Full text
The American Rescue Plan Act of 2021 (ARPA;
H.R. 1319) Title IX Subtitle G—Tax Provisions
Related to Promoting Economic Security
Updated March 8, 2021
Congressional Research Service
https://crsreports.congress.gov
R46680
Congressional Research Service
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Contents
Tables
Table 1. American Rescue Plan Act of 2021 (ARPA; H.R. 1319); Title IX Subtitle G—
Tax Provisions Related to “Promoting Economic Security” as amended by S.Amdt. 891 ......... 4
Table 2. American Rescue Plan Act of 2021 (ARPA; H.R. 1319); Title IX Subtitle G—
Tax Provisions Related to “Promoting Economic Security” as passed the House of
Representatives February 27, 2021................................................................................ 15
Table 3. Estimated Cost of Title IX Subtitle G of the American Rescue Plan Act of 2021
(ARPA; H.R. 1319) as amended by S.Amdt. 891 ............................................................. 26
Table 4. Estimated Cost of Title IX Subtitle G of the American Rescue Plan Act of 2021
(ARPA; H.R. 1319) as passed the House of Representatives February 27, 2021 ................... 29
Contacts
Author Information ....................................................................................................... 32
Congressional Research Service
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
he 117th Congress is considering Coronavirus Disease 2019 (COVID-19)-related relief and
T economic stimulus legislation. On February 8, 2021, House Ways and Means Committee
Chairman Richard E. Neal released nine legislative proposals to be considered under the
budget reconciliation instructions. 1 On February 27, 2021, the House passed these proposals as
part of the American Rescue Plan Act of 2021 (ARPA; H.R. 1319). On March 4, 2021, the Senate
version of the American Rescue Plan Act of 2021, S.Amdt. 891 to H.R. 1319, was proposed. 2 On
Saturday March 6, 2021, the Senate passed H.R. 1319, as amended by S.Amdt. 891. This report
summarizes the tax provisions in Title IX Subtitle G of the House and Senate versions of the
American Rescue Plan Act. 3
The current proposed COVID-19 tax relief (Title IX Subtitle G of H.R. 1319) would
provide a one-time direct payment of $1,400 per person to eligible households;
temporarily expand the child tax credit for low- and moderate-income families,
with a portion of the credit issued in 2021 before income taxes are filed;
temporarily expand the earned income tax credit (EITC) for workers without
qualifying children;
temporarily expand the child and dependent care credit for most taxpayers and
temporarily expand the exclusion for child and dependent care expenses;
modify and extend the payroll tax credits for employer-provided paid sick and
paid family leave;
further extend the employee retention tax credit;
temporarily enhance benefits and/or expand eligibility for the health insurance
premium tax credit (PTC);
repeal a provision that allows worldwide allocation of interest for the foreign tax
credit limit, decreasing foreign tax credits in some cases;
provide that advances against Economic Injury Disaster Loans that are not repaid
and grants under the Restaurant Revitalization Fund will be excluded from
income, and deductions for associated expenses will be allowed;
modify reporting thresholds for third-party settlement organizations; and
temporarily exclude most forgiven student loan debt from taxation.
1 For information on budget reconciliation, see CRS Report R44058, The Budget Reconciliation Process: Stages of
Consideration, by Megan S. Lynch and James V. Saturno. For information on the budget resolution for 2021, which
contains reconciliation directives, see CRS Report R46675, S.Con.Res. 5: The Budget Resolution for FY2021 , by
Megan S. Lynch and James V. Saturno.
2
For the text of S.Amdt. 891 as introduced on March 4, 2021, see https://www.budget.senate.gov/imo/media/doc/
American%20Rescue%20Plan%20Act%20SENAT E.pdf.
3 Revenue provisions in Subtitle H, Pensions, are described in CRS In Focus IF11766, Pension Provisions in Budget
Reconciliation, by Elizabeth A. Myers and John J. T opoleski; and CRS In Focus IF11765, Special Financial Assistance
to Multiemployer Plans, by John J. T opoleski and Elizabeth A. Myers. T itle IX Subtitle H of the Senate version of the
American Rescue Plan Act of 2021 also includes an expansion of the Internal Revenue Code (IRC) §162(m) limit on
excessive employee compensation, effective after December 31, 2026. T he provision would deny deduction of
compensation in excess of $1 million to certain highly paid employees, plus the CEO or CFO, at publicly traded
companies. T he Joint Committee on Taxation (JCT ) estimates that the provision would generate $7.8 billion in revenue
between FY2016 and FY2031. T itle IX Subtitle A of the Senate version of the American Rescue Plan Act of 2021
includes a provision to exclude up to $10,200 in unemployment compensation benefits from tax in 2020 for taxpayers
with modified AGI of less than $150,000.
Congressional Research Service 1
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Current consideration of COVID-19-related tax relief follows the enactment of other laws
addressing the COVID-19 crisis: (1) the Coronavirus Preparedness and Response Supplemental
Appropriations Act, 2020 (P.L. 116-123); (2) the Families First Coronavirus Response Act
(FFCRA; P.L. 116-127); (3) the Coronavirus Aid, Relief, and Economic Security (CARES) Act
(P.L. 116-136);4 (4) the Paycheck Protection Program and Health Care Enhancement Act (P.L.
116-139); and (5) the Consolidated Appropriations Act, 2021 (P.L. 116-260). 5
Other pandemic-related tax policy proposals were considered in the 116 th Congress, but not
enacted. In the House, tax relief was also considered in the Heroes Act (H.R. 8406, adopted as
H.R. 925; H.R. 6800). 6 Legislation introduced in the Senate (the American Workers, Families,
and Employers Assistance Act [S. 4318]; the Supporting America’s Restaurant Workers Act [S.
4319]; and the Restoring Critical Supply Chains and Intellectual Property Act [S. 4324]) would
have provided tax relief intended to alleviate the economic effects of the COVID-19 pandemic. 7
Table 1 of this report summarizes the tax provisions in Title IX Subtitle G of the American
Rescue Plan Act (ARPA; H.R. 1319) as amended by S.Amdt. 891 (as passed by the Senate on
March 6, 2021) and provides links to CRS resources containing additional information. Table 2
of this report summarizes the tax provisions in Title IX Subtitle G of the American Rescue Plan
Act (ARPA; H.R. 1319) as passed by the House of Representatives on February 27, 2021. Joint
Committee on Taxation (JCT) revenue estimates for these provisions in both the Senate substitute
and the House-passed bill are included in Table 3 and Table 4, respectively.
Additional Resources
Joint Committee on Taxation, Estimated Revenue Effects Of An Amendment in
the Nature of a Substitute to H.R. 1319, The “American Rescue Plan Act Of
2021,” As Passed by the House of Representatives And Scheduled for
Consideration by the Senate, JCX-13-21, March 4, 2021, at https://www.jct.gov/
publications/2021/jcx-13-21/.
Joint Committee on Taxation, Estimated Revenue Effects Of H.R. 1319, The
“American Rescue Plan Act Of 2021,” Scheduled For Consideration By The
House Of Representatives On February 26, 2021, JCX-12-21, February 26, 2021,
at https://www.jct.gov/publications/2021/jcx-12-21/. 8
U.S. Congress, House Committee on the Budget, American Rescue Plan Act of
2021, Report of the Committee on the Budget House of Representatives to
Accompany H.R. 1319, 117th Cong., 1st sess., February 24, 2021, Report 117-7.
4
For more on tax provisions in the CARES Act, see CRS Report R46279, The Coronavirus Aid, Relief, and Economic
Security (CARES) Act—Tax Relief for Individuals and Businesses, coordinated by Molly F. Sherlock.
5 For more information on the tax provisions in this legislation, see CRS Report R46649, The COVID-Related Tax
Relief Act of 2020 and Other COVID-Related Tax Provisions in P.L. 116-260, by Molly F. Sherlock et al.
6
For more information on tax provisions in the Heroes Act, see CRS Report R46358, Heroes Act: Revenue Provisions,
coordinated by Molly F. Sherlock.
7 For more information on the Senate proposals, see CRS Report R46470, The American Workers, Families, and
Employers Assistance Act (S. 4318): Title II—Revenue Provisions and Other “HEALS Act” Tax Provisions,
coordinated by Molly F. Sherlock.
8 Earlier estimates were prepared in advance of consideration by the House Committee on Ways and Means. See Joint
Committee on T axation, Estimated Budgetary Effects Of The Revenue Provisions Of The Chairman’s Amendment In
The Nature Of A Substitute To The Budget Reconciliation Legislative Recommendations, Scheduled For Markup By
The House Committee On Ways And Means On February 10, 2021, JCX-9-21, February 9, 2021, at
https://www.jct.gov/publications/2021/jcx-9-21/.
Congressional Research Service 2
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Joint Committee on Taxation, Description Of The Budget Reconciliation
Legislative Recommendations Relating To Prompting Economic Security, JCX-3-
21, February 8, 2021, at https://www.jct.gov/publications/2021/jcx-3-21/.
