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Tax Expenditures and Evaluations 2009 : Part 1
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Preface 

The Department of Finance has published tax expenditures for personal and corporate income taxes as well as for the Goods and Services Tax since 1994. Beginning in 2000, the tax expenditure report has been separated into two documents. This document, Tax Expenditures and Evaluations, is published annually. It provides estimates and projections for broadly defined tax expenditures as well as evaluations and analytical papers addressing specific tax measures. This year's edition includes an analytical paper entitled "An International Comparison of Tax Assistance for Investment in Research and Development."

The companion document, Tax Expenditures: Notes to the Estimates/Projections, was last published in 2004. It is a reference document for readers who want descriptions of, or information on the objectives of, particular tax expenditures or who wish to know more about how the estimates and projections are calculated. New tax expenditures are described in the relevant section of Tax Expenditures and Evaluations.

Archived - Part 1
Tax Expenditures: Estimates and Projections

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Introduction 

The principal function of the tax system is to raise the revenues necessary to fund government expenditures that reflect society's priorities. The tax system can also be used directly to achieve public policy objectives through the application of special tax rates, exemptions, deductions, rebates, deferrals and credits that affect the level and distribution of tax. These measures are often described as "tax expenditures" because they achieve policy objectives at the cost of lower tax revenue.

To identify and estimate tax expenditures, it is necessary to establish a "benchmark" tax structure that applies the relevant tax rates to a broadly defined tax base—e.g. personal income, business income or consumption. Tax expenditures are then defined as deviations from this benchmark. Reasonable differences of opinion exist about what should be considered a normal part of the tax system and hence about what should be considered a tax expenditure. For example, a deduction for expenses incurred in earning income is generally considered part of the benchmark and thus not as a tax expenditure. But in some cases the deduction may confer some personal benefit, making its classification ambiguous.

This report takes a broad approach and includes estimates and projections of the revenue loss associated with all but the most fundamental structural elements of the tax system, such as the progressive personal income tax rate structure. This includes not only measures that may reasonably be regarded as tax expenditures but also other measures that may be considered part of the benchmark tax system. The latter are listed separately under "memorandum items." For instance, the Dividend Tax Credit is listed under this heading because its purpose is to reduce or eliminate the double taxation of income earned by corporations and distributed to individuals through dividends. Also included under this heading are measures for which there may be some debate over whether they should be considered tax expenditures, or where data limitations do not permit a separation of the tax expenditure and benchmark components of the measure. This approach provides information on a full range of measures.

Caveats 

Care must be taken in interpreting the estimates and projections of tax expenditures in the tables for the following reasons.

  • The estimates and projections are intended to indicate the potential revenue gain that would be realized by removing individual tax measures. They are developed assuming that the underlying tax base would not be affected by removal of the measure. However, this is an assumption that is unlikely to be true in practice as the behaviour of beneficiaries of tax expenditures, overall economic activity and other government policies could change along with the specific tax provision.
  • The cost of each tax measure is determined separately, assuming that all other tax provisions remain unchanged. Many of the tax expenditures do, however, interact with each other such that the impact of several tax provisions at once cannot generally be calculated by adding up the estimates and projections for each provision.
  • The federal and provincial income tax systems interact with each other to varying degrees. As a result, changes to tax expenditures in the federal system may have consequences for provincial tax revenues. In this publication, however, any such provincial effects are not taken into account—that is, the tax expenditure estimates and projections address strictly the federal tax system and federal tax revenue.
  • The tax expenditure estimates and projections presented in this document are developed using the latest available taxation data. Revisions to the underlying data as well as improvements to the methodology can result in substantial changes to the value of a given tax expenditure in successive publications. In addition, estimates and projections for some tax measures, such as the half inclusion rate on capital gains, are particularly sensitive to economic parameters and hence may also differ significantly from one publication to the next.

What's New in the 2009 Report 

New tax measures were introduced and others modified in Budget 2009. The major changes are described below.

Personal Income Tax

Income Tax Brackets

The upper limit of the first personal income tax bracket was increased to $40,726 in 2009 from $37,885 in 2008, allowing more income to be taxed at the lowest 15-per-cent rate, rather than the 22-per-cent rate.

The upper limit of the second personal income tax bracket was increased to $81,452 in 2009 from $75,769 in 2008, allowing more income to be taxed at the 22-per-cent rate, rather than the 26-per-cent rate.

While the progressive rate structure is considered part of the benchmark personal income tax system, the increases in the upper limits of the first two brackets affect many of the tax expenditure projections in the report.

Basic Personal Amount and Related Amounts

Budget 2009 increased the basic personal amount, the amount that all Canadians can earn without paying federal personal income tax, to $10,320 in 2009 from $9,600 in 2008, and made corresponding increases to the amount for a dependent spouse or common-law partner and the equivalent amount for an eligible dependant.

Working Income Tax Benefit

Budget 2009 enhanced the tax relief provided by the Working Income Tax Benefit (WITB) by $580 million. This is expected to effectively double the total tax relief provided by the WITB. The enhanced relief will further strengthen work incentives for low-income Canadians already in the workforce, and encourage low-income Canadians to enter the workforce.

The enhanced WITB will provide up to $925 per year to single individuals and up to $1,680 per year to couples and single parents. In addition, a supplement of up to $463 per year will be available for low-income working Canadians with disabilities who are eligible for the Disability Tax Credit. To further reduce the welfare wall, the phase-in rate for single individuals, couples and single parents will be increased to 25 per cent in 2009 from 20 per cent in 2008. The phase-out threshold will be increased to $10,500 in 2009 from $9,681 for singles, and decreased to $14,500 from $14,776 for couples and single parents.

Age Credit

Budget 2009 provided tax relief to seniors by increasing the Age Credit amount by $1,000 for 2009 and subsequent taxation years. With the $1,000 increase, the Age Credit amount for 2009 will be $6,408 and provide tax relief of up to $961 for eligible seniors.

First-Time Home Buyers' Tax Credit

Objective: To assist first-time home buyers with costs associated with the purchase of a home. (Budget 2009)

To assist first-time home buyers with the costs associated with the purchase of a home, Budget 2009 introduced the First-Time Home Buyers' Tax Credit. It is a non-refundable tax credit based on an amount of $5,000 for first-time home buyers who acquire a qualifying home after January 27, 2009. At a 15-per-cent credit rate, the tax credit provides up to $750 in tax relief. Any unused portion of the tax credit may be claimed by an individual's spouse or common-law partner.

Home Buyers' Plan

To provide first-time home buyers with additional access to their Registered Retirement Savings Plan (RRSP) savings to purchase or build a home, Budget 2009 announced an increase in the Home Buyers' Plan withdrawal limit to $25,000 from $20,000 in respect of withdrawals made after January 27, 2009. The tax expenditure associated with the Home Buyers' Plan is included in the overall RRSP tax expenditure estimates and projections.

Home Renovation Tax Credit

Objective: To provide a temporary incentive for homeowners to invest in improvements to their homes and to stimulate economic growth. (Budget 2009)

The temporary Home Renovation Tax Credit will provide a 15-per-cent income tax credit on eligible home renovation expenditures for work performed, or goods acquired, after January 27, 2009 and before February 1, 2010, pursuant to agreements entered into after January 27, 2009. The credit may be claimed for the 2009 taxation year on the portion of eligible expenditures exceeding $1,000, but not more than $10,000, and will provide up to $1,350 in tax relief.

