Читать книгу The Tax Law of Charitable Giving - Bruce Hopkins R., Bruce R. Hopkins, David Middlebrook - Страница 21

Leaving aside the inevitable tweaks, reform proposals concerning the federal income tax charitable contribution deduction for individuals are of three types: harmonizing the various percentage limitations on annual deductible giving (including minimizing the distinctions in eligible deductible giving between gifts to public charities and gifts to private foundations), making the charitable deduction more “equitable” (read: making it available to nonitemizers), and converting the deduction to (or establishing as an alternative to) a tax credit.

A report commissioned by Independent Sector¹⁵⁷ analyzed five tax policy proposals involving amounts of charitable giving and the number of households that contribute. These proposals are: a nonitemizer charitable deduction without limitations, a nonitemizer charitable deduction with a cap ($4,000 for single filers and $8,000 for married couples filing jointly), a nonitemizer charitable deduction with a floor (allowing a deduction of 50 percent of the value of charitable gifts under 1 percent of AGI and a full deduction for gifts over 1 percent of AGI), an enhanced nonitemizer charitable deduction providing a higher-value deduction for low- and middle-income households, and a nonrefundable charitable giving tax credit (25 percent).

The key findings of this report are:

 The tax credit option has the largest positive impact on the amount that would be contributed ($37 billion) and the number of participating households (10.6 million). This proposal would reduce federal tax revenues by $33 billion.

 The unlimited nonitemizer charitable deduction could generate up to $26 billion in additional charitable contributions and induce up to 7.3 million additional households to donate. The federal revenue loss would be as much as $22 billion.

 The nonitemizer charitable deduction with a cap would generate fewer additional charitable dollars than is lost to the federal fisc.

 The nonitemizer charitable deduction with a floor could bring in up to $7 billion more in charitable giving than is lost in federal revenue. This policy option would cause an increase in giving households by as many as 352 per million lost in federal revenue.

Subsequently, the Joint Economic Committee issued a similar report.¹⁵⁸ One of its reform options is to make the charitable deduction available to itemizers and nonitemizers. This approach, it is said, would increase charitable giving but decrease federal revenue. The JEC report cited a study showing that an above-the-line charitable deduction would have increased giving in 2018 by $21.5 billion and reduced that year's government revenue by $25.8 billion.

The report concludes this portion of its analysis with the observation that, “[w]hile an above-the-line deduction would treat lower-income donors more fairly with respect to their charitable giving, it would still result in their having a higher after-tax price of giving compared with today's itemizers.”¹⁵⁹ The report continues: “Because higher-income taxpayers generally have higher tax rates, the effective cost of their donations would still be lower.”¹⁶⁰

The JEC report also addresses the matter of a tax credit, noting that, for example, with a 25 percent charitable credit, a donor's tax liability would be reduced by 25 percent of the value of all gifts, regardless of the tax rates or the size of the gifts. However, the report adds that, unless made refundable, this credit would apply only to the extent the donor has tax liability.

The same study estimated that replacing the charitable deduction with a 25 percent nonrefundable tax credit would have a greater positive impact on charitable giving and a greater reduction in federal revenue than the above-the-line deduction: it would have increased giving in 2018 by $23.3 billion and reduced revenue by $31.1 billion.

The JEC report stated that a credit approach has also been estimated to have a larger positive effect on the number of new donors compared to an above-the-line deduction. Another study cited by the committee, of various ways to penalize giving less among nonitemizers while leaving the current deduction unchanged, found that a 25 percent tax credit, of the options considered, “would most increase the number of households giving, both overall and at all income levels except the top 1 percent.”¹⁶¹

As to the percentage limitations, a good case can be made that the various existing percentages (from 20 to 60 percent) are confusing and unnecessary, and need to be blended and trimmed.

With a progressive tax system, it is inevitable that the tax benefits of a deduction are likely to accrue to the wealthier of taxpayers. Thus, one commentator lamented the “disparate treatment between taxpayers who itemize their tax returns [sic] and those who claim the standard deduction.”¹⁶² Another observer stated that the charitable deduction “has almost always disproportionately benefited a relatively high-income minority of households.”¹⁶³ Those finding this to be a great inequity often fail to understand that a form of charitable deduction is built into the standard deduction. In any event, an above-the-line charitable deduction is an expensive undertaking for the federal government. It is not likely to be tried again soon.

From time to time, as noted, a tax credit is considered as an alternative or a supplement to the charitable contribution deduction for individuals. Tax credits of this nature, also as noted, can be costly from the standpoint of the federal fisc. Further, studies have shown that a federal charitable tax credit would significantly alter the allocation of gift dollars to types of charities in relation to the way these dollars are directed to charity under the current federal income tax charitable contribution deduction system.