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Tax policy decisions ahead: Implications of the 2020 presidential election September 9, 2020
Tax policy decisions ahead: Implications of the 2020 presidential election| Table of contents Contents Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 03 Joe Biden: Readjusting the tax burden. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 04 Donald Trump: Doubling down on TCJA. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 07 Looking ahead. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 09 Corporate and business tax proposals compared. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 Individual tax proposals compared. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 Endnotes. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Acknowledgments and contacts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 2
Introduction
With nominating conventions behind them and the presidential campaign now moving into high gear
post-Labor Day, the two leading contenders in the race for the White House—former Vice President
Joe Biden, the Democratic presidential nominee, and President Donald Trump, whom Republicans have
tapped to run for another term in the Oval Office—have begun to make their final case to the voters
ahead of the November 3 general election.
Although the economic impact of the coronavirus pandemic (and the Former Vice President Biden also addressed some of his tax
federal response to it) is likely to dominate the fiscal policy debate priorities during the Democratic primary debates, and President
this election cycle, one of the issues implicitly on the ballot is the Trump’s thinking on tax policy in a possible second term is
fate of President Trump’s signature 2017 tax code overhaul—known revealed—to an extent—in the budget proposals he has sent
informally as the Tax Cuts and Jobs Act (TCJA, P.L. 115-97)—which, to Congress since TCJA was enacted in late 2017. It is also worth
among other things, lowered the tax burden for many businesses, remembering that former President Barack Obama put forward
whether structured as corporations or passthrough entities, as well numerous detailed tax policy proposals as part of his budget
as for individuals, trusts, and estates. (For budgetary and procedural submissions to Congress, as well as a general framework for
reasons, the individual and passthrough provisions generally are business tax reform that was released in 2012 and updated in 2016.
scheduled to expire at the end of 2025, with certain other business Some of the proposals laid out in these documents—notably, setting
tax changes phasing in or out even sooner.) the corporate tax rate at 28%, closing the gap between “book” and
“tax” income, and repealing “stepped-up” basis for purposes of the
Former Vice President Biden contends that TCJA’s benefits are estate tax—are already reflected in Biden’s policy positions, and
skewed to large corporations and more affluent individuals and has others may influence his policies going forward.
offered tax policy proposals aimed at addressing that perceived
imbalance. President Trump, on the other hand, argues that TCJA’s It is possible, too, that additional details may emerge during the
temporary tax cuts were necessary to fuel economic growth and campaign—particularly if tax and economic policy plays a significant
should be made permanent—and, in some cases, even expanded. role in any of the upcoming presidential debates this fall. (According
to the current schedule, the candidates will meet September 29 in
This publication offers a high-level discussion of the two candidates’ Cleveland, October 15 in Miami, and October 22 in Nashville, and
tax policy proposals on TCJA and other issues, along with a side-by- their running mates will meet in a single debate, currently scheduled
side comparison of their positions on certain key tax questions. for October 7 in Salt Lake City.)
There are a few significant caveats worth keeping in mind. First, Finally, it is also important to note that generally tax policy originates
very little detail is currently available on any of the proposals that in Congress, not the White House, so any new tax laws enacted
either candidate has put forward so far. As we went to press, in a Biden administration or in the second term of a Trump
neither candidate had released detailed tax policy papers to the administration will necessarily also carry the imprimatur of the
public or delivered a substantial, tax-focused economic address. legislative branch with its many competing interests and priorities.
The proposals discussed here are gleaned largely from statements
on the candidates’ respective websites, as well as from comments
made during rallies, campaign speeches, and briefings to reporters.
(Details on and links to sources are included in the side-by-side
comparison tables beginning on page 11.)
3Joe Biden | Readjusting the tax burden
Joe Biden: Readjusting
the tax burden
Former Vice President Biden is campaigning on the premise that the federal income tax system
needs to be retooled to ensure that corporations and high-net-worth individuals are paying “their
fair share” and has proposed increasing top income tax rates, along with “base broadeners” such
as eliminating or limiting various incentives currently available to these taxpayers.
Under Biden’s plan, revenue generated from these proposed changes to the tax code—nearly
$4 trillion over 10 years, according to estimates by the Tax Policy Center and the Tax Foundation,
two nonpartisan think tanks—would be used to provide tax relief for lower- and middle-income
taxpayers and pay for spending priorities, such as improving the nation’s infrastructure,
developing alternative energy sources, and building up the US manufacturing sector.
Highlights of corporate and business tax proposals
One of the signature provisions of TCJA was the reduction in publication, the Biden campaign has not provided sufficient
the corporate tax rate to 21% from its prior-law level of 35%. additional details to permit a more robust discussion and
Biden proposes to increase that rate to 28%. (The Obama analysis.)
administration proposed to set the corporate rate at 28%—
down from the then-current 35% rate—in the 2016 update to its The former vice president proposes to tighten tax benefits
corporate tax framework, and also would have provided an even currently available to owners of large passthrough entities,
lower 25% rate to certain domestic manufacturers.) who are taxed as individuals, by phasing out the deduction
under section 199A (another significant TCJA provision currently
Although the Biden campaign does not mention this explicitly, it scheduled to expire after 2025) for taxpayers with income of
is worth noting that an increase in the corporate tax rate would more than $400,000.
