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Employers were wary about rushing to add workers and made do with their existing payrolls for a time, helped in some cases by technologically driven productivity gains.
This month, they will try to pass a tailored tax cut for small businesses that hire new workers or expand existing payrolls as a counter to a House-passed 20 percent tax cut for nearly all businesses.
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Hal Steinbrenner would try to do it with the existing payroll of roughly $200 million.
So it built on what it had, expanding the existing payroll-tax-funded, private insurance system to cover all wage earners, their families, and retirees.
One telling moment came late in the year, when Democrats and Republicans agreed to extend an existing payroll tax cut for two months.
Nor were Democrats successful in passing a surtax on million-dollar incomes that they wanted to use to finance their jobs proposals, including extension of existing payroll tax cuts.
And Mr. Snow cited what he said were shortcomings with the supplemental approach, which would require workers to make contributions into private accounts in addition to paying the existing payroll tax.
So Mr. Obama's plan would piggyback on existing payroll direct-deposit systems, siphoning off 3percentt or so of everyone's salaries and funneling it directly to an individual retirement account, probably a Roth for those who qualify.
Subsidies that take the form of a reduction in an existing payroll tax or contribution will occur automatically and are as accurate as the underlying tax or contribution.
But he did not recommend diverting existing payroll taxes into private accounts, as President Bush and conservatives have proposed.
From an ideal-policy standpoint, either swapping a VAT/carbon tax combination for the entire existing payroll structure or using a more modest VAT to just pay for a permanent payroll tax cut seem like ideas well-worth considering.
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Justyna Jupowicz-Kozak
CEO of Professional Science Editing for Scientists @ prosciediting.com