The IMF published Staff Discussion Note 15/16 on 2 September 2015 dealing with the subject of fair taxation in the Middle East and North Africa (MENA). The notes look at how tax systems can contribute to meeting demands for greater fairness in the region.

The MENA countries with well established tax systems tend to have lower levels of tax revenue compared to other emerging markets and developing economies and these levels have not increased much in the past few decades. Although a number of countries have personal income tax codes the tax rates lack progressivity, owing to low top tier rates applying at quite high income levels and the exclusion of non-salary income from the scope of the income tax. Compliance rates are often low and the countries have large informal economies that remain outside the system.

Corporate income taxes have competitive tax rates but the tax revenue collected is dampened by the number of exemptions which are often not transparent and are at the discretion of the authorities. In the case of value added taxes in the region the tax collected is also reduced owing to numerous different rates and exemptions that are often poorly targeted.

Excise taxes in the region do not yield much revenue and need to be better designed. These tend not to target the goods and services consumed by high income groups. An example given in the discussion note is that heavy excise taxes in the Lebanon on imported alcohol aim to tax the highest income groups, but consumption has shifted to domestic brands that are less heavily taxed.

Another problem in the region is that tax administrations can be inefficient and there is too much room to use discretion in administering the laws. This leads to unfairness in the treatment of individuals and businesses.

Countries with developed non-hydrocarbon revenue regimes

In the case of countries that have already developed non-hydrocarbon tax regimes – generally the oil-importing countries of the region – tax reforms should focus on simplification of tax structures and making personal income taxes more progressive with lower income thresholds and higher top marginal rates. Setting three to four different rates rising progressively, and including non-wage earnings in the scope of the tax, would increase fairness and improve progressivity.

In the case of corporate income taxes they should reduce the exemptions and simplify the rate structure with the result that the tax is fairer for businesses and the costs of collecting the tax are reduced. The multiple VAT rates should be consolidated and VAT exemptions should be rationalized. This would create less economic distortion while also increasing the tax revenue collected. The introduction of better designed and enforced property taxes would raise more tax revenue while being difficult for taxpayers to evade.

Tax administrations need to be more efficient and interface better with taxpayers to make tax compliance more user-friendly. Human and IT resources can be upgraded to improve customer service and simplify compliance for taxpayers. Simplified tax codes and regulations would also help to make the treatment of taxpayers less arbitrary.

Countries with less well established non-hydrocarbon revenue regimes

The oil exporting countries of the region have relied predominantly on hydrocarbon revenues and this has hindered the emergence of other tax revenue sources. These countries often do not have personal income taxes and if they are present they are applied only to foreigners. Generally they do not have VAT regimes. Most non-oil tax revenue comes from international trade taxes or from corporate income taxes but generally only foreign companies pay corporate tax. They are in need of broader sources of tax revenue to support economic diversification.

The countries with less well established non-hydrocarbon revenue systems can design fair tax systems and upgrade their administrative capacity. All stakeholders can be invited to participate in the design of the tax reforms and the pace of the reform can be set accordingly. The governments can also demonstrate that the tax revenue will be used effectively.

These countries could begin by introducing a value added tax (VAT) with a low standard rate. They also need to introduce corporate income tax, excises and property taxes while they are building up their administrative capacity and their taxation expertise. They should also make plans to introduce personal income tax.

The IMF staff discussion note emphasizes that the success of reforms throughout the region depends on adequate communication, transparency and constructive dialogue. A gradual pace of reform is often preferable as various interested parties may be persuaded to back the reforms as they are implemented. External partners such as bilateral donors or international organizations may also give input and advice together with technical assistance to add credibility to the reforms.