Mineral Exploration Tax Credit for Flow-Through Share Investors

The Mineral Exploration Tax Credit is a reduction in tax, available to individuals who invest in flow-through shares, equal to 15 per cent of specified mineral exploration expenses incurred in Canada and transferred to flow-through share investors. The credit was introduced on a temporary basis in 2000 and has been extended since then. Budget 2009 extended eligibility for the credit for an additional year to flow-through share agreements entered into on or before March 31, 2010. Under the one-year "look-back" rule, funds raised with the benefit of the credit in 2010, for example, can be spent on eligible exploration up to the end of 2011.

Deferral of Income From Sale of Livestock During Drought, Flood or Excessive Moisture Years

This measure allows farmers who sell their breeding livestock in certain circumstances to defer, in computing their farming income for income tax purposes, a portion of the proceeds of disposition obtained from the sale of their breeding livestock, generally until the following year. This measure applies only where the farmer carries on business in a prescribed drought region; a proposed expansion would allow the measure to apply where the farmer carries on business in a region of flood or excessive moisture. The proposed expansion applies to 2008 and subsequent taxation years.

Corporate Income Tax

Small Business Deduction

The small business deduction provides Canadian-controlled private corporations (CCPCs) with an 11-per-cent federal corporate income tax rate on qualifying active business income. The annual amount of active business income eligible for the reduced rate (generally referred to as the small business limit) was increased to $500,000 from $400,000 as of January 1, 2009 as part of Budget 2009.

Expenditure Limits for the Enhanced Scientific Research and Experimental Development Investment Tax Credit

CCPCs are eligible to earn investment tax credits at an enhanced rate of 35 per cent on up to $3 million of scientific research and experimental development (SR&ED) expenditures annually. This $3-million expenditure limit is reduced as a CCPC's taxable income and taxable capital relating to the previous year increase beyond certain limits.

As a result of measures introduced in Budget 2009, the $3-million expenditure limit for SR&ED will begin to be reduced at the new small business limit of $500,000 (formerly $400,000) and will be fully eliminated where taxable income in the previous year is $800,000 (formerly $700,000) or more. This change will apply where the previous taxation year ends after 2008.

The Tax Expenditures

Tables 1 to 3 provide tax expenditure values for personal income tax, corporate income tax and the Goods and Services Tax (GST) for the years 2004 to 2009. Values for the years 2004 to 2007 are based on tax data supplied by the Canada Revenue Agency, or are calculated from data supplied by Statistics Canada and other government departments and agencies, with a few exceptions. In these cases, and for all projections, the values shown are determined from the historical relationship between a tax expenditure and relevant economic variables. The economic variables used to develop the 2008 and 2009 projections1 are generally based on the forecast presented in the September 2009 Update of Economic and Fiscal Projections. See Chapter 1 of Tax Expenditures: Notes to the Estimates/Projections2 for additional details on the methodology.

The tax expenditures are grouped according to functional categories. This grouping is provided solely for presentational purposes and is not intended to reflect underlying policy considerations.

All estimates and projections are reported in millions of dollars. The letter "S" ("small") indicates that the absolute value of the tax expenditure is less than $2.5 million, "n.a." signifies that data is not available to support a meaningful estimate/projection, and a dash means that the tax expenditure is not in effect. The inclusion in the report of items for which estimates and projections are not available reflects the intention to provide information on measures included in the tax system even if it is not always possible to provide their revenue impacts. Work is continuing to obtain quantitative estimates and projections where possible. For example, in this year's edition, revenue loss estimates have been prepared for eight measures for which estimates were previously not available.

Table 1
Personal Income Tax Expenditures*
  Estimates1 Projections1
 

  2004 2005 2006 2007 2008 2009
  ($ millions)
Charities, Gifts and Contributions            
Charitable Donations Credit 2,000 2,260 2,480 2,495 2,380 2,380
Reduced inclusion rate for capital gains arising
 from donations of publicly listed securities2
8 9 26 50 34 34
Reduced inclusion rate for capital gains arising
 from donations of ecologically sensitive land3
S S S S 3 3
Non-taxation of capital gains on gifts
 of cultural property4
18 10 4 6 7 7
Non-taxation of gifts and bequests n.a. n.a. n.a. n.a. n.a. n.a.
Political Contribution Tax Credit5 22 26 24 18 25 18
Culture
Assistance for artists S S S S S
Deduction for artists and musicians S S S S S
Education
Adult basic education—tax deduction
 for tuition assistance
5 5 5 5 5 5
Apprentice vehicle mechanics' tools
 deduction6
3 4 4 4 4
Education Tax Credit7 240 220 240 220 225 215
Tuition Tax Credit7 290 265 265 250 265 255
Textbook Tax Credit7,8 46 42 44 42
Education, Tuition and Textbook Tax Credits
 carried forward from prior years9
345 365 420 380 405 385
Transfer of Education, Tuition and
 Textbook Tax Credits
460 445 475 470 480 480
Exemption of scholarship, fellowship
 and bursary income10
11 11 37 38 38 38
Registered Education Savings Plans 150 145 170 185 165 140
Student Loan Interest Credit 58 55 66 64 67 68
Employment
Canada Employment Credit11 470 1,785 1,860 1,880
Deduction for income earned by military
 and police deployed to high-risk
 international missions
26 18 25 35 36 37
Deduction of home relocation loans S S S S S S
Deferral of salary through leave
 of absence/sabbatical plans
n.a. n.a. n.a. n.a. n.a. n.a.
Employee benefit plans n.a. n.a. n.a. n.a. n.a. n.a.
Employee stock options12 725 945 1,085 1,160 745 830
Non-taxation of certain non-monetary
 employment benefits
n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of strike pay n.a. n.a. n.a. n.a. n.a. n.a.
Northern residents deduction13 135 135 140 140 155 150
Overseas Employment Credit 45 40 42 42 42 43
Tax-free amount for emergency
 service volunteers
14 14 14 14 14 14
Deduction for tradespeople's tool expenses14 15 15 15 15
Working Income Tax Benefit15 455 480 1,075
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 1
Personal Income Tax Expenditures* (cont'd)
  Estimates1 Projections1
 

  2004 2005 2006 2007 2008 2009
  ($ millions)
Family            
Adoption Expense Tax Credit16 3 S S S S
Caregiver Credit 79 79 85 83 86 85
Child Tax Credit17 1,385 1,420 1,430
Deferral of capital gains
 through transfers to a spouse,
 spousal trust or family trust
n.a. n.a. n.a. n.a. n.a. n.a.
Infirm Dependant Credit 6 5 5 5 5 5
Spouse or Common-Law Partner Credit18 1,195 1,205 1,205 1,285 1,305 1,420
Eligible Dependant Credit19 665 665 675 730 740 765
Farming and Fishing            
Lifetime capital gains exemption
 for farm/fishing property20
255 255 280 370 365 365
Cash-basis accounting n.a. n.a. n.a. n.a. n.a. n.a.
Deferral of capital gains through
 intergenerational rollovers of family farms,
 family fishing businesses and
 commercial woodlots
n.a. n.a. n.a. n.a. n.a. n.a.
Deferral of income from destruction
 of livestock21
9 -10 S S S S
Deferral of income from sale of
 livestock during drought, flood or
 excessive moisture years22
n.a. n.a. n.a. n.a. n.a. n.a.
Deferral of income from grain sold through
 cash purchase tickets23
S -20 10 30 40 -15
Deferral through 10-year capital gain reserve S S S S S S
Exemption from making quarterly tax instalments n.a. n.a. n.a. n.a. n.a. n.a.
Flexibility in inventory accounting n.a. n.a. n.a. n.a. n.a. n.a.
Tax treatment of the Net Income
 Stabilization Account24
           
