The Earned Income Tax Credit (EITC): An Overview
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The Earned Income Tax Credit (EITC):
An Overview
Gene Falk
Specialist in Social Policy
October 22, 2014
Congressional Research Service
7-5700
www.crs.gov
RL31768
The Earned Income Tax Credit (EITC): An Overview
Summary
The Earned Income Tax Credit (EITC or EIC) began in 1975 as a temporary program to return a
portion of the Social Security tax paid by lower-income taxpayers (the credit was, and remains,
calculated as a percentage of earned income, with no direct link to Social Security taxes paid by
the tax filer), and was made permanent in 1978. In the 1990s, the program became a major
component of federal efforts to reduce poverty, and is now the largest need-tested, anti-poverty
cash entitlement program. Childless adults in 2011 (the latest year for which data are available)
received an average EITC of $264, families with one child received an average EITC of $2,199,
families with two children received an average EITC of $3,469, and families with three or more
children received an average EITC of $3,750.
A low-income worker must file an annual income tax return to receive the EITC and meet certain
requirements for income and age. A tax filer cannot be a dependent of another tax filer and must
be a resident of the United States unless overseas because of military duty. The EITC is based on
income and whether the tax filer has a qualifying child.
The EITC interacts with several nonrefundable federal tax credits to the extent lower-income
workers can use the credits to reduce tax liability before the EITC. Income from the credit is not
used to determine eligibility or benefits for need-tested programs.
The maximum earned income amounts, phase-out income levels, disqualifying investment
income level, and maximum credit amounts are adjusted annually to reflect inflation. The actual
amount of the credit a tax filer receives is determined by the tax filer’s earned income and number
of qualifying children using these inflation adjusted parameters.
Congressional Research Service
The Earned Income Tax Credit (EITC): An Overview
Contents
Eligibility ......................................................................................................................................... 1
Earned Income ........................................................................................................................... 1
Age ............................................................................................................................................ 2
Residence, Citizenship, and Identification Requirements ......................................................... 2
Qualifying Children ................................................................................................................... 2
Credit Amount ................................................................................................................................. 3
Indexing ..................................................................................................................................... 7
Participation............................................................................................................................... 8
Geographic Distribution .................................................................................................................. 9
Distribution by Number of Eligible Children and Income ............................................................ 11
Interaction with Other Tax Provisions and Programs .................................................................... 13
Other Federal Tax Provisions .................................................................................................. 13
State EITC Provisions ............................................................................................................. 13
Need-Tested Programs ............................................................................................................. 13
Expiring Provisions ....................................................................................................................... 14
Figures
Figure 1. EITC Levels by Income, Married Couple with Two Children, Tax Year 2014 ................ 4
Tables
Table 1. EITC Parameters for Tax Years 2012-2014 ....................................................................... 6
Table 2. EITC and Recipients 1975-2011 ........................................................................................ 8
Table 3. EITC Recipients and Amount by State, Tax Year 2011 ................................................... 10
Table 4. Distribution of Returns Claiming the EITC, by Number of Eligible Children and
AGI, Tax Year 2011 .................................................................................................................... 12
Table B-1. EITC Parameters, 1975-2014 ....................................................................................... 23
Appendixes
Appendix A. Legislative History of the EITC ............................................................................... 15
Appendix B. History of the EITC Parameters ............................................................................... 23
Contacts
Author Contact Information........................................................................................................... 26
Acknowledgments ......................................................................................................................... 26
Congressional Research Service
The Earned Income Tax Credit (EITC): An Overview
T
he Earned Income Tax Credit (EITC or EIC) program began in 1975 as a temporary and
small (6.2 million recipients) program to reduce the tax burden on working low-income
families. The program has grown into the largest need-tested federal anti-poverty cash
program with 27.9 million tax filers receiving $62.9 billion in tax credits for tax year 2011.
Appendix A outlines the history of the EITC and Appendix B shows how the parameters for
calculating the EITC have changed since the original enactment in 1975.
Eligibility
The EITC is a refundable tax credit available to eligible workers with relatively low earnings.
Under current law there are two categories of EITC recipients: childless adults and families with
children. Because the credit is refundable, an EITC recipient need not owe taxes to receive the
benefits.1 Eligibility for, and the size of, the EITC is based on earned income; age; residence,
citizenship, and identification requirements; and the presence of qualifying children.
Earned Income
Earned income for calculation of the credit includes wages, tips, and other compensation included
in gross income and self-employment income after the deduction for self-employment taxes.
Earned income does not include pension or annuity income; income for nonresident aliens not
from a U.S. business; income earned while incarcerated (for work in prison); and TANF benefits
received while a TANF assistance recipient participates in work experience or community service
activities.
Although gross (and earned) income for tax purposes does not generally include certain combat
pay earned by members of the Armed Forces, members of the Armed Forces may elect to include
combat pay for purposes of computing the earned income. Using combat pay to calculate the
EITC does not make the combat pay taxable income. All military income earned by a member of
the Armed Forces while in a designated combat zone is considered combat pay and is nontaxable
income. As a result, a service member with combat zone service during the tax year may, without
using the election to include combat pay for credit purposes, have earned income for the EITC.
To be eligible for the EITC, the tax filer must have adjusted gross income (AGI) and earned
income below the amount that reduces the EITC to $02 and have investment income no greater
than $3,350 (in tax year 2014). Investment income includes interest income (including taxexempt interest), dividends, net rent, and royalties that are from sources other than the filer’s
ordinary business activity, net capital gains, and net passive income.
1
Prior to 2011, any person with a child eligible for the credit could elect to receive advance credits through the
employer’s payroll tax system by filing an eligibility certificate (Form W-5) with his or her employer. The option to
claim the EITC in advance was little used, and was discontinued by P.L. 111-226 for tax years beginning after
December 31, 2010.
2
For information on income levels where the EITC is reduced to $0, see Table 1.
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The Earned Income Tax Credit (EITC): An Overview
Age
To be eligible for the credit, a tax filer without a qualifying child must be at least 25 years of age,
but not more than 64 years of age, and cannot be claimed as a dependent on another person’s tax
return. There is no age limitation for tax filers with qualifying children.
Residence, Citizenship, and Identification Requirements
The tax filer must reside in the United States unless in another country because of U.S. military
duty.
U.S. citizenship is not a requirement for the credit. To be eligible for the EITC, the taxpayer,
spouse (if married), and all qualifying children must meet the identification requirement—have a
valid Social Security Number (SSN).
Qualifying Children
The tax filer’s child (or children), to be a qualifying child for the credit, must meet three of the
five requirements for a qualifying child (as defined for the dependency exemption in 26 U.S.C.
§152(c)):3
•
relationship—the child must be a son, daughter, step child or foster child (if
placed by an authorized agency or court order), brother, sister, half-brother, halfsister, step brother, step sister, or descendent of such a relative;
•
residence—the child must live with the taxpayer for more than half the year in
the United States (the 50 states and the District of Columbia); and
•
age—the child must be under the age of 19 (or age 24, if a full-time student) or
be permanently and totally disabled.
