Business Incentives and Economic Development Expenditures: An Overview of Indiana s Program Investments and Outcomes

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1 Business Incentives and Ecnmic Develpment Expenditures: An Overview f s Prgram Investments and Outcmes Summary Acrss the cuntry, state ecnmic develpment incentives have evlved int a cmplex mixture f prgrams with diverse structures and gals. The Cuncil fr Cmmunity and Ecnmic Research (C2ER) and the Center fr Reginal Ecnmic Cmpetitiveness (CREC) have been wrking t catalg and dcument the range f available state prgrams thrugh the C2ER State Business Incentives Database, which includes detailed infrmatin abut almst 2,000 state administered incentives prgrams frm every state, and the C2ER State Ecnmic Develpment Expenditures Database, a cmpilatin f ecnmic develpment expenditure budget data frm every state. This reprt builds n that wrk by taking a deeper lk at s full array f incentive prgrams and includes an analysis f the available utcme data that is used by state plicy makers and prgram administratrs t gauge prgram effectiveness. In rder t create a cmprehensive picture f ecnmic develpment landscape, we reviewed and culled data frm a range f state statutes, reprts and websites. The numbers cntained in this reprt are CREC and C2ER s best estimate f the dllars spent n ecnmic develpment incentives at the state level. The Center fr Reginal Ecnmic Cmpetiveness (CREC) is wrking with the Pew Charitable Trusts (Pew) n the Business Incentives Initiative. This initiative engages frwardthinking teams f ecnmic develpment plicymakers and practitiners frm six states, including. These leaders will wrk tgether t identify effective ways t manage and assess ecnmic develpment incentive plicies and practices; imprve data cllectin and reprting n incentive investments; and develp natinal standards. The initiative is supprted by a grant frm the Laura and Jhn Arnld Fundatin. In fiscal year (FY) 2015, apprpriated $77 millin fr ecnmic develpment prgrams. In FY 2016, the state is prjected t spend $284 millin n ecnmic develpment tax expenditures accrding t the Incentive Review published by the Legislative Services Agency (LSA) in Nvember Accrding t the Plicy Center and fr the purpses f this reprt, tax expenditures are defined as revenue lsses attributable t tax prvisins that ften result frm the use f the tax system t prmte scial gals withut incurring direct expenditures. 1 Overview f s Incentive Prgrams C2ER identified 40 business incentives in The C2ER State Business Incentives Database defines state business incentives as state-administered prgrams designed t influence business investment behavirs. States design their prgrams t influence these behavirs thrugh tax incentives as well as thrugh nn-tax prgrams such as grants, lans, business assistance, and ther investment 1 Expenditures: What are they and hw are they structured? Plicy Center. Accessed Nvember 25, 2014 at: 1 P a g e

2 vehicles. These incentives help businesses address ne r mre needs, such as capital access, wrkfrce preparatin, technlgy transfer, site facility imprvements, and s frth. 2 s incentive prgrams are administered by fur (4) different state agencies. The main incentive prgram administering agencies are the (DOR), Ecnmic Develpment Crpratin (IEDC), Finance Authrity, and the Office f Cmmunity and Rural Affairs. IEDC and DOR bth administer arund three quarters f s incentive prgrams. (See Figure 1.) Figure 1: State Business Incentive Prgrams by Agency, 2014 State Agency Number f Prgrams 18 Ecnmic Develpment Crpratin 11 Office f Cmmunity and Rural Affairs 6 Finance Authrity 5 Surce: C2ER State Business Incentives Database Abut half f s active incentive prgrams ffer sme kind f tax-related benefit t cmpanies fr an ecnmic develpment purpse. That is cmparable t ther states where tax incentives represent 45 percent f all state business incentive prgrams. Apprximately a third f the state s prgrams prvide direct r indirect business financial assistance t cmpanies, while abut 15 percent ffer direct cmmunity financing. Figure 2: Incentive Prgrams by Type** Incentive Prgrams by Type (2014) exemptin Lan/Lan Participatin Equity investment abatement deductin refund r rebate Lan guarantee Number f Prgrams Surce: C2ER State Business Incentives Database ** Nte: Prgrams may appear mre than nce if they prvide multiple incentive types. 2 The C2ER State Business Incentive Database definitin f business incentives may differ frm the definitin used by the State f. 2 P a g e

