2009年-世界发展银行全球_Pakistan_-_Tax_Policy_Report___Tapping_Tax_Bases_for_Development_-__Full_Report_174页_1mb

报告摘要

Pakistan Tax Policy Report Summary

Core Content

This report, Report No. 50078-PK, titled "Tapping Tax Bases for Development", is a comprehensive analysis of Pakistan's tax system and its potential for reform. It is a joint effort by the Federal Board of Revenue (FBR), the Government of Pakistan, the Andrew Young School of Public Policy (AYSPS) at Georgia State University, and the World Bank. The report is divided into two volumes, with this being Volume II: Full Report, published in July 2009.

The report aims to assess the current state of Pakistan's tax system, identify areas for reform, and suggest policy options to improve tax collection, efficiency, equity, and compliance. It highlights the importance of tax policy in development and the need for sustainable fiscal management.

Main Viewpoints

1. Economic and Fiscal Challenges

Macroeconomic imbalances have historically threatened Pakistan's economic development, with periods of high growth followed by low growth due to external vulnerabilities and insufficient policy adjustments.
The government is committed to economic stabilization, increasing tax collection alongside development and social safety net expenditures, and reducing fiscal deficits.
High fiscal and current account deficits, along with inflation, are closely tied to the inefficient tax revenue collection.
Large fiscal deficits crowd out private investment and undermine macroeconomic stability by increasing interest rates and reducing domestic investment, which in turn lowers productivity and future national income.
Prolonged fiscal deficits can lead to loss of market confidence, a self-reinforcing negative cycle, and reduced economic activity.

2. Need for Tax Reform

Tax collection is essential for funding development and social programs, especially given the limited space for reducing public spending.
Non-tax revenues have grown faster than tax revenues, but they are not a reliable long-term source for financing public expenditures.
The report recommends a shift towards sustainable tax revenue mobilization to reduce reliance on volatile sources like fiscal deficits and non-tax revenues.

3. Tax System Overview

Tax-to-GDP ratio is low, and tax gaps are significant.
Tax incidence is uneven, with inequities in how the tax burden is distributed across different sectors and income groups.
Compliance is a major issue, especially in indirect taxes like General Sales Tax (GST) and Customs Duties.

Key Information

Tax System Structure

Fiscal Year: July 1 – June 30
Currency: Pakistan Rupees (PKRs), with 1 USD = 83.14 PKR as of July 2009
Tax Types:
- Direct Taxes: Corporate Income Tax (CIT), Individual Income Tax (IIT), Agricultural Income Tax (AIT)
- Indirect Taxes: General Sales Tax (GST), Federal Excise Duties (FED), Customs Duties (CD), Urban Immovable Property Tax (UIPT), and others
- Provincial Taxes: Sales Tax on Services, Motor Vehicle Taxes, Land and Property Transfer Taxes, Agricultural Income Tax, Professional Tax, etc.

Tax Reform Areas

General Sales Tax (GST): Needs broadening of the tax base, improving compliance, and reducing non-neutrality.
Corporate Income Tax (CIT): Requires rate reductions, simplification, and better enforcement. The report also discusses withholding taxes, tax incentives, and international tax provisions.
Individual Income Tax (IIT): Should be simplified, with flat rates or two-tier structures, and reduced administrative burdens.
Federal Excise Duties (FED): Should be reformed for equity and compliance, with focus on non-essential consumption and tobacco taxation.
Customs Duties: Need to be restructured for equity, compliance, and efficiency, with three-tier structures suggested.
Provincial Taxes: Should be reformed for vertical and horizontal equity, with targeted revenue collection, improved compliance, and expanded tax bases.

Policy Recommendations

Tax Base Broadening: Expand the tax base to increase revenue collection and reduce tax evasion.
Compliance Improvement: Implement better enforcement mechanisms, modernize tax administration, and reduce bureaucratic inefficiencies.
Equity and Efficiency: Ensure fair tax distribution across income groups and sectoral efficiency in tax design.
Sustainable Financing: Shift towards tax-based financing for development and reduce reliance on non-tax revenues and fiscal deficits.
Sequencing of Reforms: Prioritize tax reforms in a logical sequence to maximize impact and minimize disruption.

Key Figures and Tables

Figure 1.1: Economic and Fiscal Indicators showing growth acceleration and improved fiscal and social indicators.
Figure 1.2: Public Spending and Development Outcomes highlighting improvements in welfare indicators.
Figure 1.3: Pakistan's Tax and Non-Tax Revenues showing non-tax revenues surpassing tax revenues.
Figure 1.4: Tax-to-GDP ratio trends indicating the need for improvement.
Figure 1.5: Tax collection in Pakistan compared to other developing countries.
Figure 2.1–2.11: Revenue impacts of various tax reforms and tax gaps.
Table 2.1–2.5: Simulations and sequencing of tax policy reform.
Table 3.1–3.9: Main findings on structural properties, tax incidence, and compliance.
Table 4.1–4.8: Policy options and compliance issues related to GST.
Table 5.1–5.7: Revenue impacts and compliance challenges for CIT.
Table 6.1–6.4: Policy options and revenue impact for IIT.
Table 7.1–7.3: Reform options for FED.
Table 8.1–8.2: Reform options for custom duties.
Table 9.1–9.17: Provincial tax reform findings, revenue potential, and policy matrices.

Conclusion

The report underscores the critical role of tax policy in development and the urgent need for reform to ensure sustainable fiscal management and equitable resource distribution. It highlights the importance of improving tax compliance, broadening tax bases, and reducing tax gaps to support long-term economic growth and social development. The policy recommendations are aimed at creating a more efficient, equitable, and sustainable tax system in Pakistan.