Tax Policies and Alternative Revenue ... Policy Brief5.16 Tax Policies and Alternative Revenue...

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Transcript of Tax Policies and Alternative Revenue ... Policy Brief5.16 Tax Policies and Alternative Revenue...

  • Policy Brief 5.16

    Tax Policies and Alternative Revenue Sources: State Responses to Declining Purchasing Power of Roadway Funding

    Mark L. Burton PhD Research Associate Professor, Department of Economics

    Director of Transportation Economics, Center for Transportation Research

    Matthew N. Murray, PhD Director, Howard H. Baker Jr. Center for Public Policy

    Associate Director, Boyd Center for Business & Economic Research Professor, Department of Economics

    Emily K. Pratt Research Associate, Boyd Center for Business & Economic Research

    Jilleah G. Welch, PhD Research Associate, Howard H. Baker Jr. Center for Public Policy

    November 30, 2016

  • Baker Center Board Cynthia Baker Media Consultant Washington, DC

    Sam M. Browder Retired, Harriman Oil

    Patrick Butler CEO, Assoc. Public Television Stations Washingtonk, DC

    Sarah Keeton Campbell Attorney, Special Assistant to the Solicitor General and the Attorney General, State of Tennessee Nashville, TN

    Jimmy G. Cheek Chancellor, The University of Tennessee, Knoxville

    AB Culvahouse Jr. Attorney, O’Melveny & Myers, LLP Washington, DC

    The Honorable Albert Gore Jr. Former Vice President of the United States Former United States Senator Nashville, TN

    Thomas Griscom Communications Consultant Former Editor, Chattanooga Times Free Press Chattanooga, TN

    James Haslam II Chairman and Founder, Pilot Corporation The University of Tennessee Board of Trustees

    Joseph E. Johnson Former President, University of Tennessee

    Fred Marcum Senior Adviser to Senator Baker Huntsville, TN

    The Honorable George Cranwell Montgomery Former Ambassador to the Sultanate of Oman

    Regina Murray Knoxville, Tennessee

    Lee Riedinger Vice Cancellor, The University of Tennessee, Knoxville

    Don C. Stansberry Jr. The University of Tennessee Board of Trustees Huntsville, TN

    The Honorable Don Sundquist Former Governor of Tennessee Townsend, TN

    Baker Center Staff

    Matt Murray, PhD Director

    Nissa Dahlin-Brown, EdD Associate Director

    Charles Sims, PhD Faculty Fellow

    Kristia Wiegand, PhD Faculty Fellow

    Jilleah Welch Research Associate

    Jay Cooley Business Manager

    Elizabeth Woody Office Manager

    Kristin England Information Specialist

    William Park, PhD Director of Undergraduate Programs Professork, Agricultural and Resource Economics

    About the Baker Center The Howard H. Baker Jr. Center for Public Policy is an education and research center that serves the University of Tennessee, Knoxville, and the public. The Baker Center is a nonpartisan institute devoted to education and public policy schol- arship focused on energy and the environment, global security, and leadership and governance.

    Howard H. Baker Jr. Center for Public Policy 1640 Cumberland Avenue Knoxville, TN 37996-3340

    bakercenter.utk.edu 865.974.0931 [email protected]

    The contents of this report were developed under a grant from the US Department of Education. However, these contents do not necessarily represent the policy of the US Department of Education, and you should not assume endorsement by the federal government.

    Findings and opinions conveyed herein are those of the authors only and do not necessarily represent an official position of the Howard H. Baker Jr. Center for Public Policy or the University of Tennessee.

    Baker Center Board

    Cynthia Baker Media Consultant Washington, DC

    Sam M. Browder Retired, Harriman Oil

    Patrick Butler CEO, Association of Public Television Stations Washington, DC

    Sarah Keeton Campbell Attorney, Special Assistant to the Solicitor General and the Attorney General, State of Tennessee Nashville, TN

    Jimmy G. Cheek Chancellor, The University of Tennessee, Knoxville

    AB Culvahouse Jr. Attorney, O’Melveny & Myers, LLP Washington, DC

    The Honorable Albert Gore Jr. Former Vice President of The United States Former United States Senator Nashville, TN

    Thomas Griscom Communications Consultant Former Editor, Chattanooga Times Free Press Chattanooga, TN

    James Haslam II Chairman and Founder, Pilot Corporation The University of Tennessee Board of Trustees

    Joseph E. Johnson Former President, University of Tennessee

    Fred Marcum Former Senior Advisor to Senator Baker Huntsville, TN

    The Honorable George Cranwell Montgomery Former Ambassador to the Sultanate of Oman

    Regina Murray Knoxville, TN

    Lee Riedinger Vice Chancellor, The University of Tennessee, Knoxville

    Don C. Stansberry Jr. The University of Tennessee Board of Trustees Huntsville, TN

