They've Tried the Rest:
Hopefully, They'll Finally Try the Best!
Edward J. Dodson
[August 1999]
How Untaxing Philadelphians Will Make Philadelphia Great
Philadelphia has long been one of the great cities of the American
continent, a place immigrants have flocked to for the chance at a
better life. As with all cities, Philadelphia experienced (and
continues to experience) periods of growth and decline. Too much of
the city shows the deep scars left by the loss of industrial
employers and the decay of an aging housing stock occupied by people
who simply do not have the money to keep them up. At the same time,
the central part of the city -- historic, convenient and well-served
by the best amenities of urban living -- thrives. The challenge for
the city's elected officials, and for all of the citizens who live
here is to save and nurture what is good and to remove what is not.
Ever since the 1960s the effort has been made piecemeal and with
very mixed results. Why is this the case and what realistically can
be done to make this city work and work well for all its citizens?
Study after study has been done to trace the process of decline.
We know that Federal funding for highways contributed to a mass
exodus of people and businesses to the suburbs. In these more
enlightened days of concern for open space and the environment we
decry the loss of prime agricultural land to development and the
creation of sprawl across the landscape. At the same time, we
remember that our cities were long plagued by air, water and ground
pollution from industries that produced not just goods but
brownfields that to this day are barren and abandoned. When these
factories shut down nothing replaced them. Philadelphia went on the
dole in order to survive financially -- dependent on Federal and
State assistance to meet the social service demands of a population
suffering from higher and higher unemployment and the ills that come
with urban decay.
The City could not persuade other levels of government to
underwrite all of the city's expenses. On the principle that
everyone and everything and every transaction is fair game for
taxation, Philadelphia's leaders began to raise taxes. When more
businesses and more residents moved out and the tax base shrank, the
City made up the difference by increasing tax rates and inventing
new ways to tax. Not surprisingly, this approach to balancing the
budget did not generate increased economic activity. Deals had to be
struck with individual businesses to get them to stay in the city or
to come here. The City granted property tax abatements to builders
who put up new buildings or opened new businesses, with the
expectation that the people employed would pay in wage taxes what
the owners and builders did not. Analysts who have looked at the
data conclude that this approach to revitalizing the City's economy
has not been successful. The real need is to create an urban
environment that is attractive, where people want to be every day,
where they can live, work and place in safety.
Two things the politicians seem to have learned are this: first,
that wealth and income must first be created before government can
tax it away; and, second, if government taxes too much away people
will leave and take their incomes and their businesses with them. In
Philadelphia, the next real hurdle to be overcome is getting the
politicians to use this knowledge to restructure public policies so
that the cycle of decline ends once and for all time!
The mayors, council members and civic leaders of other cities --
in the Commonwealth, even -- have discovered how to get there and
are gradually moving in the direction of turning their entire
communities into enterprise zones. The key to this process of
regeneration became possible early in this century when the state
constitution was amended to permit certain cities in the
Commonwealth to adopt what is sometimes called a "split rate"
or "two-rate" property tax, at other times "land
value taxation." Activists in Pittsburgh, a city plagued by
terrible air and water pollution and by a blighted urban center
fought to remove as much of the property tax from homes, office
buildings and other "improvements" as possible. Only land
parcels would be taxed, if they could have their way. The
constitutional amendment set the stage for a long process of
city-by-city movement toward land value taxation. Today, fifteen
Pennsylvania cities (including Harrisburg, Scranton, Allentown and
Pittsburgh) tax land at a higher rate than they tax buildings. To
the extent they do so, all have experienced more new construction
and rehabilitation of buildings than close-by communities of similar
size that still tax property the old (Philadelphia) way. Not long
ago, Governor Ridge signed a bill extending the same option to all
of Pennsylvania's boroughs.
What is so good about turning the property tax into a land value
tax? For one thing, people who own buildings are no longer penalized
for making improvements. They can add an addition or do a "gut-rehab"
on an old building and their property taxes stay the same. Under
land value taxation, the owner of an office building occupying a
full city block and the owner of an adjacent surface parking lot
taking up the same amount of land area pay the same land value tax.
For the building owner, the cash flow from the business will
normally mean the annual tax is not a very heavy drain on income.
For the owner of the surface parking lot, the annual tax may take
most or all of the income. The owner of the office building is
providing space for dozens of businesses, employing hundreds of
people who are contributing to the city's economy. The owner of the
parking lot is providing space for a hundred cars, employing two or
three people. In reality the parking lot is a land speculation. A
high enough land value tax will push the owner of the parking lot to
develop the land more appropriately (i.e., to its "highest and
best use") or sell the parcel to someone who will. Zoning (we
need to encourage mixed-use zoning so that people can commute
shorter and shorter distances to and from work) and the market will
take care of the rest.
Eliminating the tax on the things we build and the economic
activity we want -- constructing new homes, for example -- while
encouraging owners of land to use land productively is the starting
point for turning Philadelphia into an enterprise zone. The second
step is to reduce the wage tax -- preferably to zero but at least as
low as the surrounding suburban communities. Other nuisance taxes on
businesses need to be gradually removed as well. The City controller
can schedule out these reductions based on annual forecasts of
revenue from the remaining sources.
What makes the shift to a land value tax that much more appealing
and promising for Philadelphia is the fact that Philadelphia is
responsible for the funding of the schools as well as other city
services. In all of the cities that have adopted at least a partial
land value tax, the school districts continue to tax land and
improvements at the same rate. This waters down the impact
considerably. Yet, the mayors of Harrisburg and Washington have
credited their use of this tax shift as playing an important role in
encouraging businesses to stay or expand and stimulating housing
rehabilitation. For Philadelphia, the impact of a similar shift in
tax rates from improvements to land would be immediately beneficial
to the overwhelming majority of property owners. Even for those
business owners who end up with a tax increase, the potential for
increased business activity means higher profits. Studies on cities
of various sizes tend to show that most homeowners receive some
reduction in taxes under a land value tax. How much of a reduction
depends on the percentage of value that rests in their home versus
the lot the home sits on. Thus, high density residential properties
-- row homes, high rise condominium units and almost all properties
outside the most desirable historic neighborhoods -- benefit by the
shift. Unimproved or grossly underimproved parcels of land would
receive the highest increases.
What I have outlined above are all the practical reasons for
overturning the way we have allowed government to raise revenue.
These reasons are important; they are the arguments politicians
respond to. Perhaps I would have spent the last twenty years
advocating these changes -- writing letters to the editor,
testifying at public meetings and dedicating time to grass roots
politics -- even if these were the only reasons. There is, however,
something more -- a powerful moral argument. I do not talk about it
much, but I believe that the earth is our common heritage. Parcels
of land have value because of what we as a community create and not
what any one individual does. The proof of this is demonstrated by
the fact that people who manage to gain control over land and hold
it long enough tend to become rich even if they do nothing.
Speculation in land has always been the great American ethic,
despite the Horatio Alger myth. Land owners have made sure that over
the last two centuries and longer that they paid as little as
possible to sustain our Democracy, while people who actually
produced goods and services carried the load. Morally, this is just
wrong. What we produce with our labor and with the things we make
ought to be ours to keep and use and consume as we see fit (so long
as we do not infringe on the rights of others). A title to a parcel
of land allows the holder to deny access to any others, to
monopolize the parcel. As Thomas Paine put it in a pamphlet titled "Agrarian
Justice," the landowner owes to society a ground rent for this
privilege -- no more but no less.