A study showing New Mexico gets only 14 cents back in taxes for every dollar that it gives the film industry is raising questions about a popular incentive program.
Prodded by Gov. Bill Richardson's administration, the state has lured moviemakers with sweet deals on tax rebates, loans and film crew training. Productions have flocked to the state — 115 feature-length films or television projects over the last five years, according to the governor's office.
Oscar winner "No Country for Old Men" was shot in New Mexico. So were Oscar nominees "3:10 to Yuma," "In the Valley of Elah," and "Transformers." And AMC's "Breaking Bad" and USA's "In Plain Sight" film here.
"It's been a tremendous economic benefit to the state," said Eric Witt, the governor's entertainment adviser.
According to the administration, about $700 million was directly spent by the 115 projects. State officials maintain the total impact on the economy was more like three times that, $2 billion-plus.
Witt said the highly mobile industry "dumps a lot of cash in a local economy very quickly, and dumps it very broadly throughout the community."
Wary lawmakers, however, worry about the incentives being a runaway cost to the state.
New Mexico has a bleak economic outlook — a $450 million shortfall this year, and certain cutbacks next year.
The film incentive package, among the most attractive in the nation, includes a 25 percent refund for all direct production expenditures — including New Mexico labor — that are subject to taxation by the state.
That tax rebate was the focus of a recent study for the Legislative Finance Committee by the Arrowhead Center, the economic development arm at New Mexico State University.
It showed that in the budget year that ended June 30, 31 film projects qualified for rebates totaling more than $38 million.
According to the study, the resulting increase in economic activity from the film spending would generate $5.5 million in new taxes in the areas of personal income, corporate income and gross receipts.
For every dollar put into the rebates, in other words, the state would get back 14 cents in tax revenue.
One of the study's authors said the figure raises questions about whether the rebate is the wisest use of tax dollars.
"The problem is, we're giving away $33 million a year to have the industry here — and there is no guarantee they will stay here if we take that incentive away," said Anthony Popp, head of the Department of Economics and International Business at NMSU.
The Richardson administration is critical of the study, saying it wasn't a definitive analysis.
Witt complained it was too narrowly focused — not taking into consideration, for example, spending by projects that didn't qualify for the rebate, the money spent building film studios, and the revenue from out-of-state crew members who have to pay income tax here.
The administration has hired Ernst Young to do another study, which should be ready before the January legislative session.
New Mexico also offers zero percent loans of up to $15 million — there's $155 million outstanding now — and an on-the-job training program that reimburses half the wages of New Mexico technical crew members.
The combination of the incentives, studio space and trained crews proved irresistible to a small company that will shoot a $75 million film, "The Book of Eli" with Denzel Washington, beginning in February.
"The state of new Mexico has made a concerted and consistent effort to build film as a business in this state," said Andrew Kosove, a founder of Alcon Entertainment, which got a $15 million loan. "When you build that kind of infrastructure, the chance for this to pay off ... is real."
More than 40 states have film incentives and they have been scrambling to out-do one another, said Frank Hamsher, a public policy consultant from St. Louis. Michigan offers a production rebate of a whopping 42 percent.
"It's like poker. They see the last bid and they up it a bit," said Hamsher, who spoke on the subject at a recent meeting in San Diego sponsored by the Western States Arts Federation.
Fickle filmmakers, meanwhile, are chasing the next best deal, he added.
Most states haven't taken a hard look at what's being spent, what taxpayers are getting in return, and how sustainable it is, Hamsher said.
"The bottom line is, it's far more expensive than we anticipated," said Senate Finance Chairman John Arthur Smith, a Democrat from Deming.
"I don't mind priming the pump for new industries, but I don't want them to have a honeymoon year after year," he said.
Smith before the 2008 session floated the idea of a $30 million cap on the rebates, which was immediately ditched after hundreds of industry supporters showed up at a hearing in protest.
And it's unlikely there would be much support for cutting the incentives in the next session, even if Richardson leaves, as expected, to become commerce secretary in the Obama administration.
"It is one of the job creators in New Mexico. .... I am going to work hard to make sure we don't lose ground in that area," said Lt. Gov. Diane Denish, who would succeed Richardson.
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