automatically trigger changes elsewhere in the tax code—for
example, in the rate imposed on global intangible low-taxed Sector-specific proposals: Beyond his call to increase the
income (GILTI) and foreign-derived intangible income (FDII), both corporate tax rate generally, Biden would raise taxes on specific
of which are tied to the corporate income tax rate. business sectors through proposals to repeal certain current-
law tax preferences and impose new targeted fees and fines. To
Biden also would make it more difficult for certain corporate date, his campaign platform calls for:
taxpayers to significantly reduce or eliminate their tax liability
• Eliminating “unproductive tax cuts for high-income real estate
through proposals to:
investors”—something many taxpayer groups and press
• Increase the effective tax rate on GILTI earned by US-based reports have interpreted to mean repealing (or limiting) the
multinationals (a TCJA provision aimed at addressing base like-kind exchange rules;
erosion) to 21% from its current level of 10.5% in effect
• Imposing a “risk fee” on certain large financial institutions;
through 2025. (Under TCJA, the effective tax rate on GILTI is
scheduled to increase to 13.125% beginning in 2026.) • Repealing certain current-law tax incentives for the fossil fuel
industry (although a plank of the Democratic party platform
• Impose a 15% minimum tax on book income for companies
that specifically called for eliminating these provisions
that report net income of more than $100 million but owe no
was deleted before ratification at the Democratic National
US income tax. (As with most of the proposals outlined in this
Convention last month); and
4Joe Biden | Readjusting the tax burden
• Repealing the deduction for direct-to-consumer advertising Capital gains and dividends, carried interests: Under
expenses of pharmaceutical companies and imposing a tax Biden’s plan, income from long-term capital gains and certain
penalty on pharmaceutical companies that increase drug costs dividends would be taxed at ordinary rates for individuals with
by more than the rate of inflation. income of more than $1 million. All income from carried interests
likewise would be taxed at ordinary rates. (Under TCJA, carried
Conversely, Biden proposes to use the tax code to promote interests held for more than three years are taxed at preferential
other industry sectors—most notably, alternative energy. Here, long-term capital gains rates.)
for example, his proposals include permanently extending the
investment tax credit for residential solar energy, expanding Transfer taxes: Biden has not released a formal,
deductions for emissions-reducing investments, and creating comprehensive proposal to address the estate, gift, and
new incentives to encourage the development of a low-carbon generation-skipping transfer tax, although at different points in
manufacturing sector. the campaign he has signaled his position on the key elements
of a future plan.
Community and workplace development incentives:
Former Vice President Biden would retain TCJA’s Opportunity He specifically has expressed support for returning the estate
Zone program, which allows tax-deferred capital gains and tax to the levels in effect in 2009—that is, a top rate of 45% and
additional benefits for certain investments in economically an exemption of $3.5 million per taxpayer.
distressed communities. He also, however, proposes reforms to
promote transparency and ensure benefits are only directed to Congress set the estate tax rate at 40% and the exemption
projects providing “clear economic, social, and environmental amount at $5 million per spouse (indexed annually for inflation)
benefits to a community.” in the American Taxpayer Relief Act of 2012 (P.L. 112-140). In
drafting TCJA in 2017, lawmakers left the 40% rate in place, but
Biden also would expand the new markets tax credit and doubled the exemption amount to $10 million per taxpayer,
make it permanent, expand the work opportunity tax credit, with an annual adjustment for inflation through 2025. (The
create a new “manufacturing communities credit” to encourage exclusion for 2020 is $11.58 million per single taxpayer.) Without
investment in communities affected by mass job losses, expand congressional intervention, the exclusion will revert to its pre-
the low-income housing tax credit, and create a new tax credit TCJA level—a base exemption of $5 million per taxpayer, indexed
for employers who hire workers with disabilities. annually for inflation—beginning in 2026.
Tax increases on upper-income individuals Biden also has called for repealing the basis step-up for
On the individual side of the code, Biden proposes to raise taxes inherited assets. (Although the exact contours of this policy
on most upper-income taxpayers—defined as households with remain unknown, an Obama-era budget proposal in this area
annual income of more than $400,000. would have generally taxed the donor on appreciated property
at death, subject to a $100,000 per-person exclusion portable to
But unlike some of his former rivals for the Democratic one’s spouse.)
presidential nomination—most notably, Vermont Sen. Bernie
Sanders and Massachusetts Sen. Elizabeth Warren—he has not Payroll taxes: Former Vice President Biden also proposes
called for enacting an annual “wealth tax” that would be imposed to shore up future Social Security shortfalls through payroll
on affluent individuals based on their net worth. Instead, he tax changes targeting upper-income wage earners. Currently,
has adopted a fairly traditional approach to redistributing the a payroll tax of 12.4% is equally split between employers and
tax burden that calls for higher taxes on realized income (from employees on the first $137,700 of an employee’s wages (the
wages and capital gains) and on the value of an individual’s wage cap for 2020, indexed for inflation). An additional 2.9%
estate at death (beyond an exemption threshold). tax, again equally divided, to help fund Medicare is not similarly
income-capped. Biden would expand the payroll tax regime
Income tax rates and deductions: Biden has called for by establishing a second threshold at which the Social Security
restoring the top rate on ordinary income to its pre-TCJA level portion of the payroll tax would be imposed. Under his plan, the
of 39.6% (from 37% under current law), capping the value of Social Security payroll tax would apply to:
itemized deductions at 28%, and restoring the so-called Pease
limitation on itemized deductions, which was repealed under the • Wages up to the inflation-adjusted limit under current law and
TCJA through 2025. • Wages of more than $400,000.
