Report No.36494-KZRepublicofKazakhstan ReformandModernization Administration Tax Vo Report No. 36494-KZ Republic of Kazakhstan Tax Administration Reform and Public Disclosure AuthorizedPublic Disclosure Authorized Modernization (In Two Volumes) Volume II: Tax Strategy Paper June 2008 Poverty Reduction and Economic Management Unit Europe and Central Asia Region Public Disclosure AuthorizedPublic Disclosure Authorized Public Disclosure AuthorizedPublic Disclosure Authorized l. II Document of the World Bank Public Disclosure AuthorizedPublic Disclosure Authorized A Study under the Joint Economic and Research Program of the Government of Kazakhstan and the World Bank CONTENTS EXECUTIVE SUMMARY ............................................................................................................................ i 1. INTRODUCTION .............................................................................................................................. 1 A . THE CHALLENGES OF A MODERNTAX ADMINISTRATION .............................................................. 1 B . THETAX ADMINISTRATION IN THE KAZAKHSTANCONTEXT .................................... 2 . ORGANIZATIONAL STRUCTURE ............................................................................................... 8 A . CURRENTORGANIZATIONAL STRUCTURE AND CHALLENGES........................................................ 8 B . RECOMMENDATIONS ... .................... 3 . HUMAN RESOURCES ................................................................................................................... 14 A . CURRENTHUMAN RESOURCE CHALLENGES................................................................................ 14 B . RECOMMENDATIONS ...... ...... 18 4 . ANTI-CORRUPTION ..................................................................................................................... 20 A . ANTI-CORRUPTION ACTIVITIES AND POLICIES ............................ .. 20 B . RECOMMENDATIONS ................................................................... ......................................... 25 5. TAXPAYER SERVICE AND EDUCATION ................................................................................ 28 A . ANALYSISOF TAXPAYE IN THE T MITTEE ............... .......28 B . RECOMMENDATIONS .... .............. ........................... .......33 6 . LARGE TAXPAYERS..................................................................................................................... 35 A . STATUS OF LARGETAXPAYER UNIT ...... ...................................... .........35 B . RECOMMENDATIONS .............................. ................................................................................. 38 7 . AUDITDNSPECTION ..................................................................................................................... 40 A . CURRENT SET UP. PROCEDURES AND RESULTS OF AUDIT/~NSPECTION....................................... 40 B . RECOMMENDATIONS ................ ..........47 c . ACTION ON THE ABOVERECOMMENDATIONS .... ...................... 48 8 . COLLECTION ................................................................................................................................. 50 A . CURRENT STATUS AND CHALLENGES IN COLLECTION PROCEDURES ........................................... 50 B . RECOMMENDATIONS ....... .53 9 . INFORMATION SYSTEMS ........................................................................................................... 55 A . ACHIEVEMENTSIN INFORMATION TECHNOLOGY IN THE TAXCOMMITTEE ... B . KEYCHALLENGES ........................................................................... C . RECOMMENDATIONS.................... ....................................... 10. LEGAL AND APPEALS ................................................................................................................. 63 A . CURRENT ORGANIZATION. PROCEDURES AND POLICIES .......................... ....63 B . RECOMMENDATIONS .................................................................................................................... 65 I1. FRAMEWORK FOR TAX REFORM PROGRAM..................................................................... 67 ANNEX 1 : INTERNATIONAL EXPERIENCEON PERFORMANCE MEASUREMENTFOR TAX ADMINISTRATIONS ..73 ANNEX2: METHODSTO ENSUREEXECUTION OF OVERDUE TAXLIABILITY AND FORCED COLLECTION OF TAXLIABILITIES .......................................................................................................................... 84 ANNEX 3: APPEALSPROCEDURES .................................................................................................................. 85 TABLES TABLE5.1: SUMMARY OF TAX ADMINISTRATIONISSUES IN BEEPS ............................................................. 