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NBS TECHNICAL NOTE 980

^<"»£AU of Historic Preservation Incentives of the

1976 Tax Reform Act: An Economic Analysis

U.S. DEPARTMENT OF COMMERCE/ National Bureau of Standards

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Historic Preservation Incentives

of the 1976 Tax Reform Act:

An Economic Analysis

ftB Zl 1979

. 5163

Stephen F. Weber

Center for Building Technology

National Engineering Laboratory

National Bureau of Standards

Washington, D.C. 20234

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U.S. DEPARTMENT OF COMMERCE, Juanita M. Kreps, Secretary

Jordan J. Baruch, Assistant Secretary for Science and Technology

U ^ NATIONAL BUREAU OF STANDARDS, Ernest Ambler, Director

Issued February 1979
Library of Congress Catalog Card Number 78-600068

National Bureau of Standards Technical Note 980

Nat. Bur. Stand. (U.S.). Tech. Note 980,32 pages (Feb. 1979) CODEN: NBTNAE

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WASHINGTON: 1979

For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402

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PREFACE

The potential for the reuse of existing buildings has

attracted national attention in the past decade through

such celebrated examples as Ghirardelli Square in San

Francisco and Trolley Square in Salt Lake City. Because of the public benefits that often accompany

the preservation and rehabilitation of historic

buildings, incentives to encourage this type of activity

have been proposed. Indeed, several tax incentives for

the preservation of certified historic buildings have

already been enacted as part of the Tax Reform Act of

1976 (P.L. 94-455, Section 2124). The purpose of this Technical Note is to determine how effective these tax incentives are in making historic preservation more

financially attractive than demolition and redevelopment. The Applied Economics Program of the Center for Building Technology, National Bureau of Standards

has conducted this research in order to assist potential ' investors and owners of historic properties in making

cost-effective decisions and to provide policy makers

with information on the effectiveness of tax incentives

for historic preservation. The approach developed in

this report could also be used to analyze incentives for other types of building rehabilitation.

Dr. Harold E. Marshall, Chief of the Applied

Economics Program and Rosalie T. Ruegg deserve

special thanks for their comments and suggestions for improving this report. The author is also grateful for

the helpful recommendations of the NBS reviewers, Dr. Paul W. Brown, Dr. Robert A. Glass, and Dr.

Carol A. Chapman. In the initial stages of this project,

Robert J. Kapsch provided invaluable assistance by

helping to focus the research and by organizing

meetings with staff members at the National Trust for Historic Preservation (NTHP). Russell V. Keune,

Michael S. Leventhal, Frank B. Gilbert, and Gregory

E. Andrews, all of NTHP, and Baird Smith and H. Ward Jandl, both of the Heritage Conservation and

Recreation Service, U.S. Department of the Interior, were very helpful in providing information about

historic preservation and the relevant details of the Tax Reform Act. H. Ward Jandl also generously

supplied the photographs of historic preservation

projects. The author is also greatly indebted to Bobbie

C. Cassard for a thorough search of the literature on

economic aspects of rehabilitation and historic preservation, to Joel Levy for development of the computer

programs, to Kimberly A. Hockenbery for computer

assistance, and to Sarah Stewart, Carol Thompson and

Kathleen Magruder for typing the manuscript.

Responsibility for any errors and shortcomings that Cover: This Boston Navy Shipyard building will be converted remain rests solely with the author. into apartments as illustrated by the architect's drawing.

Ill
ABSTRACT

The Tax Reform Act (TRA) of 1976 includes several provisions which affect the financial position of owners of income-producing historic buildings. This

report analyzes the effect of the TRA on the after-tax cost of two basic alternatives facing the owner: (1) rehabilitate the structure; or (2) demolish it and

redevelop the site. A life-cycle cost minimization

model was developed, programmed in BASIC

language, and applied in an after-tax comparison of six alternative situations representing rehabilitation and re- development both before and after the TRA. Under

the assumptions of the model used in this analysis, the TRA has made the rehabilitation option significantly more attractive than previously. The former tax bias in favor of demolition and redevelopment has been

reversed. Until now, this information on the life-cycle tax advantages of rehabilitating historic buildings has been unavailable. This report will help corporate

investors make cost-effective decisions regarding

historic preservation of nonresidential buildings and

provide policy makers with information on the

effectiveness of these tax incentives. The approach

utilized could be adapted to analyze incentives for other types of building rehabilitation. Key words: Adaptive reuse; buildings; demolition; economics; historic preservation; life-cycle costing; re- development; rehabilitation; tax incentives.
CONTENTS

Page PREFACE iii ABSTRACT \ iv EXECUTIVE SUMMARY 1

1. INTRODUCTION 2

1.1 PURPOSE AND SCOPE 2

1.2 ORGANIZATION 3

2. HISTORIC PRESERVATION PROVISIONS OF THE TAX REFORM ACT 4

2.1 ACCELERATED DEPRECIATION OF SUBSTANTIALLY

REHABILITATED BUILDINGS 4

2.2 RAPID AMORTIZATION OF REHABILITATION EXPENDITURES 4

2.3 DENIAL OF DEMOLITION COSTS AS CURRENT EXPENSES 5

2.4 DENIAL OF ACCELERATED DEPRECIATION FOR REPLACEMENT

STRUCTURES 6

3. ANALYTICAL FRAMEWORK 7

3.1 ALTERNATIVE SITUATIONS 7

3.2 LIFE-CYCLE COST MODEL 9

4. ANALYSIS OF RESULTS 11

5. CONCLUSIONS AND SUGGESTIONS FOR FURTHER RESEARCH 13 BIBLIOGRAPHY 15 APPENDIX A: DETAILED RESULTS 17 APPENDIX B: COMPUTER PROGRAMS 18 APPENDIX C: PUBLIC LAW 94-455, Section 2124 22

EXECUTIVE SUMMARY

The Tax Reform Act (TRA) of 1976 (P.L. 94-455)

contains a number of provisions which affect the

financial position of owners of income-producing

historic buildings. Prior tax law tended to penalize

historic preservation by allowing more rapid acceleration of depreciation schedules for new buildings and

by permitting demolition costs to be deducted in the

year in which they occur. The TRA has provided a more favorable tax environment for historic preservation by removing these tax penalties. The effect of the

tax changes depends on the type of building (residential versus nonresidential) and on the legal form of

ownership.

This Technical Note analyzes the effect of the TRA

on the after-tax cost of two basic alternatives facing

corporate owners of nonresidential historic buildings:

(1) rehabilitate the structure; or (2) demolish it and

redevelop the site. The purpose of this report is to help corporate

investors make cost-effective decisions regarding

historic preservation of nonresidential buildings and to provide policy makers with information on the

effectiveness of these tax incentives for historic preservation. The analytical approach developed in this report could also be applied to incentives for other

categories of building rehabilitation. The analysis is conducted from a life-cycle cost point

of view so that all of the financial impacts of the tax

provisions occurring over the lifetime of the structure can be taken into account. Thus, full consideration is given to the tax benefits occurring each year, as well

as to the tax liabilities occurring when the property is sold. The annual tax benefits arise from deductions for depreciation or for the special 5 -year rapid amortization allowed by the TRA. The tax liabilities arise both

from capital gains and from the recapture as ordinary

income of all or part of depreciation or amortization

deductions. The life-cycle cost model calculates the sum of the

following items: (1) rehabilitation costs (or demolition

and construction costs); (2) minus the present value of

annual depreciation or amortization write-offs: (3) plus

the present value of the capital gains taxes and

recapture taxes due when the property is sold; and (4) minus the present value of the proceeds from the sale. These calculations are made for rehabilitation and for redevelopment both before and after the TRA. For

the case of rehabilitation after the TRA, separate calculations are made for each of three alternative

provisions of the TRA: (1) accelerated depreciation

for substantial rehabilitation; (2) rapid amortization

with full recapture; and (3) rapid amortization with

partial recapture. Sensitivity analysis is conducted

with respect to several key parameters: (1) the holding

period; (2) the discount rate; and (3) demolition costs. The results indicate that the TRA has significantly affected the economic trade-off between rehabilitation and redevelopment for historic properties. Before the TRA, rehabilitation used to be between 4 percent and

9 percent more costly than redevelopment, whereas

after the TRA, the rapid amortization provision causes

rehabilitation to be between 13 percent and 28 percent

less costly than redevelopment. The accelerated depreciation provision for substantially rehabilitated structures is also seen to make rehabilitation less costly than redevelopment.

