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

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1 Business Incentives and Ecnmic Develpment Expenditures: An Overview f Oregn 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 Oregn 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 Oregn. 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) 2015, the mst recent year in which spending data are available fr all prgram types, the state spent $207 millin n ecnmic develpment prgram expenditures and $264 millin n ecnmic develpment tax expenditures. 1 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 State Agency Figure 1: Oregn State Business Incentives by Agency, 2015 Number f Prgrams 20 Energy 5 Gvernr's Office f Film and Televisin 2 Agriculture 1 Revenue 1 Small Business Develpment Center Netwrk 1 Transprtatin 1 Surce: C2ER State Business Incentives Database Overview f Business Incentives Oregn has a mderate number f incentive prgrams, with a ttal f 31 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 r mre needs, such as capital access, wrkfrce preparatin, technlgy transfer, site facility imprvements, and s frth. 2 In Oregn, the respnsibility fr administering these incentive prgrams is spread acrss seven different state agencies. The primary agencies respnsible fr administering incentive prgrams are Business Oregn, the Department f Energy, the Gvernr s Office f Film and Televisin, the Department f Agriculture, the Department f Revenue, the Small Business Develpment Center Netwrk, and the Department f Transprtatin. (See Figure 1.) Oregn s emphasis remains n direct financing lan and grant prgrams. Direct business financing and cmmunity-directed financing accunt fr apprximately 50 percent f Oregn s active incentive prgrams. Apprximately 47 percent f Oregn s state business incentives ffer sme kind f taxrelated benefit. By cmparisn, tax incentives represent 45 percent f all state business incentive prgrams acrss the natin. (See Figure 2.) The emphasis f the state s current prtfli f incentives is n capital access r frmatin and tax/regulatry burden reductin. Cmpared t ther states, Oregn s prgram prtfli places a strng emphasis n prduct and prcess imprvement as well as technlgy and prduct develpment. (See Figure 3.) 2 The C2ER State Business Incentives Database definitin f business incentives may differ frm the definitin used by the state f Oregn. Fr a list f definitins used by C2ER, please see the glssary n the C2ER State Business Incentives Database. Fr a current list f incentive prgrams as defined by the state, please see the Business Oregn website. 2 P a g e

3 Figure 2: Incentive Prgrams by Type** Oregn Incentive Prgrams by Type (2015) exemptin credit Lan/Lan Participatin abatement Other Preferential rate refund r rebate Lan guarantee Insurance Number f Prgrams Surce: C2ER State Business Incentives Database ** Nte: Prgrams may appear mre than nce if they prvide multiple incentive types. Figure 3: Incentive Prgrams by Business Need** Oregn Incentive Prgrams by Business Need (2015) Capital access r frmatin /Regulatry burden reductin Prduct & prcess imprvement Facility/site lcatin Tech & prduct develpment Infrastructure Imprvement Business management Marketing & sales assistance Other 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. 3 P a g e

4 Millins August 2015 Ecnmic Develpment Prgram Expenditures State Ecnmic Develpment Expenditures Functin Areas Examining Oregn s budget fr ecnmic develpment prgram expenditures reveals hw varius state agencies utlay mney fr ecnmic develpment prgrams. Expenditures fall int 15 functinal areas fr ecnmic develpment defined by the C2ER State Ecnmic Develpment Expenditures Database. 3 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 Accrding t Oregn s FY Legislative Cmmunity Assistance Fiscal Office Budget Analysis, which details Turism/Film apprpriated FY 2014 spending, the state spent Special Industry Assistance apprximately $199 millin n ecnmic Prgram Supprt develpment in FY This level f spending Administratin represents an average f $1448 per business, Other Prgram Areas which is slightly higher than the median average f $1277 per business spent in ther states fr that fiscal year. Mst f Oregn s ecnmic develpment expenditures went t the Business Develpment Department, Department f Agriculture, Emplyment $20 Figure 2: State Ecnmic Develpment Funding by Functin OR State Ecnmic Develpment Funding by Functin, FY13-15 $ $16 $14 $12 $10 $8 $6 $4 $2 $- Special Industry Assistance Prgram Supprt Administratin Turism/Film Business Assistance Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: All years represent apprpriated spending. 3 See Glssary definitins here P a g e

