Taxation Transparency Report

Tax expenditure reporting is an important element of fiscal accountability. It increases fiscal transparency by providing a comprehensive picture of forgone revenue in the tax system. As required under the Fiscal Sustainability, Transparency and Accountability Act, 2019, the Minister of Finance is releasing information about the estimated cost of expenditures made through the tax system.

Structure of the Report

This report provides the most current estimates of tax expenditures under the following:

  • Personal Income Tax;
  • Corporate Income Tax;
  • Sales and Commodity Taxes;
  • Education Property Tax;
  • Employer Health Tax;
  • Mining Tax;
  • Estate Administration Tax; and
  • Gross Revenue Charge.

Descriptions of the tax provisions listed in this report are available at:
http://ontario.budget.ca/2020/provisions.html

Scope

Given the absence of a universally accepted definition of a “tax expenditure,” this report continues the approach adopted in previous reports of listing estimates of forgone revenue that could potentially be included under a broad-based tax system. This includes support the government provides to Ontario individuals, families and businesses through the tax system.
This report includes:

  • Provincial tax reductions and exemptions administered by the Province or Ontario’s municipalities;
  • Tax expenditures that are shared with the federal government under income tax and sales tax collection agreements; and
  • Ontario-only tax expenditures administered by the federal government under those agreements.

Under the tax collection agreements, the federal government determines the tax bases for the Personal Income Tax, Corporate Income Tax and Harmonized Sales Tax. As a result, Ontario parallels federal tax expenditures associated with these tax bases. The agreements allow Ontario to implement certain Ontario-only measures that the federal government administers for the Province.

This report does not include tax provisions for which estimates are not available. Also not included in this report are measures that were repealed, phased out in the calendar year or are reported as expenses in the Public Accounts of Ontario. Tax expenditures that are not related to the relief of taxes paid are reported as expenses in Volume 1 of the Public Accounts of Ontario. Examples of these include the Northern Ontario Energy Credit, the Ontario Political Contribution Tax Credit for individuals, the Ontario Innovation Tax Credit for corporations and the Ontario Childcare Access and Relief from Expenses Tax Credit for families.

Method

The estimates in this report were developed using the latest available taxation and economic data, forecast to the 2020 calendar year. The data used to estimate the values of the tax provisions come from a variety of sources. Where possible, the impacts of the COVID-19 pandemic and measures introduced in response (e.g., the federal Canada Emergency Response Benefit) have been taken into account. In addition, the estimated value of a tax provision may differ from the amount reported in a prior year for a variety of reasons, including amendments to the provision, changes in economic factors, revisions to the underlying data and improvements to the estimation method. Some tax provision estimates are particularly sensitive to economic conditions or other variables and, therefore, can fluctuate significantly from year to year.

For example, the 2019 report provided an estimate for the new Low-income Individuals and Families Tax (LIFT) Credit of $495 million while this 2020 report provides an estimate of $535 million. The increase in the estimate from 2019 to 2020 has multiple reasons, such as changing incomes (e.g., reduced employment income due to the pandemic), population growth, and new administrative data, as well as estimated changes to the impact other tax measures will have on the relief provided by the LIFT Credit.

Each estimate is presented on a full-year basis, which includes the full-year impact of tax provisions that took effect within the year. This approach enables a better comparison of the revenue forgone from measures that come into effect at different times in the year.

It is important to note that each estimate in this report has been determined separately and only estimates foregone revenue for the year. Due to the possible interaction between tax measures, caution must be applied in adding estimates together to determine the total cost of a group of tax expenditures.

Tax expenditure estimates below $10 million are rounded to the nearest $1 million and estimates above $10 million are rounded to the nearest $5 million. Tax expenditure estimates of less than $1 million are denoted by the letter “s” (small).

Personal Income Tax

Table 1 provides estimates of tax provisions relating to Ontario’s Personal Income Tax. Business provisions listed here are for unincorporated businesses.