31 TABLE7.1 RESULTS OF ENFORCEMENTACTION INFORMATION SYSTEM - 2005 ... ............... 42 TABLE7.2: PERCENTAGE OF APPEALEDINSPECTIONS IN TOTAL- 2005 ................. ............................ 45 TABLE7.3: REDUCTION IN ASSESSEDTAX AS A RESULTS OF APPELLATEDECISIONS - 2003-2005 ...............46 ................................... TABLEA1.2: INTERNATIONALBENCHMARKS............................................................................................... 77 ................................... TABLEA1 S:UKRAINE TAXPAYER SURVEY ............................................................. ................................... ................ TABLEA 1 .7.CUSTOMER SATISFACTION WITH SI1 WORKPLACE SERVICES .................................................... 82 FIGURES FIGURE1.1: LEVELOF UNOFFICIALPAYMENTS (BEEPS 2005) ....................................................................... 3 FIGURE 1.2: NUMBERAND DURATION OF TAX INSPECTIONS (BEEPS 2005 ................................................... 3 FIGURE 1.3: TAXADMINISTRATION IN RELATION TO PROBLEMS DOINGBUSINESS (BEEPS 2005) .................4 FIGURE 1.4: VAT REVENUEPRODUCTIVITY 2004 .......................................................................................... 5 FIGURE 1.5: CIT REVENUEPRODUCTIVITY 2004 ........... ........ .5 FIGURE5.1: EXAMPLEOF TAXPAYERSURVEY: COMPLIANCE COSTS IN UKRAINE......................................... 32 BOXES Box 5.1: INTERNATIONALTRENDSIN TAXPAYERSERVICE .......................................................................... 29 BOX 7.1 : FUNCTIONSPERFORMED BY THE AUTOMATEDCAMERAL CONTROL SYSTEM FOR VAT ................41 BOX 7.2: RESULTS OF CAMERAL CONTROL .................................................................................................. 42 ACKNOWLEDGEMENT This report is part of the ongoing Joint Economic Research Program being conducted by the World Bank and the Government of Kazakhstan. The United States Agency for International Development (USAID) and its contractor Bearingpoint Inc. seconded an expert on tax administration (Mr. Arnold Gordon) to the team, while the International Tax and Investment Center (ITIC) facilitated the guidance provided by Mr. Charles McLure (Hoover Institute). The Bank team would like to thank the valuable assistance received from our three formal counterparts (Ms. Vera Knyukh of the Ministry of Economy and Budget Planning; and Mr. Adil Utembayev and Ms. Alyona Gerun from the Tax Committee); and the strategic guidance provided by various senior officials, such as Messrs. Karim Massimov (Prime Minister), Yerbol Orynbayev (Deputy Prime Minister), Bakhyt Sultanov (Minister of Economy and Budget Planning), Bolat Zhamishev (Minister of Finance), Kairat Kelimbetov (former Minister of Economy and Budget Planning), Askar Yelemessov (Deputy Minister of Finance), Kenjegali Sagadiyev, (Chairman of the Budget Commission, Majilis of Parliament) and Nurlan Rakhmetov (Chairman of the Tax Committee). In addition, the team would like to thank the following for their valuable inputs: Zhasser Zharkinbayev of the Ministry of Economy and Budget Planning; Nurila Usenova, Argyn Kipshakov, Janar Esmagambetova, Baizhan Seisekulov, Dairabay Iskakov, Ruslan Kystaubayev, Natalia Streltsova, Sabira Sybanbayeva, Almas Shokanov, Marina Sergina, Duman Amireyev, Aizhan Yusupova, Gulzhan Kabylova, Nurkulyanda Musainova, Aigul Kadyrbayeva, Zhazira Zhunysbekova, Askhat Issabay, Oral Issanova, Umyt Torgautova, Alexandr Ilyin, Zeken Atygayeva, Janna Abdrakhmanova, Janna Baizakova, Y uriy Tleumuratov, Baurzhan Mamytaliyev, Gulmira Akhmettayeva; and Galiya Shidenova of the Tax Committee of the Ministry of Finance; and Vyacheslav Evstafiyev of the Agency of Statistics. The team also appreciates helpful insights received from Beibit Karymsakov, Aidar Baimanov, Karlygash Kassymova, Anatoliy Boichin, Roza Issayeva, Lyazat Erejepova, the deputy chairs of the oblast level tax administrations who kindly accepted the Bank’s invitation to a round table in Astana; as well as representatives of the Association of Taxpayers, the Forum of Entrepreneurs and the Association of Entrepeneurs who, similarly, participated in a round table organized by the Bank in Almaty. Errors of analysis and interpretation are however the sole responsibility of the team. The Bank’s team was led by Pedro L. Rodriguez (Vol. I)and Munawer S. Khwaja (Vol. 2), IIyas Sarsenov (Economist, Astana Office), and Laura Lucas (Consultant, Almaty Office). Sweder Van Wij bergen (University of Amsterdam) prepared the chapter on taxation of capital. Sijbren Cnossen (University of La Hague) prepared a background report on value added taxes and excises, with assistance from Laura Lucas. Messrs, Arnold Gordon (Bearingpoint), and Enrique Fanta