  Deferral of tax on government contributions S S S S S S
  Deferral of tax on bonus and interest income 21 7 S S S S
  Taxable withdrawals -180 -155 -8 S S S
AgriInvest (farm savings account)25 20 20
Federal-Provincial Financing Arrangements            
Logging Tax Credit S S S S S S
Quebec abatement 3,345 3,405 3,495 3,520 3,695 3,660
Transfers of income tax points to provinces 14,980 15,935 16,995 17,450 18,370 18,190
General Business and Investment            
$200 capital gains exemption
 on foreign exchange transactions
n.a. n.a. n.a. n.a. n.a. n.a.
$1,000 capital gains exemption
 on personal-use property
n.a. n.a. n.a. n.a. n.a. n.a.
Deduction of accelerated capital
 cost allowance
n.a. n.a. n.a. n.a. n.a. n.a.
Deferral through billed-basis accounting
 by professionals
n.a. n.a. n.a. n.a. n.a. n.a.
Deferral through capital gains rollovers n.a. n.a. n.a. n.a. n.a. n.a.
Deferral through five-year capital gain reserve 23 21 25 25 25 25
Investment tax credits26 20 15 20 15 15 15
Flow-through share deductions 335 465 715 700 360 255
Mineral Exploration Tax Credit
 for flow-through share investors27
46 46 92 150 47 24
Reclassification of flow-through shares28 16 9 12 -4 -12 -10
Partial inclusion of capital gains29 2,840 4,015 5,100 5,935 3,090 3,245
Taxation of capital gains upon realization n.a. n.a. n.a. n.a. n.a. n.a.
Tax-Free Savings Account30 45
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 1
Personal Income Tax Expenditures* (cont'd)
  Estimates1 Projections1
 

  2004 2005 2006 2007 2008 2009
  ($ millions)
Small Business            
Lifetime capital gains exemption
 for small business shares31
380 430 440 580 605 635
Deduction of allowable business
 investment losses
30 24 25 30 35 40
Deferral through 10-year capital gain reserve S S S S S S
Labour-Sponsored Venture Capital
 Corporations Credit
150 125 125 120 120 120
Non-taxation of provincial assistance
 for venture investments in small businesses32
n.a. n.a. n.a. n.a. n.a. n.a.
Rollovers of investments in small businesses 4 6 5 10 10 10
Health            
Children's Fitness Tax Credit33 90 105 115
Disability Tax Credit 390 395 430 410 435 415
Medical Expense Tax Credit 800 805 875 915 990 955
Non-taxation of business-paid health
 and dental benefits
2,155 2,170 2,310 2,490 2,620 2,710
Refundable medical expense supplement34 77 92 115 115 125 135
Income Maintenance and Retirement            
Age Credit35 1,490 1,400 1,810 1,735 1,850 2,185
Deferred Profit-Sharing Plans n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of certain amounts received
 as damages in respect of personal injury 
 or death
14 14 15 18 20 21
Non-taxation of Guaranteed Income Supplement
 and Allowance benefits36
295 245 180 150 170 85
Non-taxation of investment income on
 life insurance policies37
n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of RCMP pensions/compensation
 in respect of injury, disability or death
n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of social assistance benefits38 205 180 185 120 140 115
Non-taxation of up to $10,000 of death benefits n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of veterans' allowances, income
 support benefits, civilian war pensions
 and allowances, and other service pensions
 (including those from Allied countries)39
3 3 S S S S
Non-taxation of veterans' disability pensions
 and support for dependants39
150 145 150 145 150 140
Non-taxation of veterans' Disability Award40 3 11 19 18
Non-taxation of workers' compensation benefits 630 620 630 655 700 675
Registered Disability Savings Plans S S
Pension Income Credit41 440 420 840 945 980 945
Pension income splitting42 665 700 730
Registered Pension Plans43            
  Deduction for contributions 7,740 8,355 9,825 9,450 9,415 9,485
  Non-taxation of investment income 10,230 11,580 13,085 14,875 7,065 8,665
  Taxation of withdrawals -7,090 -7,335 -7,295 -6,730 -7,070 -6,820
  Net tax expenditure 10,880 12,600 15,615 17,595 9,410 11,330
Registered Retirement Savings Plans43            
  Deduction for contributions 6,410 6,820 7,320 7,585 7,440 7,850
  Non-taxation of investment income 5,660 6,920 7,990 9,090 4,000 5,270
  Taxation of withdrawals -4,005 -4,280 -4,620 -4,600 -4,405 -4,600
  Net tax expenditure 8,065 9,460 10,690 12,075 7,035 8,520
Supplementary information: present value
 of tax-assisted retirement savings plans44
7,450 8,120 8,850 9,395 9,280 9,840
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 1
Personal Income Tax Expenditures* (cont'd)
  Estimates1 Projections1
 

  2004 2005 2006 2007 2008 2009
  ($ millions)
Saskatchewan Pension Plan S S S S S S
Treatment of alimony and
 maintenance payments
98 97 86 92 97 100
Other Items            
Deduction related to vows of
 perpetual poverty
S S S S S S
Deduction for clergy residence 67 70 75 74 76 75
First-Time Home Buyers' Tax Credit45 160
Home Renovation Tax Credit46 3,000
Non-taxation of capital gains
 on principal residences47
           
  Partial inclusion rate 2,555 3,465 4,325 5,460 3,485 3,115
  Full inclusion rate 5,110 6,925 8,650 10,920 6,970 6,230
Non-taxation of income from the
 Office of the Governor General
S S S S S S
Non-taxation of income of
 Indians on reserves
n.a. n.a. n.a. n.a. n.a. n.a.
Special tax computation for certain
 retroactive lump-sum payments
S S S S S S
Public Transit Tax Credit48 39 100 120 130
Memorandum Items            
Avoidance of Double Taxation            
Dividend gross-up and
 Dividend Tax Credit49
1,480 1,730 2,330 2,745 3,055 3,055
Foreign Tax Credit 615 655 705 715 730 720
Non-taxation of capital dividends n.a. n.a. n.a. n.a. n.a. n.a.
Recognition of Expenses Incurred to Earn Income
Child care expense deduction50 570 570 740 745 765 760
Deduction of carrying charges incurred
 to earn income
775 895 1,105 1,270 1,240 1,240
Deduction of union and professional dues 615 630 660 680 710 715
Disability supports deduction
 (attendant care deduction)
S S S S S S
Moving expense deduction 88 100 115 115 120 125
Loss Offset Provisions            
Capital loss carry-overs51 250 305 340 335 135 250
Farm and fishing loss carry-overs 14 15 15 15 15 15
Non-capital loss carry-overs 62 50 50 60 45 50
Social and Employment Insurance Programs
Canada Pension Plan and Québec Pension Plan
  Employee-Paid Contribution Credit 2,570 2,510 2,665 2,735 2,860 2,920
  Non-taxation of employer-paid
   premiums52
3,835 3,960 4,145 4,395 4,610 4,655
Employment Insurance            
  Employment Insurance Contribution
   Credit53
1,020 970 965 935 945 970
  Non-taxation of employer-paid premiums 1,990 1,995 1,835 1,840 1,855 1,870
Other            
Basic personal amount54 22,865 23,410 24,340 25,710 26,190 27,770
Deduction of other employment expenses 870 890 905 935 975 990
Non-taxation of lottery and
 gambling winnings55
n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of allowances for
 diplomats, military and other
 government employees posted abroad
30 26 27 29 30 30
Partial deduction of meals and
 entertainment expenses56
115 125 125 160 180 195

* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.

