NOT content to phase out the estate tax
through President Bush's 10-year plan, Republicans in Congress are now
seeking to abolish the tax forever. But what is the economic rationale?
Economists usually dislike taxes that distort people's behavior
in ways that hurt society. The income tax leads some people to work
less. The capital gains tax, some studies suggest, discourages saving.
One
might easily conclude that the estate tax discourages both working and
saving, by taking away a portion of whatever is left over from those
activities at the time of death. Douglas J. Holtz-Eakin, the chief
economist at the president's Council of Economic Advisers, takes the
argument a step further. By discouraging saving, he asserts, the tax
hurts investment in the economy and leads to lower real wages.
From an analytical standpoint, Mr. Holtz-Eakin has a point. Yet the scientific evidence is far from clear.
''It's
weak,'' said David Joulfaian, an economist at the Treasury Department,
of the distorting power of the estate tax. ''It's not in the magnitude
or of the same flavor as with the income tax.'' People aren't really
quitting work or saving less, he said. Instead, they are just
recalibrating their portfolios and giving gifts, which are taxed at
lower rates than bequests, while living. These changes, though
distortions, should not have much effect on the health of the economy,
he added.
Moreover, the estate tax's effect on people's labor
may be offset by their heirs. Heirs who dropped out of the labor force,
Mr. Joulfaian's research shows, had received much larger bequests than
those who kept working. In the words of Warren E. Buffett, the
billionaire investor, it might be wisest to leave children ''enough
money so that they would feel they could do anything, but not so much
that they could do nothing.''
Many of Mr. Joulfaian's results
use data from income tax returns from 1982 and 1989. Research using
later data, from the continuing Health and Retirement Study sponsored
by the National Institute on Aging, comes from Mr. Holtz-Eakin. He
happens to have studied the estate tax extensively while he was a
professor at Syracuse University.
His most recent paper on the
estate tax, written with one of his students, Donald J. Marples, shows
that the tax costs society 2 cents more on a dollar of wealth, in terms
of unrealized economic activity, than would a tax on investment income
that raised the same amount of revenue. And investment income taxes,
Mr. Holtz-Eakin says, are among the most costly.
The problem
with this finding, as the authors themselves point out, is that it is
not based on the people who pay the bulk of the estate tax. In 1999,
some 60 percent of the estate tax was paid by the 8,500 taxpayers whose
estates amounted to at least $2.5 million. The Health and Retirement
Study selects about one in 3,000 Americans over the age of 50 to
survey. So even if all 8,500 of America's Most Well-to-Do had been old
enough, only three of them, on average, would have been selected for
the study -- hardly enough for a statistical analysis.
Furthermore,
as Mr. Holtz-Eakin and Mr. Marples concede, the ''super rich'' could be
less responsive to the incentives of the estate tax than the general
population, on whom the results are based. Economists generally believe
that people with $2.5 million stashed away feel the loss of a dollar
less acutely than those with just $25,000. The actual behavior of the
wealthy is unknown.
TWO types of economic activity do stand to
suffer from the elimination of the estate tax: the lucrative
estate-planning industry, which would become obsolete, and charitable
giving.
Because giving is untaxed, those facing the 55 percent
estate tax essentially pay only 45 cents for each dollar contributed to
charity -- the rest would have gone to the government after their
deaths. Mr. Joulfaian and his co-author at the Treasury Department,
Gerald E. Auten, estimate that removing the estate tax could reduce an
individual's lifetime donations by 12 percent.
Of course, Republicans have argued that it simply isn't fair to tax
away more than half of what a person is worth when he or she dies,
especially because most of it should have been taxed once already. But
here, too, some economists might disagree.
Throughout our
lives, our fellow taxpayers share in our financial risks, for better or
worse. If we lose money on an investment, we can deduct our losses to
reduce taxes we owe on gains from other investments. If our income
falls, we pay lower tax rates. Sometimes we even get subsidies. If we
die without much money, the government may pay for our burial and take
care of our young children. If we happen to die with more money than we
needed, might not the government share a bit of the upside, too?
By DANIEL ALTMAN
Published: June 30, 2002
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