5 MILLIONS (MD) BILLIONS (U.S) August 2015 Department, and Department f Administrative Services. The Business Develpment Department received nearly all f the funding, with 92 percent f verall state ecnmic develpment funding. In cmparisn t ecnmic develpment expenditures natinally, between FY 2007 and FY 2016, Oregn spent a greater prprtin f its budget (relative t ther states) n prgrams related t cmmunity assistance, the strategic business attractin fund, and ther prgram areas (thrugh the Lttery Bnd Debt Service), and a lwer share n prgrams related t business assistance, business finance, dmestic recruitment, entrepreneurial develpment, internatinal trade and investment, special industry assistance, technlgy transfer, turism and film, and wrkfrce develpment. Between FY 2007 and FY 2013, ecnmic develpment spending steadily increased in Oregn, increasing frm $55 millin in FY 2007 t $260 millin in FY Ecnmic develpment prgram expenditures then decreased in FY 2014 and increased slightly by FY2015. Oregn apprpriated $207 millin t spend n ecnmic develpment in FY 2015, representing a 5% increase ver FY 2014 levels. This is incnsistent with natinal trends in ecnmic develpment spending, as mst states decreased spending in FY 2011 fllwing the Great Recessin and have since made gradual spending increases. (See Figure 5.) It shuld be nted, hwever, that all listed figures are apprpriated as actual figures were nt available frm Oregn budget dcuments. Figure 3: Ttal State Ecnmic Develpment Funding Ttal State Ecnmic Develpment Funding, FY07-15 $300 Oregn U.S. $14 $250 $200 $150 $100 $50 $- FY07 FY08 FY09 FY10 FY11 FY12 FY13 FY14 FY15** $12 $10 $8 $6 $4 $2 $0 Surce: C2ER State Ecnmic Develpment Expenditures Database ** Nte: All years represent apprpriated spending. 5 P a g e

6 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. 4 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 Oregn Expenditures Reprt fr FY15-17, published by the Administrative Service 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. expenditure ttals fr FY2015 are estimated, as the budget cmbines FY2014 and FY2015 fr reprting purpses. In FY2015, the state f Oregn s ecnmic develpment tax expenditures ttaled apprximately $264 millin, which was slightly greater than the $207 millin Oregn invested in ecnmic develpment prgram expenditures fr that fiscal year. Oregn administered its tax expenditures related t ecnmic develpment primarily thrugh the Ecnmic and Cmmunity Develpment Department. Fr FY2015, apprximately 68 percent f Oregn s ecnmic develpment tax expenditures were fr incme taxes. The remainder fell under state prperty and beer and wine tax types. Oregn des nt have a general sales tax. The primary ecnmic develpment functinal gals f these tax expenditures were t encurage cmmunity assistance, special industry assistance, technlgy transfer, and turism and film. Analysis f Available Outcme Data Since 1995, Oregn has enacted three laws which have emphasized creating utcme data and evaluating business incentives and expenditures. The first, the Budget Accuntability Act, requires agencies and prgrams t evaluate all General Fund, State Lttery Fund, and ther expenditures in accrdance with pre-determined perfrmance measures. The law established the Oregn Expenditures Reprt, t be released n a biennial basis and administered by the Department f Administrative Services and the Office f the Gvernr. The reprt prvides a list f all tax expenditures, the statutry authrity fr each tax expenditure, estimates f revenue lss fr upcming and preceding biennium fr each tax expenditure, an evaluatin f the fiscal impact f each tax expenditure, and infrmatin abut the beneficiaries f tax expenditures. Respnsibility fr evaluating each incentive prgram falls t the varius state agencies which cntribute t the Expenditures Reprt. Exemptins exist fr prgrams which fall int certain categries, including: Oregn s cnnectin t federal law, federal law prhibits state taxatin, n ne qualifies fr the tax expenditure, there is n specific agency with prgram respnsibility fr the tax expenditure, the revenue impact estimate is less than $100,000, the tax expenditure has sunset, r the tax expenditure exists fr tax administratin purpses nly. 4 Expenditures: What are they and hw are they structured? Plicy Center. Accessed Nvember 25, 2014 at: 6 P a g e

