Annex 5 - Government Tax Expenditure and Spending Reviews

Overview

In 2015, the Government committed to achieving up to $3 billion in annual savings by 2019–20 through a number of targeted changes to federal tax expenditures and program spending.

As a first step, in Budget 2016, the Government announced a significant cut to its advertising budget and federal spending on professional services and travel. As a result of these early actions, $221 million in annual savings were made available to reinvest in better government services, and new and enhanced programs to strengthen and grow the middle class.

Since then, the Government has undertaken a comprehensive review of federal tax expenditures. Over the four-year period ending in 2018–19, the tax expenditure review resulted in savings of $3.9 billion, and will lead to estimated savings of more than $3 billion annually starting in 2019–20.  

Table A5.1
Total Savings Realized From Tax Measures and Government Spending Reviews Since 2015
millions of dollars

2015–
2016  
2016–
2017  
2017–
2018  
2018–
2019  
2019–
2020  
2020–
2021  
Pre-Budget 2019 Tax Savings (Table A5.2) 20 371 1,200 2,319 3,020 3,720
Budget 2019 Tax Savings (Table A5.3)         75 154
Spending Review Savings (Table A5.4)  222 231          235          237          237          237
Total Estimated Savings Achieved 242 602 1,435 2,556 3,332 4,111
2015 Savings Commitment   500 1,000 2,000 3,000  3,000

The continuous improvement of government programming is vital to ensuring that tax dollars are delivering the value and results that Canadians expect and deserve. 

In addition to the review of its tax expenditures, the Government undertook several comprehensive program spending reviews to ensure that the resources invested in these areas are administered effectively and continue to deliver value for Canadians.

Tax Expenditure Review

In Budget 2016, the Government committed to undertake a wide-ranging review of federal tax expenditures. Individuals and businesses had expressed concerns about the efficiency and fairness of Canada’s tax system, and how the increasing number of tax expenditures had made the federal tax system more complex.

The review’s objectives were to eliminate poorly targeted and inefficient tax measures, and allow the Government to identify opportunities to reduce tax benefits that unfairly help the wealthiest Canadians rather than the middle class and those working hard to join it.

The Government has completed a wide-ranging review of federal tax expenditures to ensure that they are fair for Canadians, efficient and fiscally responsible.  

In each of its budgets, the Government has made improvements to the tax system—many of which have been informed by this comprehensive review. Table A5.2 below provides a detailed breakdown of the savings resulting from tax measures introduced from the beginning of the Government’s mandate up to and including Budget 2018.

Table A5.2
Savings Realized From Tax Measures Undertaken
From Beginning of Mandate to Budget 2018
millions of dollars
Measure 2015–
2016  
2016–
2017  
2017–
2018  
2018–
2019  
2019–
2020  
2020–
2021  
Multiplication of the Small Business Deduction - -5 60 55 45 40
Avoidance of the Business Limit and Taxable Capital Limit - -1 10 10 10 10
Life Insurance Policies - 30 35 35 35 40
Debt-Parking to Avoid Foreign Exchange Gains - - - - - -
Valuation for Derivatives - - - - - -
Cross-Border Surplus Stripping - - - - - -
Extension of Back-to-Back Rules - - - - - -
Taxation of Switch Fund Shares  - 75 145 145 145
Sales of Linked Notes   - 65 -20 - 45 45
Restricting the Relief of Excise Tax on Diesel and Aviation Fuel - 35 45 45 40 40
GST/HST Closely Related Test - - - - - -
Cracking Down on Tax Evasion and Combating Tax Avoidance
(Net Federal Revenue Impact)
           
  Budget 2016   154 312 398 473 775
  Budget 2017 122 232 335 511
  Budget 2018       32 46 45
Enhancing Tax Collections1   -32 -56 -80 -105 -78
Children’s Fitness and Arts Tax Credits 20 120 245 250 255 260
Principal Residence Exemption Measure of October 2016   - - - - -
Automatic Exchange of Information for Tax Purposes   - - - - -
Registered Education Savings Plan and Registered Disability Savings Plan Anti-Avoidance Rules   - - - - -
Meaning of Factual Control   -
Timing of Recognition of Gains and Losses on Derivatives   - 54 60 60 65
Extending the Base Erosion Rules to Foreign Branches of Canadian Life Insurers   - - - - -
Public Transit Tax Credit   - 150 205 210 220
Taxation of Benefits in Respect of Home Relocation Loans   - - - - -
Billed-Basis Accounting   - 35 220 170
Tax Exemption for Insurers of Farmers and Fishers   - - - 10 10
Accelerated Deductibility of Some Canadian Exploration Expenses   - - - 45 55
Reclassification of Expenses Under Flow-Through Shares   - - - 2 2
Eliminating Tax Exemptions of Allowances for Certain Public Officials   - - 6 30 30
GST/HST Rebate to Non-Residents for Tour Package Accommodations   - 10 15 15 15
Additional Deduction for Gifts of Medicine   - - - - -
Investment Tax Credit for Child Care Spaces   - - - - -
Income Sprinkling announcement of December 2017     45 190 200 205
Taxi and Ride-Sharing Services     3 4 4 4
Passive Investment Income—Business Limit     - -2 120 430
Passive Investment Income—Refundability of Taxes on Investment Income      - 45 185 220
Artificial Losses Using Equity-Based Financial Instruments     - 135 245 265
Stop-Loss Rule on Share Repurchase Transactions     - 230 315 275
At-risk Rules for Tiered Partnerships     - - - -
Amendment to Section 212.1—Cross-Border Surplus Stripping     - - - -
Foreign Accrual Property Income Avoidance Using Tracking Interests     - - - -
CRA Common International Data Standard—Phase II       -5 -6 -9
Tax Savings Total (of measures introduced from the beginning of the mandate to Budget 2018) 20 371 1,200 2,319 3,020 3,720
Notes: “-” indicates a nil amount, a small amount (less than $500,000) or an amount that cannot be determined in respect of a measure that is intended to protect the tax base.
For years prior to the implementation of a measure, the corresponding cells for this measure have been left blank.
1  It is anticipated that this proposal will result in the collection of an additional $7.4 billion in tax debt over five years.