3 Figure 3: Incentive Prgrams by Business Need** Incentive Prgrams by Business Need (2014) Capital access r frmatin /Regulatry burden reductin Facility/site lcatin Wrkfrce prep r develpment Tech & prduct develpment Infrastructure Imprvement Prduct & prcess imprvement Number f Prgrams Surce: C2ER State Business Incentives Database ** Nte: Prgrams may appear mre than nce if they are intended t address multiple business needs. s are the mst cmmnly ffered incentives by. cmmnly ffered incentive types include grants, tax exemptin, lans and lan participatin, and equity investment incentives. (See Figure 2.) Capital access r frmatin is the mst cmmn business need addressed by s incentive prgrams. Facility r site lcatin, tax and regulatry burden reductin, and wrkfrce preparatin and develpment are als emphasized within s incentive prtfli. (See Figure 3.) Ecnmic Develpment Prgram Expenditures Accrding t the As-Passed Budget, which details FY 2015 apprpriated spending, the state apprpriated 3 $77 millin fr ecnmic develpment in FY In the C2ER State Ecnmic Develpment Expenditures Database, these expenditures are allcated t ne f 15 different functinal ecnmic develpment areas. 4 State Ecnmic Develpment Expenditures Functin Areas Business Finance Strategic Business Attractin Fund Business Assistance Internatinal Trade and Investment Dmestic Recruitment/Out-f-State Wrkfrce Preparatin & Develpment Technlgy Transfer Entrepreneurial Develpment Minrity business develpment Cmmunity Assistance Turism/Film Special Industry Assistance Prgram Supprt Administratin Prgram Areas 3 Apprpriated budgetary data was used fr all fiscal years because actual spending data was nt available at a detailed level. 4 See Glssary definitins here P a g e

4 MILLIONS (IN) BILLIONS (U.S.) February 2015 This level f ecnmic develpment spending represents an average f $449 per business, which is significantly lwer than the $972 per business median average f spending in ther states fr this fiscal year. IEDC and the Lieutenant Gvernr s Office received the bulk f funding, with 85 percent f utlays. The rest went t the f Wrkfrce Develpment, f Agriculture, State Fair Cmmissin, and the Nrthwest Reginal Develpment Authrity. Since the lw pint f $40 millin allcated in 2011, has increased ecnmic develpment spending by arund 76 percent. Despite these spending increases, s planned ecnmic develpment spending in FY 2015 remains 32 percent lwer than the high f $106 millin apprpriated in FY This is cnsistent with natinal trends in ecnmic develpment spending. (See Figure 4). Between FY 2010 and FY2011, there was an verall drp natinally in state ecnmic develpment spending, as states decreased spending fllwing the Great Recessin. While ecnmic develpment expenditures have markedly increased natinally since FY 2011, they have nt yet reached pre- Recessin spending levels. Cmpared t ther states in FY 2015, the state apprpriated a higher than average share f its ecnmic develpment budget in the functinal areas f technlgy transfer, administratin, special industry assistance. apprpriated a lwer than average share f its ecnmic develpment budget fr business assistance, cmmunity assistance, and turism and film. (See Figure 5.) Figure 4: Ttal State Ecnmic Develpment Funding** Ttal State Ecnmic Develpment Funding, FY07-15 $120 U.S. 14 $100 $80 $60 $40 $20 $0 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: All years depict apprpriated spending. 4 P a g e

5 Millins February 2015 $25 Figure 5: State Ecnmic Develpment Funding by Functin** IN State Ecnmic Develpment Funding by Functin, FY13-15 $20 FY13 FY14 FY15 $15 $10 $5 $0 Technlgy Transfer Special Industry Assistance Wrkfrce Administratin Turism/Film Preparatin & Dev. Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: All years depict apprpriated spending. Business Finance Cmmunity assistance Ecnmic Develpment Expenditures Fr this reprt, ecnmic develpment tax expenditures in this cntext represent thse prvisins that use the state tax system t encurage business investments that prmte state ecnmic pririties. Data available frm the Incentive Review reprt are fr FY 2016 and FY In FY 2016, prjected a ttal f apprximately $284 millin in tax expenditures related t ecnmic develpment. 5 Fr FY 2016, 53 percent f s ecnmic develpment tax expenditures were prjected t result frm crprate incme taxes that were nt cllected, while abut 16 percent were fr sales and use taxes, 9 percent fr individual incme taxes, and 21 percent fr ther tax types. The primary ecnmic develpment functinal gals f these tax expenditures are t encurage business assistance, cmmunity assistance, dmestic recruitment, special industry assistance, technlgy transfer, and turism and film in the state. uses tax incentives t assist different industries in the state, with ver half f line items directed tward specific industries. Out f these line items, the industries that are prjected t accunt fr the majrity f tax expenditures in FY 2016 are the manufacturing (19 percent); prfessinal, scientific, and technical services (30 percent); and amusement, gambling, and recreatin industries (19 percent) industries. 5 The Incentive Review published by the Legislative Services Agency (LSA) in Nvember 2014 was used fr the analysis in this sectin. Data were cllected by reviewing and recrding all line items in the reprt related t ecnmic develpment. 5 P a g e

