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Summary

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This bill requires the state of Rhode Island to transfer a portion of state income taxes collected from certain new employees directly to the city of Providence. Specifically, it applies to new employees hired after 2025 by not-for-profit healthcare and educational institutions located in Providence. The state will calculate the income taxes withheld from these new jobs and send 25% of that amount to the Providence city treasurer every year, starting in fiscal year 2028. This money will be provided in addition to the city's regular state aid.
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Analysis

Pros for Progressives

  • Provides additional revenue to a major city (Providence), enabling the local government to potentially fund generous public services and social safety nets for urban residents.
  • Extracts financial value from large, tax-exempt institutions (like wealthy private universities and hospital networks) that otherwise do not pay local property taxes, indirectly supporting the local community.
  • Encourages the growth of non-profit healthcare and educational sectors, which are vital for community welfare and public health, by tying local municipal funding to their job creation.

Cons for Progressives

  • Diverts state income tax revenue away from the state's general fund, potentially reducing the state's ability to fund universal social programs and public services across poorer, disadvantaged municipalities outside of Providence.
  • Creates a specialized carve-out that only benefits one specific city, which goes against the progressive ideal of equitable, systemic reform and wealth distribution for all communities.
  • Relies on taxing workers' wages rather than taxing the wealthy institutions directly, which fails to fundamentally address the systemic issue of large non-profits avoiding property taxes.

Pros for Conservatives

  • Incentivizes local job creation by directly rewarding the city when new employees are hired, aligning municipal interests with economic growth.
  • Bypasses state-level bureaucracy by returning a portion of generated tax revenue directly to the local municipality where the economic activity actually occurred.
  • Avoids imposing new direct taxes on businesses or individuals, instead reallocating existing tax revenues to support local government operations.

Cons for Conservatives

  • Rewards non-profit, often progressively-leaning institutions (like universities) by making them the center of a municipal funding scheme, rather than focusing on free-market corporate enterprises.
  • Complicates the tax code with a highly specific carve-out for one city and specific types of employers, undermining the conservative preference for a simple, uniform tax system.
  • Decreases the state's general revenue without a corresponding cut in state spending, potentially leading to future tax increases on citizens to make up the shortfall.

Constitutional Concerns

None Likely. The state legislature has broad authority to apportion state tax revenues and direct funds to specific municipalities. There are no apparent free speech, due process, or search and seizure issues.

Impact Overview

Groups Affected

  • City of Providence
  • Not-for-profit educational institutions
  • Not-for-profit healthcare institutions
  • State Division of Taxation
  • Rhode Island state government

Towns Affected

Providence

Cost to Taxpayers

Amount unknown

Revenue Generated

Amount unknown

BillBuddy Impact Ratings

Importance

40

Measures population affected and overall level of impact.

Freedom Impact

0

Level of individual freedom impacted by the bill.

Public Services

40

How much the bill is likely to impact one or more public services.

Regulatory

15

Estimated regulatory burden imposed on the subject(s) of the bill.

Clarity of Bill Language

85

How clear the language of the bill is. Higher ambiguity equals a lower score.

Enforcement Provisions

30

Measures enforcement provisions and penalties for non-compliance (if applicable).

Environmental Impact

0

Impact the bill will have on the environment, positive or negative.

Privacy Impact

0

Impact the bill is likely to have on the privacy of individuals.