Joint Committee on Taxation, Technical Explanation of the Modification of
Exceptions of Reporting Third Party Network Transactions in New Section 9674
of Subtitle IX of the American Rescue Plan Act of 2021, as Amended, by the
Proposed Manager’s Amendment, February 26, 2021, at https://www.jct.gov/
publications/2021/technical-explanation-of-section-9674-of-hr-1319/.
Congressional Research Service 3
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Table 1. American Rescue Plan Act of 2021 (ARPA; H.R. 1319); Title IX Subtitle G—
Tax Provisions Related to “Promoting Economic Security” as amended by S.Amdt.
891
Section Title Description CRS Resources
Subtitle G—Promoting Economic Security
Part 1—2021 Recovery Rebates to Individuals
Recovery Rebates to Would enact a third round of direct payments For more information, see
Individuals for individuals and households (“stimulus CRS Insight IN11624, COVID-
checks”). These payments would be structured as 19 and Direct Payments: How
refundable tax credits against 2021 income taxes, Do the “Stimulus Check”
but would be issued (and hence received) in Phaseouts Differ Between the
2021, as opposed to 2022 (when 2021 income House-Passed American Rescue
tax returns will be filed). Amount and eligibility Plan and Senate Amendment
for the advanced credit would generally be based 891?, by Margot L. Crandall-
on information from 2020 income tax returns (or Hollick.
2019 returns, if 2020 returns have not been filed
when the advanced credit is initially issued). For CRS Insight IN11628, Estimated
households whose payment was based on 2019 “Direct Payments” by State
income data, and who would be eligible to Under the House and Senate
receive a larger payment based on 2020 data, the Versions of the American Rescue
IRS would be directed to issue a supplementary Plan Act of 2021 (H.R. 1319), by
payment (a “top up”) within 90 days of the tax Conor F. Boyle and Jameson
filing deadline or September 1, 2021, whichever A. Carter.
date is earlier. CRS Insight IN11604, COVID-
Payments would generally be issued per 19 and Direct Payments:
household and equal the sum of $1,400 per Frequently Asked Questions
eligible individual ($2,800 for married joint filers) (FAQs) About the Proposed Third
and $1,400 for each eligible dependent (including Round of “Stimulus Checks” in
older children and adult dependents). For each the American Rescue Plan Act of
individual who died before January 1, 2021, the 2021 (ARPA; H.R. 1319), by
payment amount would be reduced from $1,400 Margot L. Crandall-Hollick.
to $0. CRS Insight IN11605, COVID-
The payment would phase out ratably (i.e., 19 and Direct Payments:
proportionally) between $75,000 and $80,000 for Comparison of First and Second
single filers, $112,500 and $120,000 for head of Round of “Stimulus Checks” to a
household filers, and $150,000 and $160,000 for Proposed Third Round in the
married joint filers. The larger the total credit American Rescue Plan Act of
amount, the faster the payment would phase out 2021 (ARPA; H.R. 1319), by
using this method. Margot L. Crandall-Hollick.
Eligible individuals and dependents would For background, see
generally need to have a social security number CRS Report R46415, CARES
(SSN) to receive the payment. (Adoption Act (P.L. 116-136) Direct
taxpayer ID numbers would also be valid for Payments: Resources and
dependents.) The maximum payment amount Experts, coordinated by Margot
($1,400) would be reduced to $0 for each L. Crandall-Hollick.
otherwise eligible individual or qualifying
CRS Insight IN11576, COVID-
dependent who does not have an SSN (i.e., they
19 and Direct Payments to
have an individual taxpayer identification number,
Individuals: Comparison of the
or ITIN, instead). This provision would not apply
Second Round of “Stimulus
to married members of the Armed Forces if at
Checks” in P.L. 116-260 to the
least one spouse had an SSN. In such cases, they
First Round in the CARES Act
would be eligible for up to $2,800. If no eligible
(P.L. 116-136), by Margot L.
individual had an SSN (i.e., an unmarried taxpayer
Crandall-Hollick.
does not have an SSN or neither spouse of a
married joint filing couple has an SSN), they CRS Insight IN11575, COVID-
19 and Direct Payments to
Congressional Research Service 4
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
would still receive a payment for a qualifying Individuals: Frequently Asked
dependent with an SSN. Questions (FAQs) About the
The advanced payment of the credit would Second Round of “Stimulus
generally be exempt from offset by Treasury Checks” in P.L. 116-260, by
prior to when the payment is issued for certain Margot L. Crandall-Hollick.
past-due debts owed by the recipient (including CRS Insight IN11580, COVID-
past-due child support). However, the amount 19 and Direct Payments:
the taxpayer would claim as a credit on their Summary of the CASH Act (H.R.
2021 tax returns would generally be subject to 9051, 116th Congress)
offset. Modifications to “Stimulus
For eligible individuals who did not file a 2020 or Checks,” by Margot L. Crandall-
2019 income tax return, the IRS would be given Hollick.
broad authority to make payments based on
information available to the Treasury, in a similar
manner as was done with the second round of
payments enacted under P.L. 116-260.
Treasury would be directed to make payments to
the U.S. territories (mirror code and non-mirror
code) equal to the aggregate amount issued to
their residents as a result of this provision. (Many
territorial residents will receive this benefit under
a version of the provision administered via the
territorial government, rather than the IRS.)
These payments would not be taxable. In
addition, like other tax credits, these payments
would not count as income or resources for a
12-month period in determining eligibility for, or
the amount of assistance provided by, any
federally funded public benefit program.
If a taxpayer received a larger advanced credit in
2021 than they were eligible for on their 2021
income tax return, they generally would not be
required to pay it back. If an individual received
an advanced payment less than what they were
eligible for on their 2021 income tax return, they
could claim the difference on that return (filed in
2021).
Part 2—Child Tax Credit
Child Tax Credit For 2021, would temporarily increase the For more information, see
Improvements for amount of the child tax credit for low- and CRS Insight IN11613, The Child
2021 moderate-income taxpayers to up to $3,600 per Tax Credit: Proposed Expansion
child for a young child and up to $3,000 for older in the American Rescue Plan Act
children by modifying several provisions of the of 2021 (ARPA; H.R. 1319), by
existing credit. First, the bill would eliminate the Margot L. Crandall-Hollick.
earned-income-based phase-in of the refundable
portion of the child credit (often referred to as For background, see
the “additional child credit” or ACTC) and CRS Report R41873, The Child
eliminate the maximum amount of the ACTC Tax Credit: How It Works and
($1,400). Hence, the child credit would be “fully Who Receives It, by Margot L.
refundable” and available to otherwise eligible Crandall-Hollick.
taxpayers with no earned income. Second, the CRS Report R46502, The Child
bill would increase the maximum age for an Tax Credit: Selected Legislative
eligible child to 17. Third, the bill would increase Proposals in the 116th Congress,
the maximum amount of the credit from $2,000 by Margot L. Crandall-Hollick.
per child to $3,600 per child for a young child (0-
5 years old) and $3,000 per child for an older
Congressional Research Service 5
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
child (6-17 years old). This increase in the
maximum child credit of $1,600 per child for
young children and $1,000 per child for older
children would gradually phase out at a rate of
5% as income exceeded specified thresholds until
the credit amount equaled the current-law
maximum of $2,000 per child. These thresholds
would be $75,000 for single filers, $112,500 for
head of household filers, and $150,000 for
married joint filers. (The actual income level at
which the credit phased down to $2,000 per
child would depend on the number and age of
qualifying children.) For most families, the credit
would then remain at its current-law level and
phase out when income exceeded the current-
law thresholds of $200,000 ($400,000 for
married joint filers).a
Would direct the Treasury to issue half of the
expected 2021 credit in periodic payments
beginning July 1, 2021. These periodic payments
would generally be of equal size. The remaining
half of the total 2021 credit would be claimed on
a 2021 income tax return filed in early 2022. The
amount of the payments advanced in 2021 would
be estimated based on 2020 income tax data, or
if unavailable, 2019 income tax data. The
advanced child credit payments would reduce the
child credit received with a 2021 return. In cases
where a taxpayer receives more in advanced
payments than they are eligible for (whether due
to changes in income, changes in filing status, or
changes in the number of eligible children who
live with the taxpayer between 2021 and the year
that provides data on which the advanced credit
is based [2020 or 2019]), taxpayers would
generally need to repay total aggregate advanced
payments. In cases where a taxpayer received
excess advanced payments due to net changes in
the number of qualifying children between 2020
(or 2019) and 2021, repayment obligations would
be reduced for low- and moderate-income
taxpayers. Specifically, taxpayers with income
below $40,000 for single filers, $50,000 for head
of household filers, and $60,000 for joint filers in
2021 would not need to repay up to $2,000 per
qualifying child in advanced credit overpayments
(the $2,000 amount is referred to as the “safe
harbor amount”). Taxpayers with income above
these thresholds but below $80,000 for single
filers, $100,000 for head of household filers, and
$120,000 for married joint filers would gradually
have the safe harbor amount reduced to $0 per
qualifying child. Hence, taxpayers with income
over $80,000 for single filers, $100,000 for head
of household filers, and $120,000 for married
joint filers in 2021 would need to repay the
entire amount of the overpayment.