If more than one tax filer can claim the child for the EITC, the tax filers can decide which of them
claims the child. If they cannot agree, and more than one tax filer claims a child for the EITC the
tie breaker rules apply. The tie breaker rules are
• if a child qualified for more than one tax filer, the tax filer who is the child’s
parent claims the child for the EITC;
• if neither the tax filers is a parent of the child, the tax filer with the highest AGI
claims the child for the EITC;
• if both tax filers are parents of the child, the parent the child resided the longest
with during the tax year claims the child; or
• if the child resided with each parent for the same period of time during the tax
year, the tax filer with the larger AGI claims the child for the EITC.4
3
The two criteria of a qualifying child for the dependency exemption not required for the earned income credit are: (1)
that the child has not provided one-half or more of his or her own support; and (2) the special rules (for the dependency
exemption) for divorced or separated parents are not applicable.
4
An eligibility rule that an unmarried filer must meet the requirements for “head of household” tax filer status to be
(continued...)
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The Earned Income Tax Credit (EITC): An Overview
Credit Amount
Claimants receive an EITC in one of three ways:
•
as a reduction in income tax liability;
•
as a year-end cash payment (refund) from the Treasury if the family has no
income tax liability; or
•
as a combination of reduced taxes and direct payments (refunds).
To receive an EITC, a person must file an income tax return at the end of the tax year, together
with a separate schedule (Schedule EIC) if claiming a qualifying child. The credit amount will
vary based on the number of qualifying children and earned income. This is because the credit
rate, maximum amount of qualified income (for computing the credit), the phase-out income
level, and the phase-out rate are all based on the tax filer’s number of qualifying children and
filing status.
In general, the EITC amount increases with earnings up to a point (the maximum earned income
eligible for the credit), then remains unchanged for a certain bracket of income (the plateau), and
then (beginning at the phase-out income level) gradually decreases to zero as earnings continue to
increase.
Figure 1 provides a graphic representation of EITC levels, by income level for a married couple
with two children in tax year 2014.
(...continued)
eligible for the EITC was dropped by Omnibus Budget Reconciliation Act (OBRA) of 1990. This status was difficult
for many low-income working mothers to meet at the time since many of them received more than half their cash
income from AFDC, which was not regarded as self-support income by the IRS in determining “head of household”
status.
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The Earned Income Tax Credit (EITC): An Overview
Figure 1. EITC Levels by Income, Married Couple with Two Children, Tax Year 2014
$6,000
$5,000
EITC
$4,000
$3,000
Max EITC
$2,000
Phase in of
EITC
Phase out of EITC
$1,000
$0
Earned Income
Source: Figure prepared by the Congressional Research Service (CRS).
Up to the maximum earned income amount, the credit equals the earned income times a statutory
percentage (the credit rate). During this phase-in period for the credit, for each additional $1 of
earned income the recipient receives an additional credit equal to the credit rate. For example, in
tax year 2014 for a married couple with two children, for each additional $1 of earnings (up to a
total earned income of $13,650) the family receives an additional 40 cents in EITC.
For earned income between the maximum earned income amount and the phase-out income level,
the EITC is constant at the maximum credit. Above the phase-out income level, for each
additional $1 of income the recipient loses credit at the phase-out rate. In tax year 2014, for a
married couple with two children, for each $1 of income above the phase-out level of income
($23,260), the recipient loses 20.16 cents of EITC. Graphically, the phase-in period for the credit
is steeper than the phase-out period because the credit is increased faster during the phase-in than
the credit is reduced during the phase-out.5
The parameters for calculating the EITC (credit rates, phase-out rates, maximum earned income
amount, maximum credit amount, phase-out income level, and disqualifying investment income
level) for tax years 2012, 2013, and 2014 are shown in Table 1.
5
The exception is for EITC recipients without children, where the credit rate and the phase out rate are the same
(7.65%).
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The Earned Income Tax Credit (EITC): An Overview
The maximum earned income amounts, phase-out income levels, disqualifying investment
income level, and maximum credit amounts are adjusted annually to reflect inflation. The actual
amount of the credit a tax filer receives is determined by the tax filer’s earned income and number
of qualifying children using these inflation adjusted parameters.
The EITC is taken against total tax liability (regular, alternative minimum, and self-employment
taxes) after several nonrefundable tax credits. Because the EITC is a refundable credit, on the tax
return the line for the EITC can be found in the payment section after the lines for withholding
and estimated tax payments. The individual income tax return booklet6 presents the EITC
amounts in tables by income brackets (in $50 increments). This allows a tax filer to look up the
correct amount of the EITC based on income, filing status, and number of children.
6
The tables can be found, for tax year 2013 returns, beginning on page 59 of the Form 1040 general instructions, which
can be found at http://www.irs.gov/pub/irs-pdf/i1040gi.pdf.
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The Earned Income Tax Credit (EITC): An Overview
Table 1. EITC Parameters for Tax Years 2012-2014
2012
($)
2013
($)
2014
($)
No children
Maximum earned income amount
6,210
6,370
6,480
475
487
496
Phase-out income level
7,770
7,970
8,110
Phase-out income level for married filing joint
12,980
13,310
13,540
Income where EITC = 0
13,980
14,340
14,590
Income where EITC = 0 for married filing joint
19,190
19,680
20,020
Maximum credit
One child
Maximum earned income amount
9,320
9,560
9,720
Maximum credit
3,169
3,250
3,305
Phase-out income level
17,090
17,530
17,830
Phase-out income level for married filing joint
22,300
22,870
23,260
Income where EITC = 0
36,920
37,870
38,511
Income where EITC = 0 for married filing joint
42,130
43,210
43,941
Two children
Maximum earned income amount
13,090
13,430
13,650
Maximum credit
5,236
5,372
5,460
Phase-out income level
17,090
17,530
17,830
Phase-out income level for married filing joint
22,300
22,870
23,260
Income where EITC = 0
41,952
43,038
43,756
Income where EITC = 0 for married filing joint
47,162
48,378
49,186
Three or more children
Maximum earned income amount
13,090
13,430
13,650
Maximum credit
5,891
6,044
6,143
Phase-out income level
17,090
17,530
17,830
Phase-out income level for married filing joint
22,300
22,870
23,260
Income where EITC = 0
45,060
46,227
46,997
Income where EITC = 0 for married filing joint
50,270
51,567
52,427
Disqualifying investment income level
3,200
3,300
3,350
Credit
Rate
Phase-out
Rate
7.65%
7.65%
34.00%
15.98%
40.00%
21.06%
45.00%
21.06%
Source: Table prepared by CRS.
Notes: To reflect the statutory language for calculating the inflation adjusted EITC parameters, the maximum
earned income amount and the phase-out income level are rounded to the nearest $10, whereas the
disqualifying income level is rounded to the nearest $50. In preparing their tax returns, tax filers will use a table
with $50 increments of income to look up their EITC amount.
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The Earned Income Tax Credit (EITC): An Overview
EITC Calculations: Examples
A formula presentation of the EITC calculation follows (where category reflects EITC factors based on the number of
children and filing status as in Table 1, and AGI is equal to gross income from all taxable sources such as earned
income, dividends, taxable interest, alimony, capital gains, taxable pensions, etc., less statutory adjustments).
EITC =
Lesser of: earned income or maximum earnings amount category
times
credit ratecategory
minus
Greater of 0 or [earned income (or AGI, whichever is larger) minus phase-out income levelcategory times phase-out ratecategory]
The following three examples for a married couple with two children in tax year 2014, illustrate how the EITC is
calculated.