Table 1
Personal Income Tax1
Ontario Non-Refundable Tax Credits
Tax Provisions 2020 Estimates2
($ Millions)
Adoption Expense Credit s
Age Credit 360
Amounts Transferred from a Spouse or Common-Law Partner 30
Basic Personal Credit 5,065
Canada Pension Plan (CPP)/Quebec Pension Plan (QPP) Contributions Credit 630
Ontario Caregiver Credit 20
Charitable Donations Credit 755
Community Food Program Donation Tax Credit for Farmers s
Disability Credit 195
Eligible Dependant Credit 85
Employment Insurance (EI) Premiums Credit 180
Medical Expense Credit 205
Pension Income Credit 145
Spouse or Common-Law Partner Credit 200
Student Loan Interest Credit 6
Tuition and Education Credits 15
Table 1
Personal Income Tax3
Ontario-Specific Tax Reductions
Tax Provisions 2020 Estimates4
($ Millions)
Ontario Tax Reduction 375
Low-income Individuals and Families Tax Credit 535
Table 1
Personal Income Tax5
Exemptions, Deductions, Deferrals and Other Measures Shared with the Federal Government
Tax Provisions 2020 Estimates6
($ Millions)
Business — Deduction for CPP/QPP Contributions on Self-Employment and Other Earnings 60
Business/Employment — Deductions for CPP and QPP Enhanced Contributions on Self-Employment and Other Earnings and for CPP and QPP Enhanced Contributions on Employment Income 80
Employment — Deduction for Clergy Residence 15
Employment — Deduction of Employment Expenses 220
Employment — Deduction of Union and Professional Dues 205
Employment — Deduction for Employee Stock Options 275
Employment — Moving Expense Deduction 20
Employment — Northern Residents Deductions 2
Investment — Lifetime Capital Gains Exemption for Farm or Fishing Property and Small Business Shares 340
Investment — Deduction of Allowable Business Investment Losses 10
Investment — Deduction of Carrying Charges Incurred to Earn Income 480
Investment — Deduction of Resource-Related Expenditures 70
Investment — Partial Inclusion of Capital Gains 1,735
Investment — Tax-Free Savings Accounts (TFSAs) — Non-Taxation of Investment Income7 325
Non-Taxable Income — Guaranteed Income Supplement (GIS) and Allowance Benefits 70
Non-Taxable Income — Social Assistance Benefits and Provincial Supplements 55
Non-Taxable Income — Workers' Compensation Benefits 150
Special Circumstances — Child Care Expense Deduction 155
Special Circumstances — Pension Income Splitting 320
Special Circumstances — Treatment of Spousal and Child Support Payments 50
Tax-Deferred Savings — Registered Pension Plans (RPPs) — Deduction for Contributions 1,360
Tax-Deferred Savings — Registered Retirement Savings Plans (RRSPs) — Deduction for Contributions 2,615

Table 1 footnotes:

[1], [3], [5] Estimates do not include the impact of revenue forgone from Personal Income Tax provisions for trusts, which are taxed as individuals under the Taxation Act, 2007.

[2], [4], [6] Estimates are based on 2017 tax filer data forecast to represent the 2020 taxation year, unless otherwise noted.

[7] Estimate represents the forgone revenue from non-taxation of investment income earned in the accounts.

Corporate Income Tax

Estimates of tax provisions relating to the Ontario Corporate Income Tax system are presented in Table 2.

Table 2
Corporate Income Tax
Ontario Deductions, Non-Refundable Tax Credits and Exemptions
Tax Provisions 2020 Estimates1
($ Millions)
Community Food Program Donation Tax Credit for Farmers s
Ontario Credit Union Tax Reduction 10
Ontario Research and Development Tax Credit2 180
Ontario Small Business Deduction3 1,855
Ontario Tax Credit for Manufacturing and Processing 175
Table 2
Corporate Income Tax
Exemptions, Deductions, Deferrals and Other Measures Shared with the Federal Government
Tax Provisions 2020 Estimates4
($ Millions)
Allowable Business Investment Losses 4
Deductibility of Charitable Donations 110
Deductibility of Gifts of Cultural Property and Ecologically Sensitive Land 2
Deductibility of Gifts to the Crown s
Holdback on Progress Payments to Contractors 40
Non-Taxation of Non-Profit Organizations 30
Partial Inclusion of Capital Gains 2,375

Table 2 footnotes:

[1], [4] Estimates are forecast to the 2020 calendar year based on preliminary tax administrative data for 2018 and prior years. Estimates do not include the revenue forgone from Corporate Income Tax provisions for mutual fund corporations.

[2] Estimate is net of any recapture of the Ontario Research and Development Tax Credit.

