
Eff
ecti
ve P
ropert
y T
ax R
ate
Primary Residential Statewide - All Property
Source: Utah State Tax Commission
Tax on wealth and capital
Source of revenue for schools and other local government entities
Oldest state and local tax
Stability
Transparent
Unpopular tax
Provides political accountability
Why Does the Property Tax Matter?
Fuel TaxesMotor and Special Fuel
$0
$50
$100
$150
$200
$250
$300
$350
$400
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
Millions
Combined Motor and Special Fuel Tax RevenueFY 1976 to FY 2014
Source: Utah Department of Transportation Annual Statistical Surveys; Utah State Tax Commission
Indicates a tax rate increase
Fuel TaxesWhere Does the Money Go?
Constitutionally earmarked for highway purposes (construction and maintenance)
70% to UDOT
30% to cities and counties (B&C Road Fund)
• Used under the direction of UDOT
• Distributed based on road length and pavement type
Why Do Motor and Special Fuel Taxes Matter?
Significant source of revenue for maintaining state highway system
Politically unpopular
Somewhat like to a user fee - taxes use of public highways
Taxed on a per-unit basis, so adjusts with consumption amount, not price
Please feel free to contact us with any questions at
(801) 538-1032
Leif Elder, Policy Analyst
Bryant Howe, Assistant Director
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