Notes:

1 Unless otherwise indicated in the footnotes, changes in the estimates and projections from those in last year's report, as well as variations from year to year, result from changes in the explanatory economic variables upon which the estimates and projections are based. These changes and variations also reflect the availability of new data and improvements to the methodology used to derive the estimates and projections. In addition, the tax expenditure estimate or projection for a given measure is often affected by changes to other measures. In particular, the introduction or enhancement of broad-based non-refundable tax credits (e.g. the basic personal amount, Age Credit, Pension Income Credit and Child Tax Credit) along with reductions in the lowest personal income tax rate tend to reduce tax expenditure estimates and projections.

2 The total tax expenditure cost of this measure has two components: the revenue forgone as a result of the reduced inclusion rate (which is shown in the main table), and the increased cost of the Charitable Donations Credit from any increase in donations that results from the measure. If all of the donations of listed securities would have been made in the absence of this measure, then (as shown in the main table) the total cost ranges from $8 million to $50 million between 2004 and 2009. If, on the other hand, all donations of listed securities came about as a result of the reduced inclusion rate on capital gains, and if in the absence of the measure the shares would have been sold instead of donated, then the cost of the measure ranges from $67 million to $215 million between 2004 and 2009, as shown below (in millions of dollars):

2004 2005 2006 2007 2008 2009
68 67 115 215 150 150

The true costs fall somewhere between the lower and upper bounds set by the ranges indicated.

3 The total tax expenditure cost of this measure has two components: the revenue forgone as a result of the reduced inclusion rate (which is shown in the main table), and the increased cost of the Charitable Donations Credit from any increase in donations that results from the measure. If all of the donations of ecologically sensitive land would have been made in the absence of this measure, then (as shown in the main table) the total cost ranges from small to $3 million between 2004 and 2009. If, on the other hand, all donations of ecologically sensitive land came about as a result of the reduced inclusion rate on capital gains, and if in the absence of the measure the land would have been sold instead of donated, then the cost of the measure ranges from $4 million to $11 million between 2004 and 2009, as shown below (in millions of dollars):

2004 2005 2006 2007 2008 2009
8 4 5 8 11 11

The true cost falls somewhere between the lower and upper bounds set by the ranges indicated.

4 The total tax expenditure cost of this measure has two components: the revenue forgone as a result of the reduced inclusion rate (which is shown in the main table), and the increased cost of the Charitable Donations Credit from any increase in donations that results from the measure. If all of the donations of cultural property would have been made in the absence of this measure, then (as shown in the main table) the total cost ranges from $4 million to $18 million between 2004 and 2009. If, on the other hand, all donations of cultural property came about as a result of this measure, and if the property would otherwise have been sold instead of donated, then the cost of the measure ranges from $15 million to $72 million between 2004 and 2009, as shown below (in millions of dollars):

2004 2005 2006 2007 2008 2009
72 40 15 26 30 28

The true cost falls somewhere between the lower and upper bounds set by the ranges indicated.

5 The higher levels for this tax expenditure in 2005 and 2006 reflect the fact that contributions in respect of the 39th general election were spread over two calendar years. The tax expenditure is expected to be higher in 2008 as a result of contributions in respect of the 40th general election. Since the date of the next general election is unknown, no projections are included in this regard.

6 The amount of the tax expenditure for this measure has been adjusted upward and reflects improvements to the previous methodology.

7 This tax expenditure relates to amounts earned in the year and claimed by the student (i.e. neither transferred nor carried forward).

8 This measure was introduced in Budget 2006, effective January 1, 2006.

9 For a given year, this tax expenditure represents the value of Education, Tuition and Textbook Tax Credits earned in past years and used in that year. The tax expenditure does not include the pool of unused Education, Tuition and Textbook Tax Credits that have been accumulated but will be deferred for use in future years.

10 The tax expenditure equals the tax revenue forgone from exempting scholarship, fellowship and bursary income from tax. Budget 2006 introduced a measure that makes all amounts received for post-secondary scholarships, fellowships and bursaries exempt from tax, where these amounts are received in connection with enrolment in a program for which the student can claim the Education Tax Credit. The maximum exemption for tax years prior to 2006 was $3,000 for these students. Budget 2007 extended this treatment to elementary and secondary school students, effective 2007. All other scholarships, fellowships and bursaries receive a tax exemption on the first $500.

11 This measure was introduced in Budget 2006. Because it was effective in July 2006, the maximum amount on which the credit is calculated for the 2006 taxation year is $250. For 2007, the maximum amount on which the credit is calculated was increased to $1,000. This maximum amount has been indexed for years subsequent to 2007.

12 Projections of this tax expenditure for 2007 and 2008 are based on preliminary tax return data. The decline of this tax expenditure in 2008 reflects the general decline in Canadian stock values in 2008.

13 Budget 2008 increased the maximum daily residency deduction by 10 per cent from $15 to $16.50, effective 2008.

14 This measure was introduced in Budget 2006, effective May 2, 2006.

15 This measure was announced in Budget 2007, effective 2007. Budget 2009 proposed to enhance this measure, effective 2009.

16 This measure was introduced in Budget 2005, effective 2005.

17 This measure was introduced in Budget 2007, effective 2007.

18 Budget 2007 and the 2007 Economic Statement enhanced this credit, effective 2007. Budget 2009 enhanced the credit, effective 2009.

19 Budget 2007 and the 2007 Economic Statement enhanced this credit, effective 2007. Budget 2009 enhanced the credit, effective 2009.

20 Budget 2006 extended the lifetime capital gains exemption (LCGE) to qualifying fishing property, effective May 2, 2006. Budget 2007 announced an increase in the LCGE to $750,000 from $500,000, effective March 19, 2007.

21 The estimate for 2004 is higher than in other years due to the effects of the outbreak of avian flu in British Columbia. The deferred income from 2004 was reported in 2005, resulting in a negative tax expenditure for that year.

22 The tax measure was expanded to include prescribed flood or excessive moisture regions. This proposed expansion applies to the 2008 and subsequent taxation years.

23 Estimates are based on Statistics Canada data available up to 2008, which includes cash purchase tickets for wheat, barley, oats, canola, flax and rye. Projections are calculated using a historical average growth rate.

24 Amounts for 2004 are observed values. The Net Income Stabilization Account (NISA) and the Canadian Farm Income Program were replaced by the Canadian Agricultural Income Stabilization Program, with the effect that government contributions under NISA ceased as of December 31, 2003. All funds in participant accounts are paid out as of March 31, 2009. Tax expenditure estimates and projections reflect the wind-down schedule.

25 This measure was introduced in Budget 2007. This tax expenditure represents the deferral of federal personal income taxes on government contributions to AgriInvest accounts. The smaller tax expenditure in 2008 than projected in prior years reflects the availability of new 2008 AgriInvest data from Agriculture and Agri-Food Canada and the ministère de l'Agriculture, des Pêcheries et de l'Alimentation du Québec on the levels of contributions and withdrawals in the accounts, and the higher than anticipated withdrawal rate from AgriInvest accounts.

26 This tax expenditure has been adjusted to exclude the component of investment tax credits attributed to the Mineral Exploration Tax Credit for flow-through share investors. The tax expenditure for the Mineral Exploration Tax Credit for flow-through share investors is presented separately in this report. Other adjustments, including the removal of the effect of the alternative minimum tax and the effect of tax credit carry-forwards, have been made to ensure consistency with the general methodology used to assess tax expenditures.

27 The credit was introduced on a temporary basis in 2000 and has been extended since. It is currently set to expire on March 31, 2010.