5Joe Biden | Readjusting the tax burden
The result would be a “donut hole” where wages above the Retirement savings: Biden also proposes to “equalize” the
current-law threshold (adjusted for inflation) and less than treatment of defined contribution retirement plans to make the
$400,000 would not be subject to the payroll tax. The plan is tax benefits of saving for retirement more broadly available to
silent on whether the $400,000 threshold amount would also be middle- and lower-income taxpayers. He has not specified how,
inflation-adjusted. but some analysts assume the plan would include replacing the
current-law deduction for IRA contributions with a refundable
Expanded middle-class tax incentives tax credit. He also would change the retirement savings rules
Biden’s proposals to increase taxes on wealthier individuals are by allowing family caregivers to make “catch-up” contributions
earmarked to help finance an expanded slate of family-focused to retirement accounts, even if they are not earning income in
tax incentives benefiting middle- and lower-income taxpayers. the formal labor market, and by making it easier for survivors
of domestic violence to gain penalty-free access to retirement
Child care and family caregiving: Biden has proposed funds to cover certain emergency expenses.
to address the cost of child care by increasing the child and
dependent care tax credit to a maximum of $8,000 for one child Pay attention to effective dates
and $16,000 for two or more children while also making the Because Biden has not released fully fleshed-out legislative
credit refundable. As proposed, the credit is intended to cover proposals, we are missing many key details—including when
up to one-half of a family’s annual cost of child care for children they would take effect. Generally, tax law changes are effective
under age 13, although it would be phased out for families with on date of enactment or prospectively to the beginning of
higher incomes. the next tax year. But there have been some instances where
provisions have taken effect retroactively to the beginning of a
He also has proposed a new $5,000 tax credit to help informal calendar year and others in which taxpayers have been put on
caregivers cover expenses incurred in caring for other family notice by congressional taxwriters that certain changes will be
members—for example, those who are elderly, have disabilities retroactive to some other date, such as the date of introduction
or chronic health conditions, or are military service members or of a proposal. For example, the increase to a 39.6% top marginal
veterans dealing with service-related illnesses or injuries. While rate enacted as part of the Omnibus Budget Reconciliation
details are scant, it is generally believed these and other new tax Act of 1993 (P.L. 103-66, signed into law August 10, 1993) was
credits would be income-capped to prevent the benefits from retroactive to January 1 of that year. Similarly, the reduction in
being taken by those deemed to have sufficient resources to individual rates enacted as part of the Economic Growth and Tax
meet those costs without the tax incentive. Relief Reconciliation Act of 2001 (P.L. 107-16, signed into law June
7, 2001) was retroactive to January 1, 2001.
Housing: To address the cost of housing, Biden would create
an advanceable and refundable “First Down Payment” tax credit Given that the Democratic party in recent years has moved
of up to $15,000 for certain first-time home buyers, a credit for more generally toward advocating for tax increases on upper-
families who rehabilitate distressed properties in distressed income individuals and businesses, there could be a legitimate
communities, and a renter’s tax credit designed to cap rent and concern that some tax changes that might be enacted in a Biden
utilities at 30% of income for low-income households. administration next year—such as increasing the top individual
rate or higher tax rates for capital gains and certain dividends—
Alternative energy incentives: On the alternative energy could be made retroactive to the beginning of 2021. Of course,
front, he has proposed to the restore the full electric vehicle tax much of this may be predicated on the status of the economy
credit and modify it to target middle-class consumers, restore early next year and other factors described below. Nevertheless,
the tax credit for residential energy-efficiency improvements, it is not outside the realm of possibility that tax changes enacted
and permanently extend the residential solar investment tax in 2021 could be made effective retroactive to the start of the
credit. year, something interested taxpayers should monitor closely.
6Donald Trump | Doubling down on TCJA
Donald Trump: Doubling
down on TCJA
President Trump’s tax policy platform to date has focused largely on promoting and preserving
TCJA. His campaign website touts his success in enacting “historic tax cuts and relief for hard-
working Americans,” and the three budget blueprints he has submitted to Congress since TCJA
was signed into law in December 2017 assume that the various rate cuts and other temporary
tax relief provisions for individuals and estates will be made permanent.
The president’s budget proposals have not, however, indicated his position on certain corporate
revenue-raising provisions in TCJA that are currently scheduled to take effect in the next few
years, such as changes to the treatment of research and development expenses, further
limitations on the business interest deduction, and a phasing out of bonus depreciation—all of
which are set to begin in 2022—plus a scheduled increase in the effective rate on GILTI beginning
in 2026.
Tax Cuts 2.0?
The president has at various points since 2018 called for building 23 on the eve of the Republican National Convention. The tax-
on TCJA through what he has dubbed a “Tax Cuts 2.0 package” focused agenda items include:
that would focus primarily on the middle class.
• Cutting taxes “to boost take-home pay and keep jobs in
America”;
The administration has spoken only in broad terms about the
contours of such a plan, although the president and his advisors • Enacting “Made in America” tax credits;
have on various occasions suggested provisions such as a 10%
• Expanding Opportunity Zones;
rate cut for middle-income taxpayers, some form of capital gains
tax relief (such as a reduction in the long-term capital gains rates • Enacting new tax credits “for companies that bring back jobs
or indexing of the basis of certain capital gains for inflation), and from China”; and
a payroll tax cut or temporary payroll tax holiday. (The president
• Permitting 100% expensing “for essential industries like
has indicated that he would, if reelected, work with Congress to
pharmaceuticals and robotics who bring their manufacturing
provide forgiveness for the temporary employee-side payroll tax
back to the United States.”
deferral he put in place by executive order on August 8.)
The campaign indicated that “[o]ver the coming weeks, the
Proposals on the business side that have been floated—but
president will be sharing additional details about his plans
never pursued—include further reducing the corporate tax rate
through policy-focused speeches on the campaign trail.”
(to 20%) and extending or expanding bonus depreciation, such
as by allowing full expensing for structures.