Congressional Research Service 6
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
The bill would create an online portal to allow
taxpayers the options to opt out of receiving
advanced payments and to provide information
regarding changes in income, marital status, and
number of qualifying children in order to modify
the advanced credit amounts.
Advanced payments would not be subject to
offset prior to when the payment is issued for
certain past-due debts owed by the recipient.
However, the amount the taxpayer claims as a
credit on their 2021 tax returns would generally
be subject to offset.
The bill would allow the Treasury to adjust
income tax withholding to accommodate these
advance payments.
Advanced payments would generally not be
available to eligible residents of U.S. territories.
Application of the Would effectively expand child credit eligibility to For background, see
Child Tax Credit in residents of U.S. territories permanently. For CRS Report R44651, Tax Policy
Possessions “mirror code” territories, the Treasury would and U.S. Territories: Overview
make payments equal to the territory’s costs of and Issues for Congress, by Sean
the child tax credit. For American Samoa (a non- Lowry.
mirror code territory), the Treasury would make
payments equal to the territory’s costs of the
child tax credit as if it were a mirror code
territory. In contrast, eligible residents of Puerto
Rico (also a non-mirror code territory) would file
for the credit directly with the IRS.
Part 3—Earned Income Tax Credit
Strengthening the For 2021, would temporarily expand both For more information, see
Earned Income Tax eligibility for and the amount of the earned CRS Insight IN11610, The
Credit for Individuals income tax credit (EITC) for taxpayers without “Childless” EITC: Summary of
with no Qualifying qualifying children by modifying the eligibility age Current Law and Proposed
Children and credit formula. Expansion in the American
Regarding eligibility age, would expand eligibility Rescue Plan Act of 2021 (ARPA;
for the EITC for individuals with no qualifying H.R. 1319), by Margot L.
children—sometimes referred to as the “childless Crandall-Hollick.
EITC”—by reducing the minimum eligibility age For background, see
from 25 to 19 for most workers. In other words,
this change would allow most eligible workers CRS Report R43805, The
ages 19 to 24 to claim the childless EITC. For Earned Income Tax Credit
students who are attending school at least part- (EITC): How It Works and Who
time, the age limit would be temporarily reduced Receives It, by Margot L.
from 25 to 24.b For former foster children and Crandall-Hollick, Gene Falk,
youth who are homeless, the minimum age would and Conor F. Boyle.
temporarily be reduced from 25 to 18. The bill
would also temporarily eliminate the upper age
limit, so workers aged 65 and older would be
eligible.
Regarding the credit amount, would temporarily
increase the childless EITC by increasing the
earned income amount (the minimum income
necessary to receive the maximum credit
amount) and phaseout threshold amount (the
maximum income level at which taxpayers
receive the maximum credit amount before it
Congressional Research Service 7
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
begins to phase out) to $9,820 and $11,610,
respectively, while also doubling the phase-in and
phaseout rates from 7.65% to 15.3%. The
maximum childless EITC would increase from
$543 to $1,502 in 2021.
Taxpayer Eligible for Would permanently allow taxpayers who
Childless Earned currently cannot claim the childless EITC because
Income Credit in Case all of their qualifying children do not have SSNs
of Qualifying Children to be eligible to claim the childless EITC.
Who Fail to Meet
Certain Identification
Requirements
Credit Allowed in Would permanently allow married taxpayers
Case of Certain who file their tax returns as married filing
Separated Spouses separately to claim the EITC if they live with a
child for whom they can claim the EITC for more
than half the year and either (1) do not have the
same principal place of abode as their spouse for
the last six months of the year, or (2) have a
decree, instrument, or agreement (i.e., other
than a divorce decree) and do not live with their
spouse at the end of the year.
Modification of Would permanently modify the disqualified
Disqualified investment income test. Under current law,
Investment Income taxpayers with investment income over a certain
Test threshold—$3,650 in 2020 and 2021—are
ineligible for the EITC. Disqualified investment
income is defined as interest income (including
tax-exempt interest), dividends, net rent, net
capital gains, and net passive income. It also
includes royalties from sources other than the
filer’s ordinary business activities. This provision
would permanently raise this amount to $10,000
and annually adjust it for inflation beginning in
2022.
Application of Earned Would permanently provide authority to make
Income Tax Credit in payments to Puerto Rico, American Samoa, and
Possession of the mirror-code territories for amounts they pay out
United States in the EITC. For Puerto Rico and American
Samoa, such payments would be contingent upon
increasing the amount of their EITC or enacting
an EITC, respectively.
Temporary Special For the purposes of calculating their EITC on
Rule for Determining their 2021 income tax return, would allow
Earned Income for taxpayers to substitute their 2019 earned income
Purposes of Earned for their 2021 earned income if their earned
Income Tax Credit income at the end of 2021 was less than their
2019 earned income.
Part 4—Dependent Care Assistance
Refundability and For 2021, would temporarily expand the child For background, see
Enhancement of Child and dependent care credit by making the credit CRS Report R44993, Child and
and Dependent Care refundable and making it larger for most workers. Dependent Care Tax Benefits:
Tax Credit The CDCTC credit amount is a product of the How They Work and Who
amount of qualifying expenses (which is subject
to a cap) and the credit rate. The bill would
Congressional Research Service 8
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
increase the cap on qualifying expenses from Receives Them, by Margot L.
$3,000 for one child and $6,000 for two or more Crandall-Hollick.
children to $8,000 and $16,000, respectively. The
bill would also increase the credit rate for
workers with $185,000 or less of income (the
credit rate would remain the same as under
current law for those with income over $185,000
up to $400,000 [i.e., 20%], and be reduced from
current law for those with over $400,000 of
income). Specifically, for those with less than
$125,000 of income, the credit rate would
increase to 50% (from 35%) of expenses. This
50% credit rate would gradually phase down to
20% until taxpayers had $185,000 of income. For
those with more than $185,000 of income up to
$400,000, the credit rate would then remain at
20%, gradually falling to zero when income
exceeds $440,000. As a result, those with income
over $440,000 would not be eligible for the
credit.
By making the credit refundable, the bill would
effectively expand eligibility to lower-income
taxpayers. Under current law, the CDCTC is a
nonrefundable credit, meaning the value of the
credit cannot exceed a taxpayer’s income tax
liability. As a result, those with little or no
income tax liability, including many low-income
taxpayers, receive little or no benefit from the
current credit.
In combination, these changes would increase the
maximum amount of the CDCTC from $2,100 to
$8,000, based on expenses and income.
The bill would allow the Treasury to make
payments to Puerto Rico, American Samoa, and
mirror-code territories for the cost of providing
the refundable CDCTC in 2021 to their
territorial residents. (Non-mirror code
territories [i.e., Puerto Rico and American
Samoa] would need to develop a plan, approved
by the Treasury Secretary, to distribute the
amounts of the refundable CDCTC to their
residents.)
Increase in Exclusion For 2021, would temporarily increase the
for Employer- maximum amount of qualifying child care
Provided Dependent expenses that eligible taxpayers could exclude
Care Assistance from their income from $5,000 to $10,500.
Part 5—Credits for Paid Sick and Family Leave
Payroll Credits Would extend the Families First Coronavirus For background, see
Response Act (FFCRA; P.L. 116-127) employer CRS In Focus IF11739, Payroll
payroll tax credits for paid sick and paid family Tax Credit for COVID-19 Sick
leave from March 31, 2021, through September and Family Leave, by Molly F.
30, 2021. Sherlock.
FFCRA paid sick leave was limited to 10 days per
employee. This provision would reset the 10-day
limit, starting April 1, 2021, for employers
Congressional Research Service 9
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
claiming the credit for paid sick leave provided to
their employees.
Would expand the paid sick and paid family leave
credits to allow credits for leave taken to obtain
immunization related to COVID-19 or recover
from any injury, disability, illness, or condition
related to COVID-19 immunization.
Would expand the definition of qualifying paid
family leave to allow family leave payroll tax
credits to be claimed for all qualifying uses of paid
sick time, including for leave provided if the
employee is subject to a quarantine or isolation
order due to COVID-19 or is caring for
someone in a similar situation.
The tax credit for family leave wages is limited to
$200 per day, and $10,000 total per employee.
This provision would increase this limit on the
tax credit for paid family leave wages, allowing
the credit on up to $12,000 in paid family leave
wages.
Would add a nondiscrimination rule to the paid
leave payroll tax credits, providing employers
could not claim the credits if paid leave provided
to employees discriminates in favor of highly
compensated employees or full-time employees,
or discriminates on the basis of employment
tenure with the employer.
The paid sick and paid family leave tax credits are
currently claimed against the Old-Age, Survivors
and Disability Insurance (OASDI) tax, or the
equivalent amount of the Railroad Retirement
Tax Act (RRTA) tax. This provision would
restructure the paid sick and family leave payroll
tax credits to be claimed against the employer’s
share of the hospital insurance (HI) payroll tax,
after March 31, 2021. The employer’s share is
1.45% of wages paid to employees. This credit
would not affect amounts transferred to the
Federal Hospital Insurance Trust Fund.
