For its baseline budget projections, CBO estimates the revenue effects of enacted legislation that changed the amount of funding for tax enforcement. Similarly, CBO’s annual analysis of the President’s budget includes its estimates of the revenue effects of the Administration’s proposals to change such funding. (But CBO does not estimate the changes in revenue from proposals to amend the tax code; those estimates are the responsibility of the staff of the Joint Committee on Taxation.) However, for legislation being considered by the Congress, CBO does not include projections of additional receipts from proposed increases in funding for tax enforcement in its estimates of the budgetary effects that are used for budget enforcement purposes. That approach follows the budget scorekeeping guidelines specified in the conference report for the Balanced Budget Act of 1997. These slides describe the circumstances under which CBO estimates the revenue effects of changes in funding for tax enforcement and the factors that affect those estimates. They were the basis for a presentation by Janet Holtzblatt, a unit chief in CBO's Tax Analysis Division, at the sixth annual Internal Revenue Service-Tax Policy Center Joint Research Conference on Tax Administration.

1. Congressional Budget Office
Estimating the Revenue Effects of Proposals to
Increase Funding for Tax Enforcement
June 23, 2016
Janet Holtzblatt
Tax Analysis Division
The information in this presentation is preliminary and is being circulated to stimulate discussion and critical comment as
developmental work for analysis for the Congress.

2. 1CONGRESSIONAL BUDGET OFFICE
The Tax Gap and the Budget Deficit

3. 2CONGRESSIONAL BUDGET OFFICE
The Congressional Budget Office estimates that
the budget deficit will be $534 billion in fiscal year
2016.
The “net tax gap” is the difference between the
amount of tax that taxpayers should pay under the
tax law and the amount they actually pay, either
voluntarily or as a result of enforcement actions.
The Internal Revenue Service (IRS) estimates that
the annual net tax gap from 2008 to 2010 was, on
average, $406 billion ($447 billion in 2016
dollars).

4. 3CONGRESSIONAL BUDGET OFFICE
The amount of budgetary savings from
proposals to reduce the tax gap is
uncertain.
Detection and deterrence probably improve
compliance, but many types of tax evasion
are difficult for the IRS to identify and
prevent.
Businesses and people will try (often
successfully) new ways to evade taxes.

5. 4CONGRESSIONAL BUDGET OFFICE
Another consideration is the size and
allocation of the IRS budget.
IRS funding fell by 15 percent from 2010
through 2016 (in real dollars).
The biggest cuts were in enforcement, but
that activity still receives the largest share of
the IRS budget.

6. 5CONGRESSIONAL BUDGET OFFICE
The Internal Revenue Service’s Budget,
Fiscal Years 2000 Through 2016
2016 Dollars
2000 2002 2004 2006 2008 2010 2012 2014 2016
0
11
12
13
14

7. 6CONGRESSIONAL BUDGET OFFICE
Components of the IRS’s 2016 Budget
Taxpayer
Services
(21%)
Enforcement
(43%)
Operations
Support
(33%)
Computer
Modernization
(3%)

8. 7CONGRESSIONAL BUDGET OFFICE
As IRS funding declined, its costs of
collecting an additional $100 of taxes also
fell—from 53 cents in 2010 to 35 cents in
2015, the IRS estimates.

9. 8CONGRESSIONAL BUDGET OFFICE
Budget Scorekeeping Guidelines

10. 9CONGRESSIONAL BUDGET OFFICE
CBO estimates the net cost (including any
revenue effects) of proposals to increase IRS
funding.
The staff of the Joint Committee on Taxation
(JCT) estimates the change in revenue from
proposals to amend the tax code.

11. 10CONGRESSIONAL BUDGET OFFICE
CBO, JCT, the Office of Management and
Budget, and House and Senate budget
committees adhere to the same budget
scorekeeping guidelines.

12. 11CONGRESSIONAL BUDGET OFFICE
The budget scorekeeping guidelines were
developed over time and formalized in the
conference report for the Balanced Budget
Act of 1997.
The guidelines ensure consistent budgetary
treatment across programs and over time.

13. 12CONGRESSIONAL BUDGET OFFICE
Two guidelines, Rule 3 and Rule 14, are
especially relevant to analysis of tax
compliance proposals.

14. 13CONGRESSIONAL BUDGET OFFICE
Budget Scorekeeping Rule 3:
“Revenues, entitlements, and other
mandatory programs (including
offsetting receipts) will be scored at
current law levels…unless Congressional
action modifies the authorizing
legislation.”

15. 14CONGRESSIONAL BUDGET OFFICE
Budget Scorekeeping Rule 14:
“No increase in receipts or decrease in
direct spending will be scored as a result
of provisions of a law that provides direct
spending for administrative or program
management activities.”

16. 15CONGRESSIONAL BUDGET OFFICE
In a hypothetical example of the application
of budget scorekeeping rules, if a bill
includes a provision to increase the IRS’s
budget to fund more audits...

17. 16CONGRESSIONAL BUDGET OFFICE
• CBO’s estimate of the bill’s cost would include
the additional funding for the new audits.
• Under Rules 3 and 14, CBO would exclude any
revenue increases from the additional audits
in its estimate of the bill’s budgetary effects.
• CBO might provide the Congress with an
estimate of the “nonscorable” revenue
increases that are not included in the estimate
used for budget enforcement purposes.