In conclusion, this study suggests that the TRA has

tipped the tax scale in favor of historic preservation. Current and prospective owners of historic structures now have a strong incentive to consider rehabilitation

as a serious alternative to demolition. Whereas

formerly there was a distinct tax bias in favor of demolition and redevelopment, now that bias has been

reversed, from the point of view of after-tax life-cycle

costs. This new information on the economic effects of

the TRA should be useful to corporate owners of

historic nonresidential properties as well as to anyone

interested in tax-incentives policies for the rehabilita- tion of all types of existing buildings.
1. INTRODUCTION

The potential for the reuse of existing buildings has

attracted national attention in the past decade through

such notable examples as Ghirardelli Square in San

Francisco and Trolley Square in Salt Lake City. In

these and many other cases, buildings that had out- lived the purposes for which they had originally been

designed have been adapted to new uses.' TTiis adaptive reuse of existing buildings can lead to such

private benefits as cost savings in comparison with new construction as well as such public benefits as the

revitalization of central cities and the preservation of

architecturally significant and aesthetically pleasing

buildings. Except in cases of public ownership, the

decision to reuse an existing building is primarily

based on the private owner's benefits and costs, which

can be significantly affected by the tax structure. Before 1976, the Federal income tax system tended to influence private decisions in favor of new construction. New income-producing buildings were

eligible for more accelerated depreciation schedules than existing buildings. In addition, demolition expenditures and the remaining undepreciated cost basis of the

existing building could be written off in the year demolition occurred. In the successful adaptive reuse examples cited above, the underlying economic

viability of the projects outweighed these tax considerations. Many other buildings with potential

for adaptive reuse have been demolished because of

this tax bias. With passage of the Tax Reform Act (TRA) of 1976

(P.L. 94-455), the tax environment confronting owners

of a special class of existing buildings, namely, incomeproducing certified historic structures, has changed."

Several provisions of the TRA have made it more

financially advantageous for such owners to preserve

historic buildings than was formerly the case. The

magnitude of this financial, tax-based advantage of

historic preservation is the subject of this report.

1.1 PURPOSE AND SCOPE

Two fundamental options which confront the owner

of an historic building are: (1) rehabilitation;^ or (2) deFor many beautifully illustrated examples of the adaptive

reuse of buildings, see Elisabeth Kendall Thompson (ed.). Recycling Buildings: Renovations, Remodelings, Restorations, and Reuses (New York: McGraw-Hill Book Company,

1977). For information on the adaptive use of historic structures, see U.S. Department of the Interior, National Park Service, A Selected Bibliography on Adaptive Use of Historic Buildings, Washington, D.C.. 1976.

' The terms rehabilitation and preservation are used

interchangeably in this report.

molition and redevelopment of the site. The purpose

of this report is to assess the comparative fmancial

attractiveness of each of these options both before and

after enactment of the TRA. The analysis is conducted on a life-cycle after-tax basis in order to take into account all tax consequences during the entire holding

period which affect the financial position of the owner. Thus, full consideration is given to the tax

benefits which occur each year, as well as to the tax

liabilities which occur when the property is sold. The

effects of the tax provisions of the TRA on the

relative financial advantage of historic preservation versus demolition and new construction are measured

and presented.

The scope of the present analysis is limited in several ways. In the first place, the focus is on the income tax

effects of the two options of rehabilitation or redevel- opment. All other consequences of such decisions are ignored by assuming that the before-tax costs of both

options are equal. Secondly, the analysis is consistent with the restrictions of the TRA by limiting consideration to certified historic buildings which are held for the production of income. Thirdly, whUe the TRA provisions apply to all types of historic buildings, this report covers only nonresidential uses. Fourthly, the effect of the tax provisions depends on

the building owner's marginal tax rates applicable to ordinary income and capital gains. For the present

analysis, the rates of a corporate owner were used.

Finally, the study ignores the possible effects of

inflation. The analytical framework developed in Section 3 could easily be adapted to treat the cases of

residential buildings, noncorporate ownership, and

nonzero rates of inflation.

Reliable information on the life-cycle tax advantages

of rehabilitating historic buildings in hght of the TRA

has been unavailable until recently.'* This report will help corporate investors make cost-effective decisions regarding historic preservation of nonresidential i buildings. The study will provide pohcy makers and ' those interested in the preservation of historic buildings with information on the effectiveness of the

tax incentives incorporated in the TRA. The approach

utilized could be adapted to analyze incentives for other types of building rehabilitation.

In another study. Wade R. Ragas and Ivan J. Miestchovich, Jr., "Historic Preservation and the 1976 Tax Reform Act," The Appraisal Journal, Vol. 46, No. 1 (January

1978), pp. 44-52, a simulation model is used to analyze one

provision of the TRA in terms of the present value of the

investor's equity in the property. Another provision is discussed in terms of the after-tax profit available from the

sale of an historic property. Neither analysis compares the two options of rehabilitation versus redevelopment nor

extends beyond a 5-year holding period.
IJ, ORGANIZATION

In the next section, the four provisions of the TRA

relevant to historic preservation are described: (1) accelerated depreciation for a substantially

rehabilitated historic building; (2) rapid 5-year amortization^ of rehabilitation expenses; (3) denial of demolition costs as current expenses; and (4) denial of

accelerated depreciation for new buildings constructed on the site of a demolished historic structure.

In Section 3, the framework for the analysis is established by defining the six alternative situations that are to be compared: (1) Redevelopment before

the TRA; (2) Redevelopment after the TRA; (3) Rehabilitation before the TRA; (4) Rehabilitation with the TRA provision for accelerated depreciation of the

cost basis; (5) Rehabilitation with the current TRA

provision for rapid amortization; and (6) Rehabilitation with a proposed revision of the TRA rapid amortization provision. The life-cycle cost minimization model

for comparing these six situations is also developed in

this section. Section 4 presents the results of the analysis and gives some indication of the degree of sensitivity of the

results to several of the key parameters, such as the discount rate, the holding period, and the percentage

of total cost attributable to demolition expenditures.

The final section offers a summary and several suggestions for further research in this area. Three

appendixes present the detailed results of the analysis

in tabular form, the listings of the computer programs

used in the study, as well as the text of relevant portions of the TRA.

^ As used in the TRA and in this report, the term amortization means writing off rehabilitation expenditures over a

5-year period.

Two views are shown of the Sibley Mansion in Rochester, New York, which now serves as corporate headquarters for an

international manufacturing firm. This rehabilitation project was one of the first to be approved by the Department of the

Interior under the Tax Reform Act of 1976.
2. HISTORIC PRESERVATION

PROVISIONS OF THE TAX

REFORM ACT

The special provisions of Section 2124 of the TRA

cover "certified historic structures" which are depreciable under Section 167 of the U.S. Tax Code.^

To qualify as depreciable the structure must produce

income or be used in a trade or business and not held

primarily as inventory for sale to customers. According to the TRA, a "certified historic structure"

is one which is listed in the National Register of

Historic Places, or is located within a National

Register Historic District and is certified by the Secretary of the Interior as being of historic significance to the district, or is within an historic

district designated by a State or local government

statute which is approved by the Secretary of the

Interior. At present, there are approximately 1 500

National Register historic districts and another 1000

State and locally designated districts which are

potentially certifiable. Within these districts there are over a million historic structures which could be

eligible for the special tax provisions as long as they

are used to produce income.

The first two TRA provisions to be discussed offer tax

benefits for rehabilitating historic structures, while the

last two impose tax penalties for destroying historic buildings. To qualify for the first two provisions, the

rehabilitation project must be certified by the Secretary of the Interior as being consistent with the

historic character of the property or the district.^ By

June 1978, over 190 rehabilitation projects in 33 states, involving a private investment of more than $175

million, had already been certified.*

For an excellent summary of the historic preservation

provisions of the TRA, see Covington and Burling, "Impact

of the Tax Reform Act of 1976 on the Preservation of

Historical Properties," an unpublished paper prepared for the National Trust for Historic Preservation, January 27, 1977. For the exact language of the relevant provisions of

the TRA, see appendix C. The procedures and standards for certified rehabilitation appear in Title 36 of the Code of Federal Regulations, Part

67. (The final rulemaking version was published in the Federal Register. Vol. 42, No. 195, October 7, 1977.) In

addition, the Office of Archeology and Historic Preservation of the Department of the Interior has prepared a booklet, "Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings," February 1978. For

further information regarding special building code

provisions relating to historic preservation, see Melvyn

Green and Patrick W. Cooke, Survey ofBuilding Code

Provisions for Historic Structures, National Bureau of

Standards Technical Note 918, September 1976.

' U.S. Department of the Interior, "Information: Rehabilitation and the Tax Reform Act of 1976," a newsletter prepared by the Office of Archeology and Historic Preservation, June 8, 1978.

2.1 ACCELERATED DEPRECIATION OF

SUBSTANTIALLY REHABILITATED

BUILDINGS

One important provision of the TRA allows the owner of a "substantially" rehabilitated historic building to depreciate the entire cost basis of the building as though it were new. This cost basis includes any remaining undepreciated costs of the

existing structure plus the cost of the rehabilitation

itself The significance of this provision is that the de- preciation rules for newly constructed buildings allow

a greater degree of acceleration, and therefore larger,

immediate tax deductions, than do those for used

buildings. For example, 150 percent declining balance

depreciation may be applied to new nonresidential

buildings, while the straight-line depreciation method

must be applied in the case of used nonresidential

buildings.' Similarly, for newly constructed residential buildings the 200 percent declining balance method

may be used, whereas for used residential buildings a method no more accelerated than 125 percent

declining balance depreciation must be employed, and

then only if the useful life of the building is 20 years or more. The straight-line method must be used if the life

is less than 20 years. To qualify for this provision there is an additional requirement besides the already mentioned historic

certifications of the structure and of the rehabilitation project. The rehabilitation expenditures occurring

within a 24-month period must exceed the greater of

the adjusted cost basis of the property or $5000. The

adjusted basis is determined as of the beginning of the 24-month period and is calculated as the owner's

original cost plus improvements minus depreciation

deductions taken to date.