6 Analysis f Available Outcme Data In 2013, Gvernr Pence enhanced transparency effrts by signing Senate Bill 162, knwn as the transparency bill. The transparency bill requires the Ecnmic Develpment Crpratin t disclse mre infrmatin abut businesses that receive ecnmic-develpment incentives, including prjected utcmes and actual jb creatin. IEDC prvides this infrmatin thrugh a publicly-available database knwn as the Transparency Prtal. The Transparency Prtal prvides free data t the public, pulling frm updates t the IEDC s database. In additin t being searchable, the data is dwnladable. Users are able t create their wn search terms, dwnlad an Excel file, and then srt and manipulate the data. The Transparency Prtal cntains a glssary defining terms used and prgrams, as well as statutry citatins. Befre 2012, a Pew Charitable Trusts study suggested that was nt taking the basic steps necessary t assess the results f its tax incentive investments. In 2014, Huse and Senate passed legislatin by wide margins t address this issue. The legislatin (Act 1020 f 2014) established a regular evaluatin schedule fr all ecnmic develpment incentives, requiring that each prgram be reviewed every five years t determine whether the prgram is meeting the state s gals and hw it can be refined. The legislatin als ensures that lawmakers are directly invlved in the evaluatin prcess by hlding public hearings t examine the data. In additin, the afrementined Incentive Review was develped as a result f Act IEDC has als increased effrts t imprve the transparency and availability f ecnmic incentive cntract data, including thrugh an annual Ecnmic Incentives and Cmpliance Reprt (EICR) prvided t the legislature. This reprt summarizes and reprts impacts resulting frm the State s incentive prgrams and awards. In additin t details prvided by recipient, summary statistics are prvided in the EICR, which are als made available n the IEDC Transparency Prtal. key stakehlders invlved in business incentive data management and accuntability include the DOR, LSA, and the f Lcal Gvernment Finance. LSA, the General Assembly s nn-partisan legislatin drafting and research arm, has taken n the rle f systematically studying and reprting n varius tax incentive issues as specified in HB 1020, including the develpment f the Incentive Review. Finally, DLGF prmtes, disclses, and evaluates ecnmic develpment tax expenditures incurred at bth the lcal and, where permitted, the state level. Cnclusin Cmpared t ther states, amunt f verall state ecnmic develpment spending per business establishments is lw relative t ther states. One f s key accmplishments has been the passage f Act 1020 t create a regular evaluatin schedule fr all ecnmic develpment incentives as well as the creatin f an pen and accessible transparency prtal intended t prvide the public with accurate infrmatin n prgram utcmes. The state s effrts ffer the prmise f imprved analysis and prgram evaluatin f ecnmic develpment incentives. 6 P a g e

7 Appendix A: Full List f State Business Incentives (2014) Prgram Name Prgram Prvider Business need Type Cal Cmbustin Prduct Credit Research and Develpment Activities Sales Exemptin Enterprise Zne Prgram Research and Develpment Equipment Sales Exemptin Research and Develpment Credit Mtrsprts Investment District Cal Gasificatin Technlgy Investment Credit Prfessinal Sprts Develpment Area Hsier Alternative Fuel Vehicle Manufacturer Credit Aircraft parts Aviatin fuel Certain aircraft Prduct & prcess imprvement; /Regulatry burden reductin Tech & prduct develpment Capital access r frmatin; Facility/site lcatin; Prfessinal netwrking; Tech & prduct develpment Tech & prduct develpment Tech & prduct develpment /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin exemptin ; abatement; deductin; exemptin; refund r rebate exemptin 7 P a g e

8 Certain racing equipment Histric Rehabilitatin Credit (Crprate and Individual) Lwer Rates fr Smaller Riverbats Natural Gas Pwered Vehicles Credit Patent Incme Exemptin Prmtinal Free Play Deductin Capital Access Prgram - State Small Business Credit Initiative (CAP-SSBCI) Industrial Recvery Credit Ecnmic Develpment fr a Grwing Ecnmy (EDGE) Credit Headquarters Relcatin Credit (HRTC) Hsier Business Investment (HBI) Credit Industrial Develpment Funds (IDGF) Skills Enhancement Fund (SEF) Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin /Regulatry burden reductin Capital access r frmatin /Regulatry burden reductin Capital access r frmatin Facility/site lcatin Capital access r frmatin; Wrkfrce prep r develpment Facility/site lcatin Capital access r frmatin; Wrkfrce prep r develpment Infrastructure Imprvement Wrkfrce prep r develpment exemptin deductin Lan guarantee 8 P a g e