[3] The cost of the Ontario Small Business Deduction is partially offset by the lower Dividend Tax Credit rate that is applied to non-eligible dividends. This offset is not included in the Ontario Small Business Deduction estimate.

Corporate Income Tax — Description of Changes to Tax Provisions

The following Corporate Income Tax provisions have changed or been introduced since the Taxation Transparency Report 2019.

Ontario Deductions, Non-Refundable Tax Credits and Exemptions

Ontario Small Business Deduction – Effective January 1, 2020, the small business Corporate Income Tax rate was reduced to 3.2 per cent from 3.5 per cent. The tax rate reduction is prorated for taxation years straddling January 1, 2020.

Ontario Credit Union Tax Reduction – The reduction in the small business Corporate Income Tax rate to 3.2 per cent from 3.5 per cent effective January 1, 2020 also applies to the Ontario Credit Union Tax Reduction. As of January 1, 2020, credit unions are eligible for the reduced rate of 3.2 per cent on taxable income in excess of the income eligible for the Ontario small business deduction.

Sales and Commodity Taxes

Sales Tax

Estimates of tax provisions relating to sales taxes, including the Harmonized Sales Tax and Retail Sales Tax, are presented in Tables 3 and 4.

Table 3
Harmonized Sales Tax
Ontario-Specific Items
Tax Provisions 2020 Estimates1
($ Millions)
Ontario Point-of-Sale Rebates — Books 125
Ontario Point-of-Sale Rebates — Children's Car Seats/Car Booster Seats 3
Ontario Point-of-Sale Rebates — Children's Clothing 135
Ontario Point-of-Sale Rebates — Children's Diapers 25
Ontario Point-of-Sale Rebates — Children's Footwear 35
Ontario Point-of-Sale Rebates — Prepared Foods and Beverages ($4.00 or less) 110
Ontario Point-of-Sale Rebates — Print Newspapers 40
Ontario Point-of-Sale Rebates — Qualifying Purchases by First Nations 40
Ontario Public Service Body Rebates — Hospitals, Facility Operators and External Suppliers 530
Ontario Public Service Body Rebates — Municipalities 1,565
Ontario Public Service Body Rebates — Public Colleges 120
Ontario Public Service Body Rebates — Qualifying Non-Profit Organizations 50
Ontario Public Service Body Rebates — Registered Charities 320
Ontario Public Service Body Rebates — School Authorities 460
Ontario Public Service Body Rebates — Universities 235
Other Ontario Measures — Ontario Energy and Property Tax Credit — Energy Component2 495
Other Ontario Measures — Ontario New Housing Rebate (including New Residential Rental Housing) 1,170
Other Ontario Measures — Ontario Sales Tax Credit3 1,430
Table 3
Harmonized Sales Tax
Exemptions, Zero-Rating and Other Measures Shared with the Federal Government4
Tax Provisions 2020 Estimates5
($ Millions)
Business – Exemption for Ferry, Road and Bridge Tolls 10
Business – Exemption and Rebate for Legal Aid Services 25
Business – Foreign Convention and Tour Incentive Program 2
Business – Rebate for Poppies and Wreaths s
Business – Small Suppliers’ Threshold 165
Charities and Non-Profit Organizations – Exemption for Certain Supplies Made by Charities and Non-Profit Organizations 935
Education – Exemption for Tuition and Educational Services 535
Health Care – Exemption for Health Care Services 455
Health Care – Exemption for Hospital Parking 15
Health Care – Zero-Rating of Medical and Assistive Devices 280
Health Care – Zero-Rating of Prescription Drugs 620
Households – Exemption for Child Care 105
Households – Zero-Rating of Basic Groceries 2,910
Households – Zero-Rating of Feminine Hygiene Products 20
Housing – Exemption for Certain Residential Rent 1,355
Municipalities – Exemption for Municipal Transit 145
Municipalities – Exemption for Water, Sewage and Basic Garbage Collection Services 190

Table 3 footnotes:

[1], [5] Estimates are based on preliminary administrative data or data from Statistics Canada, unless otherwise noted.

[2] Estimate is based on administrative data (up to preliminary data for 2019) used for the 2020–21 benefit year.

[3] Estimate is based on administrative data (up to preliminary data for 2019) used for the 2019–20 and 2020–21 benefit years.