2.2 RAPID AMORTIZATION OF REHABILITATION EXPENDITURES

This provision allows the costs of a certified rehabilita- tion of a certified historic building to be written off (or

amortized) over a period of 60 months. By contrast, in the absence of this provision, rehabilitation expenditures would have to be written off over the entire remaining life of the structure. The advantage of this , rapid amortization, as with the accelerated deprecia- , tion provision, is to shift deductions closer to the

present. In this case, however, the period over which

the expenditures are written off is actually shortened.

Declining balance depreciation is calculated by applying a constant ratio to the remaining cost basis of the asset each

year. That ratio is equal to the rate (e.g., 1.5 for 150%

declining balance) divided by the useful life. This procedure

is normally used until it becomes advantageous to switch to the straight-line method.
As a consequence of taking deductions earlier, certain

tax liabilities are postponed so that a return can be

earned on those funds in the intervening period. The

other advantage normally associated with real estate depreciation, namely that of converting ordinary

income to capital gains income, which is taxed at a lower rate, is not available under this provision as enacted in the TRA. This is because a portion of the

gain realized from the future sale of the property equal

to every dollar amortized under this provision is taxed

as ordinary income (cf. I.R.C. Section 1245). In other words, there is full recapture as ordinary income, of

the amortization deductions when the property is sold. This is in contrast to the recapture rules in effect for accelerated depreciation of most other real property

(cf. I.R.C. Section 1250). Under the latter, only that portion of the gain upon sale equal to the accelerated

depreciation taken in excess of the amount allowed by

the straight-line method is taxable at ordinary income

rates, while the remainder of the gain is taxed at the more favorable capital gains rates. Thus while offering the benefit of postponing tax liabilities, this rapid amortization provision of the TRA imposes the penalty of

making a larger than normal portion of the gain

subject to ordinary tax rates when the property is sold. An important question addressed by the present

analysis is whether on balance that benefit outweighs

the concomitant penalty.

It should be noted that the stipulation of full recapture of the amortization deductions appears not to have

been intended by the Congress.'" Moreover, H.R.

6715, a technical corrections bill, which has passed the House, would amend the TRA so that only those amortization deductions taken in excess of what would be

allowable under the straight-line method must be

recaptured as ordinary income. For this reason, one of

the situations selected for analysis in this study assumes the TRA has been so amended.

acquired for the purpose of demolition. If demolition was the purpose, then those costs and the remaining

basis would have to be added to the value of the replacement structure and depreciated over its useful

life. Now, as a result of the TRA, these demolitionrelated costs must be added to the value of the land and will consequently offer no tax benefit until sale of

the property, when they should help reduce capital

gains taxes. This same rule applies to all structures located within a registered historic district unless

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Private rehabilitation efforts will permit this vacant build- ing in downtown Seattle to be used as contemporary

offices.

2.3 DENIAL OF DEMOLITION COSTS AS

CURRENT EXPENSES

Not only does the TRA have provisions which benefit

historic preservation, but it also has two provisions

which penalize the demolition of certified historic

structures. The first of these involves the way in which the costs of demolition can be used to reduce

taxable income. Before the TRA, one could deduct

both the demolition costs and the remaining

undepreciated basis of the building as current

expenses, as long as the property had not been

certification is obtained from the Secretary of the

Interior prior to demolition that the structure is not of

historic significance to the district. The general effects of this change are both to postpone tax benefits as well

as to convert some ordinary income deductions to

capital gain deductions." Thus the after-tax cost of de- molition to the owner of an historic structure has been

increased as a result of the TRA.

See Covington and Burling, pp. 7-8, for a brief recounting

of the relevant legislative history.

'

' Deductions taken from capital gains are not worth as much to taxpayers as those from ordinary income because

the tax rate on the former is generally less than that on the

latter.
2.4 DENIAL OF ACCELERATED DEPRECIATION FOR REPLACEMENT

STRUCTURES

Another penalty imposed by the TRA for demolition

of certified historic structures concerns the depreciation of the replacement structure. Only the straightline method can be used to depreciate new buildings erected on sites which were previously occupied by

certified historic structures that have been demoHshed

or substantially altered by other than a certified rehabilitation. The impact of this penalty depends on the type of new building involved. As explained above, new residential buildings are generally ehgible for the 200 percent declining balance method. Thus the

restriction to straight-line depreciation imposes a

greater penalty for residential than for commercial

buildings. It should be noted that this provision will not affect as many structures as the one concerning de- molition costs, because the denial of accelerated depreciation applies only to the sites of structures which

have actually been certified as historic prior to demolition, whereas the demolition provision operates under

the presumption of certification for all structures within an historic district.'^

According to one of the provisions of H.R. 6715, The

Technical Corrections Act of 1978 which is being

considered by the Congress, the presumption of certification would also apply in the case of denial of accelerated depreciation.

The deteriorated Tivoli Brewery in Denver is contrasted with plans for rehabilitating the complex into an entertainment and

commercial center.
3. ANALYTICAL FRAMEWORK

In this section the framework for the analysis of the TRA is established first by describing six potential

situations facing historic property owners and then by

presenting the life-cycle cost (LCC) model used to compare those alternative situations. These six situations are summarized in table 3.1 and explained , below.

3.1 ALTERNATIVE SITUATIONS

Because the present analysis is restricted to nonresidential property, the appropriate depreciation methods of

150 percent declining balance and straight line are used for new and used buildings, respectively, in the al- ternative situations described here. If the analysis were

to be extended to cover residential property, then

different depreciation methods would have to be

assumed.

Throughout the present analysis it is also assumed that the total expenditures are the same for whichever

option is chosen (i.e., either rehabilitation or demolition/redevelopment). This assumption is necessary in order to focus exclusively on the tax effects of the TRA. In this manner, consistent comparisons can be

made between the alternative situations on the basis of

a common unit of expenditure which was chosen to be one million dollars. This approach makes the results more general and independent of particular structures, which vary greatly in terms of their intrinsic

suitability for rehabilitation.

Situation A: The first situation to be considered is that of an owner of a certifiable historic property who

Table 3.1 SIX ALTERNATIVE SITUATIONS TO BE ANALYZED ON THE

BASIS OF AFTER-TAX LIFE-CYCLE COSTS

Situation Description Type of

Write-off Treatment ofDemolition

Expenses

Recapture

of Writeoff as Ordinary

Income

A Redevelop before TRA150% Declining

Balance

Depreciation

Current ExpenseExcess over

Straight

Line

B Redevelop after TRA

Straight-Line

Depreciation

Add to Cost of

Land

n.a.

C Rehabilitate before TRA

Straight-Line

Depreciation

n.a. n.a.

D Rehabilitate

after TRA:

Accelerated

Depreciation

Provision

150% Declining

Balance

Depreciation

n.a. Excess over

Straight

Line

E Rehabilitate

after TRA:

Rapid Amortization Provision as Enacted

in TRA

5-year

Amortization

n.a. Full Recapture

F Rehabilitate

after TRA:

Rapid Amortization Provision as Pro- posed in H.R. 6715

5 -year Amortization

n.a. Excess over

Straight

Line

n.a. means not applicable.
decides to demolish the existing structure and

redevelop the site with a new building. This situation

is assumed to occur before enactment of the TRA.

Under these circumstances, demolition expenses, which are assumed to be either 5 or 10 percent (i.e., $50,000 or $100,000) of the entire cost of demolition/redevelopment, as well as the undepreciated cost

basis of the demolished building, are allowed to be

deducted as current costs.'' Depreciation deductions

for the new structure are based on the 1 50 percent

declining balance method with the customary optimal

switch to straight line when the deductions become

greater using the latter method.

'''

Situation B: The second situation to be analyzed is also

that faced by an owner of a certifiable historic property who decides to demolish the structure and

redevelop the site by constructing a new building. In

this case, however, the situation is assumed to take place after enactment of the TRA, in accord with

which the structure has been certified. Under these circumstances, only straight-line depreciation may be

used for the replacement building, and the 5 or 10 percent demolition expenditures plus the remaining

undepreciated cost basis of the former building must

be added to the cost of the land rather than be

deducted as a current expense. Thus, comparison of

Situations A and B shows the total effect of the TRA

on the financial viability of the demolition/redevelopment option, arising both from the depreciation

allowed as well as from the tax treatment of demolition expenditures.

Situation C: The third situation to be analyzed is the re- habilitation option before the TRA. This situation is similar to Situation B in that the straight-line method

of depreciation is used, as required by law. However,

it differs from both Situations A and B in that there

are no demolition expenditures to consider. Thus, the

entire million dollars is assumed to be devoted to rehabilitation expenditures. Comparison of Situations A

This assumes that demolition was not the purpose of the

original purchase.