Example 1. For a family receiving less than the maximum allowable credit, with earned income and AGI of $10,000
(which is less than the maximum earned income amount):
EITC = $10,000 times 40% = $4,000
Example 2. For a family receiving the maximum allowable with earned income and AGI of $20,000 (which is greater
than the maximum earned income amount but less than the phase-out income level):
EITC= $13,650 (the maximum earned income amount) times 40%
= $5,460 (the maximum credit)
Example 3. For a family subject to the phase-out of EITC with earned income and AGI of $25,000 (which is greater
than the maximum earned income amount and the phase-out income level):
EITC = $13,650 (the maximum earned income amount) times 40% or $5,460 (the maximum credit)
minus
$1,740 (the amount by which income exceeds the phase-out income level [$23,260]) times 21.06%
or $366
= $5,094
Indexing
With everything else held constant, when inflation increases income, taxes increase. In periods of
high inflation, this may result in increases in taxes, which many view as a windfall to the
government. To reduce the impact of inflation on taxes certain tax provisions, such as the
personal exemption amount, are increased each year by the rate of inflation. The Tax Reform Act
of 1986 (P.L. 99-514) began indexing of the maximum earned income and the phase-out income
levels for the EITC. The actual amount of the credit a tax filer receives is determined by the tax
filer’s earned income and number of qualifying children using these inflation adjusted
parameters.
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The Earned Income Tax Credit (EITC): An Overview
Participation
The EITC program has grown significantly since its inception in 1975. In 1975, there were 6.2
million recipients for a total of $1.2 billion in EITC, with 72.0% of the EITC received as a refund,
and an average EITC of $201. For tax year 2011, a total of 27.9 million tax filers claimed a total
of $62.9 billion in EITC. For tax year 2011, the average EITC was $2,252, and 87.7% of the
EITC was received as a refund. Table 2 provides the total EITC, refunded portion, number of
recipients (tax filers), and average credit for 1975 through 2011.
Table 2. EITC and Recipients 1975-2011
Tax Year
Total EITC
($ millions)
Refunded
Portion of EITC
($ millions)
Number of
Recipients
(thousands)
Average
EITC
($)
1975
1,250
900
6,215
201
1976
1,295
890
6,473
200
1977
1,127
880
5,627
200
1978
1,048
801
5,192
202
1979
2,052
1,395
7,135
288
1980
1,986
1,370
6,954
286
1981
1,912
1,278
6,717
285
1982
1,775
1,222
6,395
278
1983
1,795
1,289
7,368
224
1984
1,638
1,162
6,376
257
1985
2,088
1,499
7,432
281
1986
2,009
1,479
7,156
281
1987
3,391
2,930
8,738
450
1988
5,896
4,257
11,148
529
1989
6,595
4,636
11,696
564
1990
7,542
5,266
12,542
601
1991
11,105
8,183
13,665
813
1992
13,028
9,959
14,097
924
1993
15,537
12,028
15,117
1,028
1994
21,105
16,598
19,017
1,110
1995
25,956
20,829
19,334
1,342
1996
28,825
23,157
19,464
1,481
1997
30,389
24,396
19,391
1,567
1998
32,340
27,175
20,273
1,595
1999
31,901
27,604
19,259
1,656
2000
32,296
27,803
19,277
1,675
2001
35,784
29,043
19,593
1,704
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The Earned Income Tax Credit (EITC): An Overview
Tax Year
Total EITC
($ millions)
Refunded
Portion of EITC
($ millions)
Number of
Recipients
(thousands)
Average
EITC
($)
2002
37,786
33,258
21,574
1,751
2003
39,186
34,508
22,112
1,772
2004
40,024
35,299
22,270
1,797
2005
42,410
37,465
22,752
1,864
2006
44,388
39,072
23,042
1,926
2007
48,540
42,508
24,584
1,974
2008
50,669
44,260
24,756
2,047
2009
59,240
53,985
27,041
2,191
2010
59,562
54,256
27,368
2,176
2011
62,906
55,350
27,912
2,254
Sources: For pre-2003 data, U.S. Congress, House Committee on Ways and Means, 2004 Green Book,
Background Material and Data on Programs Within the Jurisdiction of the Committee on Ways and Means, 108th
Congress, 2nd session, WMCP 108-6, March 2004, pp.13-41. For 2003 and later data, Internal Revenue Service,
Total File, United States, Individual Income and Tax Data, by State and Size of Adjusted Gross Income, Tax Years 2003
through 2011, Expanded unpublished version, Table 2.5.
Note: The number of recipients is the number of tax filers claiming the EITC.
Geographic Distribution
The distribution of EITC by state is a function of the relative populations and income levels of the
states. In general states with larger populations or a large number of lower-income workers will
have more EITC recipients. The number of federal returns, the number of returns claiming the
EITC, the percentage of federal returns claiming the EITC, the total EITC, average EITC, and
percentage of the credit refunded by state for tax year 2011 are shown in Table 3.
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The Earned Income Tax Credit (EITC): An Overview
Table 3. EITC Recipients and Amount by State,Tax Year 2011
Percentage
of Returns
w/EITC
EITC
Claimed
(Total $, in
thousands)
Average
EITC ($)
Percentage
of EITC
Refunded
550,147
26.3%
1,413,774
2,570
89.7%
370,819
51,022
13.8%
98,065
1,922
90.5%
Arizona
2,790,467
591,062
21.2%
1,381,176
2,337
89.1%
Arkansas
1,234,459
318,547
25.8%
759,930
2,386
90.0%
California
17,062,133
3,273,578
19.2%
7,251,211
2,215
84.8%
Colorado
2,420,566
372,911
15.4%
757,380
2,031
87.7%
Connecticut
1,747,468
218,030
12.5%
432,218
1,982
87.4%
Delaware
434,239
73,828
17.0%
159,321
2,158
92.3%
District of
Columbia
329,718
57,181
17.3%
128,382
2,245
85.1%
Florida
9,695,733
2,126,601
21.9%
4,841,136
2,276
86.4%
Georgia
4,671,692
1,140,859
24.4%
2,833,044
2,483
88.2%
Hawaii
661,948
114,700
17.3%
235,605
2,054
90.4%
Idaho
671,392
140,491
20.9%
302,468
2,153
88.9%
Illinois
6,122,028
1,062,856
17.4%
2,418,298
2,275
86.6%
Indiana
3,018,318
564,116
18.7%
1,242,184
2,202
89.6%
Iowa
1,421,065
215,951
15.2%
437,211
2,025
89.2%
Kansas
1,325,121
223,874
16.9%
478,922
2,139
90.4%
Kentucky
1,876,826
415,891
22.2%
924,565
2,223
89.1%
Louisiana
2,022,779
552,924
27.3%
1,415,334
2,560
89.5%
Maine
633,428
105,893
16.7%
199,851
1,887
86.1%
Maryland
2,837,882
422,019
14.9%
902,588
2,139
86.5%
Massachusetts
3,258,058
408,821
12.5%
782,530
1,914
87.7%
Michigan
4,676,744
861,093
18.4%
1,912,050
2,220
87.1%
Minnesota
2,601,604
355,940
13.7%
695,978
1,955
88.2%
Mississippi
1,286,776
421,934
32.8%
1,106,784
2,623
90.6%
Missouri
2,729,064
539,836
19.8%
1,196,672
2,217
89.5%
Montana
480,902
86,646
18.0%
169,315
1,954
88.5%
Nebraska
868,468
140,207
16.1%
295,609
2,108
89.7%
Nevada
1,297,925
243,606
18.8%
540,001
2,217
88.8%
678,296
82,739
12.2%
150,292
1,816
86.5%
New Jersey
4,325,769