Because the campaign has provided few details on key elements
of the president’s tax proposals, revenue estimates from
The Trump campaign also briefly mentioned some tax policy
sources such as the Tax Policy Center and the Tax Foundation
proposals affecting individuals and businesses in a list of
are not currently available.
priorities for a second-term agenda that was released August
7GBS and shared services organizations moving forward:Donald Trump | Doubling
From pandemic to thriving | Contacts
down on TCJA
A few discrete tax proposals The scholarships would help cover the cost of things such as
The president has included a limited number of specific career and technical dual-enrollment programs, after-school
tax proposals in his post-TCJA budgets, State of the Union tutoring programs, and tuition for private and parochial schools.
messages, and recent campaign speeches. A taxpayer who donates to one of these organizations and
claims the tax credit would not be allowed to also claim that
Redomesticating jobs: In an August 17 campaign speech donation as an itemized charitable deduction.
in Mankato, Minn., President Trump proposed—without
elaboration—to “create tax credits for companies that bring jobs Targeted student loan debt forgiveness: Recent budget
from China back to America” and “impose tariffs on companies blueprints would allow health care workers who receive funds
that leave America to produce jobs overseas.” for qualified tuition and related expenses under the Indian
Health Service Professions Scholarship Program, NURSE Corps,
Alternative energy incentives: The president’s budget and Native Hawaiian scholarship and loan repayment programs
blueprints for fiscal years 2019, 2020, and 2021 call for repealing to exclude those amounts from income in return for satisfying
several alternative energy tax incentives, including: a service requirement. They also would allow a similar exclusion
for loan amounts forgiven under the Indian Health Service Loan
Repayment Program and NURSE Corps.
• The qualified plug-in electric drive motor vehicle credit;
• Accelerated depreciation for renewable energy property Health care–related proposals: Other budget proposals
(although qualifying property would remain eligible for the would expand access to tax-preferred health savings accounts
bonus depreciation allowance included in TCJA); (HSAs) and medical savings accounts (MSAs) by:
• The energy investment tax credit (section 48);
• Allowing Medicare-eligible individuals who are still working and
• The credit for residential energy-efficient property (section
have a high-deductible health plan through an employer to
179D); and
contribute to an HSA and
• The income exclusion for utility conservation subsidies
• Allowing Medicare beneficiaries enrolled in Medicare MSA
(section 136).
plans to contribute to their MSAs beginning in 2022 (subject to
limits to be determined by the IRS).
Education Freedom Scholarships: The FY 2021 budget
blueprint includes a proposal carried over from the prior year’s
Advanceable child tax credit for new parents: In his
package—and touted in the president’s State of the Union
2020 State of the Union message, the president touted TCJA’s
address to Congress this past January—that would provide
expansion of the child tax credit and urged Congress to pass
tax credits of up to $50 billion over 10 years to individuals
bipartisan legislation (H.R. 5296, S. 2976) that would allow new
or businesses making donations to certain state-authorized
parents to receive an advance on the credit of up to $5,000
nonprofit organizations that grant so-called Education Freedom
following the birth or adoption of a child.
Scholarships to families of elementary and secondary students.
8Tax policy decisions ahead: Implications of the 2020 presidential election| Looking ahead
Looking ahead
It is impossible to know right now who will be setting the tax policy agenda when the next
presidential administration begins in 2021. But it is worth remembering that no matter who is
in the Oval Office, getting tax code changes enacted into law requires willingness on the part of
both congressional leadership and the White House to engage and seek to reach consensus.
Impact of congressional elections small to break a minority filibuster, which means it would face
That process could prove difficult if the White House and procedural obstacles in moving legislation that lacked bipartisan
Congress are controlled by two different parties—as was the support. (Overcoming a filibuster generally requires 60 votes,
case during much of the Obama administration, for example— and the Senate is expected to be closely divided in the 117th
or if control of the House and Senate is split between Democrats Congress no matter which party prevails in November.) This
and Republicans, as it is currently. The individuals in power scenario would then bring into play budget reconciliation, a
next year will approach the tax policy debate with priorities of powerful process that can be invoked to sidestep procedural
their own and will further be influenced by who is sitting at the obstacles to advancing certain tax and spending legislation
bargaining table with them and their expectations regarding in the Senate. (Republicans invoked budget reconciliation to
what an acceptable deal would look like and whether one is advance TCJA through Congress in 2017, when they controlled
achievable. both chambers of Congress but did not hold the supermajority
needed in the Senate to overcome a filibuster by Democrats. For
As of press time, Democrats appeared poised to retain their their part, Democrats took that same procedural route to pass
majority in the House. Republicans would need a net gain of the Patient Protection and Affordable Care Act in 2010.)
20 seats to win back the majority, and the nonpartisan Cook
Political Report currently projects they cannot achieve that, The availability of budget reconciliation does not guarantee
even if they were to pick up every Democratic seat considered a legislative success, however, as ideological divisions within a
“toss-up.” Cook also projects that both the presidential (electoral party could present challenges to a narrow Senate majority
college) and Senate results are expected to come down to a seeking to coalesce around a single set of tax proposals.
handful of states where polls are tight, so a “blue wave” resulting For example, in 2017, internal divisions prevented Senate
in full Democratic control is possible, as is a swing to the right Republicans from approving a budget reconciliation bill to
that keeps the Senate and the White House in Republican repeal the Patient Protection and Affordable Care Act. On the
hands and threatens the Democrats’ majority in the House of other hand, a newly elected (or reelected) president who brings
Representatives. with him House and Senate majorities may be seen as having a
mandate, which could push reluctant members of Congress to
While voters could “split” their ticket—that is, select a be more aggressive on some policy matters than they otherwise
presidential candidate from one party and a Senate candidate might be.