7 The secnd law, enacted in 2009, created statutry expiratins (sunsets) n its tax credits. The mst recent law, enacted in July 2013, refined Oregn s existing evaluatin prcess by standardizing the review prcess, creating new evaluatin measures t be included in the Expenditures Reprt, and scheduling evaluatins t ensure they are cmpleted befre ptential sunset dates. 5 Per the mst recent Expenditure Reprt, the mandatry sunsets allws plicymakers t determine whether the full r partial sunset f the tax expenditure shuld be allwed t take effect as scheduled. Mre bradly, Oregn utilizes a transparency website which ffers infrmatin n state budget, agencies, perfrmance, tax revenue, expenditures, cntracts/prcurement, and the state wrkfrce. In additin t the Oregn Expenditures Reprts, the state als publishes an annual fiscal reprt each year. These detailed reprts cntain fiscal statements, balance sheets, and financial statistics. Cnclusin Cmpared t ther states, Oregn has an average number f incentive prgrams, administered by ne majr agency (). Despite this, Oregn spends significantly mre per business establishment than the rest f the natin. The state s incentive prtfli favrs grants and tax prgrams fr increasing business access t capital, facility lcatin, prduct imprvement, and tech develpment. Over the past tw decades, Oregn has made significant prgress in develping a well-defined and cmprehensive prcess fr examining the verall utcmes f the state s incentive prtfli and ensuring that its incentives effectively meet the state s verall ecnmic develpment gals. 5 Incentive Prgrams: Evaluate tday, imprve tmrrw The PEW Charitable Trusts. Accessed June 1, 2015 at: 7 P a g e

8 Appendix A: Full List f Oregn State Business Incentives (2015) Prgram Name Prgram Prvider Business Need Type Bimass Prducer r Cllectr Credits Brwnfield Redevelpment Fund Business Develpment Fund Business Expansin Prgram Energy Capital access r frmatin Facility/site lcatin Capital access r frmatin credit ; Lan/Lan Participatin Lan/Lan Participatin Capital access r frmatin Business Retentin Prgram Business management; Marketing & sales assistance; Prduct & prcess imprvement; Tech & prduct develpment Capital Access Prgram Capital access r frmatin Cnservatin Credits Cnstructin in Prgress Exemptin Credit Enhancement Fund Electrnic Cmmerce Enterprise Znes Energy Trust f Oregn Entrepreneurial Develpment Lan Fund Fd Prcessrs Exemptin Gvernr's Strategic Reserve Fund Greenlight Oregn Labr Rebate Energy Revenue Revenue Energy Agriculture /Regulatry burden reductin Facility/site lcatin Capital access r frmatin Facility/site lcatin; Tech & prduct develpment Prduct & prcess imprvement Capital access r frmatin /Regulatry burden reductin Lan/Lan Participatin credit exemptin Insurance; Lan guarantee abatement; credit Lan/Lan Participatin exemptin Capital access r frmatin Oregn Gvernr's Office f Film and Televisin /Regulatry burden reductin refund r rebate Grw Oregn Business management Other 8 P a g e