599,195
13.9%
1,274,398
2,127
86.1%
New Mexico
914,444
222,996
24.4%
502,839
2,255
90.8%
New York
9,387,780
1,789,895
19.1%
3,887,837
2,172
84.7%
Total
Number of
Returns
Number of
EITC
Returns
Alabama
2,091,528
Alaska
State
New Hampshire
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The Earned Income Tax Credit (EITC): An Overview
Percentage
of Returns
w/EITC
EITC
Claimed
(Total $, in
thousands)
Average
EITC ($)
Percentage
of EITC
Refunded
953,786
22.2%
2,200,620
2,307
89.4%
343,814
44,926
13.1%
87,000
1,937
89.8%
Ohio
5,508,810
989,730
18.0%
2,183,483
2,206
89.0%
Oklahoma
1,617,355
358,415
22.2%
821,189
2,291
89.3%
Oregon
1,758,128
291,270
16.6%
570,485
1,959
88.5%
Pennsylvania
6,183,225
945,671
15.3%
1,929,653
2,041
89.5%
Rhode Island
513,134
83,469
16.3%
175,773
2,106
88.2%
South Carolina
2,090,773
512,678
24.5%
1,206,997
2,354
90.1%
South Dakota
411,441
66,464
16.2%
134,299
2,021
90.4%
Tennessee
2,902,907
681,527
23.5%
1,587,753
2,330
87.8%
Texas
11,417,280
2,714,964
23.8%
6,840,529
2,520
87.3%
Utah
1,159,631
203,607
17.6%
451,717
2,219
89.4%
Vermont
320,656
47,051
14.7%
82,990
1,764
85.0%
Virginia
3,801,986
623,145
16.4%
1,334,103
2,141
88.9%
Washington
3,216,985
459,726
14.3%
923,327
2,008
88.9%
West Virginia
791,595
161,595
20.4%
335,500
2,076
91.3%
Wisconsin
2,772,794
399,930
14.4%
812,305
2,031
89.0%
Wyoming
294,713
39,343
13.3%
74,722
1,899
90.1%
Other Areas
1,110,020
33,093
3.0%
73,986
2,236
96.3%
146,455,970
27,955,779
19.1%
62,953,399
2,252
87.7%
State
Total
Number of
Returns
Number of
EITC
Returns
North Carolina
4,295,284
North Dakota
Total
Source: Internal Revenue Service, Total File, All States, Individual Income and Tax Data, by State and Size of
Adjusted Gross Income, Tax Year 2011, Expanded unpublished version, Table 2. The totals for Table 2 provided by
the Internal Revenue Service differ from those of Table 2.5 used elsewhere in this report for several reasons.
Table 2 includes “substitutes for returns” in which the Internal Revenue Service constructs tax returns for
certain non-filers.
Distribution by Number of Eligible Children
and Income
For tax year 2011, returns with three or more eligible children have the highest average EITC
($3,750), and returns with no eligible children have the lowest average EITC ($264). Returns
with one child claim 35.3% of the EITC and comprise 36.2% of all returns claiming the credit.
Returns with two children claim 41.3% of the EITC and comprise 26.9% of all returns claiming
the EITC. Returns with three or more children claim 20.5% of the EITC and comprise 12.3% of
all returns claiming the EITC. The number of eligible children determines the parameters used to
calculate the credit and therefore determines the income distribution of returns claiming the
EITC. As shown in Table 4, for returns with no eligible children 68.9% have an AGI of less than
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The Earned Income Tax Credit (EITC): An Overview
$10,000. However, for returns with two children, 49.6% have an AGI of $20,000 or more, and for
returns with three or more children, 59.4% have an AGI of $20,000 or more.
Table 4. Distribution of Returns Claiming the EITC, by
Number of Eligible Children and AGI,Tax Year 2011
All EITC Returns
No child EITC
One Child EITC
Number
of
Returns
Amount
($)
Number
of
Returns
Amount
($)
Number
of
Returns
Amount
($)
Less Than $10,000
8,219,020
9,967,054
4,741,434
1,459,737
2,349,575
5,460,092
$10,000 less than $15,000
5,890,468
16,014,372
1,912,748
330,279
1,961,593
5,862,058
$15,000 less than $20,000
3,883,866
14,874,684
231,971
30,899
1,625,389
4,664,613
$20,000 less than $25,000
2,965,380
9,887,452
—
—
1,454,723
3,326,615
$25,000 less than $30,000
2,588,844
6,380,470
—
—
1,263,580
1,934,532
$30,000 less than $35,000
2,166,926
3,601,391
—
—
997,578
787,063
$35,000 less than $40,000
1,319,183
1,556,575
—
—
396,972
162,227
$40,000 less than $45,000
687,033
563,720
—
—
44,461
3,929
$45,000 and over
191,006
60,443
—
—
—
—
27,911,726
62,906,161
6,886,153
1,820,915
10,093,871
22,201,129
Total
Average Credit
2,254
264
Two Children EITC
Three+ Children EITC
Number of
Returns
Amount
($)
Number
of
Returns
Amount
($)
828,892
2,186,917
299,121
860,305
$10,000 less than $15,000
1,523,173
7,222,469
492,953
2,599,568
$15,000 less than $20,000
1,425,709
6,883,162
600,796
3,296,011
$20,000 less than $25,000
1,022,676
4,151,414
487,981
2,409,422
$25,000 less than $30,000
931,190
2,903,870
394,073
1,542,068
$30,000 less than $35,000
784,696
1,699,957
384,653
1,114,371
$35,000 less than $40,000
589,927
734,950
332,284
659,399
$40,000 less than $45,000
347,070
222,441
295,502
337,350
$45,000 and over
44,968
4,930
146,038
55,513
7,498,301
26,010,110
3,433,401
12,874,007
Less Than $10,000
Total
Average Credit ($)
3,469
2,199
3,750
Source: Table prepared by CRS using Internal Revenue Service Data Statistics of Income Bulletin, Table 2.5 for tax year
2011 returns.
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The Earned Income Tax Credit (EITC): An Overview
Interaction with Other Tax Provisions and Programs
Other Federal Tax Provisions
On the tax return, the EITC is calculated after total tax liability and several nonrefundable credits.
The nonrefundable tax credits, which are taken against (reduce) tax liability, include credits for
education, dependent care, savings, and the child credit. To the extent an EITC eligible family has
a tax liability and can utilize one or more of these credits, the refundable portion of the family’s
EITC is higher. This is because using one or more of the tax credits reduces tax liability before
the EITC, but does not affect the calculation of the EITC.
For tax filers whose income places them in the phase out range of the credit, reducing their
income will result in a larger EITC. Under the tax code, a variety of forms of income may be
excluded from both AGI or earned income, and hence all else being equal, reduce the EITC
recipients’ income. For example, pre-tax contributions to savings account for retirement or
medical expenses are not included in either AGI or earned income. Hence, by making those
contributions, EITC claimants whose pre-contribution income places them in the phase out range
of the credit will receive a larger EITC.7
State EITC Provisions
Currently, 26 states and the District of Columbia offer an EITC for state taxes.8 For states with an
EITC that is calculated based on the federal EITC, a change in the federal EITC will generally
flow through and change the state EITC unless the state takes positive legislative action to alter or
prevent the change.
