The Administrative Foundations of the Chinese Fiscal State
Oct 26, 2023
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Wei Cui, Professor at the Peter A. Allard School of Law at the University of British Colombia, joins the host to discuss his book on the Chinese fiscal state. They explore the origins of the book, limitations of China's tax system, administrative foundations, and future challenges faced by the Chinese tax system.
China's tax system operates on a decentralized model with tax bureaus at the grassroots level, prioritizing taxpayers' capacity to pay over strict law compliance.
The Chinese tax system faces challenges in sustaining revenue generation, considering an aging population and the need for economic stimulation through reforms.
Deep dives
Structure and functioning of China's tax system
China's tax system is highly important and has undergone significant changes in the past. The country has successfully built a functioning tax system, raising about 23-24% of its GDP in tax revenue a decade ago. However, the tax-to-GDP ratio has been rapidly declining in recent years and currently stands below 14%. This decline can be attributed to several factors, including major tax cuts in value-added tax, corporate income tax, and personal income tax. The motivation behind these tax cuts is rooted in concerns about slowing economic growth and a desire to stimulate the economy. It is worth noting that while the tax system in China is less rule-based compared to Western countries, it operates on a decentralized model with tax bureaus at the grassroots level. This allows for close monitoring of taxpayers and the formation of rough estimates of what they owe. The Chinese tax administrators have a high tolerance for inaccurate tax returns, placing more emphasis on taxpayers' capacity to pay rather than strict compliance with the law.
Unique features of the Chinese tax system
One unique feature of the Chinese tax system is the high level of decentralization. There are approximately 30,000 tax offices across the country, making it easy for taxpayers to access government services and receive guidance on compliance. The tax administrators develop expectations for taxpayers' payments based on their knowledge of the industry and the size of operations. These expectations form the basis for tax collection, and inaccuracies in tax returns are often overlooked as long as the estimated amount is collected. Another noteworthy aspect is the widespread use of negotiation, informal monitoring, and specific expectations among administrators and taxpayers, which takes precedence over strict adherence to the law. While there are concerns about potential rent-seeking behavior and abuse by revenue managers, the Chinese government has implemented measures to limit corruption, such as regular rotation of tax administrators and computerized systems for monitoring performance.
Challenges and prospects for the Chinese tax system
Looking ahead, the Chinese tax system faces a range of challenges. The government will need to find ways to sustain revenue generation as it deals with an aging population and increasing demands on sectors like healthcare and pensions. The slowing economic growth also presents a need for reforms aimed at stimulating the economy. Potential avenues for revenue generation include raising the value-added tax rate, reducing corporate tax cuts, and revisiting personal income tax exemptions. However, the introduction of a property tax, although discussed, is unlikely to significantly contribute to revenue due to broad exemptions. Overall, while China's tax system has shown resilience and adaptability, there is room for improvement and continued reforms to align with evolving economic and social needs.
In this episode of Pekingology, Freeman Chair in China Studies Jude Blanchette is joined by Wei Cui, professor at the Peter A. Allard School of Law at the University of British Colombia to discuss his recent book The Administrative Foundations of the Chinese Fiscal State.
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