Government employers, including state and local
government employers, are not allowed to claim
paid leave payroll tax credits. This provision
would provide that 501(c)(1) organizations and
501(a) organizations could claim the tax credits,
making certain state and local governments, as
well as 501(c)(1) federal government
instrumentalities, tax-credit eligible.
Provision provides that paid sick and paid family
leave payroll tax credits can be increased by the
employer’s share of OASDI and HI payroll taxes
(and equivalent RRTA tax) for the paid leave
wages. Denial of double benefit applies, and gross
income of the employer is increased by the
amount of the credit provided by this section.
Congressional Research Service 10
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Credit for Sick Leave Under FFCRA, self-employed individuals are For background, see
for Certain Self- allowed a refundable income tax credit for paid CRS In Focus IF11739, Payroll
Employed Individuals sick leave. This provision would extend and Tax Credit for COVID-19 Sick
expand the paid sick leave tax credits for self- and Family Leave, by Molly F.
employed individuals, similar to the modifications Sherlock.
made for employers (described above).
Credit for Family Under FFCRA, self-employed individuals are For background, see
Leave for Certain Self- allowed a refundable income tax credit for paid CRS In Focus IF11739, Payroll
Employed Individuals family leave. This provision would extend and Tax Credit for COVID-19 Sick
expand the paid family leave tax credits for self- and Family Leave, by Molly F.
employed individuals, similar to the modifications Sherlock.
made for employers (described above). Tax
credits could be claimed for up to 60 days of
family leave for self-employed individuals.
Part 6—Employee Retention Credit
Extension of Through June 30, 2021, the employee retention For background, see
Employee Retention and rehiring tax credit is 70% of qualified wages. CRS In Focus IF11721, The
Credit The refundable payroll credit can be computed Employee Retention and
on up to $10,000 in qualified wages paid to an Employee Retention and Rehiring
eligible employee per calendar quarter. Thus, the Tax Credits, by Molly F.
maximum credit amount for 2021 is $14,000 Sherlock.
(70% of up to $20,000 in qualified wages paid
over the first two quarters). Qualified wages
depend on the number of employees the
employer had in 2019. For employers with more
than 500 full-time employees, qualified wages are
wages paid when employee services are not
provided. For employers with 500 or fewer full-
time employees, all wages paid by eligible
employers are credit-eligible.
This provision would extend the employee
retention credit through December 31, 2021. A
credit of up to $50,000 per calendar quarter
would also be provided to recovery startup
businesses, defined as businesses established after
February 15, 2020, with average annual gross
receipts that do not exceed $1 million. Severely
financially distressed employers, those with gross
receipts that are less than 10% of what they were
in the same calendar quarter in 2019, would be
able to treat all wages as qualified wages. The
credit would be restructured to be claimed
against the employer’s share of the hospital
insurance (HI) payroll tax (as opposed to the
OSADI and equivalent amount of RRTA tax).
Congressional Research Service 11
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Part 7—Premium Tax Credit
Improving For 2021 and 2022, would temporarily expand For background, see
Affordability by eligibility for and the amount of the premium tax CRS Report R44425, Health
Expanding Premium credit (PTC) by modifying the income eligibility Insurance Premium Tax Credits
Assistance for criteria and credit formula. and Cost-Sharing Subsidies, by
Consumers Regarding income, would temporarily expand Bernadette Fernandez.
eligibility by eliminating the current-law phaseout
for households with annual incomes above 400%
of the federal poverty level (FPL).
Regarding the formula, would temporarily
increase the credit amount by reducing the
percentage of annual income that eligible
households would be required to contribute
toward the premium. The temporary percentages
would range from 0.0% to 8.5% of household
income, with higher-income groups subject to
the larger percentages, as specified.
Temporary For 2020, would temporarily provide tax relief to
Modification of individuals who would be subject to the current-
Limitations on law requirement to pay back PTC amounts that
Reconciliation of Tax were provided in excess. Would temporarily
Credits for Coverage suspend the recapture of excess credit amounts
Under a Qualified under the current tax reconciliation process.
Health Plan with
Advance Payments of
Such Credit
Congressional Research Service 12
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Application of For 2021, would temporarily expand eligibility for For background, see
Premium Tax Credit and the amount of the PTC for certain individuals CRS Report R45478,
in Case of Individuals who receive unemployment compensation (UC). Unemployment Insurance:
Receiving Would temporarily deem individuals who receive Legislative Issues in the 116th
Unemployment UC for any week in calendar year 2021 to have Congress, by Julie M. Whittaker
Compensation During met the PTC income eligibility criteria. Would and Katelin P. Isaacs.
2021 temporarily disregard any household income
above 133% FPL.
Part 8—Miscellaneous Provisions
Repeal of Election to U.S. firms are eligible for foreign tax credits up to For background, see
Allocation Interest, the amount of U.S. tax paid on foreign-source CRS Report RL34494, The
Etc. on Worldwide income. To impose this limit, U.S. and foreign- Foreign Tax Credit’s Interest
Basis source income must be determined. Certain Allocation Rules, by Jane G.
deductions are allocated between U.S. and Gravelle and Donald J.
foreign sources, including interest. Until 2021, Marples.
firms allocated interest excluding that paid by
foreign firms (called “waters edge” allocation).
Under current law, beginning in 2021, firms can
elect to include interest paid by related foreign
firms. This treatment is called worldwide
allocation. It is beneficial for some firms because
some of the interest paid for foreign firms is
allocated to U.S. sources, increasing foreign-
source income, increasing the limit on the foreign
tax credit and, thus, increasing foreign tax credits
that reduce tax liability. A provision was adopted
in 2004 to move to worldwide allocation, but it
has been delayed by other legislation and is
scheduled to begin in 2021. This provision would
repeal the election to move to worldwide
allocation.
Tax Treatment of Under normal tax rules, a forgiven debt is For background, see
Targeted Economic generally treated as taxable income to the CRS Insight IN11378, IRS
Injury Disaster Loan borrower. Prior legislation has allowed forgiven Guidance Says No Deduction Is
Advances loans for certain programs (such as those Allowed for Business Expenses
provided by the Paycheck Protection Program, or Paid with Forgiven PPP Loans, by
PPP, and certain other small business loans) to be Sean Lowry and Jane G.
excluded from income. Following an IRS ruling Gravelle.
that associated expenses would not be
deductible, legislation specified that associated CRS Report R46284, COVID-19
expenses would be deductible. This provision Relief Assistance to Small
would extend this treatment (exclusion from Businesses: Issues and Policy
income and deduction of expenses) to additional Options, by Robert Jay Dilger,
Economic Injury Disaster Loan (EIDL) advances Bruce R. Lindsay, and Sean
on loans that are not required to be repaid. Lowry.
CRS Insight IN11370, SBA EIDL
and Emergency EIDL Grants for
COVID-19, by Bruce R. Lindsay.
Tax Treatment of Under normal tax rules, a forgiven debt is treated For background, see
Restaurant as taxable income to the borrower. Prior CRS Insight IN11378, IRS
Revitalization Grants legislation has allowed forgiven loans for certain Guidance Says No Deduction Is
programs (such as those provided by the Allowed for Business Expenses
Paycheck Protection Program, or PPP, and Paid with Forgiven PPP Loans, by
certain other small business loans) to be Sean Lowry and Jane G.
excluded from income. Following an IRS ruling Gravelle.
that associated expenses would not be
Congressional Research Service 13
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
deductible, legislation specified that associated CRS Report R46284, COVID-19
expenses would be deductible. This provision Relief Assistance to Small
would extend this treatment (exclusion from Businesses: Issues and Policy
income and deduction of expenses) to additional Options, by Robert Jay Dilger,
grants made from the new Restaurant Bruce R. Lindsay, and Sean
Revitalization Fund. Lowry.
Modification of Credit card companies and electronic payment
Exceptions for processors are required to annually file aggregate
Reporting of Third transaction reports with the IRS listing total
Party Network annual payments to merchants (Internal Revenue
Transactions Code §6050W). A de minimus reporting
exception provides that third-party settlement
organizations are only required to report
transactions of payees who receive more than
$20,000 and conduct more than 200 transactions
per year. This provision would modify the
threshold for reporting, setting it at $600 per
year.
Modification of Would exclude from gross income qualifying For background, see
Treatment of Student student loans for postsecondary education CRS Report R43571, Federal
Loan Forgiveness discharged, for almost any reason, between Student Loan Forgiveness and
December 31, 2020, and January 1, 2026. Loan Repayment Programs,
Qualifying student loans would include all federal coordinated by Alexandra
student loans, and certain private education and Hegji.
institutional loans. Hence, these amounts of
discharged student loan debt would not be CRS Report R45931, Federal
subject to taxation. Student Loans Made Through the
William D. Ford Federal Direct
Loan Program: Terms and
Conditions for Borrowers, by
David P. Smole.