Need-Tested Programs
By law,9 the EITC cannot be counted as income in determining eligibility, or the amount of
benefit, for any federally funded public benefit program including Supplemental Nutrition
Assistance Program (SNAP) food assistance, low-income housing, Medicaid, Supplemental
Security Income (SSI), and Temporary Assistance for Needy Families (TANF). An EITC refund
that is saved by the filer does not count against the resource limits of any federally funded public
benefit program for 12 months after the refund is received.
7
In contrast, if the pre-contribution income places them in the plateau or the phase in range, decreasing their earned
income by making certain pre-tax savings contributions may either have no impact or result in a smaller credit.
8
Center on Budget and Policy Priorities, Policy Basics: State Earned Income Tax Credits, Washington, DC, January
31, 2014, available athttp://www.cbpp.org/cms/?fa=view&id=2505.
9
The Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010 (P.L. 111-312) included a
provision which made tax refunds, including those resulting from the EITC, disregarded in the administration of federal
programs and federally assisted programs. At the end of 2012, this provision was made permanent by the American
Taxpayer Relief Act of 2012 (P.L. 112-240).
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The Earned Income Tax Credit (EITC): An Overview
Expiring Provisions
The Economic Growth and Tax Relief Reconciliation Act of 2001 (EGTRRA; P.L. 107-16) made
several changes to the EITC that were scheduled to expire on December 31, 2010. Changes to the
EITC that were scheduled to expire include
•
changing the definition of earned income for the EITC so that it does not include
nontaxable employee compensation;
•
eliminating the reduction in the EITC for the alternative minimum tax; and
•
simplifying the calculation of the credit through use of AGI rather than modified
adjusted gross income.
The American Recovery and Reinvestment Act of 2009 (ARRA; P.L. 111-5) created the category
for families with three or more children, with a credit rate of 45%, for tax years 2009 and 2010
only. The ARRA also increased the phase-in amount for married couples filing joint tax returns so
that it is $5,000 higher than for unmarried taxpayers in tax year 2009, and $5,010 in tax year
2010. The ARRA changes were also scheduled to expire on December 31, 2010.
The Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010 (P.L.
111-312) extended the EGTRRA and ARRA provisions for two years (through 2012).
Both the EGTRRA and ARRA provisions were scheduled to expire on December 31, 2012. The
American Taxpayer Relief Act of 2012 (ATRA; P.L. 112-240) made permanent the EGTRRA
changes and extended the ARRA changes five years (through tax year 2017).
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The Earned Income Tax Credit (EITC): An Overview
Appendix A. Legislative History of the EITC
The idea that became the EITC first arose during congressional consideration of President
Nixon’s 1971 welfare reform proposal. Nixon’s proposal, the Family Assistance Plan, would have
helped working poor, two-parent families with children by means of a federal minimum cash
guarantee that would have replaced the federal-state welfare program of Aid to Families with
Dependent Children (AFDC).
Work Bonus Plan (1972-1974 Proposals)
The EITC was patterned after a proposal, then known as a work bonus for the working poor,
recommended by the Senate Finance Committee in April 1972. Though the idea originated as an
alternative to the proposed Family Assistance Program, the work bonus provision was advocated
as a “refund” of Social Security taxes paid by employers and employees on low annual earnings
and was to have been available only for wages subject to Social Security taxation.
The Senate approved the work bonus plan in 1972, 1973, and 1974, but the House did not accept
it until 1975.
Enactment of EITC in 1975
The Tax Reduction Act of 1975 (P.L. 94-12) included a provision that established, in Section 32
of the Internal Revenue Code, a refundable credit to tax filers with incomes below $8,000. This
“earned income credit” was to equal 10% of the first $4,000 of any earnings (including earnings
not subject to Social Security taxation) and thus could not exceed $400 per year. The credit was to
be phased out, at a rate of 10%, for an AGI above $8,000.
Extensions of EITC (1975-1977 Laws)
The Revenue Adjustment Act of 1975 (P.L. 94-164), Tax Reform Act of 1976 (P.L. 94-455), and
Tax Reduction and Simplification Act of 1977 (P.L. 95-30) each extended the EITC by one year.
Permanent Status for EITC and Rise in Maximum Credit (1978
Law)
The Revenue Act of 1978 (P.L. 95-600) made the EITC permanent and increased the maximum
credit to $500 and the eligibility limit to $10,000, provided for EITC payments in advance of the
annual tax filing, and simplified eligibility determinations.
Under the 1978 law, the EITC was set at 10% of the first $5,000 of earnings (including net
earnings from self-employment). The maximum credit of $500 was received for earnings between
$5,000 and $6,000. For each dollar of AGI above $6,000, the EITC was reduced by 12.5 cents,
reaching $0 at an AGI of $10,000.
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The Earned Income Tax Credit (EITC): An Overview
Rise in Maximum Credit (1984 Law)
The Deficit Reduction Act of 1984 (P.L. 98-369) raised the maximum credit by 10%, from $500
to $550, by establishing the EITC at 11% of the first $5,000 of earnings. Earnings between
$5,000 and $6,500 qualified for the maximum credit of $550. For each dollar of AGI above
$6,500, the law required that the EITC be reduced by 12.22 cents. As a result, the credit was
completely phased out when AGI reached $11,000.
Indexation of EITC and Rise in Maximum Credit (1986 Law)
Effective with tax year 1987, the Tax Reform Act of 1986 (P.L. 99-514) increased the EITC from
11% of the first $5,000 of earnings to 14% of the first $5,714 of earnings. The act also began
indexing the credit for inflation. This was done by indexing the maximum earned income eligible
for the credit and phase-out income level by using the change in the average Consumer Price
Index (CPI) for the 12-month period ending August 31 of each year, from the CPI for the 12month period ending August 31, 1984. In addition, the starting point of the phase-out income
level was increased for 1987 and 1988. The 1986 act also lowered the phase-out rate from
12.22% to 10% beginning with the 1987 tax year.
The increase in the maximum earned income for the credit and the credit rate raised the EITC,
while the reduction in the phase-out rate reduced the marginal tax rate on recipient earnings. The
combination of a higher EITC and a lower phase-out rate increased the income eligibility level
from $11,000 in 1984 to $14,500 (in 1984 dollars) for 1987. During debate on the Tax Reform
Act of 1986, it was said that “the liberalization of the earned income credit will help to assure that
low-income citizens are no longer taxed into poverty.”10
Rise in Maximum Credit and Establishment of Family-Size
Adjustment and Supplemental Credits (1990 Law)
Basic EITC
Because the EITC was originally established as a work bonus and advertised as an offset to the
Social Security tax, it had not been designed to vary by family size. Thus, the larger the family,
the less it met the family’s needs. Proposals were introduced in the 101st Congress to vary EITC
credit amounts by number of children, up to a maximum of two, three, or four children depending
on the bill. These proposals intended to increase the welfare role of the EITC while continuing its
provision of payroll tax relief and work bonuses. However, no one proposed that EITC familysize variations be modeled after AFDC, which varied for much larger family sizes.
The EITC expansion enacted in the Omnibus Budget Reconciliation Act (OBRA) of 1990 (P.L.
101-508) took effect in 1991 and was to be completed in 1994. An adjustment for family size was
introduced and the credit and phase-out rates for each of the family sizes (one child, two or more
children) were increased each year. However, the planned rate increases for 1994 were
superseded by a 1993 law. (See below.)
10
In floor statement of Senator Matsunaga, Congressional Record, daily edition, September 26, 1986, p. S13818.