[4] Estimates represent the forgone revenue associated with the Provincial component of the Harmonized Sales Tax.

Table 4
Retail Sales Tax
Tax Provisions 2020 Estimates
($ Millions)
Exemption for Automobile Insurance Premiums1 1,130
Exemption for Individual Life and Health Insurance Premiums2 800
Vendor Compensation3 3

Table 4 footnotes:

[1] Estimate based on industry data.

[2] Estimate based on insurance premiums data published by the Canadian Life and Health Insurance Association Inc.

[3] Estimate based on returns filed by registered tax collectors.

Commodity Tax

Estimates of tax provisions relating to commodity taxes, including the Fuel Tax, Gasoline Tax, Land Transfer Tax, Tobacco Tax, and Beer and Wine Tax, are presented in Table 5.

Table 5
Commodity Tax
Fuel Tax
Tax Provisions 2020 Estimates
($ Millions)
Exemptions/Reduced Rates – Exemption for Coloured Fuel1 310
Exemptions/Reduced Rates – Reduced Rate for Railway Diesel2 50
Refunds – Auxiliary Power Take Off Equipment3 6
Table 5
Commodity Tax
Gasoline Tax
Tax Provisions 2020 Estimates
($ Millions)
Exemptions/Reduced Rates – Exemption for Methanol and Natural Gas4 25
Exemptions/Reduced Rates – Reduced Rate for Aviation Fuel5 220
Exemptions/Reduced Rates – Reduced Rate for Propane6 4
Refunds – Auxiliary Power Take Off Equipment7 s
Refunds – Aviation Fuel8 s
Refunds – Tax-Exempt Use in Unlicensed Equipment9 3
Table 5
Commodity Tax
Land Transfer Tax
Tax Provisions 2020 Estimates
($ Millions)
Exemptions – Deferrals and Exemptions for Corporate Reorganizations10 40
Exemptions – Family Business Conveyances11 s
Exemptions – Family Farms12 20
Exemptions – Life Leases13 1
Refunds – First-Time Homebuyers Refund14 250
Table 5
Commodity Tax
Tobacco Tax
Tax Provision 2020 Estimate
($ Millions)
Compensation for Tax Collectors15 s
Table 5
Commodity Tax
Beer, Wine and Spirits Taxes16
Tax Provisions 2020 Estimates
($ Millions)
Exemptions/Reduced Rates – Exemption for Promotional Distribution17 3
Exemptions/Reduced Rates – Reduced Rate for Beer Made by Ontario Microbrewers18 15
Exemptions/Reduced Rates – Reduced Rate for Beer Made and Sold at Ontario Brew Pubs19 s
Exemptions/Reduced Rates – Reduced Rate for Ontario Wine and Ontario Wine Coolers20 25
Exemptions/Reduced Rates – Reduced Rate for Other Wine and Other Wine Coolers21 10
Exemptions/Reduced Rates – Reduced Rate for Wine Coolers22 s
Exemptions/Reduced Rates – Reduced Rate for Spirits Coolers23 s

Table 5 footnotes:

[1], [12], [13], [15] Estimate based on tax administrative data.

[2] Foregone revenue estimated as difference from the general Fuel Tax rate.

[3], [7], [8], [9], [10], [11], [14] Based on refunds filed or deferrals claimed.

[4] Forecast for the 2020 calendar year is based on 2016 provincial Supply and Use Tables from Statistics Canada.

[5], [6] Forgone revenue estimated as difference from the general Gasoline Tax rate.

[16] Beer, Wine and Spirits Taxes apply on purchases where LCBO is not the retailer or wholesaler of the alcohol product. Beer taxes apply on purchases of beer from a beer manufacturer’s on-site store, brew pub, The Beer Store, or a licensed establishment. Wine taxes apply on purchases of wine and wine coolers from on and off-site winery retail stores. Spirits taxes apply on purchases of spirits and spirits coolers from a spirits manufacturer’s on-site store.

[17] Estimate based on estimated manufacturers’ promotional distribution.

[18] Forgone revenue estimated as difference from the basic tax on beer made by a beer manufacturer.

[19] Forgone revenue estimated as difference from the basic tax and volume tax on beer made by a beer manufacturer.

[20] Forgone revenue estimated as difference from the basic tax on other wine or other wine coolers.

[21] Forgone revenue estimated as difference from the basic tax on other wine or other wine coolers at wine boutiques.