28 The negative tax expenditure for 2007 and subsequent years reflects a decline in the volume of reclassifications in respect of Canadian Development Expenses transferred to individuals investing in flow-through shares. As with any tax measure that accelerates the rate at which deductions can be claimed against income, the reclassification of Canadian Development Expenses (30 per cent/year deduction rate) as Canadian Exploration Expenses (100 per cent/year deduction rate) results in a relatively large positive tax expenditure in the first year(s) of an investment, followed by a period of relatively smaller negative tax expenditures. The overall tax expenditure is negative for 2007 and subsequent years because the positive tax expenditure associated with new spending in those years is more than offset by the negative tax expenditure resulting from reclassifications that occurred in previous years. For more information, see the entry for this measure in the "What's New in the 2008 Report" section of the 2008 Tax Expenditures and Evaluations.

29 Projections for 2007 and 2008 are based on preliminary tax return information. The significant decline of this tax expenditure in 2008 and 2009 reflects poor market conditions in 2008. As in previous years, the approach does not take into account the ability of individuals to apply capital losses against previous-year capital gains.

30 The Tax-Free Savings Account was introduced in Budget 2008 and is effective January 1, 2009.

31 Budget 2007 announced an increase in the lifetime capital gains exemption to $750,000 from $500,000, effective March 19, 2007.

32 This is a new item in the personal income tax table. Please refer to the corporate income tax section of the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a description of the measure.

33 This measure was introduced in Budget 2006, effective 2007. Budget 2007 enhanced this measure for children with disabilities.

34 The increase in the tax expenditure reflects enhancements to the credit announced in the 2005 and 2006 budgets. Specifically, Budget 2005 increased the maximum amount of the supplement from $571 to $750 per year, effective 2005, and Budget 2006 subsequently increased the maximum amount from $767 to $1,000, effective 2006.

35 The Age Credit amount was increased by $1,000, to $5,066 from $4,066, in the Tax Fairness Plan (announced October 31, 2006 and confirmed in Budget 2007), effective January 1, 2006. Budget 2009 increased the amount by $1,000, to $6,408 from $5,408, effective 2009.

36 The decline in this tax expenditure in 2007 and 2009 is mainly explained by the increase in non-taxpaying seniors due to increases in the basic personal amount and other non-refundable credits relevant to seniors (such as the Age Credit).

37 Although this measure provides tax relief for individuals, it is implemented through the corporate tax system. See "investment income credited to life insurance policies" in the corporate income tax table for estimates and projections of this tax expenditure.

38 The decline in this tax expenditure in 2007 generally reflects the increase in non-taxpaying low-income earners due to increases in the basic personal amount and the spouse or common-law partner amount, as well as the introduction of the Child Tax Credit. The decline in 2009 generally reflects the Budget 2009 increase in the basic personal amount and related amounts.

39 This tax expenditure is based on data received from Veterans Affairs Canada. As part of the New Veterans Charter, in 2006 the Canadian Forces Income Support Benefit was established as a tax-free amount for eligible low-income veterans.

40 This tax expenditure is based on data received from Veterans Affairs Canada. As of 2006, the Disability Award has replaced the Veterans Disability Pension for eligible new applicants (current disability pensioners have been grandfathered).

41 Budget 2006 doubled the maximum amount that can be claimed under the Pension Income Credit to $2,000 from $1,000 for the 2006 and subsequent taxation years. The introduction of pension income splitting in 2007 increases the number of individuals claiming the Pension Income Credit and thus increases the value of this tax expenditure.

42 This measure, announced on October 31, 2006 in the Tax Fairness Plan and confirmed in Budget 2007, allows Canadian residents to allocate up to one-half of eligible pension income to their resident spouse or common-law partner, effective 2007.

43 Estimates and projections vary from those in last year's report due to changes in tax rates and estimated levels of assets, contributions, investment income, capital gains/losses and withdrawals. In general, tax expenditure estimates and projections will be higher in years in which assets grow strongly, reflecting the tax forgone on that investment income, and lower in years in which assets grow slowly or decline. The estimates and projections also reflect methodological improvements relating to the carry-over of capital losses.

44 The present-value estimates reflect the lifetime cost of a given year's contributions. This definition is different from that used for the cash-flow estimates and thus the two sets of estimates are not directly comparable. Further information on how these estimates are calculated is contained in the paper "Present-Value Tax Expenditure Estimates of Tax Assistance for Retirement Savings," which was published in the 2001 edition of this report. The present-value estimates do not reflect the potential effect of Tax-Free Savings Accounts on the average tax rate used to calculate the present value of the forgone tax on investment income.

45 This measure was introduced in Budget 2009. See the "What's New in the 2009 Report" section for details.

46 This temporary measure was introduced in Budget 2009. See the "What's New in the 2009 Report" section for details.

47 The estimates and projections for this tax expenditure reflect the cyclicality of the housing market and its impact on the number of residence resales and on the average price of residences. Estimates and projections are based on housing market data and resale forecasts provided by Canada Mortgage and Housing Corporation and the Canadian Real Estate Association. Data on major additions and renovations obtained from Statistics Canada are used to estimate the average amount of capital expenditures on principal residences, which reduces the estimated amount of capital gains. The decline in the 2008 tax expenditure reflects the decrease in residential resale activity and prices in 2008.

48 This measure was introduced in Budget 2006, effective July 1, 2006. Budget 2007 extended the credit to electronic fare cards and weekly passes used on an ongoing basis.

49 The estimates and projections include the revenue impact associated with both the enhanced Dividend Tax Credit introduced in 2006, mainly applicable to dividends from large businesses, and the basic Dividend Tax Credit applicable to other dividends, mostly from small businesses.

50 Prior to 2006, some families with young children who claimed little or no child care expenses were eligible to receive the Canada Child Tax Benefit (CCTB) under-7 supplement. Thus, the value of the tax expenditure was partially offset by the increase in the CCTB under-7 supplement that would follow any decrease in the amount of child care expenses claimed. The increase in the tax expenditure in 2006 and later years reflects the phase-out of the CCTB under-7 supplement as of June 30, 2006 for children under the age of 6, and June 30, 2007 for 6-year-old children.

51 This tax expenditure represents the revenue impact resulting from the application of previous-year capital losses against the net capital gains realized in the current year. The decline in this tax expenditure in 2008 reflects the reduced ability of taxpayers to use capital losses against capital gains in a period of declining capital markets.

52 Self-employed individuals may deduct the employer share of their Canada/Québec Pension Plan contributions paid for their own coverage. This is included in the tax expenditure for the non-taxation of employer-paid premiums.

53 Estimates and projections include contributions paid to the Québec Parental Insurance Plan (QPIP). The QPIP was effective as of January 1, 2006.

54 The basic personal amount has been increased by amounts over and above the inflation protection provided by full indexation (due to changes in Budget 2005, Budget 2006, the 2007 Economic Statement and Budget 2009).

55 Tax expenditure estimates and projections for this measure are not available, mainly because data on payouts/winnings are incomplete. Data on payouts at casinos, video lottery terminals, horseracing, and racetrack slot machines, which constitute a rising share of total spending on gaming, are fragmentary. In addition, no data are available on the payouts/winnings from activities sponsored by charities and other non-government organizations.

Under federal-provincial agreements negotiated in 1979 and 1985, the federal government, in exchange for an ongoing payment, undertook to refrain from re-entering the field of gaming and betting to ensure that the rights of the provinces in that field are not reduced or restricted.

56 The amount of the tax expenditure for this measure has been adjusted upward for all years, reflecting improvements in methodology.

