African Tax Administration Paper 18
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African Tax Administration Paper 18 Who can make Ugandan taxpayers more compliant? Ronald Waiswa, Doris Akol and Milly Nalukwago Isingoma July 2020 ICTD African Tax Administration Paper 18 Who can make Ugandan taxpayers more compliant? Ronald Waiswa, Doris Akol and Milly Nalukwago Isingoma July 2020 Who can make Ugandan taxpayers more compliant? Ronald Waiswa, Doris Akol and Milly Nalukwago Isingoma ICTD African Tax Administration Paper 18 First published by the Institute of Development Studies in July 2020 © Institute of Development Studies 2020 ISBN: 978-1-78118-665-7 This is an Open Access paper distributed under the terms of the Creative Commons Attribution Non Commercial 4.0 International license, which permits downloading and sharing provided the original authors and source are credited – but the work is not used for commercial purposes. http://creativecommons.org/licenses/by-nc/4.0/legalcode Available from: The International Centre for Tax and Development at the Institute of Development Studies, Brighton BN1 9RE, UK Tel: +44 (0) 1273 606261 Email: [email protected] Web: www.ictd.ac/publication Twitter: @ICTDTax Facebook: www.facebook.com/ICTDtax IDS is a charitable company limited by guarantee and registered in England Charity Registration Number 306371 Charitable Company Number 877338 2 Who can make Ugandan taxpayers more compliant? Ronald Waiswa, Doris Akol and Milly Nalukwago Isingoma Summary The rate of occurrence of tax evasion is higher in Uganda than in the rest of East Africa. Where the taxpayer has latitude to decide whether or not to be compliant, as in the case of income taxes, Ugandans seem to be less compliant than other East Africans. Uganda collects less in domestic taxes than other countries in the region. For revenue, the Ugandan government depends more on customs duties, on taxes that are difficult to dodge, notably Withholding Tax, and on taxes where there are in-built incentives to comply, such as Value Added Tax (VAT). The framework for improving tax compliance consists of three broad channels: making it easier for taxpayers to comply (facilitation), enforcement and increasing trust (in the government, in its spending practices, and in the tax collection agency itself). Using this framework, we discuss the measures that have been adopted by the Uganda Revenue Authority (URA) and the Government of Uganda, the successes achieved and the gaps that remain. The URA is best placed for facilitation. It also plays a major role in enforcement, although its efforts may be either supported or undermined by the government and politicians. The URA can do little to increase trust in the government in general; that is principally a job for the government. The URA can mainly make itself more trustworthy in the eyes of taxpayers by being transparent and minimising corruption. We find that URA has been successful in facilitating tax compliance, although there are opportunities for improvements on its current initiatives. The URA’s enforcement actions are, however, weak and limited. To a large extent, they have been undermined by the government and politicians. Enforcement has also been weak, due to internal URA factors, such as the understaffing of the enforcement team and the fact that the URA does not take enforcement action as often on small taxpayers. Lastly, very little has been done to build taxpayer morale. There are widespread concerns over the poor use of tax money, missing or poor government services and some sections of society being shielded from paying their share, because of their connections or roles in government. The URA is also not highly trusted and corruption is still a major problem among tax collectors. To build trust in the government, the URA is undertaking some of the tasks of justifying tax collection that would normally be undertaken by another part of government. There is a lot of scope for both the government and URA to gain more trust from the taxpayer. Improving tax compliance in Uganda will require the government (in the sense of the executive) and the URA to work more together. The government should give more support to URA activities, desist from protecting non-compliant taxpayers and be accountable to the public for the revenues collected. The URA needs to improve its trust-building initiatives and address some internal weaknesses. Keywords: tax compliance, tax reforms, revenue administration, political interference, facilitation, enforcement, trust. Ronald Waiswa is a supervisor for Research and Policy Analysis at Uganda Revenue Authority’s Research, Planning and Development Division. He also heads research and 3 training at Lida Africa. He has collaborated with ICTD on a number of research projects in Uganda and Ethiopia on issues, including taxing wealthy individuals and public sector agencies. Doris Akol is a Ugandan lawyer and administrator. At time of writing this paper, she was the Commissioner General of Uganda Revenue Authority. She has over 23 years’ experience in tax administration. Prior to becoming Commissioner General, she served as the Commissioner for Legal Services and Board Affairs. Milly Nalukwago Isingoma is the Assistant Commissioner for Research, Planning and Development at the URA. She is also the URA head of Delegation to the East African Revenue Authorities Technical Committee and a member of ICTD’s Centre Advisory Group. 