Bill Status

Current Status

Held
Comm Passed
Floor Passed
Law

History

• 04/20/2026 Introduced, referred to Senate Finance

Bill Text

SECTION 1. Title 44 of the General Laws entitled "TAXATION" is hereby amended by adding thereto the following chapter: CHAPTER 73 CITY OF PROVIDENCE: TRANSFER OF PORTION OF STATE INCOME TAXES OF NEW EMPLOYEES OF NOT-FOR-PROFIT HEALTH CARE INSTITUTIONS AND EDUCATIONAL INSTITUTIONS
44-73-1. Definitions.
As used in this chapter, unless the context clearly indicates otherwise:
(1) “City” means the city of Providence.
(2) “Director” means the director of the state division of taxation.
(3) “Educational institution” means any not-for-profit provider of higher education including, but not limited to, private colleges and universities.
(4) “Healthcare institution” means any facility or campus providing not-for-profit healthcare services including, but not limited to, hospitals and other licensed inpatient centers, ambulatory surgical or treatment centers, skilled nursing centers, residential treatment centers, convalescent, extended care and rehabilitation facilities, health maintenance organizations, health clinics, free-standing emergency rooms, diagnostic, laboratory and imaging centers, visiting nurses’ associations, or other therapeutic health settings.
(5) “Health service corporation” means any not-for-profit entity formed for purposes including, but not limited to, establishing, maintaining managing and operating a healthcare system, service, network or plan, for conducting scientific or medical research, and/or for training health care providers and researchers.
(6) “Initial employment level” means for the tax year January 1, 2025 to December 31, 2025, the aggregate and average numbers of persons employed by the institution for whom state income taxes were withheld and reported to and/or paid to the state division of taxation.
(7) “Institution” or “institutions” means collectively not-for-profit healthcare institutions, health service corporations, and educational institutions as defined in this subsection.
(8) “New employee” or “new employment” means for each calendar year beginning January 1, 2026, the number of persons employed by the institution during that year, over and above the number of employees reported as the initial employment level, and for whom state income taxes were withheld by an institution and submitted and/or paid to the state division of taxation.
(9) “Not-for-profit corporation” means a legal entity, whether a corporation, partnership or other entity, formed for some charitable or benevolent purpose and not-for-profit which has been exempted from taxation pursuant to the Rhode Island general laws or Internal Revenue Code § 501(c)(3), 26 U.S.C. § 501(c)(3).
(10) “State” means State of Rhode Island.
44-73-2. Procedures.
(a) No later than July 30, 2026, all institutions defined in § 44-73-1 shall provide to the director the initial employment level for the institution for the calendar year 2025, and the total amount of state income taxes withheld from the payroll and provided to the state department of revenue for the aggregate number of employees for the calendar year 2025, A copy of the information shall at the same time be provided to the city’s chief financial officer.
(b) No later than December 31, 2026, each institution shall provide the director and the city’s chief finance officer with the following:
(1) The aggregate number of new employees for the period January 1, 2026 through December 31, 2026 for whom state income taxes were withheld and submitted to the state department of revenue; and
(2) The total amount of annual state income taxes submitted to the division of taxation for all new employees.
(c) No later than December 31 of each subsequent calendar year, each institution shall provide the director and the city’s chief finance officer with the following:
(1) The aggregate number of new employees for the individual calendar year; and LC004021 - Page 2 of 7
(2) The total amount of annual state income taxes submitted to the division of taxation for all new employees for the individual calendar year, including estimated state taxes; and
(3) The total aggregate number of employees for all calendar years since the initial reporting period; and
(4) The total amount of annual state income taxes submitted to the division of taxation, including estimated state taxes, for the total aggregate number of employees for all calendar years since the initial reporting period.
(d) All data provided to the director and the chief financial officer shall be signed by the person compiling the data and the person authorized to sign on behalf of the corporation.
(e) No later than September 1 of each fiscal year beginning with fiscal year 2028, the state shall remit or transfer to the city treasurer an amount representing twenty-five percent (25%) of the state income taxes of the aggregate number of total new employees since the initial reporting period.

SECTION 2. Section 35-4-1 of the General Laws in Chapter 35-4 entitled "State Funds" is hereby amended to read as follows:
35-4-1. Revenue credited to general fund — Exceptions — Deposits.
All receipts and revenue of the state shall be credited by the general treasurer to the general fund of the state with the exception of receipts or revenue pertaining to the following funds:
(1) Permanent school fund;
(2) Touro Jewish synagogue fund;
(3) Land-grant fund of 1862;
(4) Veterans’ home fund;
(5) United States cooperative vocational education fund;
(6) United States industrial rehabilitation fund;
(7) Forestry cooperative fund;
(8) State sinking fund;
(9) Fire insurance fund;
(10) Fund for relief of firemen;
(11) Fund for relief of policemen;
(12) Coastal Resources Management Council Dredge Fund;
(13) Funds received from the federal government in accordance with the provisions of parts 1 and 2 of title V of the Social Security Act, 42 U.S.C. § 501 et seq.;
(14) Any other funds that may by federal law or regulation, or by enactment of the general assembly, be allocated to a specific fund, provided, that nothing contained in this section shall amend or modify: § 19-3.1-9, which pertains to securities deposited by trust companies and national LC004021 - Page 3 of 7 banks having trust departments; § 19-5-15, which pertains to credit unions; nor § 27-1-5, which pertains to deposits of securities by insurance companies with the general treasurer; and
(15) Funds received until June 30, 2002, from the northeast dairy compact commission, which was enacted into law in Rhode Island by P.L. 1993, ch. 106, § 2-24-1 et seq. These funds are to be passed from the northeast dairy compact commission through the department of elementary and secondary education to reimburse school districts for school milk that is exempted from the federal over-order price regulation obligation at 7 CFR 1301. These funds are to be placed in a restricted receipt account established within the department of elementary and secondary education separate from all other accounts within the department of elementary and secondary education. All funds deposited in the restricted receipt account established in this section shall be disbursed prior to June 30, 2002; and
(16) State withholding taxes received by the director of revenue for calendar years 2026 and thereafter, which shall be remitted to the city of Providence pursuant to chapter 73 of title 44.