 

Table 2
Corporate Income Tax Expenditures*
  Estimates1 Projections1


  2004 2005 2006 2007 2008 2009
  ($ millions)
Charities, Gifts and Contributions            
Deductibility of charitable donations 445 425 555 465 435 360
Deductibility of gifts of medicine2 S S S
Deductibility of gifts of cultural property3 6 18 20 8 8 8
Deductibility of gifts of ecologically sensitive land3 S S 5 3 5 5
Deductibility of gifts to the Crown S S S S S S
Reduced inclusion rate for capital gains arising
 from donations of publicly listed securities4
15 18 36 54 96 95
Reduced inclusion rate for capital gains arising
 from donations of ecologically sensitive land5
S S 3 22 5 5
Non-taxation of capital gains on gifts
 of cultural property6
n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of registered charities n.a. n.a. n.a. n.a. n.a. n.a.
Non-taxation of other non-profit organizations
 (other than registered charities)7
165 145 165 175 150 125
Political Contribution Tax Credit8 S S S S
Culture
Canadian Film or Video Production Tax Credit 185 175 185 205 205 205
Non-deductibility of advertising expenses
 in foreign media
-3 S S S S S
Federal-Provincial Financing Arrangements
Income tax exemption for provincial
 and municipal corporations
n.a. n.a. n.a. n.a. n.a. n.a.
Transfer of income tax room to provinces 1,455 1,645 2,045 2,070 2,040 1,815
Logging Tax Credit 45 21 44 22 19 15
General Business and Investment
Accelerated write-off of capital assets and
 resource-related expenditures
n.a. n.a. n.a. n.a. n.a. n.a.
Capital Gains
Deferral through capital gains rollovers n.a. n.a. n.a. n.a. n.a. n.a.
Taxation of capital gains upon realization n.a. n.a. n.a. n.a. n.a. n.a.
Partial inclusion of capital gains9 2,860 4,210 5,745 5,870 4,490 3,210
Investment Tax Credits
Atlantic Investment Tax Credit
  Earned and claimed in current year 120 130 95 140 125 110
  Claimed in current year but earned in prior years 120 280 75 165 165 140
  Earned in current year but carried back
   to prior years
4 6 6 3 7 6
  Total tax expenditure 244 416 176 308 297 256
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 2
Corporate Income Tax Expenditures* (cont'd)
  Estimates1 Projections1


  2004 2005 2006 2007 2008 2009
  ($ millions)
Scientific Research and Experimental
 Development Investment Tax Credit
           
  Earned and claimed in current year 1,990 2,080 2,180 2,235 2,330 2,225
  Claimed in current year but earned in prior years 920 585 605 980 1,025 975
  Earned in current year but carried back
   to prior years
100 90 80 75 95 95
  Total tax expenditure 3,010 2,755 2,865 3,290 3,450 3,295
Apprenticeship Job Creation Tax Credit10
  Earned and claimed in current year 19 53 68 68
  Claimed in current year but earned in prior years S 3 10 10
  Earned in current year but carried back
   to prior years
S S 3 3
  Total tax expenditure 19 58 81 81
Investment Tax Credit for Child Care Spaces S S S
Small Business
Deduction of allowable business investment losses11 20 17 16 14 17 16
Low tax rate for small businesses12 3,090 3,300 4,015 4,930 4,135 3,375
Non-taxation of provincial assistance for venture
 investments in small businesses
n.a. n.a. n.a. n.a. n.a. n.a.
International
Exemption from Canadian income tax of income
 earned by non-residents from the operation
 of a ship or aircraft in international traffic
n.a. n.a. n.a. n.a. n.a. n.a.
Exemption from tax for international banking centres n.a. n.a. n.a. n.a. n.a. n.a.
Exemptions from non-resident withholding tax13
  Dividends14 605 1,000 965 1,385 1,445 1,380
  Interest
    On deposits 100 180 260 320 335 320
    On corporate debt15 470 475 310 285 350 335
    Other16 37 38 36 48 50 48
  Rents and royalties
    Copyright royalties 28 40 41 54 57 54
    Rents and royalties for the use of,
     or right to use, other property
135 175 180 200 205 200
    Research and development royalties 4 4 5 5 6 5
    Natural resource royalties S S S S S S
    Rents from real property S S S S S S
  Management fees 72 85 97 105 110 105
Non-taxation of life insurance companies'
 world income
n.a. n.a. n.a. n.a. n.a. n.a.
Tax treatment of income of foreign affiliates
 of Canadian corporations and deductibility of
 expenses incurred to invest in foreign affiliates
n.a. n.a. n.a. n.a. n.a. n.a.
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 2
Corporate Income Tax Expenditures* (cont'd)
  Estimates1 Projections1


  2004 2005 2006 2007 2008 2009
  ($ millions)
Sectoral Measures
Farming
Cash-basis accounting n.a. n.a. n.a. n.a. n.a. n.a.
Deferral of income from destruction of livestock17 4 S S S S S
Deferral of income from sale of livestock during
 drought, flood or excessive moisture years18
n.a. n.a. n.a. n.a. n.a. n.a.
Deferral of income from grain sold through cash
 purchase tickets19
S 14 -6 S S S
Flexibility in inventory accounting n.a. n.a. n.a. n.a. n.a. n.a.
Agricultural cooperatives—patronage dividends
 issued as shares20
3 3 3 3
AgriInvest (farm savings account)21 3 3
Insurers of farmer and fisher risks22 6 7 7 4 4 4
Resource
Corporate Mineral Exploration Tax Credit23 13 19 3 18 9 11
Deductibility of contributions to a qualifying
 environmental trust
S 7 3 S S S
Earned depletion24 25 40 32 4 4 3
Net impact of the resource allowance and the non-
 deductibility of Crown royalties and mining taxes25
8 44 17 S
Tax rate on resource income26 -520 -570 -425 -30
Transitional arrangement for the Alberta Royalty
 Tax Credit27
S S S S
Flow-through share deductions 205 275 195 205 125 100
Reclassification of expenses under flow-through shares28 S 3 -3 -3 -3 -3
Other Sectors
Exemption from branch tax for transportation,
 communications, and iron ore mining corporations
S 10 S 6 5 4
Film or Video Production Services Tax Credit 85 105 110 90 90 90
Low tax rate for credit unions 58 54 63 70 84 68
Surtax on the profits of tobacco manufacturers29 -55 -50 n.a. n.a. n.a. n.a.
Other Items
Deductibility of countervailing and
 anti-dumping duties
n.a. n.a. n.a. n.a. n.a. n.a.
Deductibility of earthquake reserves 5 6 6 6 6 6
Deferral through use of billed-basis accounting
 by professional corporations
n.a. n.a. n.a. n.a. n.a. n.a.
Holdback on progress payments to contractors30 20 30 50 50 50 40
Investment income credited to life
 insurance policies31
280 280 295 280 280 280
Non-taxation of certain federal Crown corporations n.a. n.a. n.a. n.a. n.a. n.a.
* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.
Table 2
Corporate Income Tax Expenditures* (cont'd)
  Estimates1 Projections1


  2004 2005 2006 2007 2008 2009
  ($ millions)
Memorandum Items
Avoidance of Double Taxation—Integration
 of Personal and Corporate Income Tax
Investment corporation deduction S S S S S S
Refundable capital gains for investment
 and mutual fund corporations32
115 345 415 415 170 145
Refundable taxes on investment income
 of private corporations33
 Additional Part I taxes34 -1,160 -1,515 -2,030 -2,355 -2,720 -2,320
 Part IV tax -2,035 -2,175 -2,545 -3,260 -3,135 -2,735
 Dividend refund 4,035 4,435 5,395 6,495 7,230 5,450
 Net tax expenditure 840 745 820 880 1,375 395
Recognition of Expenses Incurred to Earn Income
Deduction for intangible assets n.a. n.a. n.a. n.a. n.a. n.a.
Loss Offset Provisions
Capital loss carry-overs
 Net capital losses carried back35 220 79 61 165 330 385
 Net capital losses applied to current year 355 345 665 735 735 465
Farm and fishing loss carry-overs
 Farm and fishing losses carried back 12 15 14 13 16 18
 Farm and fishing losses applied to current year 41 42 62 46 36 33
Non-capital loss carry-overs
 Non-capital losses carried back36 1,585 1,840 1,635 2,145 5,350 6,005
 Non-capital losses applied to current year 5,075 5,015 4,575 4,565 4,705 4,885
Other
Partial deduction of meals and
 entertainment expenses37
290 300 325 350 300 240
Patronage dividend deduction38 295 315 365 475 395 420

* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.