4 Contents Summary 3 Acknowledgements 7 Acronyms 7 Introduction 8 1 Framework for improving tax compliance 10 2 Facilitation 10 2.1 Automation of tax services 11 2.2 Taxpayer education 12 2.3 Creating tax offices in all major towns across the country and 44 OSS 14 2.4 Staff motivation 15 3 Enforcement 15 3.1 Understaffing of the enforcement team 17 3.2 Little attention given to small taxpayers 18 4 Creating trust in the government and the URA 19 4.1 Creating trust in the government 20 4.1.1 Poor government spending practices 20 4.1.2 Unfair taxation where some are not paying their share because of 23 their connections to or role in government 4.1.3 Publishing government works: My Taxes Work publication and video 24 4.1.4 Because of You campaigns 24 4.1.5 Taxpayer Appreciation Days (TPAD) 25 4.2 Creating trust in the URA 26 4.2.1 Press briefs 27 4.2.2 Corporate Social Responsibility (CSR) 27 4.2.3 Open Minds Forum (OMF) 28 5 Summary and conclusion 29 References 31 Appendices 34 Appendix 1 Table A1 Respondents (taxpayers) characteristics 34 Appendix 2 Table A2 the URA Corporate Social Responsibility over time 35 Tables and Figures Table 0.1 Tax to GDP ratios over time 8 Table 0.2 Comparative income tax performance indicators 8 Figure 0.1 Domestic tax and customs contribution to tax revenue in 2017/18 9 Table 2.1 Taxpayer opinions on the tax system (electronic systems) 12 Table 2.2 Ability to use e-tax for the following business processes 12 Figure 2.1 Tax education annual budget allocations 13 Table 2.3 Tax education activities from FY2017/18–FY2018/19 13 Table 2.4 Which URA tax education programmes are you aware of? 14 Table 2.5 Taxpayer opinions on the tax system 15 Figure 4.1 Reactions to the URA’s letter appreciating taxpayers for a revenue 21 5 surplus in 2018/19 Table 4.1 Taxpayers’ views on how taxes are used 22 Figure 4.2 Staff opinions on the fairness of the tax system 23 Figure 4.3 ‘The tax system only benefits the rich and those connected to them 24 and is not fair to ordinary people’ Table 4.2 Taxpayers’ opinions on the effectiveness of the government works 24 publication Figure 4.4 Taxpayers’ opinions on the effectiveness of the TPAD 26 Table 4.3 Taxpayer opinions on the tax system 26 Figure 4.5 Taxpayers’ opinions on the effectiveness of press briefs 27 Table 4.4 Taxpayers’ opinions on the effectiveness of the URA initiatives 29 6 Acknowledgements We are greatly indebted to Professor Mick Moore who made a significant contribution to this paper. He guided us, supervised the whole process and sent us constant reminders to complete the paper. We also thank Susan Nakato for her useful comments on earlier drafts of this paper. We thank our colleagues in the Research and Modelling unit at URA who contributed to this research in various respects, and all those who participated in this research through interviews. Acronyms ASYCUDA Automated System for Customs Data ATAF African Tax Administration Forum CAO Chief Administrative Officer CIT Corporate Income tax CSR Corporate Social Responsibility DCU Debt Collection Unit E-hub Localised name for URA data warehouse E-tax Domestic taxpayer management system used by the URA FIRs Federal Inland Revenue Services Forex Foreign Exchange Market FY Fiscal year IMF International Monetary Fund ITA Income Tax Act KCCA Kampala Capital City Authority LC5 Local Council V LG Local government MoFPED Ministry of Finance Planning and Economic Development NIN National Identification Number OECD Organisation for Economic Co-operation and Development OMF Open Minds Forum OSS One stop centre shop PAYE Pay As You Earn PIT Personal Income tax PSO Public Sector Tax Office RDC Resident District Commissioner SME Small and medium-sized enterprises TADAT Tax Administration Diagnostic Assessment Tool TIN Tax Identification Number TPAD Taxpayer Appreciation Days TREP Taxpayer Register Expansion Program TSS Taxpayer Service Strategy URA Uganda Revenue Authority URSB Uganda Registration Services Bureau VAT Value Added Tax 7 Introduction Uganda has a tax problem. Ugandans pay rather less tax than other East Africans, so we can assume there is probably a compliance problem. Available tax performance indicators suggests that there is considerably more tax avoidance and evasion in Uganda than in other East African countries. Firstly, over the past decade, Uganda’s tax revenue as a percentage of GDP has not reached the minimum International Monetary Fund (IMF) estimate of 15 per cent required to finance the Sustainable Development Goals (SDGs).