If L is the useful life of an asset and A is the percentage

rate of acceleration in decimal form, then it turns out that the present value of the total depreciation deductions is maximized if the switch to the straight-line method takes place according to the following rule. Using the particular value for L and A, calculate /*= l-fL + L/A. Then, ify* is not an integer, the straight-line method should be used

beginning with the first full year after _/*. If, on the other hand, j* is an integer, then the straight-line method should be

used beginning either with yeary* or yeary"*+ 1. Thus for a 45-year useful life and the 200 percent declining balance method, the straight-line method should be used beginning with the twenty-fourth year. For the same life and 150 percent declining balance, the switch should take place in either the sixteenth or seventeenth year, with equal results. The author is indebted to Joel Levy for developing this optimal switch-over rule.

and C indicates the relative financial viability of the two options before the TRA.

The final three situations (D, E, and F) to be analyzed

all treat the rehabilitation option after the enactment

of the TRA. Thus, for these three situations there are

also no demolition expenditures to be considered.

Situation D: The fourth situation focuses on the TRA

provision which allows accelerated depreciation of

substantially rehabilitated buildings. For the nonresidential property being analyzed here, this provision means that the 1 50 percent declining balance method

may be applied to the entire cost basis of the

rehabilitated property. Thus, any remaining cost basis of the existing structure plus the cost of rehabilitation could be depreciated using the 1 50 percent declining balance method. For purposes of the present analysis, .

it is assumed that the existing structure has already

been fully depreciated. Thus, the resulting estimates of

the benefits of this provision are conservative because

the potential advantage of accelerated depreciation of

any remaining cost basis of the existing structure has been ignored.'^ Comparison of Situation D with

Situation B indicates the relative financial viability of

the two options, rehabilitation versus redevelopment,

after the TRA. In addition, comparison of Situation D

with Situation C indicates the effect of the accelerated depreciation provision of the TRA on the financial

viability of the rehabilitation option.

Situation E: This situation also deals with the rehabili- tation option after the TRA but focuses on the provision which allows 5-year rapid amortization of re- habilitation expenditures. Situations E and D are analyzed separately because the two provisions are not expected to be applied simultaneously to the same

project.'* Comparison of E with B indicates the current relative financial viability of rehabilitation versus redevelopment under the rapid amortization

provision, whereas comparison of E with C indicates the effect of the rapid amortization provision of the TRA on the viability of rehabilitation. In addition,

comparison of E with D indicates whether the 5-year

amortization or the accelerated depreciation provision

is more advantageous.

Situation F: The last situation is similar to Situation E

except that here the recapture as ordinary income of a portion of the gain upon sale is limited to an amount

equalling those deductions taken in excess of what

would be allowed under the straight-line method. As

Sensitivity analysis could be conducted with resjject to

this parameter by assuming a range of alternative values for the remaining cost basis of the existing structure. While the TRA as enacted does not specifically state that the 5-year amortization and accelerated depreciation

provisions cannot be applied simultaneously, the proposed

Technical Corrections Act of 1978 (H.R. 6715) does so state.
explained in section 2, the TRA as enacted provides

for full recapture upon sale of a property of all amortization deductions taken. Situation E focuses on this "as enacted" provision. The proposed Technical

Corrections Act of 1978 (H. R. 6715) being considered

by the Congress would limit recapture to deductions

in excess of straight line. Situation F treats this proposed amended version of the amortization

provision. The comparisons with the other situations

(B, C, and D) are analogous to those stated under

Situation E. Moreover, a comparison between

Situations E and F indicates the effect of the proposed

limit for recapture of capital gains as ordinary income.

3.2 LIFE-CYCLE COST MODEL

In this subsection we present the life-cycle cost (LCC)

model which was used to compare the cost impacts of

the alternative situations described above. The general

form of this model is as follows:

used in all the calculations.''' If one were to analyze property owned by unincorporated

individuals, different assumptions would have

to be made regarding this marginal income tax

rate. It should be noted that the present

analysis addresses only changes in Federal income taxes. To the extent that State or local income taxes are imposed as a direct percentage of the Federal tax, there could be

additional tax impacts favorable to rehabilitation. These impacts would, of course vary by

tax jurisdiction. It should further be noted that

this analysis does not take into account the 15 percent surcharge on tax preference items exceeding the greater of $10,000 or the corporation's regular tax liability. Tax

preference items include accelerated depreciation and amortization deductions taken in excess of the straight-line method as well as a portion of capital gains. Thus, to the extent

Life-Cycle Initial Cost Cost

LCC C -

Present value of

tax benefits from

depreciation/

amortization

m.XjDXl+r)-'

Present value of after- tax proceeds from sale of property

+ (RT„ + GT,-S„)(1 +rr.

The interpretation of the above notation as well as an

explanation of the assumptions used for each

parameter in the present analysis follows. C = Initial cost of the project. For Situation A

where demolition costs are allowed to be

treated as current expenditures, this initial cost amount is reduced by the value of the

resulting tax savings. The initial costs of the project include all costs associated with demolition and the construction of a new building or with the rehabilitation of the existing

building. In order to focus exclusively on the

tax effects of the TRA, these initial costs are assumed to be the same (i.e., $1,000,000) for both redevelopment and rehabilitation. These

costs are also assumed to occur at the start of

the first year so that no discounting is necessary to calculate the present value.

Marginal tax rate applicable to additional income earned by the property owner. Since

the present analysis is devoted exclusively to property held by a corporation, the marginal

tax rate of 48 percent, which is applicable to ordinary corporate income over $50,000, is

that a particular firm is subject to this surcharge, the TRA would be expected to be

less favorable to rehabilitation than the results

in section 4 indicate.

t = Index number indicating the year of occurrence of the depreciation deductions. n = Year during which the property is sold. It is assumed that the proceeds of the sale occur at the end of the nth year. The analysis is conducted for four different holding periods:

n=:5, 10, 20, and 45. D, = Depreciation or amortization deduction taken

in year t. This amount is determined for a

useful life of 45 years when the straight line or

1 50 percent declining balance methods are used and of 5 years when the rapid amortization method is used. Forty-five years is the

useful life suggested for office buildings in Revenue Procedure 62-21, which is now in effect for real estate. It is assumed that the de- preciation deduction occurs at the end of each

year.

See Corporations and the Federal Income Tax (1977

Edition), U.S. Department of the Treasury, Internal Revenue Service, Publication 542, p. 6.
r = Rate of discount used to convert all cash flows

to a time-equivalent basis. The analysis is conducted for two values of r 10 percent and

15 percent.

RT„ = Recapture taxes at the end of year n when the property is sold. These taxes are at the ordinary income tax rate, m, and are levied on

property to which accelerated depreciation or

rapid amortization has been applied. For

Situations A, D, and F, the amount of income

subject to this recapture tax is equal to the

write-offs taken in excess of the straight-line

method. For Situation E, all rapid amortization deductions taken during the entire holding period are subject to recapture. Since

the straight-line method is used under the other situations (B and C), there are no

recapture taxes. GT„ — Capital gains taxes due at the end of year n when the property is sold. The tax rate of 30

percent, which is applicable for long-term

capital gains in the case of corporations, is used in the model.'* This rate is applied to the

calculated capital gain, which consists of the

net proceeds from the sale minus the remaining undepreciated cost basis. For

Situation B where demolition costs are added

to the cost of the land and cannot be

depreciated, these capital gains taxes are correspondingly reduced.

S„ = Selling price at the end of year n. This is determined by applying a method of

estimating actual economic depreciation (as distinct from tax depreciation) of office buildings developed by Taubman and

Rasche.'^ Using historical data published by

See Corporations and the Federal Income Tax (1977

Edition), U.S. Department of the Treasury, Internal Revenue Service, Publication 542, p. 7.

P. Taubman and R. H. Rasche, "Economic and Tax

Depreciation of Office Buildings," National Tax Journal, Vol. 22, No. 3 (1969), pp. 334-346.

the National Association of Building Owners

and Managers, these researchers found that the real values of office buildings tend to decrease during year t by an amount

approximately equal to 2r/L(L+ 1) times the

original cost, where L is the useful life. This

annual rate of real depreciation is applied in the LCC model to arrive at a reasonable

estimate of the expected selling price at the end of each holding period analyzed. By using

real depreciation to determine the selling

price, this analysis does not take account of

the possible effect of inflation. The more the general price level and property values

increase during the holding period, the greater

are the benefits of faster write-offs (i.e., some

taxes are paid at a later date using "cheaper"

dollars). On the other hand, greater inflation also means that capital gains taxes increase. Sensitivity analysis could determine the

overall effect of inflation on the results by

assuming alternative rates of general inflation and increases in property values.^"

i This LCC model was used in the development of i computer programs written in BASIC Language.^'

These programs calculate the present value of the

after-tax life-cycle costs incurred for each of the six al- ternative situations described in subsection 3.1 and for the assumptions specified in the above definitions of

terms. The results of these calculations are analyzed in ; the next section.

For further discussion of the effects of inflation on the economic analysis of real estate investments, see Kenneth M.

Lusht, "Inflation and Real Estate Investment Value," American Real Estate and Urban Economics Association Journal Vol. 6 (Spring 1978), pp. 37-49. The author is indebted to Joel Levy for developing these programs, copies of which appear in appendix B.