Notes:

1 Unless otherwise indicated in the footnotes, changes in the estimates and projections from those in last year's report, as well as variations from year to year, result from changes in the explanatory economic variables upon which the estimates and projections are based. These changes and variations also reflect the availability of new data and improvements to the methodology used to derive the estimates and projections. Estimates and projections reflect the impact of reductions in the general corporate income tax rate from 23 per cent to 21 per cent on January 1, 2004, 19.5 per cent on January 1, 2008 and 19.0 per cent on January 1, 2009. The 4-per-cent corporate surtax (equivalent to a 1.12-per-cent corporate income tax rate) was eliminated on January 1, 2008.

2 Available data now allows the additional deduction for donations of medicine to the developing world to be shown separately from charitable donations.

3 Available data now allows deductibility of gifts of cultural property and ecologically sensitive land to be shown separately.

4 This is a new item in the corporate income tax table. Please refer to the personal income tax section of the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a description of the measure. The increase in the tax expenditure in 2006 reflects the elimination in Budget 2006 of capital gains tax on donations to public charities of publicly listed securities. The further increase in 2007 reflects the extension of this measure to private foundations in Budget 2007. Finally, the increase in 2008 reflects the elimination of capital gains on donations of exchangeable shares in Budget 2008. The tax expenditure is the amount of revenue forgone resulting from the reduced inclusion rate for capital gains realized when listed securities are donated. It does not include the impact of increases in donations that result from this measure. These impacts are captured in the item "deductibility of charitable donations". See footnote 2 in the personal income tax table for a further discussion of this issue.

5 This is a new item in the corporate income tax table. Please refer to the personal income tax section of the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a description of the measure. The increase in the tax expenditure in 2006 reflects the elimination in that year of capital gains tax on donations to public charities of ecologically sensitive land. The further increase in 2007 and the decline in 2008 and 2009 reflect expected variations in the annual levels of donations. The tax expenditure is the amount of revenue forgone resulting from the reduced inclusion rate for capital gains realized when ecologically sensitive land is donated. It does not include the impact of increases in donations that result from this measure. These impacts are captured in the item "deductibility of gifts of ecologically sensitive land". See footnote 3 in the personal income tax table for a further discussion of this issue.

6 This is a new item in the corporate income tax table. Please refer to the personal income tax section of the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on Department of Finance website) for a description of the measure.

7 The 2007 estimate is based on information from 2006 corporate income tax data and the growth in gross domestic product between 2006 and 2007.

8 The Federal Accountability Act prohibits political contributions from corporations as of January 1, 2007. Some tax expenditure occurred in 2007, however, as many firms reporting income in the 2007 tax year earned a portion of that income in the 2006 calendar year.

9 The large declines in 2008 and 2009 reflect, for the most part, the projected reduction in realized capital gains in these years resulting from the economic downturn.

10 Available data now allows costs to be shown separately for the components of this tax expenditure.

11 The amount of this tax expenditure can fluctuate from year to year depending on the amount of current-year losses and the availability of income against which to apply these losses.

12 The amount of this tax expenditure reflects the impact of Budget 2003, Budget 2006 and Budget 2009, which increased the amount of small business income eligible for the lower tax rate, and Budget 2004, which accelerated the Budget 2003 increase. In addition, Budget 2006 reduced the small business tax rate and the 2007 Economic Statement accelerated the rate reduction. Finally, the reduction in the tax expenditure between 2007 and 2009 reflects the reduction in the benchmark rate as well as the impact of the current economic climate (see footnote 1).

13 Estimates and projections were computed on the basis of an analysis of payments to non-residents and withholding tax collections available for 1997 to 2007.

14 This category includes the tax expenditure attributable to the exemption of estate and trust income distributions, including distributions by income trusts.

15 The Fifth Protocol to the Canada-U.S. Tax Treaty, which came into effect in 2008, includes an exemption from withholding tax for interest paid to U.S. residents. This exemption is phased in for interest paid to non-arm's length U.S. residents and is fully effective in the year of ratification of the updated treaty for arm's length U.S. residents. A statutory exemption from withholding tax for all interest payments to arm's length foreign lenders also came into effect as of January 2008. Projections for this category therefore include the cost of the statutory exemption from withholding tax for interest payments to all arm's length non-U.S. foreign lenders starting in 2008. The changes to withholding tax rates for interest payments to U.S. lenders (both arm's length and non-arm's length) that were announced in Budget 2007 are contained in the Canada-U.S. Tax Treaty; these changes alter the benchmark and therefore do not affect the tax expenditure for this category.

16 This category includes exemptions for interest paid to non-resident persons or organizations that would be exempt from income tax in Canada were they residents in Canada. Also included are exemptions on interest paid under certain securities-lending arrangements set out in subparagraph 212(1)(b)(xii) of the Income Tax Act, and interest exempt under certain other domestic and treaty provisions which, due to data limitations, cannot be specifically divided between benchmark items and tax expenditures.

17 Estimates and the 2008 projection are based on data obtained from Statistics Canada.

18 This is a new item in the corporate income tax table. Please refer to the personal income tax section of the publication Tax Expenditures: Notes to the Estimates/Projections(published in 2004 and available on Department of Finance website) for a description of the measure.

19 The 2009 projection is calculated using a historical average growth rate. Since this tax expenditure is calculated on a cash-flow basis, an increase in the balance of uncashed grain tickets represents additional income that is being deferred and results in a positive tax expenditure. A decrease in the balance of uncashed grain tickets indicates that less income is being deferred and results in a negative tax expenditure. The tax expenditure estimates and projections are volatile over time since a small number of corporations are affected in a narrowly defined sector. Estimates, which include 2008 for this item, and the projection are based on data obtained from Statistics Canada.

20 The estimates and projections published in prior publications were based on the estimate from Budget 2006. The current estimates and projections are based on actual tax return data for 2006 and 2007 and partial tax return data for 2008.

21 This is a new item in the corporate income tax table. This measure was announced in Budget 2007. The tax expenditure represents the deferral of federal income taxes on contributions to AgriInvest accounts.

22 This measure provides a tax exemption in respect of a portion of the taxable income of a mutual insurance company that insures property used in farming or fishing (including the principal residence of farmers and fishers). This is the first time this measure has been included in this document.

23 This credit was introduced in Budget 2003 and phased in at 5 per cent in 2003, 7 per cent in 2004 and 10 per cent in subsequent years.

24 Additions to earned depletion pools were eliminated as of January 1, 1990. The tax expenditure reflects use of the existing earned depletion pools.

25 The tax expenditure is the revenue cost of the resource allowance net of non-deductible Crown royalties and provincial mining taxes. Over a five-year period beginning in 2003, the resource allowance was phased out and a deduction for Crown royalties and mining taxes phased in, so that by 2007, this tax expenditure is eliminated. Costs for 2007 relate to companies that did not have a December 31 year-end for which the 2007 year included a portion of 2006. Year-to-year variation reflects volatility in the relationship between the resource allowance and Crown royalties. See the technical paper "Improving the Income Taxation of the Resource Sector in Canada" (Department of Finance, March 2003) for further details.