from the opposite party to keep one party from having too
much power—this practice has become increasingly rare. In the Changes to filibuster rules? Budget reconciliation also comes
2016 election, for example, in each of the states that held Senate with significant built-in procedural constraints that can shape,
races that year, the party that won the Senate seat also took the and in many cases limit, the scope of legislation in ways that are
majority in the presidential vote count. often difficult to predict. Given those challenges (and some of
the policy priorities Democrats have that could not be pursued
But even if one party—be it Democrats or Republicans— through budget reconciliation), there have been increasingly
were to gain control of the White House and both chambers frequent discussions among Democratic leaders about
of Congress, its Senate majority would almost surely be too reversing Senate procedural precedent to eliminate the filibuster
9Tax policy decisions ahead: Implications of the 2020 presidential election | Looking ahead
for legislation if they control the chamber (as well as the White revenues, as well as demographic trends that were already
House and the House) in the 117th Congress. This is something pushing up deficits and have placed two of the biggest and most
that could be accomplished by a simple majority vote—that is, popular US social programs (Social Security and Medicare) on
51 votes (or 50 plus the tiebreaking vote of the vice president)— paths to insolvency over the next 10 to 15 years. Notably, based
something Democrats adopted for most confirmable positions on the limited details available, former Vice President Biden’s tax
(such as lower court judges and administration officials during increase proposals are generally aligned with offsetting the cost
the Obama administration) and that Republicans expanded of new and expanded programs and not reducing the deficit.
upon in 2017 to apply also to Supreme Court nominees. If And during the Democratic National Convention in August, his
either party were to pursue this option, it would dramatically advisors indicated he would feel the need to offset only the cost
change the legislative process and the outlook for what would of permanent policy, suggesting further temporary economic
be expected to become law when one party controls the House, recovery or stimulus measures related to the pandemic would
the Senate, and the White House. likely be deficit-financed.
Regulatory authority: Also keep in mind that any president Even in the best of circumstances, these budgetary factors
has tremendous regulatory powers and that a White House seem certain to constrain lawmakers’ ability to pursue major
facing a reluctant Congress could opt to pursue some of its fiscal legislation, particularly if it is not fully financed. In the worst
agenda through regulatory actions. A president almost surely of cases, these factors could force policymakers to pursue tax
cannot raise rates or take other action that directly contravenes increases, spending cuts, or possibly both in order to prevent or
the law, but there are often important regulatory gray areas that address a debt crisis.
allow for substantial policy changes to be made through the
rulemaking process. Evaluate, model, plan
Despite this uncertainty, significant tax law changes over the
Economic challenges next few years remain a real possibility, and it is not too early
Outside factors will also exert a role in shaping the legislative to start evaluating the proposals being put forward, modeling
process. As the nation continues to grapple with the economic potential outcomes, and planning the appropriate actions to
uncertainty stemming from the coronavirus pandemic, the tax take if and when these proposals go from high-level plans and
proposals put forward in a Trump or a Biden administration talking points to fully framed legislative policies with substance,
next year may be influenced—possibly in ways we cannot yet effective dates, and, presumably, anti-avoidance rules.
anticipate—by the status of the pandemic and the economy at
that time.
Relatedly, the swift and severe economic contraction this
year—and the large fiscal response in the form of tax cuts and
additional spending—has led to sharp upticks in the budget
deficit and publicly held debt to levels that have not been seen in
the United States since World War II. Whether investors—both
foreign and domestic—will continue to view US Treasuries as a
“safe haven” remains to be seen, particularly given the current
coronavirus-related fiscal imbalance is being layered on top of
longstanding imbalances between federal spending and federal
10Tax policy decisions ahead: Implications of the 2020 presidential election| Corporate and business tax proposals compared
Corporate and business tax
proposals compared
The table below provides an overview, based on the details available to date, of how former Vice President Biden and President
Trump would address a variety of issues related to the taxation of corporations and businesses. The policies outlined here are still
being fleshed out and may be subject to significant refinement as the 2020 presidential campaign continues.
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Increase to 28%1
15% minimum tax on book Has said he favors a decrease
Corporate tax rate 21% income of companies reporting to 20%, but has no formal
US net income >$100 million but proposal3
owe no US income tax2
Global intangible low-taxed
income (GILTI) earned by US-
Foreign-source based multinationals subject to a
Increase GILTI effective rate to
income of US 50% deduction (effective rate of Retain current law
21% 4
multinationals 10.5%) through 2025, and a 37.5%
deduction (effective tax rate of
13.125%) thereafter
“Create tax credits for
companies that bring jobs
Establish a “claw-back” provision from China back to America”6
requiring a company to return
public investments and tax Impose “tariffs on companies
Tax treatment of benefits when they shed US jobs that leave America to produce
domestic companies No direct incentives or and send them overseas jobs overseas” 7
that offshore or disincentives
Eliminate incentives for Allow 100% expensing
redomesticate jobs
pharmaceutical and other “for essential industries
companies to move production like pharmaceuticals and
overseas5 robotics who bring back their
manufacturing to the United
States” 8
11Tax policy decisions ahead: Implications of the 2020 presidential election | Corporate and business tax proposals compared
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Base Erosion and Anti-Abuse Tax
(BEAT) limits the ability of large
Tax havens, base multinationals to shift profits Reduce incentives for “tax havens,
Retain current law
erosion generally from the United States by making evasion, and outsourcing” 9
deductible payments to their
affiliates in low-tax countries
Said to be considering
proposals to extend or
expand bonus depreciation
100% immediate expensing and to allow “full expensing”