Source: H.R. 1319 Title IX Subtitle G, as amended by S.Amdt. 891.
a. For example, if a married couple had three children under 6 years old, the maximum credit they would be
eligible for would be $10,800 ($3,600 x 3) if they had income under $150,000. For taxpayers with income
over $150,000, the additional $4,800 of the credit ($1,600 x 3) would be reduced at a rate of 5%. At
$246,000 of income, the credit would be $6,000 ($2,000 x 3), the current-law amount. The credit would
remain at this amount until the taxpayer’s income reached the current-law thresholds of $400,000. At that
point, the credit would phase out under the provisions of current law (5% phaseout rate).
b. The legislation includes as part of the definition of a student someone carrying half or more of the normal
full-time workload for their program of study, as defined under Internal Revenue Code (IRC) §25A(b)(3).
Congressional Research Service 14
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Table 2. American Rescue Plan Act of 2021 (ARPA; H.R. 1319); Title IX Subtitle G—
Tax Provisions Related to “Promoting Economic Security” as passed the House of
Representatives February 27, 2021
Section Title Description CRS Resources
Subtitle G—Promoting Economic Security
Part 1—2021 Recovery Rebates to Individuals
Recovery Rebates to Would enact a third round of direct payments For more information, see
Individuals for individuals and households (“stimulus CRS Insight IN11604, COVID-
checks”). These payments would be structured as 19 and Direct Payments:
refundable tax credits against 2021 income taxes, Frequently Asked Questions
but would be issued (and hence received) in (FAQs) About the Proposed Third
2021, as opposed to 2022 (when 2021 income Round of “Stimulus Checks” in
tax returns will be filed). Amount and eligibility the American Rescue Plan Act of
for the advanced credit would generally be based 2021 (ARPA; H.R. 1319), by
on information from 2020 income tax returns (or Margot L. Crandall-Hollick.
2019 returns, if 2020 returns have not been filed
when the advanced credit is initially issued). For CRS Insight IN11605, COVID-
households whose payment was based on 2019 19 and Direct Payments:
income data, and who would be eligible to Comparison of First and Second
receive a larger payment based on 2020 data, the Round of “Stimulus Checks” to a
IRS would be directed to issue a supplementary Proposed Third Round in the
payment (a “top up”) within 90 days of the tax American Rescue Plan Act of
filing deadline or September 1, 2021, whichever 2021 (ARPA; H.R. 1319), by
date is earlier. Margot L. Crandall-Hollick.
Payments would generally be issued per For background, see
household and equal the sum of $1,400 per CRS Report R46415, CARES
eligible individual ($2,800 for married joint filers) Act (P.L. 116-136) Direct
and $1,400 for each eligible dependent (including Payments: Resources and
older children and adult dependents). For each Experts, coordinated by Margot
individual who died before January 1, 2021, the L. Crandall-Hollick.
payment amount would be reduced from $1,400 CRS Insight IN11576, COVID-
to $0. 19 and Direct Payments to
The payment would phase out ratably (i.e., Individuals: Comparison of the
proportionally) between $75,000 and $100,000 Second Round of “Stimulus
for single filers, $112,500 and $150,000 for head Checks” in P.L. 116-260 to the
of household filers, and $150,000 and $200,000 First Round in the CARES Act
for married joint filers. The larger the total credit (P.L. 116-136), by Margot L.
amount, the faster the payment would phase out Crandall-Hollick.
using this method.
CRS Insight IN11575, COVID-
Eligible individuals and dependents would 19 and Direct Payments to
generally need to have a social security number Individuals: Frequently Asked
(SSN) to receive the payment. (Adoption Questions (FAQs) About the
taxpayer ID numbers would also be valid for Second Round of “Stimulus
dependents.) The maximum payment amount Checks” in P.L. 116-260, by
($1,400) would be reduced to $0 for each Margot L. Crandall-Hollick.
otherwise eligible individual or qualifying
CRS Insight IN11580, COVID-
dependent who does not have an SSN (i.e., they
19 and Direct Payments:
have an individual taxpayer identification number,
Summary of the CASH Act (H.R.
or ITIN, instead). This provision would not apply
9051, 116th Congress)
to married members of the Armed Forces if at
Modifications to “Stimulus
least one spouse had an SSN. In such cases, they
Checks”, by Margot L. Crandall-
would be eligible for up to $2,800. If no eligible
Hollick.
individual had an SSN (i.e., an unmarried taxpayer
does not have an SSN or neither spouse of a
married joint filing couple has an SSN), they
Congressional Research Service 15
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
would still receive a payment for a qualifying
dependent with an SSN.
The advanced payment of the credit would
generally be exempt from offset by Treasury
prior to when the payment is issued for certain
past-due debts owed by the recipient (including
past-due child support). However, the amount
the taxpayer would claim as a credit on their
2021 tax returns would generally be subject to
offset.
For eligible individuals who did not file a 2020 or
2019 income tax return, the IRS would be given
broad authority to make payments based on
information available to the Treasury, in a similar
manner as was done with the second round of
payments enacted under P.L. 116-260.
Treasury would be directed to make payments to
the U.S. territories (mirror code and non-mirror
code) equal to the aggregate amount issued to
their residents as a result of this provision. (Many
territorial residents will receive this benefit under
a version of the provision administered via the
territorial government, rather than the IRS.)
These payments would not be taxable. In
addition, like other tax credits, these payments
would not count as income or resources for a
12-month period in determining eligibility for, or
the amount of assistance provided by, any
federally funded public benefit program.
If a taxpayer received a larger advanced credit in
2021 than they were eligible for on their 2021
income tax return, they generally would not be
required to pay it back. If an individual received
an advanced payment less than what they were
eligible for on their 2021 income tax return, they
could claim the difference on that return (filed in
2021).
Part 2—Child Tax Credit
Child Tax Credit For 2021, would temporarily increase the For more information, see
Improvements for amount of the child tax credit for low- and CRS Insight IN11613, The Child
2021 moderate-income taxpayers to up to $3,600 per Tax Credit: Proposed Expansion
child for a young child and up to $3,000 for older in the American Rescue Plan Act
children by modifying several provisions of the of 2021 (ARPA; H.R. 1319), by
existing credit. First, the bill would eliminate the Margot L. Crandall-Hollick.
earned-income-based phase-in of the refundable
portion of the child credit (often referred to as For background, see
the “additional child credit” or ACTC) and CRS Report R41873, The Child
eliminate the maximum amount of the ACTC Tax Credit: How It Works and
($1,400). Hence, the child credit would be “fully Who Receives It, by Margot L.
refundable” and available to otherwise eligible Crandall-Hollick.
taxpayers with no earned income. Second, the CRS Report R46502, The Child
bill would increase the maximum age for an Tax Credit: Selected Legislative
eligible child to 17. Third, the bill would increase Proposals in the 116th Congress,
the maximum amount of the credit from $2,000 by Margot L. Crandall-Hollick.
per child to $3,600 per child for a young child (0-
5 years old) and $3,000 per child for an older
Congressional Research Service 16
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
child (6-17 years old). This increase in the
maximum child credit of $1,600 per child for
young children and $1,000 per child for older
children would gradually phase out at a rate of
5% as income exceeded specified thresholds until
the credit amount equaled the current-law
maximum of $2,000 per child. These thresholds
would be $75,000 for single filers, $112,500 for
head of household filers, and $150,000 for
married joint filers. (The actual income level at
which the credit phased down to $2,000 per
child would depend on the number and age of
qualifying children.) For most families, the credit
would then remain at its current-law level and
phase out when income exceeded the current-
law thresholds of $200,000 ($400,000 for
married joint filers).a
Would direct the Treasury to issue half of the
expected 2021 credit in periodic payments
beginning July 1, 2021. These periodic payments
would generally be of equal size. The remaining
half of the total 2021 credit would be claimed on
a 2021 income tax return filed in early 2022. The
amount of the payments advanced in 2021 would
be estimated based on 2020 income tax data, or
if unavailable, 2019 income tax data. The
advanced child credit payments would reduce the
child credit received with a 2021 return. In cases
where a taxpayer receives more in advanced
payments than they are eligible for (whether due
to changes in income, changes in filing status, or
changes in the number of eligible children who
live with the taxpayer between 2021 and the year
that provides data on which the advanced credit
is based [2020 or 2019]), taxpayers would
generally need to repay total aggregate advanced
payments. In cases where a taxpayer received
excess advanced payments due to net changes in
the number of qualifying children between 2020
(or 2019) and 2021, repayment obligations would
be reduced for low- and moderate-income
taxpayers. Specifically, taxpayers with income
below $40,000 for single filers, $50,000 for head
of household filers, and $60,000 for joint filers in
2021 would not need to repay up to $2,000 per
qualifying child in advanced credit overpayments
(the $2,000 amount is referred to as the “safe
harbor amount”). Taxpayers with income above
these thresholds but below $80,000 for single
filers, $100,000 for head of household filers, and
$120,000 for married joint filers would gradually
have the safe harbor amount reduced to $0 per
qualifying child. Hence, taxpayers with income
over $80,000 for single filers, $100,000 for head
of household filers, and $120,000 for married
joint filers in 2021 would need to repay the
entire amount of the overpayment.