I

10
4. ANALYSIS OF RESULTS

In this section, selected comparisons are made

between the present value after-tax life-cycle costs calculated for the alternative situations. The detailed

results of the life-cycle cost calculations for each

situation based on various discount rates, holding

periods, and demolition expenditures are presented in tables A.l and A.2 of appendix A.^^ Under the assumptions used in this analysis, the results indicate that the TRA has significantly affected the economic trade-off between rehabilitation and redevel- opment through a change in the bias of the tax law. For example, table A. 1 can be used to calculate how

much more costly rehabilitation was than redevelop- ment before the TRA. Assuming a 5-year holding

period and demolition costs of 5 percent, the after-tax

life-cycle costs are given as $348,788 for Situation A

(redevelopment before the TRA) and as $365,639 for Situation C (rehabilitation before the TRA). On this

basis, rehabilitation is seen to be 4.8 percent more

costly than redevelopment (i.e., 1-365,639/348,788 =

0.0483). In contrast, using the same assumptions

regarding the holding period and demolition costs, one

can calculate how much less costly rehabilitation has become compared with redevelopment as a result of

the rapid amortization provision of the TRA. Table

A.l gives life-cycle costs of $317,884 for Situation E

(rehabilitation after the TRA using rapid amortization)

and $366,625 for Situation B (redevelopment after the TRA). This means that the rapid amortization

provision with full recapture as enacted by the TRA

has made rehabilitation 13.3 percent less costly than re- development (i.e., 1-317,884/366,625=0.1329).

Moreover, if the property is to be held for a longer

period, the effect of the TRA is even more

pronounced. For example, with similar calculations

for a 20-year holding period, rehabilitation is found to have been 4.4 percent more costly than redevelopment

before the TRA and 28.6 percent less costly after the TRA. In addition, if the full recapture rule of this rapid amortization provision were modified to a

partial recapture, as proposed in the Technical

Corrections Act of 1978, then this analysis shows that

rehabilitation would become 16.2 percent less costly than redevelopment for a 5-year holding period and

29.4 percent less costly for a 20-year period.

The TRA provision which allows accelerated depreciation of substantially rehabilitated historic structures

also makes rehabilitation less costly than redevelopment, although not quite as dramatically as does the

rapid amortization provision. For example, with a 5-year holding period and 5 percent demolition costs.

The author is indebted to Kimberly A. Hockenbery for running the computer programs for these calculations.

the accelerated depreciation provision of the TRA

makes rehabilitation 1.2 percent less costly than rede- velopment compared with the 13.3 percent figure

cited above for rapid amortization. Under the accelerated depreciation provision, the percentage

increases slightly to 1.4 percent when demolition costs are increased to 10 percent of the initial cost of the

project. This slight increase is due to the penalty

inherent in having to add demolition expenditures to the cost basis of the land, thereby only reducing

capital gains taxes later when the property is sold, rather than being able to write the expenditures off as current costs or at least depreciate them over the life of the replacement structure. For longer holding

periods, such as 20 years, the accelerated depreciation

provision of the TRA makes rehabilitation 2.5 percent

less costly than redevelopment with 5 percent demolition costs and 3.0 percent less costly with 10 percent

demolition costs.

It should be noted that these calculations regarding

the accelerated depreciation provision for substantially

rehabilitated historic structures are to be interpreted as lower limits on the relative economic advantage of re- habilitation over redevelopment. This is because one

of the advantages of this provision is that the existing cost basis may be converted from straight line to accelerated depreciation ( 1 50% declining balance for an office building). By assuming that this existing cost

basis is zero, the present analysis has left this advantage out of account. Further sensitivity analysis

could include the effect of this advantage by assuming

a range of existing cost basis amounts up to the maximum allowed by the TRA (i.e., an amount equal

to the cost of the rehabilitation expenditures

themselves).

The effect of the TRA on each option considered

individually (i.e. redevelopment or rehabilitation) is also of interest. If demolition costs are assumed to represent 5 percent of the total cost of the project, the enactment of the TRA increases the life-cycle cost of

the redevelopment option by 5.1 percent for a 5-year

holding period and by slightly less for longer periods.

The increase in the cost of redevelopment jumps to 9.7 percent for the 5-year holding period, if demolition

represents 10 percent of total project expenditures.

These cost increases are due to two factors: (1) the required switch from 1 50 percent declining balance to

straight-line depreciation; and (2) the disallowance of

demolition costs as a current expense with the requirement that they be added to the cost of the land.

The accelerated depreciation provision for substantially rehabilitated structures has the effect of

reducing the after-tax life-cycle cost of rehabilitation by about 1 percent for short holding periods and by

over 2 percent for longer holding periods (i.e., 20

years or more). Here again, it should be remembered

11
that these calculations for the accelerated depreciation

provision represent a minimum effect in terms of cost reduction because of the aforementioned assumption

that the cost basis of the existing building is zero. The rapid amortization provision has the effect of

reducing the cost of rehabilitation by 13.1 percent for a 5-year holding period and by over 28 percent for longer holding periods (i.e., 20 years or more). These

dramatic reductions in after-tax life-cycle costs are shown to be in effect already, despite the full recapture rule which inadvertantly found its way into the final version of the TRA. If full recapture is replaced by partial recapture as proposed in the Technical Corrections Act of 1978, then the cost reduction as a result of the TRA would be even more

significant. As an example, for a 5-year holding period

the partial recapture rapid amortization provision

would lead to a 16.0 percent cost reduction, while for a 20-year holding period the provision would lead to a

29. 1 percent cost reduction. The results described above are all based on a 10 percent discount rate. Sensitivity analysis showed that the TRA's favorable impact on rehabilitation is generally reduced by a slight margin when a higher

discount rate of 1 5 percent is used.^^ In most cases, however, the effects of this change in the discount rate are trivial.

Table A. 2 of appendix A may be used to derive exact comparisons between rehabilitation and redevelopment

before and after enactment of the TRA for a 15 percent

discount rate.

This Tudor style mansion in Minneapolis was recently converted into headquarters for an advertising agency. Significant interior features and spaces were retained in the reuse plan.

12
5. CONCLUSIONS AND

SUGGESTIONS FOR

FURTHER RESEARCH

The tax implications of each of the four relevant

provisions of the TRA have been described: (1) accelerated depreciation of substantially rehabilitated

historic buildings; (2) rapid amortization of rehabilita- tion expenditures; (3) denial of demolition costs as current expenses; and (4) denial of accelerated depreciation for replacement structures. An analytical

framework was constructed by defining six alternative

situations likely to be faced by the owner of an

historic property. Then a model was specified which

allows the computation of the present value after-tax

life-cycle cost associated with each of the six situations. This model takes into account the initial cost of the project, the tax savings due to depreciation or amortization deductions and the tax liabilities arising from both capital gains and recapture as ordinary income which occur when the property is sold. On the basis of the computed life-cycle costs, rele\ ant comparisons were made between the alternative situations.

The analysis of these alternative situations leads to the conclusion that even with the existing rapid amortization provision that requires full recapture of

deductions as ordinary income, the TRA has managed

to tip the scale in favor of historic preservation. Thus,

potential investors and current owners of incomeproducing historic structures now have a strong incentive to consider rehabilitation as a serious alternative

to demolition and redevelopment. Whereas formerly

there was a distinct tax bias in favor of demolition and

redevelopment, now that tax bias has been reversed,

when the TRA provisions are analyzed on a life-cycle cost basis. This new information about the recently

legislated tax advantages of historic preservation

should prove useful to corporate owners of historic nonresidential properties as well as to policy makers

interested in tax incentives for building rehabilitation. There is need of more research in this area of tax in- centives for historic preservation. As noted earlier, the present analysis is limited to nonresidential property

owned by corporations. However, the historic preser- vation provisions of the TRA also apply to residential property and to property owned by individuals or

partnerships, as long as these properties are incomeThese 19th century buildings in Newburyport, Massachusetts were rehabilitated as shops, offices, and apartments under a plan

certified by the Department of the Interior.

13
producing. This analysis could be extended to these other property and ownership categories by taking

into account the appropriate allowable depreciation

rates and marginal tax brackets for ordinary and

capital gains income. In addition, other tax incentives being considered for adoption could be analyzed. For

example, it would be useful to know the likely impact

of current proposals to extend the provisions of the TRA to include properties which are not incomeproducing."^ Another proposal that could be analyzed

calls for a 10 percent tax credit for the costs of

rehabilitating buildings at least 20 years old.^^

See, for example, S. 1158, H.R. 11745, and H.R. 11817.

' See S. 2993.

Perhaps the most important, and yet most difficult, area in need of further research concerns the degree to which modified after-tax consequences of the rehabili- tation and redevelopment options wQl actually affect investment decisions. The ultimate question to be

resolved is how responsive owners of historic structures will be to the new tax advantages favoring

rehabilitation.^*

The effectiveness of earlier tax incentives for the rehabilita- tion of low-income housing is discussed in Emil M. Sunley, "Tax Incentive for the Rehabilitation of Housing," The

Appraisal Journal. Vol. 39 (July 1971), pp. 381-394. See also Gary Fromm (ed.), Tax Incentives and Capital Spending

OV'ashington, D.C: The Brookings Institution, 1971), for a collection of articles devoted to the general area of tax incentives for investment.