26 The general corporate income tax rate was extended to resource income over a five-year phase-in period beginning in 2003. Although the rate difference between the general and resource rates no longer existed as of 2007, there were still costs in that year associated with 2006 rates for companies with off-calendar taxation years, for which the 2007 tax year included some income earned in 2006.

27 The Alberta government announced on September 21, 2006 that the Alberta Royalty Tax Credit (ARTC) program would be discontinued effective January 1, 2007. Although the ARTC no longer existed as of 2007, there were still costs in that year associated with the measure for companies with off-calendar taxation years, for which the 2007 tax year included some royalty credits earned in 2006.

28 The negative tax expenditure for 2006 and subsequent years reflects a decline in the volume of reclassifications in respect of Canadian Development Expenses transferred to corporations investing in flow-through shares. For more information about this measure, please refer to the "What's New in the 2008 Report" section of the 2008 Tax Expenditures and Evaluations publication (available on the Department of Finance website).

29 For confidentiality reasons, estimates and projections for the 2006 to 2009 period are not published.

30 The amount of this tax expenditure can fluctuate significantly from year to year depending primarily upon the level of construction activity.

31 Estimates and projections vary from those in prior reports due to a methodological change made to improve their accuracy.

32 Variations from last year's report reflect the availability of new data as well as the impact of the current economic climate.

33 Refundable tax provisions of the corporate income tax system provide some integration of the corporate and personal income tax regimes. For more information about these measures, see the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website).

34 This item includes the additional 6 2⁄3 per cent refundable tax on investment income as well as the Part I tax paid on investment income in excess of the benchmark rate.

35 The large values in 2008 and 2009 reflect, for the most part, the capital losses projected in these years resulting from declines in the stock market.

36 The large values in 2008 and 2009 reflect, for the most part, the non-capital losses projected in these years resulting from the economic downturn.

37 Budget 2007 increased to 80 per cent from 50 per cent, over five years, the deductible portion of the cost of food and beverages consumed by long-haul truck drivers during certain long-haul trips. This measure also applies to employers that pay, or reimburse, such costs incurred by long-haul truck drivers that they employ. This measure applies to eligible expenses incurred on or after March 19, 2007.

38 Estimates and projections vary from those in prior reports due to a methodological change to improve their accuracy.

 

Table 3
GST Tax Expenditures*
Estimates1,2 Projections2
 

2004 2005 20063 20073 20083 2009
($ millions)
Aboriginal Self-Government            
Refunds for Aboriginal self-government4 S S S S S S
Business
Exemption for domestic financial services5 n.a. n.a. n.a. n.a. n.a. n.a.
Exemption for ferry, road and bridge tolls6 15 15 10 15 10 10
Exemption and rebate for legal aid services 25 25 30 30 25 25
Non-taxability of certain importations7 n.a. n.a. n.a. n.a. n.a. n.a.
Rebates for foreign visitors8 75 80 70 20 n.a. n.a.
Foreign Convention and Tour Incentive
 Program8
n.a. n.a. n.a. 10 10 10
Small suppliers' threshold 185 200 195 190 165 170
Zero-rating of high-cost agricultural and
 fishing equipment9
S S S S S S
Zero-rating of certain purchases made
 by exporters
S S S S S S
Charities and Non-Profit Organizations
Exemption for certain supplies made by
 non-profit organizations
n.a. n.a. n.a. n.a. n.a. n.a.
Rebates for registered charities 285 295 305 290 275 290
Rebates for non-profit organizations 75 75 75 65 65 70
Education
Exemption for education services (tuition)6 520 525 515 500 435 435
Rebates for book purchases made by
 qualifying public institutions
30 30 30 30 30 30
Rebates for colleges 80 80 80 85 75 75
Rebates for schools 400 425 430 415 385 405
Rebates for universities 260 270 260 245 230 245
Health Care
Exemption for health care services6 520 660 660 665 580 600
Rebates for hospitals 465 515 515 525 465 490
Zero-rating of medical devices6 175 180 180 185 160 160
Zero-rating of prescription drugs6 645 680 690 695 605 610
Households
Exemption for child care and personal services6 140 140 135 125 110 115
GST/HST Credit10 3,330 3,450 3,510 3,575 3,615 3,680
Zero-rating of basic groceries6 3,795 3,895 3,755 3,625 3,165 3,175
Housing
Exemption for sales of used residential housing
 and other personal-use real property
n.a. n.a. n.a. n.a. n.a. n.a.
Exemption for residential rent (long-term)6 1,335 1,440 1,370 1,340 1,175 1,120
Rebates for new housing 915 955 845 720 570 515
Rebates for new residential rental property 55 55 50 55 55 50
Municipalities            
Exemption for municipal transit6 160 165 160 160 140 140
Exemption for water and basic garbage
 collection services6
235 230 235 240 210 210
Rebates for municipalities11 1,440 1,730 1,805 1,805 1,615 1,705
Memorandum Items            
Recognition of Expenses Incurred to
 Earn Income
           
Rebates to employees and partners 115 115 100 90 80 80
Other            
Exemption for quick method accounting 230 245 240 235 205 195
Partial input tax credits for meals and
 entertainment expenses12
135 135 140 135 120 125

* The elimination of a tax expenditure would not necessarily yield the full tax revenues shown in the table. See the publication Tax Expenditures: Notes to the Estimates/Projections (published in 2004 and available on the Department of Finance website) for a discussion of the reasons for this.

Notes:

1 Unless otherwise indicated in the footnotes, estimates are based on administrative data from the Canada Revenue Agency or data from Statistics Canada.

2 Unless otherwise indicated in the footnotes, changes in the estimates and projections from those in last year's report, as well as variations from year to year, result from changes in the explanatory economic variables upon which the estimates and projections are based. These changes and variations also reflect the availability of new data and improvements to the methodology used to derive the estimates and projections.

3 The Goods and Services Tax rate was lowered from 7 per cent to 6 per cent effective July 1, 2006, and to 5 per cent effective January 1, 2008. The 2006 rate reduction lowers the tax expenditures for 2006 and 2007, and the 2008 rate reduction reduces them further for 2008 and 2009.

4 These refunds are paid to Aboriginal governments that have an agreement providing for a Goods and Services Tax/Harmonized Sales Tax (GST/HST) refund for goods and services acquired for self-government activities.

5 Vendors are not entitled to claim input tax credits to recover the GST/HST paid on inputs to exempt supplies. Final consumers and businesses do not pay the direct sales tax on exempt goods and services.

6 The National Sales Tax Model used to generate the estimates and projections is based on the 2005 national input-output tables from Statistics Canada and the latest release of the National Income and Expenditure Accounts.

7 Certain importations are tax-free including, for example, duty-free personal importations by Canadian travellers.

8 The Visitor Rebate Program (VRP) was replaced by the Foreign Convention and Tour Incentive Program effective April 1, 2007. Estimates for the VRP do not include amounts credited by suppliers at the point of sale.

9 A large range of generally high-cost agricultural and fishing equipment is zero-rated to reduce cash-flow problems for farmers and fishers.

10 Estimates are based on personal income tax data. The GST rate reductions do not affect the credit.

11 The rebate rate for municipalities increased from 57.14 per cent to 100 per cent effective February 1, 2004.

12 Based on estimated expense claims reported for the personal and corporate income tax systems. The estimate for 2007 and projection include the increased deductibility of meal expenses on certain trips by long-haul truck drivers. See footnote 37 in the corporate income tax table for additional details.

 


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