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The Earned Income Tax Credit (EITC): An Overview
Supplemental Young Child Credit
Numerous proposals were introduced in the 101st Congress to establish refundable tax credits for
families with young children. These proposals would have set credit amounts based on earned
income and number of qualifying children. Both the House and Senate passed such provisions in
competing versions of child care legislation. These measures were seen as aiding lower-income
families in need of child care for preschool children.
Final action in OBRA of 1990 limited additional credits for young children to those under one
year of age. Eligible families with such children had an extra 5.0 percentage points added to their
credit rate in computing the EITC amount. This extra credit had a maximum amount in 1993 of
$388, and was phased out by adding 3.57 percentage points to the family’s phase-out rate. Thus,
in 1993 families with one or more children under age 1 had a combined credit rate of 23.5% or
24.5%, depending on total number of children, and a combined phase-out rate of 16.78% or
17.50%.
This extra credit was ended effective for tax year 1994 by OBRA of 1993 (P.L. 103-66).
Supplemental Health Insurance Credit
A new refundable credit aimed at helping parents finance health insurance for their children was
included in the Senate-passed OBRA of 1990. The House did not include such a provision, but it
was accepted by House-Senate conferees. The supplemental health insurance credit applied to
earnings up to the maximum amount to which the EITC applied and was then reduced over the
same income range used for the EITC phase-out. The rates set for the child health insurance credit
and its phase-out were 6.0% and 4.285%, respectively. These percentages were added to those
that applied to a family for the basic EITC and, if eligible, the young child credit. The maximum
amount of the supplemental health insurance credit in 1993 was $465. The credit could not
exceed the health insurance premiums actually paid by a family during the tax year. Unlike the
basic EITC, this supplemental credit could not be received in advance of the annual tax filing.
The health insurance credit was ended, effective in 1994, by OBRA of 1993.
Expansion of Credits, Coverage of Childless Adults, and Repeal of
Supplemental Credits (1993 Law)
President Clinton began his term in office in 1993 with a pledge to use the EITC to eliminate
poverty for families with a member working full-time at the minimum wage in order to “make
work pay.” Fulfillment of his pledge required a proposal to raise the EITC credit rates, especially
for families with two or more children. His proposal was enacted as part of OBRA of 1993 (P.L.
103-66) with little change by Congress. President Clinton also proposed extending the EITC for
the first time to low-income working adults with no children to offset tax increases in OBRA of
1993, and Congress adopted this proposal with only minor changes. To offset part of the EITC
expansion’s cost, and to meet the criticism of the growing complexity of the EITC, Congress also
passed the President’s proposal to repeal the supplemental credits for young children and for child
health insurance premiums as part of OBRA of 1993.
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The Earned Income Tax Credit (EITC): An Overview
Credit for Families
The EITC parameters for families were significantly changed by OBRA 1993. The credit rates
were increased from 23% to 34% in 1996 for a family with one child, and from 25% to 40% for a
family with two or more children. The phase-out rate for families with one child was slightly
lowered (from 16.43% to 15.98%) and the phase-out rate for families with two or more children
was increased from 17.86% to 21.06%.
Extension of EITC to Childless Households
The Clinton Administration proposal enacted in OBRA of 1993 extended the EITC for the first
time to workers who have no children. The main rationale for this credit was to offset partly the
effect on low-income workers of a gasoline tax increase included in OBRA of 1993. The 1993
law provided, effective in 1994, a credit of 7.65% of the first $4,000 of annual earnings, for a
$306 maximum credit. It is phased out at a 7.65% rate, beginning at an income level of $5,000
and ending at $9,000. The maximum earned income and the phase-out income level are adjusted
annually for inflation.
This credit applies to adults aged 25 to 64 who are not claimed as dependents on anyone’s tax
return. The age limits were imposed by Congress to exclude two groups (students under age 25,
retirees over age 64) whose incentive to work was not regarded as an important priority.
Coverage of Overseas Military Personnel (1994 Law)
Before 1995, the EITC had always been restricted to families residing in the United States. This
rule excluded from EITC otherwise eligible lower-income American military families living in
foreign countries. A provision in the 1994 legislation to implement the General Agreement on
Tariffs and Trade (P.L. 103-465) provides EITC eligibility for qualifying families outside the
United States if their foreign residence is because of a U.S. military assignment. This provision
became effective in 1995.
This law also included measures to (1) deny the EITC for wages earned by prison inmates; and
(2) deny eligibility to anyone who spent part of the tax year as a nonresident alien.
Eligibility Limit Based on Investment Income (1995 Law)
Limitation of EITC eligibility by a filing unit’s income has always been based on the greater of
AGI or earnings. However, following up on a proposal in President Clinton’s FY1996 budget,
Congress enacted in 1995 (P.L. 104-7) a new limitation tied to investment income. This provision
prohibits EITC claims by tax filers whose annual investment income exceeds $2,350. Investment
income is defined to include taxable interest and dividend income, tax-exempt interest income,
and net income from rent and royalties not derived in the normal course of the filer’s business.
This provision took effect in 1996. (It was modified in August 1996 action. See discussion
below.)
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The Earned Income Tax Credit (EITC): An Overview
Revisions of EITC in the Welfare Reform Bill (1996 Law)
Although not proposing specific legislation, the FY1997 congressional budget resolution
(H.Con.Res. 178) “assumes reforms of the Earned Income Credit ... to eliminate fraud and abuse
within the program, to better target to low-income working families with children, and to
coordinate the credit with the $500 per child tax credit that also is assumed in this budget.” In
follow-up, Congress included EITC savings in the welfare reform measure (H.R. 3734) signed by
President Clinton on August 22, 1996 (P.L. 104-193). These provisions are described below.
Deny EITC to Undocumented Workers
This provision requires tax filers to have valid taxpayer identification numbers (usually Social
Security numbers) to be eligible for the EITC. Social Security numbers are issued only to persons
who can document their age, identity, and U.S. citizenship or legal alien status. It becomes
effective for tax returns due more than 30 days after the enactment date. This measure helps the
Internal Revenue Service (IRS) gain compliance from tax filers lacking valid numbers before
accepting their EITC claims.
Disqualified Income
Congress acted in March 1995 (see earlier discussion) to exclude from EITC eligibility all filers
with “disqualified income,” defined as income in excess of $2,350 a year from interest (taxable
and tax-exempt), dividends, and net rents and royalties. The welfare reform bill broadened this
definition to include net capital gains and net passive income. The maximum allowance for
disqualifying income was reduced from $2,350 to $2,200 for 1996 and indexed for inflation in
later years.
Broaden Income Used in EITC Phase-out
The EITC is phased out when the greater of earnings or AGI exceeds a certain level ($11,610 in
1996 for families with children). Broadening the definition of income used for EITC phase-out
reduces the EITC for persons with income from the sources to be included. Effective for 1996,
the welfare reform bill expanded the income used to phase out the EITC by netting out certain
losses that are normally taken into account in calculating AGI. These losses are net capital losses,
net losses from estates and trusts, net losses from nonbusiness rents and royalties, and half of net
business losses.
Allow State Welfare Programs to Count EITC
The 1996 welfare reform bill (Personal Responsibility and Work Opportunity Reconciliation Act,
P.L. 104-193) repealed AFDC, and in its place created the Temporary Assistance to Needy
Families (TANF) program, a state-run system funded partly by federal block grants. This
conversion to state control altered the EITC-welfare relationship. Federal law had required that
the EITC be disregarded as income in determining eligibility for AFDC, Food Stamps, Medicaid,
Supplemental Security Income (SSI), and housing aid. Lump-sum EITC payments had to be
ignored in comparing applicants’ assets to program asset limits for the month of receipt and the
next month. (The Food Stamp program must ignore lump-sum EITC payments for one year.)