Additional Tax Savings Introduced in Budget 2019

Budget 2019 builds on the Government’s earlier efforts to build an economy that works for everyone, and maintain a tax system in which all Canadians pay their fair share. It also proposes measures to further strengthen the Canada Revenue Agency’s ability to crack down on tax evasion and combat tax avoidance, and makes additional progress in closing tax loopholes.

Table A5.3 provides a breakdown of the savings resulting from tax measures proposed in Budget 2019.

Table A5.3
Savings Realized From Tax Measures Introduced in Budget 2019
millions of dollars  
Measure 2015–
2016  
2016–
2017  
2017–
2018  
2018–
2019  
2019–
2020  
2020–
2021  
Foreign Affiliate Dumping       - - -
Transfer Pricing Measures       - - -
Cross-Border Share Lending Arrangements       - - -
Character Conversion Transactions       - - -
Mutual Funds: Allocation to Redeemers Methodology       - 25 105
Pensionable Service Under an Individual Pension Plan       - - -
Carrying on a Business in a Tax-Free Savings Account       - - -
CRA Measures to Enhance Tax Compliance         50 49
Tax Savings Total (of measures included in Budget 2019)       - 75 154
Notes: "-" indicates a nil amount, a small amount (less than $500,000) or an amount that cannot be determined in respect of a measure that is intended to protect the tax base. For years prior to the implementation of a measure, the corresponding cells for this measure have been left blank.

To ensure the tax system operates as fairly and effectively as possible moving forward, the Government will continue to study, identify and address tax loopholes and tax planning schemes.

Government Spending Reviews

Responsible fiscal management requires that government spending and programming be managed wisely and be continuously improved in order to ensure that the investment of Canadian taxpayer dollars is delivering results in the most effective and efficient manner possible. Since 2015, the Government has undertaken a number of targeted program expenditure reviews to specifically achieve this aim.

Review

Impact

Professional Services, Travel and Advertising Reductions


In Budget 2016, the Government announced annual reductions of $221 million in professional services, travel and government advertising, starting in 2016–17. The savings created as a result of these reductions enabled a better alignment of government spending with priorities.

Transport Canada Comprehensive Review


In 2016–17, Transport Canada undertook a Comprehensive Review of all departmental activities to identify and eliminate poorly targeted and inefficient programs. Savings identified through the Review were reprioritized to support government priorities within the department.

Fisheries and Oceans and the Canadian Coast Guard Comprehensive Review

In 2016–17, Fisheries and Oceans Canada and the Canadian Coast Guard undertook a Comprehensive Review. This review resulted in the reallocation of $22 million per year ongoing in existing departmental resources to higher priority activities in the department’s mandate.

Health Canada Comprehensive Review


In 2017–18, Health Canada undertook a Comprehensive Review of all program spending to ensure alignment with mandate, efficiency, effectiveness and program integrity. The review concluded that the department’s programs are well-aligned with the mandate and positioned to deliver on the Government’s priorities, and identified opportunities for reinvestment in core regulatory activities, such as the enforcement of drug and medical device regulations.  

Canada Border Services Agency Review

In 2017–18, the Canada Border Services Agency undertook a Comprehensive Review across its programs to ensure alignment with the agency’s mandate and government priorities, and to identify opportunities to strengthen program efficiencies and effectiveness. Through the Review, the agency considered key priorities including ways to support financial and operational sustainability, the integrity of border infrastructure, continued delivery of core responsibilities, and opportunities to modernize border operations to keep pace with the growing volume of goods and people crossing the Canadian border.

Royal Canadian Mounted Police (RCMP) Review

In 2015, the RCMP began the process of undertaking a review of activities, programs and services with a view to better understanding resourcing requirements across business lines. The review provided a better understanding of the cost pressures facing the RCMP, efforts to streamline internal operations and enhance capacity, and challenges and opportunities to begin modernization of policing while focusing on delivering results to and for Canadians.

A detailed breakdown of the savings that were created as a result of several of the comprehensive reviews outlined above can be found in Table A5.4 below.

Table A5.4
Estimated Savings Realized From Government Spending Reviews Undertaken Since 2015
millions of dollars
Review 2015–
2016  
2016–
2017  
2017–
2018  
2018–
2019  
2019–
2020  
2020–
2021  
2021–
2022  
2022–
2023  
Professional Services, Travel and Advertising Reductions   221 221 221 221  221 221 221
Transport Canada Comprehensive Review   1 10 14 16 16  16  16
Estimated Total Review Savings Achieved    222 231  235  237 237  237  237
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