14
BIBLIOGRAPHY

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Dollars and Sense." Planning, The American Society of

Planning Officials Magazine, April 1972, pp. 63-68.

2. Bell, Robert. "How to Recycle Real Estate

Successfully." Real Estate Review, Vol. VI. No. 4 (Winter 1977), pp. 25-30.

3. Brookes, J. A. and Hughes, K. "Housing

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46, No. 2 (April 1975), pp. 215-225.

4. Cloud, Jack M. "Appraisal of Historic Homes." Real

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5. Covington and Burling. "Impact of the Tax Reform

Act of 1976 on the Preservation of Historical Properties." Unpublished paper prepared for the National Trust for Historic Preservation, January 27, 1977.

6. Curry, Clarence F. and Gensch, Dennis H. "Feasibility of Rent and Tax Incentives for Renovation in Older

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7. Dean, Andrea O. "Adaptive Use: Economic and Other

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10. Fairweather, Virginia, "Recycling Older Buildings Preserves History, Saves Money." Civil Engineering

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11. Fleming, John. "The Central Areas of our Towns and

Cities—Recondition or Renew?" The Official Journal of

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12. Fromm, Gary. (Ed.) Tax Incentives and Capital

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13. Gerber, Edward F. "Historic Georgetown, Inc.: The

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14. Green, D., Green, M. and Kirkwood, J. "Development

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15. Green, Melvyn, and Cooke, Patrick W. Survey of

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1976).

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Estate Taxation, Vol. 5, No. 1 (Fall 1977), pp. 5-22.

17. Hufbauer, G. C. and Severn, B. W. "Economic

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18. Jandl, H. Ward et al. "Preservation and the Tax Reform

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19. Kapsch, Robert J. "Building Codes: Preservation and

Rehabilitation," in Patrick W. Cooke (Ed.), Research and Innovation in the Building Regulatory Process. National Bureau of Standards Special Publication 473. Washington, D.C.: U.S. Department of Commerce

(June 1977), pp. 437-452.

20. Keyes, Margaret N. "A Home Economist Does Historic Preservation." Journal of Home Economics (May 1975), pp. 19-22.

21. Linhart, Peter B. "Some Analytical Results on Tax

Depreciation." The Bell Journal of Economics and

Management Science, Vol. 1, No. 1 (Spring 1970), pp 82- 112.

22. Lusht, Kenneth M. "Inflation and Real Estate Investment Value." American Real Estate and Urban

Economics Association Journal, Vol. 6 (Spring 1978), pp.

37-49.

23. Martin, Thomas J. and Gamzon, Melvin A. "Adaptive Reuse Gives Life to Old Buildings." Real Estate Review, Vol. 6, No. 3 (Fall 1976), pp. 28-33.

24. Mclntyre, Thomas F. and McDevitt, Richard F. "The Tax Reform Act of 1976: New Tax Law Has

Implications for Builders, Developers," National

Association ofHome Builders Journal-Scope (November

1, 1976), pp. 38-39.

25. McKee, William S. "The Real Estate Tax Shelter: A

Computerized Expose." Virginia Law Review, Vol. 57, No. 4 (May 1971), pp. 521-573.

26. McLaughlin, Herbert P., Jr. "A 'Preservation Addict' Looks at the Practical Side of Rehabilitating for

Proiit." Architectural Record (March 1976), pp. 65-67.

27. Mendelsohn, Robert. "Empirical Evidence on Home

Improvements." Journal of Urban Economics, Vol. 4, No. 4 (October 1977), pp. 459-468.

28. Needleman, Lionel. "The Comparative Economics of Improvement and New Building." Urban Studies, Vol.

6, No. 2 (June 1969), pp. 196-209.

29. Ragas, Wade R. and Miestchovich, Ivan J., Jr. "Historic Preservation and the 1976 Tax Reform Act." The

Appraisal Journal, Vol. 46, No. 1 (January 1978), pp. 44-

52.

30. Ragas, Wade R. and Miestchovich, Ivan J., Jr. "Incentives for Historic Preservation in the 1976 Tax

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1977), pp. 54-59.

31. Ritter, C. Willis and Sunley, Emil M., Jr. "Real Estate and Tax Reform: An Analysis and Evaluation of the Real Estate Provisions of the Tax Reform Act of

1969." Maryland Law Review, Vol. XXX, No. 1 (Winter

1970), pp. 5-48.

32. Rothenberg, Alan E. "It Pays to Preserve." Cry

California (Winter 1974-75), pp. 6-12. 33. Schaaf, A. H. "Economic Feasibility Analysis for Urban

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34. Shull, Joe A. "How to Use the Tax System to Promote

Historic Preservation." Real Estate Law Journal, Vol. 4

(Spring 1976), pp. 398-415.

35. Shull, Joe A. and Shull, Carol D. "New Inroads for Historic Preservation." Administrative Law Review (Summer 1974), pp. 357-373.

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Costs." A Special Issue Report of the Advisory

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1976).

15
37. Smith, Baird. "Information Structure of Building Codes

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489.

38. Stemlieb, George and Listokin, David. Rehabilitation Versus Redevelopment: Cost-Benefit Analysis. (Available

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39, No. 3 (July 1971), pp. 381-394.

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and U.S. Department of the Interior. Guidelines for

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1976.

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36, Code of Federal Regulations, Part 67.) 49. Urban Land Institute. Adaptive Use. Washington, D.C:

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16
APPENDIX A

DETAILED RESULTS

The following two tables contain the complete results of the life-cycle cost calculations of each of the six alternative

situations for various holding periods, demolition expenditures, and discount rates. It should be noted that because rental income from owning the property is not included in the analysis, only comparisons between situations using the same

holding period are legitimate. That is, one cannot argue that a 5-year holding period is more cost effective than a 10-year

period on the basis of lower life-cycle costs being reported for the former.

Table A.l PRESENT VALUE, AFTER-TAX, LIFE-CYCLE COSTS ($) OF ALTERNATIVE SITUATIONS AT A 10 PERCENT DIS

COUNT RATE FOR VARIOUS HOLDING PERIODS AND

DEMOLITION EXPENDITURES'

Demolition'^

Holding Period (Years)

Situation (%) 5 10 20 45

A 5 348,788 563,793 767,329 857,783

10 335,255 548,038 749,946 840,005

B 5 366,625 590,949 805,024 899,851 10 367,613 592,941 808,574 904,905

C - 365,639 588,957 801,474 894,796

D - 362,321 579,547 784,711 875,561

E - 317,884 446,254 574,471 636,083

F - 307,085 434,520 568,009 636,083

" These present values were calculated for projects whose total initial costs were as- sumed to be $1,000,000. ''For detailed descriptions of each situation, see subsection 3.1.

^ The percentage of total initial project costs attributable to demolition expenditures. Note that no demolition is involved in Situations C through F.

Table A.2 PRESENT VALUE, AFTER-TAX, LIFE-CYCLE COSTS ($) OF ALTERNATIVE SITUATIONS AT A 15 PERCENT DISCOUNT RATE FOR VARIOUS HOLDING PERIODS AND

DEMOLITION EXPENDITURES'

Demolition'^

Holding Period (Years)

Situation" (%) 5 10 20 45

A 5 469,111 696,425 853,202 891,842

10 453,737 678,517 833,870 872,272

B 5 489,642 726,807 891,889 932,542

10 490,601 728,660 894,820 936,063

C - 488,683 724,954 888,957 929,021

D - 484,484 714,334 872,533 911,413

E - 423,407 556,487 652,867 678,193

F 414,760 548,964 650,210 678,193

" These present values were calculated for projects whose total initial costs were as- sumed to be $1,000,000.

""For detailed descriptions of each situation, see subsection 3.1.

" The percentage of total initial project costs attributable to demolition expenditures. Note that no demolition is involved in Situations C through F.

17
APPENDIX B

COMPUTER PROGRAMS

This appendix contains the BASIC Language listings of the computer programs developed by Joel Levy to calculate the present value after-tax life-cycle costs for the six alternative situations analyzed in this report. Only

four programs were needed because, as noted below, the first two programs each served to calculate costs for two of the situations.