Congressional Research Service 17
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
The bill would create an online portal to allow
taxpayers the options to opt out of receiving
advanced payments and to provide information
regarding changes in income, marital status, and
number of qualifying children in order to modify
the advanced credit amounts.
Advanced payments would not be subject to
offset prior to when the payment is issued for
certain past-due debts owed by the recipient.
However, the amount the taxpayer claims as a
credit on their 2021 tax returns would generally
be subject to offset.
The bill would allow the Treasury to adjust
income tax withholding to accommodate these
advance payments.
Advanced payments would generally not be
available to eligible residents of U.S. territories.
Application of the Would effectively expand child credit eligibility to For background, see
Child Tax Credit in residents of U.S. territories permanently. For CRS Report R44651, Tax Policy
Possessions “mirror code” territories, the Treasury would and U.S. Territories: Overview
make payments equal to the territory’s costs of and Issues for Congress, by Sean
the child tax credit. For American Samoa (a non- Lowry.
mirror code territory), the Treasury would make
payments equal to the territory’s costs of the
child tax credit as if it were a mirror code
territory. In contrast, eligible residents of Puerto
Rico (also a non-mirror code territory) would file
for the credit directly with the IRS.
Part 3—Earned Income Tax Credit
Strengthening the For 2021, would temporarily expand both For more information, see
Earned Income Tax eligibility for and the amount of the earned CRS Insight IN11610, The
Credit for Individuals income tax credit (EITC) for taxpayers without “Childless” EITC: Summary of
with no Qualifying qualifying children by modifying the eligibility age Current Law and Proposed
Children and credit formula. Expansion in the American
Regarding eligibility age, would expand eligibility Rescue Plan Act of 2021 (ARPA;
for the EITC for individuals with no qualifying H.R. 1319), by Margot L.
children—sometimes referred to as the “childless Crandall-Hollick.
EITC”—by reducing the minimum eligibility age For background, see
from 25 to 19 for most workers. In other words,
this change would allow most eligible workers CRS Report R43805, The
ages 19 to 24 to claim the childless EITC. For Earned Income Tax Credit
students who are attending school at least part- (EITC): How It Works and Who
time, the age limit would be temporarily reduced Receives It, by Margot L.
from 25 to 24.b For former foster children and Crandall-Hollick, Gene Falk,
youth who are homeless, the minimum age would and Conor F. Boyle.
temporarily be reduced from 25 to 18. The bill
would also temporarily eliminate the upper age
limit, so workers aged 65 and older would be
eligible.
Regarding the credit amount, would temporarily
increase the childless EITC by increasing the
earned income amount (the minimum income
necessary to receive the maximum credit
amount) and phaseout threshold amount (the
maximum income level at which taxpayers
receive the maximum credit amount before it
Congressional Research Service 18
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
begins to phase out) to $9,820 and $11,610,
respectively, while also doubling the phase-in and
phaseout rates from 7.65% to 15.3%. The
maximum childless EITC would increase from
$543 to $1,502 in 2021.
Taxpayer Eligible for Would permanently allow taxpayers who
Childless Earned currently cannot claim the childless EITC because
Income Credit in Case all of their qualifying children do not have SSNs
of Qualifying Children to be eligible to claim the childless EITC.
Who Fail to Meet
Certain Identification
Requirements
Credit Allowed in Would permanently allow married taxpayers
Case of Certain who file their tax returns as married filing
Separated Spouses separately to claim the EITC if they live with a
child for whom they can claim the EITC for more
than half the year and either (1) do not have the
same principal place of abode as their spouse for
the last six months of the year, or (2) have a
decree, instrument, or agreement (i.e., other
than a divorce decree) and do not live with their
spouse at the end of the year.
Modification of Would permanently modify the disqualified
Disqualified investment income test. Under current law,
Investment Income taxpayers with investment income over a certain
Test threshold—$3,650 in 2020 and 2021—are
ineligible for the EITC. Disqualified investment
income is defined as interest income (including
tax-exempt interest), dividends, net rent, net
capital gains, and net passive income. It also
includes royalties from sources other than the
filer’s ordinary business activities. This provision
would permanently raise this amount to $10,000
and annually adjust it for inflation beginning in
2022.
Application of Earned Would permanently provide authority to make
Income Tax Credit in payments to Puerto Rico, American Samoa, and
Possession of the mirror-code territories for amounts they pay out
United States in the EITC. For Puerto Rico and American
Samoa, such payments would be contingent upon
increasing the amount of their EITC or enacting
an EITC, respectively.
Temporary Special For the purposes of calculating their EITC on
Rule for Determining their 2021 income tax return, would allow
Earned Income for taxpayers to substitute their 2019 earned income
Purposes of Earned for their 2021 earned income if their earned
Income Tax Credit income at the end of 2021 was less than their
2019 earned income.
Part 4—Dependent Care Assistance
Refundability and For 2021, would temporarily expand the child For background, see
Enhancement of Child and dependent care credit by making the credit CRS Report R44993, Child and
and Dependent Care refundable and making it larger for most workers. Dependent Care Tax Benefits:
Tax Credit The CDCTC credit amount is a product of the How They Work and Who
amount of qualifying expenses (which is subject Receives Them, by Margot L.
to a cap) and the credit rate. The bill would
Congressional Research Service 19
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
increase the cap on qualifying expenses from Crandall-Hollick and Conor F.
$3,000 for one child and $6,000 for two or more Boyle.
children to $8,000 and $16,000, respectively. The
bill would also increase the credit rate for
workers with $185,000 or less of income (the
credit rate would remain the same as under
current law for those with income over $185,000
up to $400,000 [i.e., 20%], and be reduced from
current law for those with over $400,000 of
income). Specifically, for those with less than
$125,000 of income, the credit rate would
increase to 50% (from 35%) of expenses. This
50% credit rate would gradually phase down to
20% until taxpayers had $185,000 of income. For
those with more than $185,000 of income up to
$400,000, the credit rate would then remain at
20%, gradually falling to zero when income
exceeds $440,000. As a result, those with income
over $440,000 would not be eligible for the
credit.
By making the credit refundable, the bill would
effectively expand eligibility to lower-income
taxpayers. Under current law, the CDCTC is a
nonrefundable credit, meaning the value of the
credit cannot exceed a taxpayer’s income tax
liability. As a result, those with little or no
income tax liability, including many low-income
taxpayers, receive little or no benefit from the
current credit.
In combination, these changes would increase the
maximum amount of the CDCTC from $2,100 to
$8,000, based on expenses and income.
The bill would allow the Treasury to make
payments to Puerto Rico, American Samoa, and
mirror-code territories for the cost of providing
the refundable CDCTC in 2021 to their
territorial residents. (Non-mirror code
territories [i.e., Puerto Rico and American
Samoa] would need to develop a plan, approved
by the Treasury Secretary, to distribute the
amounts of the refundable CDCTC to their
residents.)
Increase in Exclusion For 2021, would temporarily increase the
for Employer- maximum amount of qualifying child care
Provided Dependent expenses that eligible taxpayers could exclude
Care Assistance from their income from $5,000 to $10,500.
Part 5—Credits for Paid Sick and Family Leave
Payroll Credits Would extend the Families First Coronavirus For background, see
Response Act (FFCRA; P.L. 116-127) employer CRS In Focus IF11739, Payroll
payroll tax credits for paid sick and paid family Tax Credit for COVID-19 Sick
leave from March 31, 2021, through September and Family Leave, by Molly F.
30, 2021. Sherlock.
FFCRA paid sick leave was limited to 10 days per
employee. This provision would reset the 10-day
limit, starting April 1, 2021, for employers
Congressional Research Service 20
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
claiming the credit for paid sick leave provided to
their employees.
Would expand the paid sick and paid family leave
credits to allow credits for leave taken to obtain
immunization related to COVID-19 or recover
from any injury, disability, illness, or condition
related to COVID-19 immunization.
Would expand the definition of qualifying paid
family leave to allow family leave payroll tax
credits to be claimed for all qualifying uses of paid
sick time, including for leave provided if the
employee is subject to a quarantine or isolation
order due to COVID-19 or is caring for
someone in a similar situation.
The tax credit for family leave wages is limited to
$200 per day, and $10,000 total per employee.
This provision would increase this limit on the
tax credit for paid family leave wages, allowing
the credit on up to $12,000 in paid family leave
wages.
Would add a nondiscrimination rule to the paid
leave payroll tax credits, providing employers
could not claim the credits if paid leave provided
to employees discriminates in favor of highly
compensated employees or full-time employees,
or discriminates on the basis of employment
tenure with the employer.
The paid sick and paid family leave tax credits are
currently claimed against the Old-Age, Survivors
and Disability Insurance (OASDI) tax, or the
equivalent amount of the Railroad Retirement
Tax Act (RRTA) tax. This provision would
restructure the paid sick and family leave payroll
tax credits to be claimed against the employer’s
share of the hospital insurance (HI) payroll tax,
after March 31, 2021. The employer’s share is
1.45% of wages paid to employees. This credit
would not affect amounts transferred to the
Federal Hospital Insurance Trust Fund.
