
CGT change will increase business investment costs says RBA
CGT change will increase business investment costs: RBA analysis
The Reserve Bank says the Albanese government’s changes to capital gains tax will modestly increase the cost of investment for business, which economists warn will exacerbate Australia’s productivity challenge.
Internal RBA documents analysing Labor’s tax changes said they could deter investment in high-growth companies, including start-ups, and encourage investment in lower-growth, higher dividend-paying firms.
The RBA documents said there would be a “modest increase” in the overall cost of capital for non-financial businesses across the economy of 0.11 of a percentage point to 0.26 of a percentage point – the equivalent of about one interest rate rise.
The increase in the cost of capital would be larger for start-ups, unlisted firms and high-growth sectors, including their underlying investors such as venture capital and private equity, the RBA noted in documents released in response to a freedom of information request.
A high-income individual investor could face an effective tax rate of 32.9 per cent on capital gains, up from the previous 22.5 per cent.
But the capital cost increase would be smaller for established and larger listed companies on the ASX, lower-growth sectors and businesses with more investment from foreign investors and superannuation funds who were exempted from the CGT changes, the RBA noted.
The CGT changes will tax high returns more and low returns potentially less, relative to inflation.
The government axed the 50 per cent capital gains discount for most assets in its contentious May budget, but retained carve-outs for new-build homes, small businesses turning over less than $10 million and some innovative start-ups. Treasury is consulting on the start-up exemptions.
The changes sparked a backlash from business and investors, leading to the government pledging concessions for SMEs, start-ups and inheritances hit by a so-called “death tax”.
A new inflation-indexed system will begin on July 1, 2027, and tax real gains at a minimum rate of 30 per cent.
A low-income investor could see their effective tax rate rise to 19.3 per cent on capital gains, up from 12.5 per cent, due to the 30 per cent minimum tax rate, the RBA said.
The government also eliminated negative gearing for future housing investors – except new-build homes – and is introducing a 30 per cent minimum tax on discretionary trust distributions.
Treasury projects that the combined changes will increase the government’s tax take by $88 billion over a decade.
The RBA’s analysis of the CGT changes, conducted about two weeks after the May 12 budget, said increasing the effective tax rate on capital gains for some investors would raise the pre-tax returns they demanded to make their investment worthwhile.
“By making investment less attractive for some investors, these changes have the potential to increase the cost of capital for Australian businesses,” RBA analysts noted.
“The aggregate allocation of capital may tilt more towards sectors with more mature assets that generate steady income (e.g. utilities), and away from firms where capital gains comprise a large share of expected returns (e.g. start-ups).”
Because superannuation funds would retain the low 10 per cent tax rate on capital gains, the RBA said retail investors may shift away from direct equity investments towards investing via their super funds.
University of NSW economics professor Richard Holden said that a higher cost of capital made some marginal investment opportunities not financially worthwhile to pursue.
“Conceptually, raising the cost of capital means less investment,” Holden said.
“In the midst of a productivity crisis where we’ve had more than a decade of extremely lacklustre business investment, this makes business investment more expensive.”
Reserve Bank of Australia governor Michele Bullock said last week that historically weak productivity growth was constraining economic growth and contributing to inflation pressures.
Business investment in tools, machinery, equipment, and software has historically been a key driver of increased worker productivity.
Australia is experiencing a boom in investment in data centres, but investment by other businesses remains weak.
Treasury said in a May briefing note to the government that the average tax rate on capital gains will only increase from 19.3 per cent to 21.4 per cent over the next decade and is unlikely to affect overall investment in the economy.
Individuals hold less than 15 per cent of shares listed on the Australian Securities Exchange, and they will retain a strong incentive to invest in assets that are expected to deliver strong growth, Treasury said.
“Changes to the CGT arrangements for individuals is likely to have very little impact on the level of investment in Australian equities.
“Australian equities are mainly held by superannuation funds and foreign investors, and their tax settings are unchanged.”
Treasury secretary Jenny Wilkinson said in May that parts of the tax package would boost investment and productivity, including allowing small businesses to carry back losses against tax previously paid, expanding venture capital concessions and making the $20,000 instant asset write-off permanently higher and better targeting the research and development tax offset.