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The Earned Income Tax Credit (EITC): An Overview
Ending AFDC eliminated federal restrictions on states’ treatment of the EITC for cash welfare
(TANF) recipients.
Under this provision, states were permitted to count the EITC as income available to families
aided by TANF programs and reduce their welfare accordingly. Lump-sum EITC receipt was
permitted to be counted by states as assets immediately available to state-aided families, thereby
denying them that aid if counting the EITC causes their assets to exceed state asset limits. States
that adopted such policies spent less on aid to needy families from their federal grants, in effect
substituting the federal EITC for state welfare and lowering the income of those affected.
Note that legislation in 2010 made tax refunds, including those resulting from the EITC,
disregarded in the administration of federal programs and federally assisted programs, including
TANF.
Denying Credit Based on Prior Claims (1997 Laws)
To improve compliance related to the EITC, the Taxpayer Relief Act of 1997 (P.L. 105-34),
denied the EITC to tax filers for a specified period of time if the tax filers had previously made a
fraudulent or reckless EITC claim. A tax filer is denied the EITC for two years after it has been
determined that the tax filer made a reckless claim, and 10 years after a determination that a tax
filer has made a fraudulent claim. The Balanced Budget Act of 1997 (P.L. 105-33) provided initial
funding for a five-year initiative by the IRS to improve compliance for the EITC.
Reduction of Marriage Penalty and Simplification of the EITC
(2001 Law)
The Economic Growth and Tax Relief Reconciliation Act of 2001 (EGTRRA; P.L. 107-16), to
reduce the marriage penalty, increased the phase-out income levels for married couples filing a
joint return by $1,000 for tax years 2002 through 2004, $2,000 for tax years 2005 through 2007,
and $3,000 beginning in tax year 2008 (indexed for inflation). The bill also simplified the
definition of earned income to reflect only compensation included in gross income; based the
phase-out of the credit on adjusted gross income instead of expanded (or modified) gross income;
and eliminated the reduction in the EITC for the alternative minimum tax.
Uniform Definition of a Child and Combat Pay (2004 Law)
The Working Families Tax Relief Act of 2004 (P.L. 108-311) created a more uniform definition of
a child for tax purposes. The EITC, along with other tax provisions used by families (child tax
credit, head of household filing status, and dependent care tax provisions) are linked to this more
uniform definition of a child under the personal exemption tax provision. The definition of a child
and the rules for when more than one party may claim a child for these tax provisions are the
same as the rules for the EITC in tax year 2004. In effect, the changes in the tax code for a more
uniform definition of a child will not impact eligibility for the EITC. In addition, P.L. 108-311
allowed members of the Armed Forces to include combat pay for purposes of computing the
earned income credit for tax years that ended after October 4, 2004, and before January 1, 2006
(generally tax years 2004 and 2005).
Congressional Research Service
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The Earned Income Tax Credit (EITC): An Overview
Hurricane Relief (2005 Law)
The Katrina Emergency Relief Act (P.L. 109-73) provided that taxpayers affected by Hurricane
Katrina may use their tax year 2004 earned income to compute their 2005 EITC.
Extension of Combat Pay & Hurricane Relief (2005 Law)
The Gulf Opportunity Zone Act of 2005 (P.L. 109-135) extended the option to include combat
pay for calculating the credit for another year (tax year 2006, or tax years ending before January
1, 2007).
P.L. 109-135 also extended the option of using 2004 income to compute 2005 EITC to taxpayers
affected by Hurricane Rita, and clarified that to use this election, the taxpayer’s 2005 income had
to be less than the taxpayer’s 2004 income.
Extension of Combat Pay (2006 Law)
The Tax Relief and Health Care Act of 2006 (P.L. 109-432) extended the option to include
combat pay for calculating the credit through tax year 2007.
Permanent Inclusion of Combat Pay (2008 Law)
The Heroes Earnings Assistance and Relief Tax Act of 2008 (P.L. 110-245) made permanent the
option to include combat pay for calculating the credit.
Clarifications to the Definition of a Qualifying Child (2008 Law)
The Fostering Connections to Success and Increasing Adoptions Act of 2008 (P.L. 110-351)
clarified the uniform definition of qualifying child for purposes of the dependency exemption, the
child credit, the earned income credit, the dependent care credit, and head of household filing
status to ensure that such an individual is unmarried and is younger than the taxpayer claiming the
individual on his or her tax return. P.L. 110-351 also provided that for purposes of the child credit,
a qualifying child must be the dependent of the taxpayer claiming the credit. In addition, P.L. 110351 provided that if a taxpayer claiming a qualifying child is not the parent of the individual
claimed as a qualifying child, the taxpayer must have an adjusted gross income that is higher than
either of the child’s parents.
Economic Stimulus Changes for Tax Years 2009 and 2010 (2009 Law)
The American Recovery and Relief Act of 2009 (ARRA; P.L. 111-5) created a new credit rate for
taxpayers with three or more eligible children. For tax years 2009 and 2010 only, taxpayers with
three or more eligible children will use a credit rate of 45% to calculate their EITC.
In addition, the ARRA increased, for married taxpayers filing a joint tax return, the income level
at which the EITC begins to phase out. The phase out income level for married taxpayers filing a
joint tax return will be $5,000 higher than for unmarried taxpayers in tax year 2009. For tax year
2010 this amount will be $5,010.
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The Earned Income Tax Credit (EITC): An Overview
Tax Relief Extension (2010 Law)
The Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010 (P.L.
111-312) extended the EGTRRA and ARRA provisions for two years (through 2012). It also
included a provision which made tax refunds, including those resulting from the EITC,
disregarded in the administration of federal programs and federally assisted programs. At the end
of 2012, this provision was made permanent by the American Taxpayer Relief Act of 2012 (P.L.
112-240).
Tax Relief Extension (2012 Law)
The American Taxpayer Relief Act of 2012 (ATRA; P.L. 112-240) made permanent the EGTRRA
changes and extended the ARRA changes five years (through tax year 2017).
Congressional Research Service
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The Earned Income Tax Credit (EITC): An Overview
Appendix B. History of the EITC Parameters
Since its inception in 1975, the EITC has evolved from a small program to refund a portion of
social security taxes to the largest anti-poverty entitlement program. The credit has been modified
through changes in eligibility and in the values of the parameters used to calculate the credit.
Table B-1 shows the changes to the parameters for the EITC for tax years 1975 through 2014.
