Ed Zelinsky, a tax law professor at Manhattan's Cardozo law school who famously tried (and lost) his case pressing the unconstitutionality of New York's taxation of his income earned for days he wrote and researched at his home in Connecticut rather than at his Manhattan office, writes in the Oxford University Press blog about Swine Flu, Telecommuting and New York's Extraterritorial Taxation of Nonresidents' Incomes, OUP.com, May 4, 2009.
Zelinsky's arguments for a governor-imposed telecommuting incentive suspension of New York's taxation of nonresidents' income earned based on their jobs originating in New York boil down to the following:
1. Swine flu is contagious, and the workplace is a place where communicable diseases can be spread. Physical commutes are more harmful to the environment (air pollution, use of energy) than telecommutes. Therefore, we should encourage employees to telecommute from home rather than work in their offices.
2. New York State taxes nonresidents who work in the city on their city-earned income, whether they are physically present or telecommuting. Telecommuters do not use any public services on the days they work at their out of state residence. Therefore, New York State's tax system amounts to "double income taxation" for those days, which discourages telecommuting.
3. Accordingly, New York should "suspend" its rules taxing nonresident New York employees on days they telecommute rather than commute to New York and Congress should enact legislation preventing states from taxing telecommuting nonresidents on such days.
I care about the environment, and I don't think people should be overtaxed or, importantly, undertaxed. So do I agree with Zelinsky? I have a lot of questions, so I'm not yet convinced it is a good idea.
First, the argument about communicable diseases seems stretched, since children go to school (often transported long distances so that they can attend a private school or a selected public school) and are likely the primary vectors for spread of easily communicable diseases that require good hand washing and no sharing of cups and spoons. Telecommuters are presumably going into the office a good bit as well. Would more days of telecommuting really help stop the spread of various communicable diseases?
Second, don't most states credit the tax paid by their residents to the states where their residents work against any tax due on that same income in the home state? See. e.g., Maryland 2008 form for credits. Now, there may be some risk of the "double taxation" that Zelinsky decries, because credit systems are never perfect, but it seems to me that the person who chooses to live in a state other than the state where the primary work is has less grounds to complain on that basis.
Third, is it really accurate to say, as Zelinsky does, that "New York provides no public services to the nonresident telecommuter on his day working at his out-of-state home"? The idea that a person who sometimes telecommutes should not be taxed in the primary work state for those days because he gets no benefits from that state on those days implies a fragmentation of benefits that appears to be an unreasonable parsing of the way we benefit from the various overlapping governments that have jurisdiction over us. Zelinsky, for example, actually continues to benefit from New York's overall transportation arrangements even on days when he does class prep for his Cardozo classes at home in Connecticut. What if, for example, he gets a call from a colleague and learns that an important meeting has been scheduled for that evening, and he is able to use New York's various transportation facilities to get to that meeting. The mere existence of that possibility is a benefit that he enjoys even on days that he doesn't actually take advantage of it. The same would be true for countless tangible and intangible benefits provided by the state, from ongoing police and fire support (his office isn't as likely to be burglarized or burned to the ground when he is not there, leaving him with lost papers and personal effects) to ongoing sidewalk repairs and building code violation inspections (his students are less likely to be hit by falling cranes; he currently enjoys the psychic relief of expecting safe sidewalks on future commute days). Accordingly, even if one believes the "benefits received" rationale is the only justification for taxation, this suggestion fails to convince me of the unfairness of New York State taxation for those absentee days of work.
Fourth, wouldn't this "days worked by telecommuting" proposal for a state with a vast horde of nonresident, full-time employees of employers in the state impose a large variety of additional administrative, employer and taxpayer burdens--from taxpayer fraud (inappropriately claiming excessive days worked outside the state to reduce taxes), to employer information reporting burdens (requiring more refined records of days worked in and out of state and reporting of days to the state), to employee burdens (requiring a verifiable method of signing in and out each day of in-state work), and expensive administrative compliance checks (increased audits comparing employer and employee records for all nonresidents who commute some of the time into the city to work)? There are always some people whose place of work is of necessity spread over many different places for which these kinds of determinations are necessary (think professional athletes, for example). New York's current policy takes that into account, since it allows for eliminating days worked outside of New York when they are "services which of necessity, as distinguished from convenience, obligate the employee to out-of-state duties in the service of his employer." New York State Dept. of Tax'n and Finance, TSB-M-06(5)I, May 15, 2006. See also Instructions to New York's Form IT-203-B and Form IT-203-B. Zelinsky's telecommuting-for-convenience proposal would be a many-fold increase in the number of workers to whom this policy would apply and to the complexity of the accounting required.
Fifth, would the proposal really result in tax savings for the telecommuter? I could imagine that the various administrative burdens such additional employees/costs to audit workforce records, noncompliance costs, and difficulty in estimating state revenues might well lead to increased tax rates on income earned in the state to compensate for the lack of taxes from nonresidents for work with a nexus to the state.
Sixth, as an academic, I must say I find the increasing trend for law professors to live far away and come in only for classes or "necessary" meetings discouraging. It makes maintaining the sense of a collegial academic community of scholars and teachers harder, and it discourages faculty who live far away from coming to community events. "I'm working at home today, so sorry, I won't be able to attend the open house for newly admitted students" is likely an increasingly common statement these days in respect of numerous events that are important to an academic community. People who choose to live a considerable distance from their ordinary workplace have made a choice that has many different ramifications. I'm not sure I want to see a rule that encourages that practice by incentivizing purchases of homes at a distance from work through the tax break for telecommuting.
These multi-faceted considerations require in-depth deliberation to determine the relative costs and benefits of such a major change in a state's system of taxation. There are clearly strongly motiviated coalitions pushing for these changes, see, e.g., the Telework Coalition, and perhaps we will ultimately conclude that they make sense. But I don't think Zelinsky has made the case yet for the proposal he supports.
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