SECTION 3. Section 45-13-1 of the General Laws in Chapter 45-13 entitled "State Aid" is hereby amended to read as follows:
45-13-1. Apportionment of annual appropriation for state aid.
(a) As used in this chapter, the following words and terms have the following meanings:
(1) “Income” means the most recent estimate of per-capita income for a city, town or county as reported by the United States Department of Commerce, Bureau of the Census.
(2) “Population” means the most recent estimates of population for each city and town as reported by the United States Department of Commerce, Bureau of the Census.
(3) “Reference year” means the second fiscal year preceding the beginning of the fiscal year in which the distribution of state aid to cities and towns is made provided however that the reference year for distributions made in fiscal year 2007-2008 shall be the third fiscal year preceding the beginning of the fiscal year 2007-2008 and provided further that the reference year for distributions made in fiscal year 2008-2009 shall be the fourth fiscal year preceding the beginning of the fiscal year 2008-2009.
(4) “Tax effort” means the total taxes imposed by a city or town for public purposes or the totals of those taxes for the cities or towns within a county (except employee and employer assessments and contributions to finance retirement and social insurance systems and other special assessments for capital outlay) determined by the United States Secretary of Commerce for general statistical purposes and adjusted to exclude amounts properly allocated to education expenses.
(b) Aid to cities and towns shall be apportioned as follows: For each county, city or town, let R be the tax effort divided by the square of per capita income, i.e., R = (tax effort)/(income x LC004021 - Page 4 of 7 income).
The amount to be allocated to the counties shall be apportioned in the ratio of the value of R for each county divided by the sum of the values of R for all five (5) counties.
The amount to be allocated for all cities and for all towns within a county shall be the allocation for that county apportioned proportionally to the total tax effort of the towns and cities in that county.
The amount to be allocated to any city or town is the amount allocated to all cities or all towns within the county apportioned in the ratio of the value of R for that city (or town) divided by the sum of the values of R for all cities (or all towns) in that county; provided, further, that no city or town shall receive an entitlement in excess of one hundred forty-five percent (145%) of that city or town’s population multiplied by the average per capita statewide amount of the annual appropriation for state aid to cities and towns. Any excess entitlement shall be allocated to the remainder of the cities and towns in the respective county in accordance with the provisions of this section.
For fiscal year 2004, notwithstanding the provisions of subsection (a), aid calculations shall be based on a blended rate of ninety percent (90%) of the data from the 1990 census and ten percent (10%) of the data from the 2000 census. In each of the succeeding nine (9) fiscal years, the calculations shall be based on a blended rate that increases the percentage of data utilized from the 2000 census by ten percent (10%) from the previous year and decreases the percentage of the data utilized from the 1990 census by ten percent (10%) from the previous year.
(c) The total amount of aid to be apportioned pursuant to subsection (b) above shall be specified in the annual appropriation act of the state and shall be equal to the following:
(1) For fiscal years ending June 30, 1994 through June 30, 1998, the total amount of aid shall be based upon one percent (1%) of total state tax revenues in the reference year.
(2) For the fiscal year ending June 30, 1999, the total amount of aid shall be based upon one and three-tenths percent (1.3%) of total state tax revenues in the reference year.
(3) For the fiscal year ending June 30, 2000, the total amount of aid shall be based upon one and seven-tenths percent (1.7%) of total state tax revenues in the reference year.
(4) For the fiscal year ending June 30, 2001, the total amount of aid shall be based upon two percent (2.0%) of total state tax revenues in the reference year.
(5) For the fiscal year ending June 30, 2002, the total amount of aid shall be based upon two and four-tenths percent (2.4%) of total state tax revenues in the reference year.
(6) For the fiscal year ending June 30, 2003, the total amount of aid shall be based upon two and four-tenths percent (2.4%) of total state tax revenues in the reference year. LC004021 - Page 5 of 7
(7) For the fiscal year ending June 30, 2004, the total amount of aid shall be based upon two and seven-tenths percent (2.7%) of total state tax revenues in the reference year.
(8) For the fiscal year ending June 30, 2005, the total amount of aid shall be fifty-two million four hundred thirty-eight thousand five hundred thirty-two dollars ($52,438,532).
(9) For the fiscal year ending June 30, 2006, the total amount of aid shall be based upon three percent (3%) of total state tax revenues in the reference year.
(10) For the fiscal year ending June 30, 2007 the total amount of aid shall be sixty-four million six hundred ninety-nine thousand three dollars ($64,699,003).
(11) For the fiscal year ending June 30, 2008, the total amount of aid shall be sixty-four million six hundred ninety-nine thousand three dollars ($64,699,003).
(12) [Deleted by P.L. 2009, ch. 68, art. 6, section 3.] (13) [Deleted by P.L. 2007, ch. 73, art. 25, section 1.] (14) [Deleted by P.L. 2007, ch. 73, art. 25, section 1.] (d) For the fiscal year ending June 30, 2008 the apportionments of state aid as derived through the calculations as required by subsections (a) through (c) of this section shall be adjusted downward statewide by ten million dollars ($10,000,000).
(e) For the fiscal year ending June 30, 2009, the total amount of aid shall be twenty-five million dollars ($25,000,000) with such distribution allocated proportionately on the same basis as the original enactment of general revenue sharing of FY 2009.
(f) For the fiscal year ending June 30, 2009 and thereafter, funding shall be determined by appropriation; provided, however, that no portion of the state income tax paid to the city of Providence pursuant to chapter 73 of title 44 shall be considered part of an appropriation or allocation to the city of Providence under this chapter, but shall be considered a separate allocation to the city.

SECTION 4. This act shall take effect upon passage.

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