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

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1 Business Incentives and Ecnmic Develpment Expenditures: An Overview f Mntana 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 stateadministered incentive 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 Mntana s full array f incentive prgrams and includes an analysis f the available utcme data that is used by state plicymakers and prgram administratrs t gauge prgram effectiveness. In rder t create a cmprehensive picture f the 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 in Mntana. 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. These leaders are wrking 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) 2014, the mst recent year fr spending data are available fr all prgram types, the state spent $18.3 millin n ecnmic develpment prgram expenditures and $55.9 millin n ecnmic develpment tax expenditures. 1 Overview f Business Incentives Mntana has a mderate number f incentive prgrams, with a ttal f 34 active prgrams 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 vehicles. These incentives help businesses address ne 1 Please see Appendices fr detailed lists f all items included in this reprt as incentives, ecnmic develpment prgram expenditures, and ecnmic develpment tax expenditures. 1 P a g e

2 Figure 1: Mntana State Business Incentives by Agency, 2014 State Agency Number f Prgrams 26 Cmmerce 7 Agriculture 1 Surce: C2ER State Business Incentives Database r mre needs, such as capital access, wrkfrce preparatin, technlgy transfer, site facility imprvements, and s frth. 2 In Mntana, the respnsibility fr administering these incentive prgrams is spread acrss 3 different state agencies. The primary agencies respnsible fr administering incentive prgrams are the Department f Agriculture, Department f, and Department f Cmmerce (See Figure 1.) The Department f exclusively administers tax incentives (primarily tax credits), while the Department f Cmmerce and Agriculture administer lans, grants, and ther nn-tax prgrams. Figure 2: Incentive Prgrams by Type** Mntana Incentive Prgrams by Type (2015) Lan/Lan Participatin exemptin deductin Grant Other 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 Incentives Database definitin f business incentives may differ frm the definitin used by the state f Mntana. 2 P a g e

3 Figure 3: Incentive Prgrams by Business Need** Mntana Incentive Prgrams by Business Need (2015) Prduct & prcess imprvement Capital access r frmatin Facility/site lcatin Tech & prduct develpment Wrkfrce prep r develpment Business management Marketing & sales assistance Number f Prgrams Surce: C2ER State Business Incentives Database ** Nte: Prgrams may appear mre than nce if they are intended t fulfill multiple business needs. Arund 70 percent f Mntana s active incentive prgrams ffer sme kind f tax-related benefit. By cmparisn, tax incentives represent 45 percent f all state business incentive prgrams acrss the natin. A little less than a third f Mntana s incentive prgrams prvide direct r indirect financing fr Mntana businesses. s are the mst cmmnly ffered incentives by the state f Mntana. Other incentives include grants, lans and tax exemptins and deductins. (See Figure 2.) The emphasis f the state s current prtfli f incentives is n tax burden as well as prduct & prcess imprvement, with a smaller number f prgrams addressing capital access and frmatin. Cmpared t ther states, Mntana s prgram prtfli places a strng emphasis n addressing tax burden. (See Figure 3.) Ecnmic Develpment Prgram Expenditures Examining Mntana s budget fr ecnmic develpment prgram expenditures reveals hw varius state agencies utlay mney fr ecnmic develpment prgrams. Expenditures fall int 15 functinal 3 P a g e

4 Millins September 2015 areas fr ecnmic develpment defined by the C2ER State Ecnmic Develpment Expenditures Database. 3 Accrding t Mntana s 2015 Biennium Executive Budget, which details prpsed FY 2014 spending, the state spent $18.3 millin 4 n ecnmic develpment in FY This level f spending represents an average f $411 per business, which is cnsiderably lwer than the median average f $877 per business spent in ther states fr that fiscal year. The majrity f Mntana s ecnmic develpment expenditures went t the Department f Cmmerce, Department f Agriculture, and Department f Transprtatin. The Department f Cmmerce received the bulk f funding, with arund 70 percent f ttal state spending. 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 Other Prgram Areas Between FY 2007 and FY 2009, ecnmic develpment was particularly vlatile in Mntana, increasing frm $9.7 millin in FY 2007 t $18 millin in FY 2008, then back dwn t $14 millin in FY Figure 4: State Ecnmic Develpment Funding by Functin MT State Ecnmic Develpment Spending by Functin, FY13-15 $8 $7 $6 $5 $4 $3 $2 $1 $- Business Assistance Cmmunity assistance Special Industry Assistance Turism/Film Wrkfrce Preparatin & Dev Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: FY15 represents apprpriated spending. All ther years depict actual spending. 3 See Glssary definitins here - 4 This ttal excludes all federal and lcal ecnmic develpment expenditures. 4 P a g e