Program I: Situations B and C

1REM,, .ELDG1

10READ D ,C , R9 ,S,N

15F= 1/( 1-1-R9)

20F1=FTn

30X1 = F*( 1-F1 )/( 1-F)

40X2=C/45

5 0X3=-r48*X1*X2

60C1=S-i-N*X2-D-C

70C1 =C1»F1

80L1=D-i-C-i-,3*C1-X3-S*F1

500PRINT"LIFE CYCLE C0ST=",L1

9 00END

NOTE: INPUT VALUES D,C,R9,S, AND N WERE SPECIFIED

WITHIN PROGRAM.
Program II: Situations A and D

1REM. ..RBLDG2

10READ D,C,R9 ,S,N ,A

15F=1/( 1+R9)

30F0RI=1T0N

40F(I, 1 )=Ftl

50NEXTI

60R=A/45

70J=INT(46-1/fi)

80L=(ABS(J+N)-ABS(J-N))/2

90D( 1 , 1 )=R*C

100C( 1 , 1 )=D( 1 , 1

)

1 1 0FORI=2TOL

120D(I, 1 )rR*(C-C(I-1 , 1 )

)

130C(I, 1) = C(I-1 ,1 )+D(I, 1)

140NEXTI

150IFN<=LTHEN310

160L9= 1/(45-L)

170FORI=L+1TON

180D(I,1)=L9*(C-C(L, 1))

190NEXTI

200C(N,1)=C(L,1)+(N-L)*D(N,1)

310T1=0

320FORI=1TON

340T1=T1+D(I,1 )*F(I, 1

)

350NEXTI

360M1rC(N , 1 )-N*C/45

370M2=S-C+C(N, 1

)

380IFM2>0THEN405

390L2=*3*M2-S

400GOT0470

405IFM2>M1THEN420

410L2=.48*M2-S

415GOT0470

420K1=S-C*( 1-(N/45)

)

430IFKK0THEN460

440L2=.48«M1+«3*K1-S

450GOTO470

460L2=*48*M1-S

470L1=D+C+L2*F(N, 1

)

480L1=L1-,48*(D+T1 ) 500PRINT"LIFE CYCLE C0ST=",L1

900END

MOTE: INPUT VALUES D,C,R9,S,N, AND A WERE SPECIFIED

WITHIN PROGRAM.

19
Program III: Situation E

1REM.,.RBLDG3

10READ C, R9 ,S,N

15F=1/( 1+R9)

20DIMF(45, 1),D(45,1),C(45,1)

30F0RI=1TON

'JOF(I, 1 )=F1'I

50NEXTI

8 0L=( ABS(N+5)-ABS(N-5) )/2

90D( 1

, 1 )=C/5

100C( 1 , 1 )=D( 1 , 1 )

1 10FORI=2TOL

120D( I, 1 )=C/5

130C(I, 1 ) = C(I-1 ,1)+D(I, 1)

140NEXTI

310T1=0

320FORI=1TOL

340T1 = T1+D( I, 1 )*F(I, 1 ) 350NEXTI

360M1=C(L, 1 )-N*C/45

370M2 = S-C+C(L, 1 ) 380IFM2>0THEM405

390L2= ,3*M2-S

400GOTO470

405IFM2>M1 THEN420

410L2=,48*M2-S

415GOT0470

420K1=S-C*( 1-(N/45) ) 430IFKK0THEN460

440L2= ,48*M1+.3*K1-S

450GOTO470

460L2=,48*M1-S

470L1=C + L2*F(N, 1 ) 'J80L1=L1-,48*T1

500PRINT"LIFE CYCLE C0ST=",L1

900END

NOTE: INPUT VALUES C,R9,S, AND N WERE SPECIFIED

WITHIN PROGRAM,

20
Program FV: Situation F

i 1REM..,RBLDG3A

: 10READ C,R9,S,N

i 15F=1/( 1+R9)

i 20DIMF(45, 1 ) ,D(45,1) ,C(45, 1

)

I 30FORI=1TON

40F(I, 1 )=FTl

' 50NEXTI

80L=( ABS(N+5)-ABS(N-5) )/2

! 90D( 1 , 1 ) = C/5

I 100C( 1 , 1 )=D( 1,1)

j 1 10FORI = 2TOL

120D(I, 1 )=C/5

I 130C(I, 1 ) = C(I-1 , 1)+D(I, 1)

140NEXTI

310T1=0

320FORI=1TOL

340T1=T1+D(I, 1 )*F(I, 1

)

350NEXTI

360Mr=C(L, 1 )-N*C/ll5

370M2 = S-C+C(L, 1 ) 380IFM2>0THEN405

390L2=.3*M2-S

400GOTO470

405IFM2>M1THENi|20

410L2=.48*M2-S

415GOTO470

420K1=S-C

430IFKKOTHEN460

440L2=*48*C(L,1)+.3*K1-S

450GOTO470

460L2=,48»M2-S

470L1=C+L2*F(N, 1

)

480L1=L1-.48»T1

500PRINT"LIFE CYCLE C0ST=",L1

900END

NOTE: INPUT VALUES C,R9,S,AND N WERE SPECIFIED

WITHIN PROGRAM,

21
APPENDIX C

PUBLIC LAW 94-455, SECTION 2124

The following is the text of the historic preservation provisions of the Tax Reform Act of 1976 (P.L. 94-455):

SEC. 2124. TAX INCENTIVES TO ENCOURAGE THE PRESERVATION OF

fflSTORIC STRUCTURES.

(a) Ajiortizatiox of Rehabilitatiox Expendittres.—

(1) Allowance of deductiox.—Part VI of subchapter B of

chapter 1 (relating to itemized deductions) is amended by adding

at the end thereof the following new section

26 use 191. "SEC. 191. AMORTIZATION OF CERTAIN REHABILITATION EXPENDITURES FOR CERTIFIED HISTORIC STRUCTURES.

"(a) Allowance of Deductiox.—Every person, at his election, shall be entitled to a deditction with respect to the amortization of the

amortizable basis of any certified historic structure (as defined in

subsection (d) ) based on a period of 60 months. Such amortization

deduction shall be an amount, with respect to each month of such

period within the taxable year, equal to the amortizable basis at the

end of such month divided by the number of months (including the

month for which the deduction is computed) remaining in the period.

Such amortizable basis at the end of the month shall be computed

without regard to the amortization deduction for such month. The

amortization deduction provided by this section with respect to any

month shall be in lieu of the depreciation deduction with respect to such basis for such month provided by section 167. The 60-month

period shall begin, as to any historic structure, at the election of the

taxpayer, with the month following the month in which the basis is acquired, or with the succeeding taxable year. "(b) Electiox of AiTORTTZATTOx.—The election of the taxpayer to take the amortization deduction and to begin the 60-month period

with the month following the month in which the basis is acquired, or with the taxable year succeeding the taxable year in which such basis

is acquired, shall be made by filing with the Secretary, in such manner, in such form, and within such time as the Secretary may by regulations prescribe, a statement of such election. " (c) Termixatiox of Amortizatiox Dedvctiox.—A taxpayer who

has elected under subsection (b) to take the amortization deduction

provided in subsection (a) may. at any time after making such election,

discontinue the amortization deduction with respect to the remainder

of the amortization period, such discontinuance to begin as of the

beginning of any month specified by the taxpayer in a notice in writing filed with the Secretary before the beginning of such month. The

depreciation deduction provided under section 167 shall be allowed,

beginning with the first month as to which the amortization deduction

does not apply, and the taxpayer shall not be entitled to any further

amortization deduction under this section with respect to such certified historic structure.

22
PUBLIC LAW 94-455—OCT. 4, 1976 90 STAT. 1917

"(d) Definitions.—For purposes of this section

"(1) Certified historic structure.—The term 'certified his- toric structure' means a building or structure which is of a character subject to the allowance for depreciation provided in section

167 which—

" ( A) is listed in the National Eegister,

"(B) is located in a Registered Historic District and is certified by the Secretary of the Interior as being of historic

significance to the district, or "(C) is located in an historic district designated under a

statute of the appropriate State or local government if such

statute is certified by the Secretary of the Interior to the Sec- retary as containing criteria which will substantially achieve

the purpose of preserving and rehabilitating buildings of his- toric significance to the district. "(2)- Amortizable basis.—The term 'amortizable basis' means

the portion of the basis attributable to amounts expended in con- nection with certified rehabilitation. " ( 3 ) Certified rehabilitation.—The term 'certified rehabilitation' means any rehabilitation of a certified historic structure which the Secretary of the Interior has certified to the Secretary

as being consistent with the historic character of such property or

the district in which such property is located. "(e) Depreciation Deduction.—The depreciation deduction pro- vided by section 167 shall, despite the provisions of subsection (a),

be allowed with respect to the portion of the adjusted basis which is not the amortizable basis. "(f) Life Tenant and Remainderman.—In the case of property

held by one person for life with remainder to another person, the

deduction under this section shall be computed as if the life tenant were the absolute owner of the property and shall be allowable to the

life tenant. "(g) Cross References.—

"(1) For rules relating to the listing of buildings and structures in the National Register and for definitions of 'National Register' and

"Registered Historic District', see section 470 et seq. of title 16 of the United States Code.

"(2) For speci?l rule with respect to certain gain derived from the dis- position of property the adjusted basis of which is determined with

regard to this section, see section 1245." (2) Gain ON disposition.—Section 1245(a) (relating to gain 26 USC 1245. from dispositions of certain depreciable property) is amended by

striking out "or 190" each place it appears and inserting in lieii thereof "190. or 191".

(3) Conforming A>rENDMENTS.

(A) The table of sections for part VI of subchapter B of

chapter 1 is amended by inserting at the end thereof the fol- lowing new item

:

"Sec. 191. Amortization of certain rehabilitation expenditures for certified historic structures." (B) Section 642(f) (relating to amortization deductions 26 USC 642. of estates and trust) is amended by striking out "and 188"

and inserting in lieu thereof "188, and 191".

_(C) Section 1082(a) (2) (B) (relating to basis for deter- 26 USC 1082. mining gain or loss) is amended bv striking out "or 188" and

inserting in lieu thereof "188, or 191".