    The Honorable Don Sundquist Former Governor of Tennessee Townsend, TN

    Baker Center Staff

    Matt Murray, PhD Director

    Nissa Dahlin-Brown, EdD Associate Director

    Charles Sims, PhD Faculty Fellow

    Krista Wiegand, PhD Faculty Fellow

    Jilleah Welch, PhD Research Associate

    Jay Cooley Business Manager

    Elizabeth Woody Office Manager

    Kristin England Information Specialist

    William Park, PhD Director of Undergraduate Programs Professor, Agricultural and Re- source Economics

    About the Baker Center The Howard H. Baker Jr. Center for Public Policy is an education and research center that serves the University of Tennessee, Knoxville, and the public. The Baker Center is a nonpartisan institute devoted to education and public policy scholarship focused on energy and the environment, global security, and leadership and governance.

    Howard H. Baker Jr. Center for Public Policy 1640 Cumberland Avenue Knoxville, TN 37996-3340

    Additional publications available at http://bakercenter.utk.edu/publi- cations/

    865.974.0931 [email protected]

    Disclaimer Findings and opinions conveyed herein are those of the authors only and do not necessarily represent an official position of the Howard H. Baker Jr. Center for Public Policy or the University of Tennessee.

  • The Howard H. Baker Jr. Center for Public Policy The Howard H. Baker Jr. Center for Public Policy 1

    Tax Policies and Alternative Revenue Sources: State Responses to Declining Purchasing Power of Roadway Funding

    Mark L. Burton, PhD Matthew N. Murray, PhD

    Emily K. Pratt Jilleah G. Welch, PhD

    November 30, 2016

    In the past three years, most states have increased or introduced new taxes in order to boost transportation funding. These policy changes are largely in response to the declining purchasing power of traditional transportation funds stemming from gasoline and diesel taxes. This report provides a brief update and overview of roadway funding in Tennessee, with an emphasis on the gasoline tax. The primary goal is to discuss roadway funding in other states, paying attention to the tax policies and alternative revenue sources that states are using in response to ongoing funding challenges. Lastly, we briefly discuss the strengths and weaknesses of these revenue mechanisms.1

    Roadway Funding in Tennessee

    Tennessee’s Department of Transportation (TDOT) had roughly $2 billion2 to use toward highway funding in 2014 which equated to about $314 per person.3 Approximately 46 percent of available revenues came from the Federal Highway Administration (FHA) while remaining revenues largely came from state revenue sources. Figure 1 shows the revenue sources for the state highway system which amounted to $707 million4 in the 2014-2015 fiscal year. Like other states and the federal government, fuel taxes are Tennessee’s primary revenue source for roadway funding. The per unit gasoline tax, diesel tax, and special tax on petroleum together account for 63 percent of available funds. Motor vehicle registrations are the next largest contributor accounting for 31 percent of funds. Remaining revenues stem from the sales and use tax on aviation, rail, and waterway fuel diverted to the transportation fund, as well as gross receipt taxes and a portion of the beer tax.5 Tennessee does not use any tolls, general funds, or debt financing for highway funding, and sales tax rates are not applied to fuel sales.

    1 For background, see Baker Center Policy Brief 4.15, which describes the structure of transportation funding and recent fund- ing conditions in Tennessee. The Brief can be retrieved from http://bakercenter.utk.edu//wp-content/uploads/2015/11/Policy- Brief-4-15-Gas.11.24.15.pdf. 2 Revenues for highway funding are from the U.S. Department of Transportation, Federal Highway Administration, Highway Statistics 2014, Table SF-1. Retrieved from https://www.fhwa.dot.gov/policyinformation/statistics/2014/ on October 20, 2016. 3 Estimated population is from the U.S. Census Bureau, American Factor Finder, Annual Estimates of the Resident Population: April 1, 2010 to July 1, 2015, 2015 Population Estimates. Retrieved from http://factfinder.census.gov/faces/tableservices/jsf/ pages/productview.xhtml?src=CF on October 20, 2016. 4 State of Tennessee, The Budget, Fiscal Year 2016-2017, Page A-65, Distribution of Actual Revenue by Fund, Fiscal Year 2014-2015. Retrieved from http://www.tn.gov/assets/entities/finance/budget/attachments/2017BudgetDocumentVol1.pdf on October 20, 2016. 5 For additional details on transportation funding, see Tennessee Comptroller of the Treasury, Offices of Research and Educa- tion Accountability, Tennessee Transportation Funding: Challenges and Options, January 2015. Retrieved from http://www. comptroller.tn.gov/OREA/PublicationDetails?ReportKey=57b20768-f541-4531-bfac-4746da14d85c on October 21, 2016.

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