5 Millins (MT) Billins (U.S.) September 2015 Figure 5: Ttal State Ecnmic Develpment Funding Ttal State Ecnmic Develpment Funding, FY07-15 $14 $12 $10 $8 $25 $20 $15 $6 $4 $2 $- $10 $5 FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15** $- Mntana U.S. Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: FY15 represents apprpriated spending. All ther years depict actual spending. Ecnmic develpment prgram expenditures plateaued at $21 millin and $20.1 millin in FY FY 2012 befre decreasing substantially t the $16-18 millin range, where spending has hvered between FY 2012 and FY Mntana apprpriated $16.6 millin t spend n ecnmic develpment in FY 2015, representing a decrease frm FY 2014 levels. This is fairly cnsistent with natinal trends in ecnmic develpment spending, as mst states decreased spending in FY 2011 fllwing the Great Recessin and have since made very gradual spending increases. It is unusual, hwever, t see a sharp decrease in spending during the middle f the recessin, but spending quickly recvered t help with the recvery. (See Figure 5.) Ecnmic Develpment Expenditures expenditures can be 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. 5 Ecnmic develpment tax expenditures in this cntext represent thse tax prvisins that use the state tax system t prmte business investments that prmte state ecnmic pririties. The Mntana Biennial Reprt, published by the in December 2014 was used fr the analysis in this sectin. Data was cllected by reviewing and recrding all line items in the reprt related t ecnmic develpment, including all tax credits, abatements, refunds/rebates and exemptins that are designed t influence business investment behavirs. Fr a small number f tax credits, nly FY2013 usage data was available, s that fiscal year was included as a prxy fr FY2014 ttals. In ther cases, the tax incentive is listed as having n tax expenditures fr that year because the data was nt available. 5 Expenditures: What are they and hw are they structured? Plicy Center. Accessed Nvember 25, 2014 at: 5 P a g e

6 In FY 2014, the state f Mntana s ecnmic develpment tax expenditures ttaled apprximately $55.9 millin, which was significantly mre than the $18.3 millin Mntana invested in ecnmic develpment prgram expenditures fr that fiscal year. Mntana administered its tax expenditures related t ecnmic develpment primarily thrugh the Department f. Fr FY 2014, the majrity f Mntana s ecnmic develpment tax expenditures were fr crprate incme taxes. The remainder fell under individual incme, state prperty, and ther tax types. The primary ecnmic develpment functinal gals f these tax expenditures were t encurage special industry assistance, cmmunity assistance, technlgy transfer, entrepreneurial develpment and wrkfrce preparatin and develpment. The majrity f Mntana s ecnmic develpment tax expenditures went twards special industry assistance (46 percent) and cmmunity assistance (25 percent). Mntana used tax incentives t assist many different industries in the state, with almst tw thirds f line items ging tward specific industries. The primary industry that received tax assistance in FY 2014 was natural resurce extractin (81 percent). Analysis f Available Outcme Data Mntana has develped three publicatins which have emphasized creating utcme data and evaluating business incentives and expenditures. The, required by , MCA, has been releasing biennial Expenditure Reprts since The first half f the reprt fcuses n an verview f the and the general makeup f Mntana s tax base. The secnd half f the reprt prvides a list f all tax expenditures, the statutry authrity fr each tax expenditure, the number f credits claimed n each tax credit, an evaluatin f the fiscal impact f each tax expenditure, and infrmatin abut the beneficiaries f tax expenditures. In additin, Mntana utilizes a transparency website which ffers infrmatin n financial reprts, agencies, accuntability, perfrmance, tax revenue, expenditures, cntracts/prcurement, and the state wrkfrce. Mntana s Department f als features tax reprts n varius issues, including the emplyment impact f SB 407, which is an act allcating a prtin f the prceeds frm the ldging facility use tax t the department f cmmerce fr grants t lcal gvernments t develp and implement grwth plicies. Lastly, under , MCA, the Administratin releases a cmprehensive financial reprt fr the previus fiscal year. The Cmprehensive Annual Financial Reprt prvides data abut the State f Mntana s financial psitin, results f peratins, and demgraphic and statistical infrmatin which can be used t assess Mntana s financial situatin. Cnclusin Mntana currently administers a relatively high number f incentives, with an emphasis n tax ver nn-tax incentives. Cnversely, the state s ecnmic develpment prgram spending per business establishment in the state is relatively lw, althugh spending has been increasing since FY2012. The bulk f the state s current ecnmic develpment expenditures are thrugh tax expenditures, especially thse intended t grw the natural resurce extractin industry. Finally, Mntana has shwn a 6 P a g e