23
90 STAT. 1918 PUBLIC LAW 94-455—OCT. 4, 1976

26 use 1250.

Ante, pp. 1914,

1916. 26 use 191

note.

26 use 280B.

26 use 280B

note.

26 use 167.

26 use 167

note.

(D) Section 1250(b) (3) (relating to depreciation adjustments) is amended by striking out "or 190" and inserting in

lieu thereof "190 or 191".

(4) Effecti\'e date.—The amendments made by this subsection shall apply with respect to additions to capital account made

after June 14, 1976 and before June 15, 1981.

(b) Demolition.—

(1) DiSALLOWAxcE OF DEDUCTIONS.—Part IX of Subchapter B

of chapter 1 (relating to items not deductible) is amended by adding at the end thereof the following new section

"SEC. 280B. DEMOLITION OF CERTAIN HISTORIC STRUCTURES.

"(a) General Rule.—In the case of the demolition of a certified historic structure (as defined in section 191(d) (1)) —

" ( 1 ) no deduction otherwise allowable under this cliapter shall be allowed to the owner or lessee of such structure for—

"(A) any amount expended for such demolition, or "(B) any loss sustained on account of such demolition ; and

"(2) amounts described in paragraph (1) shall be treated as

properl}^ chargeable to capital account with respect to the land on which the demolished structure was located. "(b) Special Eui.e for Registered Historic Districts.—For purposes of tliis section, any building or other structure located in a Registered Historic District shall be treated as a certified historic structure

unless the Secretary of the Interior has certified, prior to the demolition of such structure, that such structure is not of historic significance

to the district." (2) Clerical amendment.—The table of sections for part IX

of subchapter B of chapter 1 is amended by adding at the end

thereof the following new item : "Sec. 280B. Demolition of certain historic structure.?." (3) Effective date.—The amendments made by this subsection

shall apply with respect to demolitions commencing after June- 30, 1976, and before January 1, 1981.

(c) Depreciation of Improvements.—

(1) Method of depreciation.—Section 167 (relating to depreciation) is amended b}- redesignating subsection (n) as (p), and

by inserting after subsection (m) the following new subsection:

"(n) Straight Line Method in Certain Cases.—

"(1) In general.—In the case of any property in whole or in

part constructed, reconstructed, erected, or used on a site which

was, on or after June 30, 1976, occupied by a certified historic structure (as defined in section 191(d)(1)) which is demolished

or substantially altered (other than by virtue of a certified rehabilitation as defined in section 191(d) (3) ) after such date

"(A) subsections (b), (j), (k),and (1) shall not apply,

"(B) the term 'reasonable allowance' as used in subsection

(a) shall mean only an allowance computed under the straight

line metliod.

"(2) Exception.—The limitations imposed by this subsection

shall not apply to personal property."

(2) Effective date.—The amendment made by this subsection

shall apply to that portion of the basis which is attributable to construction, reconstruction, or erection after December 31, 1975,

and before January 1, 1981. (d) Substantially Rehabilitated Property.—

(1) Section 167 (relating to depreciation) is amended by insei't24
PUBLIC LAW 94-455—OCT. 4, 1976 90 STAT. 1919

ing^ after subsection (n) (as added by subsection (c) of this section) the following new subsection:

"(o) Substantially Rehabilitated Historic Property.—

" ( 1) General rule.—Pursuant to regulations prescribed by the

Secretary, the taxpayer may elect to compute the depreciation

deduction attributable to substantially rehabilitated historic property as though the original use of such property commenced with

him. The election shall be effective with respect to the taxable year

referred to in paragraph (2) and all succeeding taxable years. "(2) Substantially rehabilitated property.—For purposes

of paragraph (1), the term 'substantially rehabilitated historic

property' means any certified historic structure (as defined in sec- tion 191(d) (1)) with respect to which the additions to capital Ante, p. 1916. account for any certified rehabilitation (as defined in section

191(d) (3) ) during the 24-month period ending on the last day of

any taxable year, reduced by any amounts allowed or allowable as depreciation or amortization with respect thereto, exceeds the

greater of

"(A) the adjusted basis of such property, or "(B) $5,000.

The adjusted basis of the property shall be determined as of the

beginning of the first day of such 24-month period, or of the holding period of the property (within the meaning of section 1250

(e) ), whichever is later." (2) Effective date.—The amendment made by this subsection 26 USC 167 - shall apply with respect to additions to capital account occurring note, after June 30, 1976, and before July 1, 1981.

(e) Transfers op Partial Interests in Property for Conservation Purposes.—

(1) Income tax deductions for charitable contributions of

partial interests in property for conservation purposes.—Section 170(f)(3) (relating to charitable contributions) is 26 USC 170. amended

(A) by striking out "or" at the end of subparagraph

(B)(i),

(B) by striking out "property.", at the end of subparagraph (B) (ii) and inserting in lieu thereof "property,,

(C) by adding after clause (ii) of subparagraph (B) the

following new clauses

"(lii) a lease on, option to purchase, or easement with

respect to real property of not less than 30 years' duration granted to an organization described in subsection

(b) (1) (A) exclusively for conservation purposes, or

"(iv) a remainder interest in real property which is granted to an organization described in subsection (b)

(1)(A) exclusively for conservation purposes.", and

(D) by adding at the end thereof the following new subparagraph : "(C) Conservation purposes defined.—For purposes of

subparagraph (B) , the term 'conservation purposes' means

"(i) the preservation of land areas for public outdoor

recreation or education, or scenic enjoyment

;

"(ii) the preservation of historically important land

areas or structures; or

"(iii) the protection of natural environmental systems.".

(2) Estate tax deduction foe transfer of partial interests

in property for conservations purposes.—Section 2055(e)(2) 26 USC 2055.

25
90 STAT. 1920 PUBLIC LAW 94-455—OCT. 4, 1976

(relating to deductions from gross estate) is amended by strik- ing out "(other than a remainder interest in a personal residence or farm or an undivided portion of the decedent's entire interest

in property)" and inserting in lieu thereof "(other than an interAnie, p. 1919. ^^ described in section 170(f) (3) (B))".

(3) GlTT TAX DEDrCATIOX FOR TRANSFERS OF PARTIAIi IXTERESTS IN

26 use 2522. PROPERTY FOR coxsERVATiox PURPOSES.—Section 2522 (c)(2)

(relating to deductions from taxable gifts) is amended by strik- ing out "(other than a remainder interest m a personal residence

or farm or an undivided portion of the donor's entire interest in property)" and inserting in lieu thereof "(other than an inter- 26 use 170 ^^^ described in section 170(f) (3) (B))".

jjQjg (4) Effective date.—The amendments made by this subsection

shall apply with respect to contributions or transfers made after June 13, 1976, and before June 14, 1977.

26 * U.S. GOVERNMENT PRINTING OFFICE : 1978 O—276-679
HBS-114A (REV. I 1-77)

U.S. DEPT. OF COMM. BIBLIOGRAPHIC DATA

SHEET

1. PUBLICATION OR REPORT NO. NBS Technical Note 980

2. Gov't Accession

No.

3. Recipient's Accession No.

4. TITLE AND SUBTITLE

Historic Preservation Incentives of the 1976 Tax Reform Act;

An Economic Analysis

5. Publication Date February 1979

6. Performing Organization Code

744

17. AUTHOR(S)

Stephen F« Weber

I9. PERFORMING ORGANIZATION NAME AND ADDRESS

8. Performing Organ. Report No.

10. Project/Task/Work Unit No. NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

11. Contract/Grant No.

12. Sponsoring Organization Name and Complete Address (Street, City, State, ZIP) 13. Type of Report & Period Covered

Final

14. Sponsoring Agency Code

15. SUPPLEMENTARY NOTES

Library of Congress Catalog Card Number 78-6OOO68

16. ABSTRACT (A 200-word or less factual summary of most significant information. If document includes a significant

bibliograpfiy or literature survey, mention it here.)

The Tax Reform Act (TRA) of 1976 includes several provisions which affect the

financial position of owners of income-producing historic buildings. This report

analyzes the effect of the TRA on the after-tax cost of two basic alternatives

facing the owner: (l) rehabilitate the structure; or (2) demolish it and redevelop

the site. A life-cycle Tiinimization model was developed, programmed in BASIC

language, and applied in an after-tax comparison of six alternative situations

representing rehabilitation and redevelopment both before and after the TRA. Under

the assumptions of the model used in this analysis, the TRA has made the

rehabilitation option significantly more attractive than previously. The former

tax bias in favor of demolition and redevelopment has been reversed. Until now,

ttiis information on the life-cycle tax advantages of rehabilitating historic

buildings has been unavailable. This report will help corporate investors make

cost-effective decisions regarding historic preservation of nonresidential buildings

and provide policy makers with information on the effectiveness of these tax

incentives. The approach utilized could be adapted to analyze incentives for

other types of building rehabilitation.

117. KEY WORDS (six to twelve entries; alphabetical order; capitalize only the first letter of the first key word unless a proper

I name; separated by semicolons)

Adaptive reuse; buildings; demolition; economics; historic preservation; lifecycle costing; redevelopment; rehabilitation; tax incentives.

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