Optimal Taxation When Firms Can Underreport and Split
Firms can lower their taxes by underreporting their tax base and by splitting their business among separately taxed entities. Theories of optimal taxation with avoidance and evasion generally do not consider tax-motivated splitting. In this paper, a tax authority chooses a marginal tax schedule and enforcement levels, while firms with heterogeneous tax bases and costs choose a sequence of underreports and splits in order to minimize the sum of their tax payments and manipulation costs. Optimal rates follow a Ramsey rule where the mass of entities reporting above a threshold plays the role of quantity demanded. Under certain conditions, the optimal schedule in the presence of splitting has flat top rates and higher lower rates than the optimal schedule with only underreporting. The ratio of the mass of entities reporting above a threshold to the mass of entities whose base is above that threshold ranks small reforms to the current schedule without requiring manipulation costs. This ratio can be estimated through audit and ownership data.