7 cmmitment t transparency, as shwn thrugh their transparency website and detailed tax expenditure reprts. Appendix A: Full List f Mntana State Business Incentives (2015) Prgram Name Prgram Prvider Business need Type Alternative Energy Prductin Alternative Fuel Big Sky Ecnmic Develpment Trust Fund (BSTF) Bidiesel Blending and Strage Bidiesel/Bilubricant Prductin Facilities Bard f Investments Business Lan Participatin Prgram Bard f Investments Value- Added Business Lan Prgram Capital Gains and Dividends frm Small Business Investment Cmpany Exemptin Cntractr's Grss Receipts Dependent Care Assistance Disability Insurance fr Uninsured Mntanans Dnatin f Explratin Infrmatin Deductin Empwerment Zne Energy Cnservatin Investments Deductin Gashl Prducing Equipment Gethermal System Cmmerce Cmmerce Cmmerce Prduct & prcess imprvement Capital access r frmatin Prduct & prcess imprvement; Facility/site lcatin; Capital access r frmatin Capital access r frmatin Prduct & prcess imprvement Wrkfrce prep r develpment; Business management; Tech & prduct develpment; Facility/site lcatin Grant Lan/Lan Participatin Lan/Lan Participatin exemptin deductin deductin deductin 7 P a g e

8 Grwth Thrugh Agriculture (GTA) Prgram Histric Buildings Preservatin Infrastructure User Fee Metal Mine License Exemptin Micr-Business Lans Mineral Explratin Incentive Mntana Bard f Research and Cmmercializatin Technlgy Trust Fund Mntana State Small Business Initiative (MT SSBCI) Prgram Mntana Wd Prducts Revlving Lan Fund (WP RLF) Prgram New Industrial Prperty Benefit New Undergrund Cal Severance Exemptin New/Expanded Industry Oilseed Crushing Facility Pllutin Cntrl and Carbn Capture Equipment Primary Sectr Wrkfrce Training Grant Prgram Recycle Recycle Deductin Agriculture Cmmerce Cmmerce Cmmerce Cmmerce Cmmerce Business management; Marketing & sales assistance; Prduct & prcess imprvement Facility/site lcatin; Prduct & prcess imprvement; Capital access r frmatin Prduct & prcess imprvement; Tech & prduct develpment Capital access r frmatin Prduct & prcess imprvement Prduct & prcess imprvement; Facility/site lcatin; Wrkfrce prep r develpment Prduct & prcess imprvement; Grant; Lan/Lan Participatin exemptin Lan/Lan Participatin Grant Lan/Lan Participatin Lan/Lan Participatin exemptin exemptin Grant deductin 8 P a g e

9 Reduced Rate fr Natural Resurce - New Oil Prductin Research and Develpment Firms Exemptin Tech & prduct develpment; deductin exemptin 9 P a g e

10 Appendix B: MT Ecnmic Develpment Prgram Expenditures (2014) Ttal State Functin Activity Funding Business Assistance Business retentin/expansin $ 4,002,914 Business Assistance Other Business Assistance $ 800,000 Business Assistance Small business dev. (e.g., SBDCs) $ 467,248 Cmmunity assistance Cmmunity center revitalizatin $ 4,264,531 Cmmunity assistance Other Cmmunity assistance $ 150,000 Special Industry Assistance Agriculture/agribusiness $ 5,338,903 Special Industry Assistance Bitechnlgy/life sciences $ 1,000,000 Special Industry Assistance Energy and envirnment $ 493,382 Turism/Film Turism prmtin (exc. Advertising) $ 786,229 Wrkfrce Preparatin & Dev. Incumbent wrker training $ 1,000,000 TOTAL $ 18,303, P a g e

11 Appendix C: MT Ecnmic Develpment Expenditures (2014) Descriptin Ttal Funds Alternative Energy Prductin $ 50 Alternative Fuel $ - Bidiesel Blending and Strage $ - Bidiesel/Bilubricant Prductin Facilities $ - Capital Gains and Dividends frm Small Business Investment Cmpany Exemptin $11,984 Cntractr's Grss Receipts $763,534 Dependent Care Assistance $ - Disability Insurance fr Uninsured Mntanans $15,220 Dnatin f Explratin Infrmatin Deductin Empwerment Zne $ - Energy Cnservatin Investments Deductin Gashl Prducing Equipment Gethermal System $ - Histric Buildings Preservatin $ - Infrastructure User Fee $305,304 Metal Mine License Exemptin Mineral Explratin Incentive $ 25 New Industrial Prperty Benefit New Undergrund Cal Severance Exemptin $ - New/Expanded Industry $ - Oilseed Crushing Facility $ - Pllutin Cntrl and Carbn Capture Equipment Recycle $79,815 Recycle Deductin $956,782 Reduced Rate fr Natural Resurce - New Oil Prductin $55,864,789 Research and Develpment Firms Exemptin * Data nt available in budget 11 P a g e

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