for qualified property through for structures, but has not
2022, then phased down each No specific proposal, but may be released a formal plan10
Depreciation year through 2026 to 20% affected by proposed minimum
(expires after 2026); special rules tax (see above) Allow 100% expensing
for longer-production-period “for essential industries
property and certain aircraft like pharmaceuticals and
robotics who bring back their
manufacturing to the United
States”11
Passthrough income
Discussed with individual income tax proposals in separate table below
(section 199A)
Carried interests Discussed with individual income tax proposals in separate table below
Sector-specific proposals
Gain/loss recognition deferred on
disposal of certain real property
and acquisition of similar Has called for eliminating
replacement property (like-kind “unproductive and unequal tax
exchange) breaks for real estate investors
Real estate Retain current law
with income over $400,000”
$25,000 exemption from passive
(presumably by repealing like-kind
loss rules for rental losses
exchange rules)12
Accelerated depreciation rules
apply to rental housing
Impose risk fee on certain
Financial institution
No provision liabilities of certain large financial No proposal
risk fee
institutions13
12Tax policy decisions ahead: Implications of the 2020 presidential election| Corporate and business tax proposals compared
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Intangible drilling costs 100%
deductible in first year for
independent producers and 70%
deductible for integrated firms
Repeal certain current-law tax
Fossil fuels Tax exemption of set percentage Retain current law
incentives for fossil fuels14
of taxable income for
independent oil, gas, and coal
producers (and investors), such as
“percentage depletion”
Restore and make permanent
solar ITC15
Expand deduction for emissions-
reducing investments16
Tax credit for home builders of Increase incentives for electric
up to $2,000 per new energy- vehicles and energy-efficient
efficient home, through 2020 technologies17
26% investment tax credit (ITC) Encourage development of low-
for businesses installing solar carbon manufacturing sector
Previous budget proposals
system, phasing down to 10% in through tax credits and subsidies
have called for repeal of the
2022 for businesses to upgrade
Alternative energy energy investment tax credit
equipment and processes, invest
(commercial) Deduction of up to $1.80 per and accelerated depreciation
in expanded or new factories, and
square foot for owner or designer for renewable energy
deploy low-carbon technologies 18
of building or system that saves property20
heating and cooling energy Reform and extend incentives
that generate energy efficiency
Accelerated (five-year) and clean energy jobs; promote
depreciation available for tax incentives for technology
renewable energy property that captures carbon and then
permanently sequesters or
utilizes that captured carbon
(including lowering cost of carbon
capture retrofits for existing
power plants)19
13Tax policy decisions ahead: Implications of the 2020 presidential election | Corporate and business tax proposals compared
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Impose tax penalty on pharma
companies that raise drug
costs by more than the rate of
inflation21 Allow 100% expensing
“for essential industries
Repeal deduction for certain
like pharmaceuticals and
Pharmaceuticals None specific to the industry pharma company advertising
robotics who bring back their
expenses22
manufacturing to the United
Eliminate incentives for States”24
pharmaceutical and other
companies to move production
overseas23
Community and workplace development incentives
Reform OZ program by (1)
requiring Treasury Department
to review OZ projects to
ensure benefits are only
Allow tax-free capital gains
directed to projects providing
for investments held at least
“clear economic, social, and
10 years, basis increase for
environmental benefits to
investments held at least five
a community,” (2) requiring
years, and temporary deferral Has called for extending
Opportunity Zones recipients of OZ tax benefits
of capital gains on existing the OZ program, but has no
(OZ) to publicly disclose their
assets placed in OZ funds; final formal proposal26
investments and the impact on
OZ designations were certified
local residents, and (3) providing
in June 2018; election to invest
incentives for Opportunity
capital gains in an OZ expires
Funds to partner with nonprofit
December 31, 2026
or community-oriented
organizations and jointly produce
a community-benefit plan for
each investment25
Available for up to 39% of a
New markets tax project’s cost for investors in low-
Expand and make permanent27 Retain current law
credit income-community businesses,
through 2020
14Tax policy decisions ahead: Implications of the 2020 presidential election| Corporate and business tax proposals compared
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Available to incentivize Expand through additional
development and improvement federal investment of $10 billion;
Low-income housing
of affordable rental housing; ensure that urban, suburban, and No proposal
tax credit
an increased ceiling expires rural areas all benefit from the
December 31, 2021 credit28
Establish a manufacturing
Incentives communities tax credit for five
Create “Made in America” tax
for domestic No provision years to incentivize qualified
credits30
manufacturing investment in communities
affected by mass job losses29
Available to employers for hiring
individuals from certain targeted
Expand WOTC target hiring
Work opportunity groups who have consistently
groups to include military No proposal
tax credit (WOTC) faced significant barriers to
spouses31
employment (scheduled to expire
after 2020)
WOTC available to employers Supports Disabled Access Credit
who hire individuals with physical Expansion Act (S. 2290), which
or mental disabilities who are would increase dollar limitation
enrolled in or have completed on disabled access credit to
certain prescribed vocational $20,500 (from $10,250), index
rehabilitation programs limitation annually for inflation
Disabled access credit provides after 2020, and increase gross
Employer credit for nonrefundable credit for receipts limitation for an eligible
hiring individuals small businesses that incur small business to $2.5 million Retain current law
with disabilities expenditures to provide access to (from $1 million)
persons with disabilities Create new tax credit for
Architectural barrier removal tax employers who hire an individual
deduction encourages businesses with disabilities (up to $5,000
to remove architectural and in first year and $2,500 in the
transportation barriers to second year); separate credit of
the mobility of persons with up to $30,000 for employers that
disabilities and the elderly improve workplace accessibility32
15Tax policy decisions ahead: Implications of the 2020 presidential election | Corporate and business tax proposals compared