Table B-1. EITC Parameters, 1975-2014
Credit
Rate (%)
Maximum
Earned Income
Maximum
Credita
Phase-Out
Rate (%)
Phase-Out
Income
Level
Income
Where
EITC=$0
For families with children:
1975
10.0
4,000
400
10.0
4,000
8,000
1976
10.0
4,000
400
10.0
4,000
8,000
1977
10.0
4,000
400
10.0
4,000
8,000
1978
10.0
4,000
400
10.0
4,000
8,000
1979
10.0
5,000
500
12.5
6,000
10,000
1980
10.0
5,000
500
12.5
6,000
10,000
1981
10.0
5,000
500
12.5
6,000
10,000
1982
10.0
5,000
500
12.5
6,000
10,000
1983
10.0
5,000
500
12.5
6,000
10,000
1984
10.0
5,000
500
12.5
6,000
10,000
1985
10.0
5,000
500
12.22
6,500
11,000
1986
10.0
5,000
500
12.22
6,500
11,000
1987
14.0
6,080
851
10.0
6,920
15,432
1988
14.0
6,240
874
10.0
9,840
18,576
1989
14.0
6,500
910
10.0
10,240
19,340
1990
14.0
6,810
953
10.0
10,730
20,264
For families with one child:
1991
16.7
7,140
1,192
11.93
11,250a
21,250a
1992
17.6
7,520
1,324
12.57
11,840a
22,370a
1993
18.5
7,750
1,434
13.21
12,200a
23,050a
1994
26.3
7,750
2,038
15.98
11,000
23,750
1995
34.0
6,150
2,094
15.98
11,290
24,396
1996
34.0
6,350
2,152
15.98
11,650
25,100
1997
34.0
6,500
2,210
15.98
11,950
25,800
1998
34.0
6,650
2,271
15.98
12,300
26,500
1999
34.0
6,800
2,312
15.98
12,500
26,950
2000
34.0
6,900
2,353
15.98
12,700
27,450
2001
34.0
7,100
2,428
15.98
13,100
28,300
Congressional Research Service
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The Earned Income Tax Credit (EITC): An Overview
Credit
Rate (%)
Maximum
Earned Income
Maximum
Credita
Phase-Out
Rate (%)
Phase-Out
Income
Level
Income
Where
EITC=$0
2002
34.0
7,350
2,506
15.98
13,550b
29,250b
2003
34.0
7,490
2,547
15.98
13,730b
29,666b
2004
34.0
7,660
2,604
15.98
14,040b
30,338b
2005
34.0
7,830
2,662
15.98
14,370c
31,030c
2006
34.0
8,080
2,747
15.98
14,810c
32,001c
2007
34.0
8,390
2,853
15.98
15,390c
33,241c
2008
34.0
8,580
2,917
15.98
15,740d
33,995d
2009
34.0
8,950
3,043
15.98
16,420e
35,463e
2010
34.0
8,970
3,050
15.98
16,450f
35,535f
2011
34.0
9,100
3,094
15.98
16,690g
36,052g
2012
34.0
9,320
3,169
15.98
17,090h
36,920h
2013
34.0
9,560
3,250
15.98
17,530i
37,870i
2014
34.0
9,720
3,305
15.98
17,830
38,511j
For families with two or more children:
1991
17.3
7,140
1,235
12.36
11,250a
23,122a
1992
18.4
7,520
1,384
13.14
11,840a
22,370a
1993
19.5
7,750
1,511
13.93
12,200a
23,050a
1994
30.0
8,425
2,528
17.86
11,000
25,300
1995
36.0
8,600
3,110
20.22
11,290
26,673
1996
40.0
8,890
3,556
21.06
11,650
28,495
1997
40.0
9,100
3,656
21.06
11,950
29,290
1998
40.0
9,350
3,756
21.06
12,300
30,095
1999
40.0
9,500
3,816
21.06
12,500
30,580
2000
40.0
9,700
3,888
21.06
12,700
31,152
2001
40.0
10,000
4,008
21.06
13,100
32,121
33,150b
2002
40.0
10,350
4,140
21.06
13,550b
2003
40.0
10,510
4,204
21.06
13,730b
33,666b
2004
40.0
10,750
4,300
21.06
14,040b
34,458b
2005
40.0
11,000
4,400
21.06
14,370c
35,263c
2006
40.0
11,340
4,536
21.06
14,810c
36,348c
2007
40.0
11,790
4,716
21.06
15,390c
37,783c
2008
40.0
12,060
4,824
21.06
15,740d
38,646d
2009
40.0
12,570
5,028
21.06
16,420e
40,295e
2010
40.0
12,590
5,036
21.06
16,450f
40,363f
2011
40.0
12,780
5,112
21.06
16,690g
40,964g
2012
40.0
13.090
5,236
21.06
17,090h
41,952h
Congressional Research Service
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The Earned Income Tax Credit (EITC): An Overview
Credit
Rate (%)
Maximum
Earned Income
Maximum
Credita
Phase-Out
Rate (%)
Phase-Out
Income
Level
Income
Where
EITC=$0
2013
40.0
13,430
5,372
21.06
17,530 i
43,038 i
2014
40.0
13,650
5,460
21.06
17,830
43,756
For families with three or more children:
2009
45.0
12,570
5,657
21.06
16,420e
43,279e
2010
45.0
12,590
5,666
21.06
16,450f
43,352f
2011
45.0
12,780
5,751
21.06
16,690g
43,998g
2012
45.0
13,090
5,891
21.06
17,090h
45,060h
2013
45.0
13,430
6,044
21.06
17,530i
46,227i
2014
45.0
13,650
6,143
21.06
17,830
46,997j
For childless adults:
1994
7.65
4,000
306
7.65
5,000
9,000
1995
7.65
4,100
314
7.65
5,130
9,230
1996
7.65
4,200
323
7.65
5,300
9,500
1997
7.65
4,300
332
7.65
5,450
9,750
1998
7.65
4,450
341
7.65
5,600
10,050
1999
7.65
4,500
347
7.65
5,700
10,200
2000
7.65
4,600
353
7.65
5,800
10,400
10,750b
2001
7.65
4,750
364
7.65
5,950b
2002
7.65
4,900
376
7.65
6,100b
11,100b
2003
7.65
4,990
382
7.65
6,240b
11,230b
2004
7.65
5,100
390
7.65
6,390b
11,490b
2005
7.65
5,220
399
7.65
6,530c
11,750c
2006
7.65
5,380
412
7.65
6,740c
12,120c
2007
7.65
5,590
428
7.65
7,000c
12,590c
2008
7.65
5,720
438
7.65
7,160d
12,880d
2009
7.65
5,970
457
7.65
7,470e
13,440e
2010
7.65
5,980
457
7.65
7,480f
13,460f
2011
7.65
6,070
464
7.65
7,590g
13,660g
2012
7.65
6,210
475
7.65
7,770h
13,980h
2013
7.65
6,370
487
7.65
7,970i
14,340i
2014
7.65
6,480
496
7.65
8,110
14,590j
Source: Table prepared by the Congressional Research Service (CRS).
a. The credit maximums for 1991-1993 do not include the two supplemental credits that were available to some
EITC recipients in those years. The young child supplement added 5 percentage points to a family’s credit rate; the
child health insurance supplement added up to 6 points.
b. For this tax year the phase-out income level for a married couple filing a joint tax return is $1,000 higher than
shown in the table.
Congressional Research Service
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The Earned Income Tax Credit (EITC): An Overview
c. For this tax year the phase-out income level for a married couple filing a joint tax return is $2,000 higher than
shown in the table.
d. For this tax year, the phase-out income level for a married couple filing a joint tax return is $3,000 higher than
shown in the table.
e. For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,000 higher than
shown in the table.
f.
For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,010 higher than
shown in the table.
g. For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,080 higher than
shown in the table.
h. For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,210 higher than
shown in the table.
i.
For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,340 higher than
shown in the table.
j.
For this tax year, the phase-out income level for a married couple filing a joint tax return is $5,430 higher than
shown in the table.
Author Contact Information
Gene Falk
Specialist in Social Policy
gfalk@crs.loc.gov, 7-7344
Acknowledgments
Christine Scott, formerly of the Congressional Research Service (CRS), authored a previous version of this
report.
Congressional Research Service
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