Government employers, including state and local
government employers, are not allowed to claim
paid leave payroll tax credits. This provision
would provide that 501(c)(1) organizations and
501(a) organizations could claim the tax credits,
making certain state and local governments, as
well as 501(c)(1) federal government
instrumentalities, tax-credit eligible.
Provision provides that paid sick and paid family
leave payroll tax credits can be increased by the
employer’s share of OASDI and HI payroll taxes
(and equivalent RRTA tax) for the paid leave
wages. Denial of double benefit applies, and gross
income of the employer is increased by the
amount of the credit provided by this section.
Congressional Research Service 21
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Credit for Sick Leave Under FFCRA, self-employed individuals are For background, see
for Certain Self- allowed a refundable income tax credit for paid CRS In Focus IF11739, Payroll
Employed Individuals sick leave. This provision would extend and Tax Credit for COVID-19 Sick
expand the paid sick leave tax credits for self- and Family Leave, by Molly F.
employed individuals, similar to the modifications Sherlock.
made for employers (described above).
Credit for Family Under FFCRA, self-employed individuals are For background, see
Leave for Certain Self- allowed a refundable income tax credit for paid CRS In Focus IF11739, Payroll
Employed Individuals family leave. This provision would extend and Tax Credit for COVID-19 Sick
expand the paid family leave tax credits for self- and Family Leave, by Molly F.
employed individuals, similar to the modifications Sherlock
made for employers (described above). Tax
credits could be claimed for up to 60 days of
family leave for self-employed individuals.
Part 6—Employee Retention Credit
Extension of Through June 30, 2021, the employee retention For background, see
Employee Retention and rehiring tax credit is 70% of qualified wages. CRS In Focus IF11721, The
Credit The refundable payroll credit can be computed Employee Retention and
on up to $10,000 in qualified wages paid to an Employee Retention and Rehiring
eligible employee per calendar quarter. Thus, the Tax Credits, by Molly F.
maximum credit amount for 2021 is $14,000 Sherlock.
(70% of up to $20,000 in qualified wages paid
over the first two quarters). Qualified wages
depend on the number of employees the
employer had in 2019. For employers with more
than 500 full-time employees, qualified wages are
wages paid when employee services are not
provided. For employers with 500 or fewer full-
time employees, all wages paid by eligible
employers are credit-eligible.
This provision would extend the employee
retention credit through December 31, 2021.
The credit would be restructured to be claimed
against the employer’s share of the hospital
insurance (HI) payroll tax (as opposed to the
OSADI and equivalent amount of RRTA tax).
Congressional Research Service 22
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Part 7—Premium Tax Credit
Improving For 2021 and 2022, would temporarily expand For background, see
Affordability by eligibility for and the amount of the premium tax CRS Report R44425, Health
Expanding Premium credit (PTC) by modifying the income eligibility Insurance Premium Tax Credits
Assistance for criteria and credit formula. and Cost-Sharing Subsidies, by
Consumers Regarding income, would temporarily expand Bernadette Fernandez.
eligibility by eliminating the current-law phaseout
for households with annual incomes above 400%
of the federal poverty level (FPL).
Regarding the formula, would temporarily
increase the credit amount by reducing the
percentage of annual income that eligible
households would be required to contribute
toward the premium. The temporary percentages
would range from 0.0% to 8.5% of household
income, with higher-income groups subject to
the larger percentages, as specified.
Temporary For 2020, would temporarily provide tax relief to
Modification of individuals who would be subject to the current-
Limitations on law requirement to pay back PTC amounts that
Reconciliation of Tax were provided in excess. Would temporarily
Credits for Coverage suspend the recapture of excess credit amounts
Under a Qualified under the current tax reconciliation process.
Health Plan with
Advance Payments of
Such Credit
Congressional Research Service 23
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
Application of For 2021, would temporarily expand eligibility for For background, see
Premium Tax Credit and the amount of the PTC for certain individuals CRS Report R45478,
in Case of Individuals who receive unemployment compensation (UC). Unemployment Insurance:
Receiving Would temporarily deem individuals who receive Legislative Issues in the 116th
Unemployment UC for any week in calendar year 2021 to have Congress, by Julie M. Whittaker
Compensation During met the PTC income eligibility criteria. Would and Katelin P. Isaacs.
2021 temporarily disregard any household income
above 133% FPL.
Part 8—Miscellaneous Provisions
Repeal of Election to U.S. firms are eligible for foreign tax credits up to For background, see
Allocation Interest, the amount of U.S. tax paid on foreign-source CRS Report RL34494, The
Etc. on Worldwide income. To impose this limit, U.S. and foreign- Foreign Tax Credit’s Interest
Basis source income must be determined. Certain Allocation Rules, by Jane G.
deductions are allocated between U.S. and Gravelle and Donald J.
foreign sources, including interest. Until 2021, Marples.
firms allocated interest excluding that paid by
foreign firms (called “waters edge” allocation).
Under current law, beginning in 2021, firms can
elect to include interest paid by related foreign
firms. This treatment is called worldwide
allocation. It is beneficial for some firms because
some of the interest paid for foreign firms is
allocated to U.S. sources, increasing foreign-
source income, increasing the limit on the foreign
tax credit and, thus, increasing foreign tax credits
that reduce tax liability. A provision was adopted
in 2004 to move to worldwide allocation, but it
has been delayed by other legislation and is
scheduled to begin in 2021. This provision would
repeal the election to move to worldwide
allocation.
Tax Treatment of Under normal tax rules, a forgiven debt is For background, see
Targeted Economic generally treated as taxable income to the CRS Insight IN11378, IRS
Injury Disaster Loan borrower. Prior legislation has allowed forgiven Guidance Says No Deduction Is
Advances loans for certain programs (such as those Allowed for Business Expenses
provided by the Paycheck Protection Program, or Paid with Forgiven PPP Loans, by
PPP, and certain other small business loans) to be Sean Lowry and Jane G.
excluded from income. Following an IRS ruling Gravelle.
that associated expenses would not be
deductible, legislation specified that associated CRS Report R46284, COVID-19
expenses would be deductible. This provision Relief Assistance to Small
would extend this treatment (exclusion from Businesses: Issues and Policy
income and deduction of expenses) to additional Options, by Robert Jay Dilger,
Economic Injury Disaster Loan (EIDL) advances Bruce R. Lindsay, and Sean
on loans that are not required to be repaid. Lowry.
CRS Insight IN11370, SBA EIDL
and Emergency EIDL Grants for
COVID-19, by Bruce R. Lindsay.
Tax Treatment of Under normal tax rules, a forgiven debt is treated For background, see
Restaurant as taxable income to the borrower. Prior CRS Insight IN11378, IRS
Revitalization Grants legislation has allowed forgiven loans for certain Guidance Says No Deduction Is
programs (such as those provided by the Allowed for Business Expenses
Paycheck Protection Program, or PPP, and Paid with Forgiven PPP Loans, by
certain other small business loans) to be Sean Lowry and Jane G.
excluded from income. Following an IRS ruling Gravelle.
that associated expenses would not be
Congressional Research Service 24
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Section Title Description CRS Resources
deductible, legislation specified that associated CRS Report R46284, COVID-19
expenses would be deductible. This provision Relief Assistance to Small
would extend this treatment (exclusion from Businesses: Issues and Policy
income and deduction of expenses) to additional Options, by Robert Jay Dilger,
grants made from the new Restaurant Bruce R. Lindsay, and Sean
Revitalization Fund. Lowry.
Modification of Credit card companies and electronic payment
Exceptions for processors are required to annually file aggregate
Reporting of Third transaction reports with the IRS listing total
Party Network annual payments to merchants (Internal Revenue
Transactions Code §6050W). A de minimus reporting
exception provides that third-party settlement
organizations are only required to report
transactions of payees who receive more than
$20,000 and conduct more than 200 transactions
per year. This provision would modify the
threshold for reporting, setting it at $600 per
year.
Source: H.R. 1319 Title IX Subtitle G, as passed the House on February 27, 2021.
a. For example, if a married couple had three children under 6 years old, the maximum credit they would be
eligible for would be $10,800 ($3,600 x 3) if they had income under $150,000. For taxpa yers with income
over $150,000, the additional $4,800 of the credit ($1,600 x 3) would be reduced at a rate of 5%. At
$246,000 of income, the credit would be $6,000 ($2,000 x 3), the current -law amount. The credit would
remain at this amount until the taxpayer’s income reached the current-law thresholds of $400,000. At that
point, the credit would phase out under the provisions of current law (5% phaseout rate).
b. The legislation includes as part of the definition of a student someone carrying half or more of the normal
full-time workload for their program of study, as defined under Internal Revenue Code (IRC) §25A(b)(3).