9 Certified Technlgy Parks (CTP) Venture Capital Investment (VCI) Credit Angel Netwrk Fund Small Business Develpment Fund Vlume Cap Prgram Large Bnd Prgram Agricultural Develpment Lan Prgram Small Bnd Prgram Health and Educatinal Facilities Bnd Prgram Micrenterprise Assistance Prgram (MAP) Planning Cmmunity Fcus Funds (CFF) Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Ecnmic Develpment Crpratin Finance Authrity Finance Authrity Finance Authrity Finance Authrity Finance Authrity Office f Cmmunity and Rural Affairs Office f Cmmunity and Rural Affairs Office f Cmmunity and Rural Affairs Capital access r frmatin Capital access r frmatin Capital access r frmatin Capital access r frmatin; Prduct & prcess imprvement Capital access r frmatin; Facility/site lcatin Capital access r frmatin Capital access r frmatin Business management; Capital access r frmatin; Facility/site lcatin Business management; Marketing & sales assistance; Wrkfrce prep r develpment Infrastructure Imprvement Infrastructure Imprvement Equity investment Lan/Lan Participatin Lan/Lan Participatin ; Lan/Lan Participatin 9 P a g e

10 Shvel Ready Prgram Main Street Revitalizatin Prgram Shvel Ready Prgram Office f Cmmunity and Rural Affairs Office f Cmmunity and Rural Affairs Office f Cmmunity and Rural Affairs Facility/site lcatin Facility/site lcatin 10 P a g e

11 Appendix B: IN Ecnmic Develpment Prgram Expenditures (FY 2015) Ttal State Functin Activity Funding Administratin Inf systems, accunting, human resurces, etc. $6,661,161 Business Assistance Business retentin/expansin $291,000 Business Assistance Business Assistance $800,000 Business Finance s t businesses $3,330,729 Cmmunity assistance Funding fr targeted gegraphic znes $82,450 Cmmunity assistance s t lcal/reginal dev. rgs. $418,688 Cmmunity assistance Technical assistance/capacity building t $2,244,454 cmmunities (inc. rural) Dmestic Recruitment/Out-f- Marketing/Prspect Dev. (Dmestic) $250,300 State Dmestic Recruitment/Out-f- Dmestic Recruitment/Out-f-State $1,500,000 State Internatinal Trade and Exprt prmtin (excl. verseas representatin) $1,232,197 Investment Special Industry Assistance Agriculture/agribusiness $550,000 Special Industry Assistance Bitechnlgy/life sciences $12,500,000 Special Industry Assistance Energy & energy-related $298,191 Special Industry Assistance Special Industry Assistance $647,485 Special Industry Assistance Special Industry Assistance $5,000,000 Technlgy Transfer Technlgy cmmercializatin $20,000,000 Turism/Film Turism/Film $882,829 Turism/Film Turism advertising $1,175,804 Turism/Film Turism develpment $1,200,000 Turism/Film Turism prmtin (exc. Advertising) $1,200,000 Wrkfrce Preparatin & Dev. Custmized training $12,500,000 Wrkfrce Preparatin & Dev. Incumbent wrker training $3,811, P a g e

12 Appendix C: IN Ecnmic Develpment Expenditures (Prjected FY 2016) Descriptin Ttal Funds Aircraft parts $4,700,000 Alternative Fuel Vehicle Manufacturing Investment Credit $0 Aviatin fuel $7,900,000 Certain aircraft $21,300,000 Certain racing equipment $5,500,000 Certified Technlgy Parks $2,400,000 Cal Gasificatin Technlgy Investment Credit $15,000,000 Cmmunity Revitalizatin Enhancement District Credit (Crprate and Individual) $1,500,000 Cmmunity Revitalizatin Enhancement Districts $5,000,000 Ecnmic Develpment fr a Grwing Ecnmy (EDGE) Credit (Crprate and $72,000,000 Individual) Enterprise Zne Emplyee Incme Deductin $800,000 Enterprise Zne Emplyment Expense Credit (Crprate and Individual) $1,300,000 Enterprise Zne Investment Cst Credit (Crprate and Individual) $100,000 Enterprise Zne Lan Interest Credit $1,900,000 Headquarters Relcatin Credit $0 Histric Rehabilitatin Credit (Crprate and Individual) $200,000 Hsier Business Investment Credit (Crprate and Individual) $8,400,000 Industrial Recvery Credit (Crprate and Individual) $600,000 Lwer Rates fr Smaller Riverbats $5,700,000 Mtrsprts Investment District $5,000,000 Natural Gas Pwered Vehicles Credit $0 Patent Derived Incme Deductin $0 Prfessinal Sprts Develpment Areas $26,800,000 Prmtinal Free Play Deductin $15,300,000 Research and Develpment Credit Data nt available Research and Develpment Prperty (Research and Develpment Equipment Sales $6,700,000 Exemptin) Research Expense Credit (Crprate and Individual) (Research and Develpment $72,300,000 Activity Sales Exemptin) Venture Capital Investment Credit (Crprate and Individual) $3,800, P a g e