Corporate and business tax proposals
Issue Current law Joe Biden Donald Trump
Employment taxes, benefits, worker classification
No specific proposals for
Social Security: 12.4% tax permanent structural changes
equally split between employers to payroll taxes
and employees on first $137,700
Has called for forgiveness of
of wages (2020 cap, indexed for
employee-side Social Security
inflation)
taxes deferred under his
Expand Social Security tax to
Medicare: 2.9% tax equally August 8 directive to the
apply to wages >$400,000,
divided between employers and Treasury Department (deferral
Payroll taxes creating a “donut hole” of untaxed
employees, with no income limit generally applies to pre-tax
wages between $137,700 and
biweekly wages of $4,000 or
Special rule for S corp $400,00033
less or the equivalent for non-
shareholders: Earnings
biweekly pay periods)34
distributed to shareholders of an
S corporation are not considered Has discussed possible
self-employment income for additional payroll tax cut for
purposes of payroll taxes employees, but has no formal
proposals35
Employers may claim a tax
credit equal to 25% of qualified
expenses for employee child care
and 10% of qualified expenses for
Create new tax credit for
Employer-provided child care resource and referral
employers who construct on-site Retain current law
child care facilities services; employer deductions
child care facilities36
for such expenses are reduced
by the amount of the credit;
maximum total credit limited to
$150,000 per taxable year
Make worker misclassification a
substantive violation of law under Previous budget blueprints
A worker’s classification as
all federal labor, employment, and have called for creating a safe
an employee or independent
tax laws, with additional penalties harbor allowing a business
contractor has significant
beyond those imposed for other to declare certain service
implications in areas such as
violations providers as independent
Worker classification income tax withholding, Social
contractors and requiring
Security and Medicare tax Establish federal standard for withholding of individual
withholding and payments, classifying workers (modeled on income taxes at a rate of
unemployment taxes, and the California’s three-pronged “ABC 5% on the first $20,000 of
provision of benefits test”) that would apply for all payments38
labor, employment, and tax laws37
16Tax policy decisions ahead: Implications of the 2020 presidential election| Individual income- and asset-based tax proposals
Individual tax proposals
compared
The table below provides an overview, based on the details available to date, of how former Vice President Biden and President
Trump would address a variety of issues related to the taxation of individuals and how their respective proposals compare with
current law. The policies outlined here are still being fleshed out and may be subject to significant refinement as the 2020 presidential
campaign continues.
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
FY 2019, 2020, and 2021
budget blueprints assume
Top rate of 37% through 2025 permanent extension of
current law2
Ordinary income tax Additional 0.9% Medicare income
tax applies to earned income Restore top rate to 39.6%1 Has mentioned a rate cut
rates
>$250,000 for joint filers and for middle-income families
$200,000 for single taxpayers as part of an eventual Tax
Cuts 2.0 package, but has not
offered a formal proposal3
20% tax rate applies to long-
term capital gains and qualified
dividends
Has expressed interest in
Additional 3.8% net investment capital gains tax relief either
Tax long-term capital gains and
income tax applies to individuals through a rate cut or by
Capital gains, dividends at ordinary income
with income >$200,000 and joint indexing gains related to
dividends rates for those with taxable
filers with income >$250,000 certain capital assets for
income >$1 million4
inflation, but has offered no
Exclusion from capital gains
formal proposal5
tax for up to $250,000 single
filers/$500,000 joint filers on
qualifying home sales
Has said he wants to end
Treated as long-term capital gain
Carried interests Tax at ordinary rates6 favorable tax treatment, but
if held for more than three years
has no formal proposal7
Generally taxed at owner’s
individual rate with a 20%
Phase out section 199A Unclear if administration
deduction under section
Passthrough income deduction for filers with income intends to make 199A
199A for domestic business
>$400,0008 deduction permanent
profits; deduction expires after
December 31, 2025
17Tax policy decisions ahead:GBS
Implications
and sharedofservices
the 2020organizations
presidential election
moving forward: From
| Individual pandemic
income- to thriving
and asset-based tax|proposals
Contacts
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
Taxpayer may deduct the greater
of (1) the standard deduction,
or (2) the sum of the itemized
deductions, with no cap (“Pease FY 2019, 2020, and 2021
limitation”) on the latter through Restore Pease limitation for those
budget blueprints assume
Itemized deductions 2025 with income >$400,000; cap value
permanent extension of
of itemized deductions at 28%9
State and local tax (SALT) current law10
payments deductible up to
$10,000 (cap scheduled to expire
after 2025)
Increase maximum child and
dependent care credit amount to
$8,000 for one child or $16,000
for two or more (intended to
cover up to one-half of a family’s
annual child care costs for
Nonrefundable child and children under age 13); phase
dependent care tax credit for out for families making between
Child and dependent 20–35% of cost of work-related $125,000 and $400,000; make FY 2019, 2020, and 2021
care credit; other care, up to $3,000 per child under credit refundable11 budget blueprints assume
family caregiving 13 or older dependent, or $6,000 permanent extension of
incentives for two or more; phased down Create $5,000 tax credit to current law13
for households with income help informal caregivers cover
>$43,000 expenses incurred in caring for
other family members (elderly,
those with disabilities or chronic
health conditions, or military
service members or veterans
dealing with service-related
illnesses or injuries)12
18Tax policy decisions ahead: Implications of the 2020 presidential election| Individual income- and asset-based tax proposals
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
Refundable tax credit available to
individuals with low to moderate
Earned income tax Expand eligibility rules to include No proposed changes to
income from wages—income
credit workers age 65 and older14 current law
limitations and other eligibility
requirements apply
No specific proposals for
Social Security: 12.4% tax is
permanent structural changes
equally split between employers
to payroll taxes
and employees on first $137,700
of employee’s wages (the cap for Has called for forgiveness of
2020, indexed for inflation) employee-side Social Security
Expand Social Security tax
taxes deferred under his
