Monday. May 10, 2004
Guest Blogger Ellen Aprill (Loyola-L.A.) reports in from the ABA Tax Section meeting in Washington, D.C. on the Laurence Neal Woodworth Lecture on Federal Tax Law and Policy given by Joe Bankman (Stanford). In the lecture, Norms and Enforcement Strategy: Tax Shelters and the Cash Economy, Bankman first talked about how changing norms fueled the growth of tax shelters in the 1990s:
A lack of effective enforcement policy made tax shelters seem an economically attractive investment in the 1990’s. Changing norms also helped fuel tax shelter boom. Corporate tax departments became profit centers; the literal interpretivism that supports tax shelters gained respectability. The interaction of economic self-interest and these prescriptive norms created new behavioral norms: taxpayers, financial intermediaries and lawyers became more aggressive. Tax shelters became (more) mainstream.
Bankman then noted how the revenue loss from the cash economy dwarfs the revenue loss from tax shelters:
A lack of effective enforcement has also made underreporting in cash business an economically attractive strategy. The result is a long-standing behavioral norm characterized by low reporting rates. Underreporting by small business, which is favored, does not carry with it the disapprobation of underreporting by public corporations, which are viewed with distrust. However, the revenue cost to the fisc (and net social cost to society) almost certainly exceeds the loss from tax shelters.
Bankman recommended that federal and state tax policymakers take steps close the revenue drain from the cash economy:
The role of tax administration is to use the lever of enforcement and penalties to change the cost benefit-calculus and behavioral norms that support underreporting in both sectors. Obviously, any successful policy initiative must take account of the political constraints that limit enforcement options. I will consider the range of administratively feasible policy options, and the political constraints on their adoption.
Bankman’s specific recommendations included:
• Increasing the audit rate, particularly on small businesses
• Cross-checking local property ownership records with income tax records
• Increasing third party reporting obligations on payees rather than payors
• Having the government pay some of the compliance costs imposed on taxpayers
• Adopting the Western European practice of administrative preparration of pro forma tax returns
Bankman noted that many of these initiatives would be easier to adopt at the state level, which could serve as laboratories for later reform at the federal level.
Thanks to Ellen Aprill for filing this report. Other readers who attended the ABA Tax Section meeting are invited to email me with content to be posted on TaxProf Blog. The content can be as short or as long as you want. Guest Bloggers will be be identified or remain anonymous (your choice).