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The evidence presented in this paper supports the view that many Americans, particularly those without a college education, save too little.Our analysis also indicates that it should be possible to increase total personal saving among lower income households by encouraging the formation and expansion of private pension plans.It is doubtful that favorable tax treatment of capital income would stimulate significant additional saving by this group.Conversely, the expansion of private pensions would probably have little effect on saving by higher income households.However, these households are more likely to increase sav- ing significantly in response to favorable tax treatment of capital income.Currently, eligibility for IRAs is linked to an AGI cap, and pension coverage is more common among higher income households than among low income households.The most effective system for promoting personal saving would have precisely the opposite features.Extending tax incentives for saving to higher income households is problematic.We discuss three competing policy options, WAs with ACT This paper was prepared for a conference on "Tax Policy and the Economy," Washington, D.C., November 17, 1992.
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