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              SCongressional
              Research Servik





Income Shares, Tax Shares, and Average Tax

Rates Across the Income Distribution



December 7, 2020

The distribution of income and tax burdens often informs tax policy debates. The U.S. income tax system
is generally progressive. In a progressive tax system, those with higher incomes pay more, as a percentage
of their income, in taxes. As a result, average tax rates tend to be higher for higher-income taxpayers.
Future changes to the income tax system might seek to increase or decrease the progressivity of the tax
system, or to leave the distribution of the tax burden unchanged.
The Internal Revenue Service (IRS) is one source for data on the income and tax distribution. IRS data on
the income and tax shares for 2018 w ere recently released. Changes to the tax code that were part of the
2017 tax revision (P.L. 115-97), commonly referred to as the Tax Cuts and JobsAct (TCJA), were
generally effective for the 2018 tax year. Thus, these 2018 data provide information on how the TCJA
initially affected the distribution of the tax burden and average tax rates. This Insight uses IRS data on
income and tax shares from 2001 through 2018 to look at medium-term trends in the distribution of
income and the income tax burden, as well as average tax rates for different income groups.

Distribution  of Income

In 2018, the top 1% of taxpayers had 21% of total adjusted gross income (AGI). Since 2001, the share of
AGI earned by the top 1% of the AGI distribution has fluctuated (Figure 1). After rising early in the
2000s, it fell during the Great Recession, before rising again, although not to levels seen in the mid-
2000s.
Since 2001, when the share of AGI earned by the top 1% has fallen, the share of AGI going to earners in
the 50th to 90th percentile of the income distribution has tended to rise. There has been less fluctuation in
the share of AGI earned by taxpayers in the 90th to 99th percentile over the same period. The 12% share of
AGI earned by those in the bottom 50% of the AGI distribution is lower than it was in the early 2000s,
and has remained stable in recent years.






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