18. 17CONGRESSIONAL BUDGET OFFICE
Rules 3 and 14 do not apply to CBO’s
baseline budget projections or its analysis of
the President’s budget.
CBO will include the resulting revenue
increases in its:
• Next estimate of the budget deficit under
current law if an increase in IRS funding is
enacted
• Analysis of the President’s budget if it
includes a proposal to increase IRS funding

19. 18CONGRESSIONAL BUDGET OFFICE
A number of factors affect revenue
estimates for compliance proposals:
• IRS infrastructure (technology and staff)
• Adjustment issues (flexibility and
complexity)
• Compliance behavior (detection,
deterrence, and learning curves)

20. 19CONGRESSIONAL BUDGET OFFICE
Many of the IRS’s activities probably
increase compliance.
Customer service can reduce unintentional
errors by taxpayers.
Enforcement enables detection and
deterrence.
Computer modernization supports
customer service and enforcement.

21. 20CONGRESSIONAL BUDGET OFFICE
In its baseline projections, analysis of the
President’s budget, and estimates of
nonscorable effects of legislation, CBO
focuses on improvements in detection
resulting from increases in enforcement
funding.

22. 21CONGRESSIONAL BUDGET OFFICE
Because of the substantial uncertainty about
their effects, CBO does not estimate changes in
revenue from:
• Increases in funding for customer service
• Increases in funding for computer
modernization
• Changes in deterrence from increases in
enforcement funding

23. 22CONGRESSIONAL BUDGET OFFICE
Estimates of changes in revenues from
changes in IRS funding are based on
expected returns on investment (ROIs).
An ROI is equal to the additional dollar of
revenues from an additional dollar of
funding.

24. 23CONGRESSIONAL BUDGET OFFICE
Typically, CBO starts with the IRS’s estimates
of ROIs.
IRS researchers have access to detailed data
unavailable to CBO.
CBO makes adjustments to those ROIs if, in
the agency’s judgment, the estimates do not
fully take into account some of the factors
affecting compliance proposals.

25. 24CONGRESSIONAL BUDGET OFFICE
An Example:
The President’s Fiscal Year 2016
Budget Proposal—
Additional Funding for Program
Integrity Initiatives

26. 25CONGRESSIONAL BUDGET OFFICE
The Budget Control Act of 2011 (Public
Law 112-25) imposed caps on discretionary
funding in 2013 and subsequent years.
Those limits have been modified by
subsequent legislation.
However, the caps are automatically
adjusted to accommodate additional
appropriations for certain program integrity
activities.

27. 26CONGRESSIONAL BUDGET OFFICE
The President’s fiscal year 2016 budget
contained a proposal to boost discretionary
spending by $667 million in 2016 to fund
IRS program integrity initiatives.
Of that amount, $421 million was for
enforcement.
Most of the remainder was for operations
support.

28. 27CONGRESSIONAL BUDGET OFFICE
CBO estimated ROIs only for the
enforcement initiatives.
The estimated ROIs on each component
were different—ranging from 0 to 9.

29. 28CONGRESSIONAL BUDGET OFFICE
Components of Proposed 2016 Funding Increase for
Enforcement Initiatives
2016 IRS Enforcement Initiatives
Cost in 2016
(Millions of
Dollars)
Return on
$1 of
Investment
(Dollars)
Prevent Identity Theft and Refund Fraud 2.7 9.0
Increase Audit Coverage 150.7 2.6
Improve Audit Coverage of Large Partnerships 16.2 2.7
Address International and Offshore Compliance Issues 40.7 1.2
Enhance Collection Coverage 122.8 2.8
Other Initiatives 87.5 0
Total Cost 420.6 n.a.
Average Return on $1 of Investment n.a. 2.0

30. 29CONGRESSIONAL BUDGET OFFICE
The President proposed to continue the
2016 enforcement initiatives throughout
the entire 10-year budget period.
The annual costs would rise to $435 million
in 2018 and then stay at that level.

31. 30CONGRESSIONAL BUDGET OFFICE
CBO estimated that the aggregate ROI on
the increased funding for enforcement
would gradually rise over three years.
CBO anticipated improvements in IRS
technology and staff from 2016 through 2018
as a result of the additional funding.
CBO projected a drop in the ROI after 2018
as taxpayers found new ways to evade
taxes.

32. 31CONGRESSIONAL BUDGET OFFICE
Estimates of Return on Investment From Proposed
Funding Increases for 2016 Enforcement Initiatives
Dollars
Return on $1 of
Investment
Year 1 (2016) 2.0
Year 3 (2018) 6.4
Year 6 (2021) 5.9
Year 10 (2025) 5.2

33. 32CONGRESSIONAL BUDGET OFFICE
The fiscal year 2016 budget proposal would
also increase discretionary funding by
additional amounts through fiscal year 2020
to fund other new IRS enforcement
initiatives.
The Administration did not provide any
details on the components of those future
initiatives.

34. 33CONGRESSIONAL BUDGET OFFICE
In CBO’s judgment, ROIs would decline for
each new initiative as the IRS tackled more
difficult types of tax evasion.

35. 34CONGRESSIONAL BUDGET OFFICE
Estimates of Return on Investment From Proposed
Funding Increases for 2020 Enforcement Initiatives
Dollars
Return on $1 of
Investment
Year 1 (2020) 1.5
Year 3 (2022) 4.6
Year 6 (2025) 4.2

36. 35CONGRESSIONAL BUDGET OFFICE
CBO estimated the total 10-year net
budgetary gains from the proposed increase
in funding for IRS program integrity efforts:
• Spending: $18.7 billion
• Revenues: $55.3 billion
• Net budgetary gains: $36.6 billion

37. 36CONGRESSIONAL BUDGET OFFICE
ROIs vary by type of enforcement activity.
Thus, the ROI would probably not be the
same for another budget proposal with
different features.