[22] Forgone revenue estimated as difference from the volume tax on wine.

[23] Forgone revenue estimated as difference from the volume tax on spirits.

Sales and Commodity Taxes — Description of Changes to Tax Provisions

The following Sales and Commodity Tax provisions have changed or been introduced since the Taxation Transparency Report 2019.

Ontario Changes

As of January 1, 2020, a reduced tax rate of 2.7 cents per litre applies to aviation fuel purchases in Northern Ontario. In the rest of the province the tax rate remains 6.7 cents per litre.

Education Property Tax

Table 6 provides estimates of tax provisions relating to the Education Property Tax system.

Table 6
Education Property Tax1
Tax Provisions 2020 Estimates2
($ Millions)
Brownfields Financial Tax Incentive Program s
Charity Rebate 10
Conservation Land Property Tax Exemption Program 5
Creative Enterprise Facilities Sub-Class Tax Rate Reduction s
Eligible Convention Centres Exemption s
Eligible Live Performance Theatres Exemption and Professional Sports Facility Tax Rate Reduction 10
Farm Property Class Tax Rate Reduction 110
Farmlands Awaiting Development Sub-Class Tax Rate Reduction s
Heritage Property Tax Rebate 2
Managed Forest Tax Incentive Program 5
Ontario Energy and Property Tax Credit — Property Tax Componentsup3 990
Ontario Senior Homeowners' Property Tax Grant4 190
Seniors and Persons with Disabilities Property Tax Relief5 1
Small-Scale On-Farm Business Sub-Class Tax Rate Reduction s
Tax Exemptions under Private Statutes 5
Vacant Commercial and Industrial Unit Rebate s
Vacant Land and Excess Land Sub-Class Tax Rate Reduction 1

Table 6 footnotes:

[1] Expenditures related to Provincial Land Taxes or payments made in lieu of taxes have not been included.

[2] Estimates based on 2020 Education Tax Rates, 2020 Assessment Roll, 2018 and 2019 Municipal Financial Information Returns and municipal tax policies, unless otherwise noted.

[3], [4] Estimate is based on administrative data (up to preliminary data for 2019) used for the 2020–21 benefit year.

[5] Estimate does not include expenditures due to the exemption from taxation on 10 per cent of the assessment of improvements to accommodate seniors and persons with disabilities in newly built homes or the expenditure on such improvements in existing homes.

Employer Health Tax

Table 7 provides an estimate of a tax provision relating to the Employer Health Tax.

Table 7
Employer Health Tax
Tax Provision 2020 Estimate
($ Millions)
$1 Million Exemption for Private-Sector Employers 1,265

Employer Health Tax — Description of Changes to Tax Provisions

The following Employer Health Tax provision has changed since the Taxation Transparency Report 2019.

For 2020, the exemption for private-sector employers increased from $490,000 to $1 million.

Mining Tax

Estimates of tax provisions relating to the Ontario Mining Tax system are presented in Table 8.

Table 8
Mining Tax
Tax Provisions 2020 Estimates1
($ Millions)
Annual $500,000 Deduction s
Tax Holiday for New Mines (other than Remote Mines) s
Tax Holiday for New Remote Mines s
Reduced Tax Rate for Remote Mines 4
Processing Allowance 40

Table 8 footnote:

[1] Estimates are forecast to the 2020 calendar year based on preliminary Ontario Mining Tax administrative data for 2018 and prior years.

Estate Administration Tax

Table 9 provides an estimate of a tax provision relating to the Estate Administration Tax.

Table 9
Estate Administration Tax
Tax Provision 2020 Estimate
($ Millions)
Zero-Rating the First $50,000 of Estate Value 10

Estate Administration Tax — Description of Changes to Tax Provisions

The following Estate Administration Tax provision has been introduced since the Taxation Transparency Report 2019.

As of January 1, 2020, the exempting of estates valued at $1,000 or less was replaced by a provision to zero-rate the first $50,000 of estate value.

Gross Revenue Charge

Table 10 provides an estimate of the tax holiday under the Gross Revenue Charge.

Table 10
Gross Revenue Charge (GRC)
Tax Provision 2019 Estimate
($ Millions)
Gross Revenue Charge 10-Year Holiday No estimate available
Updated: November 5, 2020
Published: November 5, 2020