Congressional Research Service 25
Table 3. Estimated Cost of Title IX Subtitle G of the American Rescue Plan Act of 2021 (ARPA; H.R. 1319) as amended by
S.Amdt. 891
Fiscal Years; Millions of Dollars
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 1—2021 Recovery Rebates to Individuals
Recovery Rebates to Individuals 393,714 16,918 - - - - - - - - - 410,632
Part 2—Child Tax Credit
Child Tax Credit: Improvements for 25,826 79,249 710 721 725 721 307 311 316 320 323 109,529
2021 and Application of the Child
Tax Credit in Possessions
Part 3—Earned Income Tax Credit
Strengthening the Earned Income 521 11,361 - - - - - - - - - 11,882
Tax Credit for Individuals with no
Qualifying Children
Taxpayer Eligible for Childless (i) 12 2 1 1 1 2 2 2 2 2 26
Earned Income Credit in Case of
Qualifying Children Who Fail to
Meet Certain Identification
Requirements
Credit Allowed in Case of Certain 1 20 21 22 23 25 25 27 28 30 31 252
Separated Spouses
Modification of Disqualified 24 330 198 200 225 229 238 233 231 240 251 2,399
Investment Income Test
Application of Earned Income Tax - 738 746 764 781 798 814 831 849 867 885 8,074
Credit in Possession of the United
States
Temporary Special Rule for - 3,185 - - - - - - - - - 3,185
Determining Earned Income for
Purposes of Earned Income Tax
Credit
Total of Earned Income Tax Credit 546 15,646 967 987 1,030 1,053 1,079 1,093 1,110 1,139 1,169 25,818
CRS-26
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 4—Dependent Care Assistance
Refundability and Enhancement of 2,127 5,837 - - - - - - - - - 7,964
Child and Dependent Care Tax
Credit
Increase in Exclusion for Employer- 78 39 - - - - - - - - - 117
Provided Dependent Care
Assistance
Total of Dependent Care Assistance 2,205 5,876 - - - - - - - - - 8,081
Part 5—Credits for Paid Sick and Family Leave
Extension and Modification of 4,506 1,747 (ii) (ii) (ii) (ii) (ii) - - - - 6,253
Credits for Paid Sick and Family
Leave
Part 6—Employee Retention Credit
Extension and Modification of the 3,076 7,146 (ii) (ii) (ii) (ii) (ii) - - - - 10,222
Employee Retention Credit
Part 7—Premium Tax Credit
Improving Affordability by Expanding 4,137 22,234 7,964 536 -23 - - - - - - 34,847
Premium Assistance for Consumers
Temporary Modification of 4,696 1,565 - - - - - - - - - 6,261
Limitations on Reconciliation of Tax
Credits for Coverage Under a
Qualified Health Plan with Advance
Payments of Such Credit
Application of Premium Tax Credit 2,624 1,660 232 - - - - - - - - 4,516
in Case of Individuals Receiving
Unemployment Compensation
During 2021
Total of the Premium Tax Credit 11,457 25,459 8,196 536 -23 - - - - - - 45,624
CRS-27
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 8—Miscellaneous Provisions
Repeal of Election to Allocation -335 -1,277 -2,023 -2,284 -2,383 -2,334 -2,358 -2,385 -2,343 -2,283 -2,327 -22,331
Interest, Etc. on Worldwide Basis
Tax Treatment of Targeted EIDL Estimate Not
Advances Availablea
Tax Treatment of Restaurant Estimate Not
Revitalization Grants Availablea
Modification of Exceptions for - -146 -1,081 -751 -789 -829 -870 -913 -959 -1,007 -1,057 -8,403
Reporting of Third Party Network
Transactions
Modification of Treatment of 1 8 8 9 9 9 (i) (i) - - - 44
Student Loan Forgiveness
Total of Miscellaneous Provisions -334 -1,415 -3,096 -3,026 -3,163 -3,154 -3,228 -3,298 -3,302 -3,290 -3,384 -30,690
Source: Joint Committee on Taxation, Estimated Revenue Effects Of An Amendment in the Nature of a Substitute to H.R. 1319, The “American Rescue Plan Act Of
2021,”As Passed by the House of Representatives And Scheduled for Consideration by the Senate, JCX-13-21, March 4, 2021, at
https://www.jct.gov/publications/2021/jcx-13-21/.
Notes: A negative number indicates the provision is estimated to result in a revenue gain. An (i) indicates a cost of less than $500,000. An (ii) indicates a gain of less than
$500,000.
a. The Joint Committee on Taxation (JCT) revenue estimate indicates that the cost estimate for this provision will be provided b y the Congressional Budget Office.
The estimate is not included in JCT’s estimate of the revenue effects.
CRS-28
Table 4. Estimated Cost of Title IX Subtitle G of the American Rescue Plan Act of 2021 (ARPA; H.R. 1319) as passed the
House of Representatives February 27, 2021
Fiscal Years; Millions of Dollars
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 1—2021 Recovery Rebates to Individuals
Recovery Rebates to Individuals 404,937 17,400 - - - - - - - - - 422,337
Part 2—Child Tax Credit
Child Tax Credit: Improvements for 25,826 79,249 710 721 725 721 307 311 316 320 323 109,529
2021 and Application of the Child
Tax Credit in Possessions
Part 3—Earned Income Tax Credit
Strengthening the Earned Income 521 11,361 - - - - - - - - - 11,882
Tax Credit for Individuals with no
Qualifying Children
Taxpayer Eligible for Childless (i) 12 2 1 1 1 2 2 2 2 2 26
Earned Income Credit in Case of
Qualifying Children Who Fail to
Meet Certain Identification
Requirements
Credit Allowed in Case of Certain 1 20 21 22 23 25 25 27 28 30 31 252
Separated Spouses
Modification of Disqualified 24 330 198 200 225 229 238 233 231 240 251 2,399
Investment Income Test
Application of Earned Income Tax - 738 746 764 781 798 814 831 849 867 885 8,074
Credit in Possession of the United
States
Temporary Special Rule for - 3,185 - - - - - - - - - 3,185
Determining Earned Income for
Purposes of Earned Income Tax
Credit
Total of Earned Income Tax Credit 546 15,646 967 987 1,030 1,053 1,079 1,093 1,110 1,139 1,169 25,818
CRS-29
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 4—Dependent Care Assistance
Refundability and Enhancement of 2,127 5,837 - - - - - - - - - 7,964
Child and Dependent Care Tax
Credit
Increase in Exclusion for Employer- 78 39 - - - - - - - - - 117
Provided Dependent Care
Assistance
Total of Dependent Care Assistance 2,205 5,876 - - - - - - - - - 8,081
Part 5—Credits for Paid Sick and Family Leave
Extension and Modification of 4,409 1,742 (ii) (ii) (ii) (ii) (ii) - - - - 6,151
Credits for Paid Sick and Family
Leave
Part 6—Employee Retention Credit
Extension and Modification of the 2,791 5,993 (ii) (ii) (ii) (ii) (ii) - - - - 8,784
Employee Retention Credit
Part 7—Premium Tax Credit
Improving Affordability by Expanding 4,137 22,234 7,964 536 -23 - - - - - - 34,847
Premium Assistance for Consumers
Temporary Modification of 4,696 1,565 - - - - - - - - - 6,261
Limitations on Reconciliation of Tax
Credits for Coverage Under a
Qualified Health Plan with Advance
Payments of Such Credit
Application of Premium Tax Credit 2,624 1,660 232 - - - - - - - - 4,516
in Case of Individuals Receiving
Unemployment Compensation
During 2021
Total of the Premium Tax Credit 11,457 25,459 8,196 536 -23 - - - - - - 45,624
CRS-30
Provision 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2021-2031
Part 8—Miscellaneous Provisions
Repeal of Election to Allocation -335 -1,277 -2,023 -2,284 -2,383 -2,334 -2,358 -2,385 -2,343 -2,283 -2,327 -22,331
Interest, Etc. on Worldwide Basis
Tax Treatment of Targeted EIDL Estimate Not
Advances Availablea
Tax Treatment of Restaurant Estimate Not
Revitalization Grants Availablea
Modification of Exceptions for - -146 -1,081 -751 -789 -829 -870 -913 -959 -1,007 -1,057 -8,403
Reporting of Third Party Network
Transactions
Total of Miscellaneous Provisions -335 -1,423 -3,104 -3,035 -3,172 -3,163 -3,228 -3,298 -3,302 -3,290 -3,384 -30,734
Source: Joint Committee on Taxation, Estimated Revenue Effects Of H.R. 1319, The “American Rescue Plan Act Of 2021,” Scheduled For Consideration By The House Of
Representatives On February 26, 2021, JCX-12-21, February 26, 2021, at https://www.jct.gov/publications/2021/jcx-12-21/.
Notes: A negative number indicates the provision is estimated to result in a revenue gain. An (i) indicates a cost of less than $500 ,000. An (ii) indicates a gain of less than
$500,000.
a. The Joint Committee on Taxation (JCT) revenue estimate indicates that the cost estimate for this provision will be provided by the Cong ressional Budget Office.
The estimate is not included in JCT’s estimate of the revenue effects.
CRS-31
Tax Provisions for COVID-19 Relief: Subtitle G – Promoting Economic Security
Author Information
Molly F. Sherlock Jane G. Gravelle
Specialist in Public Finance Senior Specialist in Economic Policy
Margot L. Crandall-Hollick
Acting Section Research Manager
Disclaimer
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Congressional Research Service R46680 · VERSION 9 · UPDATED 32