9 Immediate Opprtunity Fund Industrial Develpment Revenue Bnds Lng-Term Rural Enterprise Zne Facilities New Market Credits Oregn Investment Advantage Oregn Prductin and Investment Fund Oregn Trade Prmtin Prgram Qualified Research Activities Credits Reservatin Enterprise Zne Rural Renewable Energy Develpment Znes Small-Scale Energy Lan Prgram Special Public Wrks Fund Prgram Standard Enterprise Zne Exemptin Strategic Investment Prgram Transprtatin Credit Transprtatin Infrastructure Imprvement Capital access r frmatin Other Oregn Gvernr's Office f Film and Televisin Revenue Energy Energy /Regulatry burden reductin /Regulatry burden reductin Facility/site lcatin Capital access r frmatin Marketing & sales assistance /Regulatry burden reductin /Regulatry burden reductin Capital access r frmatin; Tech & prduct develpment Prduct & prcess imprvement Other Facility/site lcatin; Prduct & prcess imprvement Prduct & prcess imprvement Infrastructure Imprvement; Prduct & prcess imprvement; /Regulatry burden reductin exemptin credit exemptin credit abatement; credit exemptin Lan/Lan Participatin; Preferential rate ; Lan/Lan Participatin exemptin exemptin credit 9 P a g e

10 Appendix B: OR Ecnmic Develpment Prgram Expenditures (2014) Functin Activity Ttal State Funding Administratin Inf systems, accunting, human resurces, etc. $ 4,550,864 Business Assistance Other Business Assistance $ 441,000 Business Assistance Small business dev. (e.g., SBDCs) $ 1,552,439 Business Finance s t businesses $ 441,000 Cmmunity assistance Cmmunity develpment $ 77,328 Cmmunity assistance Infrastructure (e.g., rad/sewer) $ 127,956,493 Other Prgram Areas All Activities $ 28,451,098 Prgram Supprt Ecnmic research $ 4,208,162 Prgram Supprt Other Prgram Supprt $ 1,363,156 Special Industry Assistance Advanced manufacturing $ 2,989,000 Special Industry Assistance Agriculture/agribusiness $ 8,741,850 Special Industry Assistance Bitechnlgy/life sciences $ 980,000 Special Industry Assistance Energy & energy-related $ 3,920,000 Special Industry Assistance Other Special Industry Assistance $ 735,000 Strategic Business Attractin Fund Other Strategic Business Attractin Fund $ 9,000,000 Technlgy Transfer Mdernizatin/mfg. extensin $ 575,000 Turism/Film Film Prmtin $ 565,272 Turism/Film Majr events/festivals $ 1,834,690 Wrkfrce Preparatin & Dev. Other Wrkfrce Preparatin & Dev. $ 336,900 TOTAL $ 198,719, P a g e

11 Appendix C: OR Ecnmic Develpment Expenditures (2015) Descriptin Ttal Funds Reginal Ecnmic Develpment Incentives Less than $100,000 Accelerated Depreciatin f Equipment $-31,800,000 Research and Develpment Csts $11,400,000 Sectin 179 Expensing Allwances $7,800,000 Amrtizatin f Business Start-Up Csts $0 Deductin f Certain Film and Televisin Prductin Csts $0 Oregn Investment Advantage $2,400,000 Film Prductin Labr Rebate $300,000 Film Prductin Develpment Cntributins $9,750,000 Qualified Lw Incme Cmmunity Investments $5,000,000 Qualified Research Activities $7,150,000 Qualified Research Activities (Alternate) $0 Lng Term Rural Enterprise Zne Facilities (Incme )** $0 Reservatin Enterprise Zne (Incme ) Less than $100,000 Electrnic Cmmerce Enterprise Zne (Incme ) $250,000 Renewable Resurce Equipment Manufacturing Facilities $19,500,000 Public University Venture Develpment Fund $350,000 Cmmercial Buildings Under Cnstructin $2,200,000 Cnstructin in Prcess in an Enterprise Zne*** $0 Enterprise Zne Businesses $25,200,000 Lng Term Rural Enterprise Zne (Prperty ) $16,550,000 Rural Renewable Energy Develpment Zne $1,400,000 Industry Apprenticeship/Training Trust $400,000 Strategic Investment Prgram $183,800,000 Small Wineries $2,000,000. * Included in Qualified Research Activities item ** Nt Available in FY15 ***Included in Cmmercial Buildings under Cnstructin item 11 P a g e