Medicare: 2.9% tax is equally to apply to wages>$400,000,
August 8 directive to the
divided between employers creating a “donut hole” of untaxed
Treasury Department (deferral
Payroll taxes and employees; no income limit wages between $137,700 and
generally applies to pre-tax
applies $400,000; unclear if $400,000
biweekly wages of $4,000 or
threshold would be indexed for
Special rule for S corp less or the equivalent for non-
inflation15
shareholders: Earnings biweekly pay periods16
distributed to shareholders of an
Has discussed possible
S corporation are not considered
additional payroll tax relief for
self-employment income for
employees, but has no formal
purposes of payroll taxes
proposals17
IRA contributions fully deductible
for those earning up to $65,000 ”Equalize” tax treatment of
single filers/$104,000 joint filers, defined contribution savings
then phased down for those accounts18
earning up to $75,000/$124,000
Allow caregivers to make “catch-
Contributions limited to the lesser up” contributions to retirement
of $6,000 ($7,000 if age 50+) or accounts even if not earning
No proposals to change
Retirement savings taxable compensation for the income in the formal labor
current law
year market19
Penalties generally apply if funds Relax retirement account
are withdrawn before an account withdrawal rules to make it easier
holder reaches age for domestic violence survivors
59-1/2 (exceptions apply for to gain emergency access to
certain emergencies and hardship retirement funds20
situations)
19Tax policy decisions ahead:GBS
Implications
and sharedofservices
the 2020organizations
presidential election
moving forward: From
| Individual pandemic
income- to thriving
and asset-based tax|proposals
Contacts
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
40% estate, gift, and generation-
Has called for “returning the
skipping tax; basic exclusion
estate tax to 2009 levels,”
of $10 million per taxpayer,
implying a 45% top rate and base FY 2019, 2020, and 2021
adjusted annually for inflation
exclusion of $3.5 million per budget blueprints assume
Estate tax ($11.58 million in 2020); increased
taxpayer, indexed annually for permanent extension of
exemption sunsets December 31,
inflation21 current law23
2025
Repeal stepped-up basis at
Step-up in basis applies to
death22
inherited assets
Tax credit of $2,500–7,500
for purchase of new electric
vehicle, phased out when a
manufacturer’s sales reach
200,000
Tax credit for 10% of cost of Restore full electric vehicle tax
FY 2020 and 2021 budget
homeowner’s energy efficiency credit and modify it to target
blueprints have called for
improvements, up to $500, middle-class consumers and
repeal of qualified plug-
through 2020 prioritize purchase of American-
Alternative in electric drive motor
made vehicles24
energy (consumer 26% investment tax credit (ITC) vehicle credit, ITC, credit
incentives) for home owners installing Restore tax credit for residential for residential energy-
renewable energy systems, energy-efficiency improvements25 efficient property, and
phasing out through 2021 income exclusion for utility
Restore solar ITC and make
conservation subsidies27
Subsidies paid by utility permanent26
companies to residential
customers who invest in energy
conservation measures are
excludable from a customer’s
income
Establish advanceable and
refundable First Down Payment
No tax on imputed rental income tax credit of up to $15,00028
from own home
Create renter’s tax credit
Deduction for interest paid on up designed to reduce rent and
Housing costs Retain current law
to $750,000 of mortgage debt utilities to 30% of income for low-
income households29
Deduction for state and local
taxes payments of up to $10,000 Create tax credit for families that
renovate distressed properties in
distressed communities30
20Tax policy decisions ahead: Implications of the 2020 presidential election| Individual income- and asset-based tax proposals
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
Refundable and advanceable
premium tax credit for those
enrolling in Affordable Care Act
Expand ACA premium tax credit
(ACA) marketplace plan and with
by eliminating income cap, Supports general principles
income 100–400% of the federal
capping premium spending at of transparency of health
poverty level for household size,
8.5% of income, and increasing care costs, lowering drug
capping premium spending based
Health care costs credit amount 31 costs, ending surprise
on income (top rate of 9.78% in
2020) Expand tax benefits for medical billing, and increasing
individuals who pay for long-term competition, but has no
Long-term care insurance formal proposals
care insurance with retirement
premiums generally includable
savings32
as eligible expenses for purposes
of the itemized deduction for
unreimbursed medical expenses
Medical savings accounts and
health savings accounts allow
individuals to save on a tax-
preferred basis to cover the cost
of certain qualified medical and Supports ABLE Adjustment Act
health care expenses Budget blueprints have
Tax-preferred (S. 651), which would expand
proposed expanded access to
savings vehicles ABLE accounts allow individuals eligibility rules to make ABLE
tax-preferred health savings
for health care, who are blind or disabled to make accounts available to individuals
accounts and medical savings
disability expenses contributions on a tax-deferred who develop blindness or
accounts34
basis and use those funds to pay disability before age 4633
for certain “qualified disability
expenses”; availability limited to
individuals who develop blindness
or disability before age 26
21Tax policy decisions ahead:GBS
Implications
and sharedofservices
the 2020organizations
presidential election
moving forward: From
| Individual pandemic
income- to thriving
and asset-based tax|proposals
Contacts
Individual income- and asset-based tax proposals
Issue Current law Joe Biden Donald Trump
Budget blueprints would
allow health care workers
who receive funds for
qualified tuition and related
Above-the-line deduction for Reform income-based repayment
expenses under the Indian
interest on student loans for program for undergraduate
Health Service Professions
higher education for taxpayers federal student loans by relaxing
Scholarship Program,
with modified adjusted gross the repayment formula, providing
NURSE Corps, and Native
income below $80,000 ($160,000 for automatic loan forgiveness
Higher education Hawaiian scholarship and
for joint filers) of unpaid loan amounts after
expenses loan repayment programs to
20 years (for borrowers with
Forgiven student-loan debt exclude those amounts from
good repayment records), and
generally is includable in taxable income in return for satisfying
providing that debt forgiven
income (subject to certain a service requirement; similar
under the program will not be
exceptions) exclusion would be available
treated as taxable income35
for loan amounts forgiven
under the Indian Health
Service Loan Repayment
Program and NURSE Corps36
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