東南亞房地產(chǎn)稅制改革圖

1、ContentsTables and FiguresvForewardviAcknowledgmentsviiAbbreviationsixCurrency EquivalentsxExecutive SummaryxiI.Introduction1Why Property Taxation?1Rationales for Property Taxation2Scope and Methodology6The Organization of Report7II.Taxing Properties in Asia9Types of Taxes on Property9Overview of Ta

2、xes on Property in Southeast Asia9Revenue Share of Taxes on Property in Asia14Local Revenue Reliance and Intergovernmental Transfers16Summary19III. Property Tax Reform: Rationales and Benchmark of Strategies21Introduction21Property Tax Reform in Cambodia23Property Tax Reform in the Philippines25Prop

3、erty Tax Reform in Thailand26Property Tax Reform in Viet Nam27Summary28IV. Main Design Features of Property Taxation31Introduction31Tax Subject31Tax Base32Tax Rate33ivContents HYPERLINK l _TOC_250019 Property Valuation 36 HYPERLINK l _TOC_250018 Exemption Policies and Tax Reliefs 39 HYPERLINK l _TOC

4、_250017 Summary 42Property Registration and Fiscal Cadastre 43 HYPERLINK l _TOC_250016 Introduction 43 HYPERLINK l _TOC_250015 What Are Land and Property Rights? 43 HYPERLINK l _TOC_250014 Land Registration System and Cadastre 46 HYPERLINK l _TOC_250013 Institutional Framework and Oversight 48 HYPER

5、LINK l _TOC_250012 Fiscal Cadastre 53 HYPERLINK l _TOC_250011 Summary 56Administrative Arrangements of Property Taxation 59 HYPERLINK l _TOC_250010 Introduction 59 HYPERLINK l _TOC_250009 Tax Assessment and Valuation 59 HYPERLINK l _TOC_250008 Billing, Collection, and Enforcement 61 HYPERLINK l _TOC

6、_250007 Appeal 62 HYPERLINK l _TOC_250006 Taxpayer Service and Education 63 HYPERLINK l _TOC_250005 Resources: Funding, Staffing, and Information Technology Support 64 HYPERLINK l _TOC_250004 Monitoring Performance 64 HYPERLINK l _TOC_250003 Summary 65Conclusions and the Way Forward 67 HYPERLINK l _

7、TOC_250002 Domestic Resource Mobilization 67 HYPERLINK l _TOC_250001 Recommendations on the Way Forward 68 HYPERLINK l _TOC_250000 Contributing to Other Government Strategies 69References 71Tables and FiguresTablesWorkshops and Conference 6Taxes on Property 10Benchmark of Reform Strategies 29Tax Sub

8、jects 32Tax Base 33Tax Rate Structure, Levels and Rate Setting 38Property Valuation System 40Tax Exemptions, Preferential Regimes and Tax Reliefs 41Rights to Land and Property 45Land Registration System 48Institutional Framework 52Fiscal Cadastre 55Administrative Arrangements for Assessment and Valu

9、ation 61Administrative Arrangements for Billing, Collection, and Enforcement 62FiguresTaxes on Property as Percentage of Gross Domestic Product in Selected Economies (2017) 14Recurrent Property Tax as Percentage of Gross Domestic Product in Selected Economies (2017) 15Distribution of the Philippines

10、 Local Government Unit Income 17Distribution of Thailands Local Government Income in 2018 18Tax Rate Structure of Thailands Land and Building Tax 35Tax Rate Structure of Viet Nams Non-Agricultural Land Use Tax 36Assessment Levels in the Philippines 40ForewordStrengthening domestic resource mobilizat

11、ion through sound tax policies and administration is vital for developing member countries (DMCs) of the Asian Development Bank to meet the targets of the 2030 Agenda for Sustainable Development. The unprecedented coronavirus disease (COVID-19) crisis and the related containment measures have posed

12、severe social and economic challenges to DMCs and may reverse years of progress on the development agenda. Based on the Asian Development Outlook 2020 Update, developing economies in Asia are expected to contract by 0.7% in 2020, making it the first regional recession in nearly six decades. Meeting

13、the SDGs requires improvement in tax-to-GDP ratio in developing Asia. The effects of the economic downturn and the use of emergency tax relief measures during the COVID-19 pandemic will make thattask more difficult and more urgent.The road to recovery will need to address many issues including pover

14、ty, health, education, climate change, and promoting green and sustainable economic growth, with a renewed focus on tax issues to mobilize the resources needed. Improving tax compliance and international cooperation to prevent tax avoidance and evasion as well as broadening the tax base and exploiti

15、ng underused revenue sources are all important.This report on property tax reform is both timely and comprehensive. It provides an analysis of the property tax regime in Cambodia, the Philippines, Thailand, and Viet Nam in terms of the scope for increasing domestic resource mobilization, contributin

16、g to government strategies, maintaining coherence with other systems and government functions related to land management, and ensuring the robust design of the tax and the effectiveness of its administration.Property taxes are underused in developing Asia, but they have significant revenue potential

17、 and could help governments narrow the inequality gap that has deepened with the impact of the COVID-19 crisis given its progressive nature. With this report, we in the Asian Development Bank sincerely hope to offer a broader insight into the performance of property taxes based on the experiences in

18、 Cambodia, the Philippines, Thailand, and Viet Nam. We are sure the report can also provide guidance for other DMCs engaging in property tax reform.Woochong UmDirector General concurrently Chief Compliance OfficerSustainable Development and Climate Change DepartmentAsian Development BankAcknowledgme

19、ntsThe preparation of the report was led by Sissie Fung and Brian McAuley, consultants of the Asian Development Bank (ADB) Governance Thematic Group, Sustainable Development and Climate Change Department (SDCC). This benchmarking study is produced with financial support from the ADB Domestic Resourc

20、e Mobilization Trust Fund (DRMTF) and the Japan Fund for Poverty Reduction (JFPR) with contribution from the Government of Japan. It presents a descriptive analysis of the recurrent property tax systems in four SoutheastAsian countries: Cambodia, the Philippines, Thailand, and Viet Nam.The authors w

21、ish to gratefully acknowledge the many people who contributed to this report, in particular the government officials from the following institutions with whom they consulted regularly: (i) from Cambodiathe Tax Policy Bureau and the Immovable Property Tax Bureau of the General Department of Taxation

22、(Ministry of Economy and Finance) and the General Department Cadastre and Geography (Ministry of Land Management Urban Planning and Construction); (ii) from the Philippinesthe Bureau of Local Government Finance (Department of Finance), the Land Registration Authority (Department of Justice), and the

23、 Land Management Bureau (Department of Environment and Natural Resources); (iii) from Thailandthe Fiscal Policy Office (Ministry of Finance), the Department of Lands (Ministry of Interior), and the Department of Local Administration (Ministry of Interior); and (iv) from Viet Namthe Tax Policy Depart

24、ment and the General Department of Taxation (Ministry of Finance) and the General Department of Land Administration (Ministry of Natural Resources and Environment). This report would not have been completed without their valuable input and active participation in the in-country discussion meetings,

25、the technical workshops, and final conference. The authors are especially grateful for the incredibly warm hospitality bestowed upon them during the data-gathering missions in the four countries.The authors would like to thank the United Nations Economic and Social Commission for Asia and the Pacifi

26、c (UN ESCAP) for co-organizing with ADB the technical workshop in Bangkok, Thailand, on 6 and 7 November 2018, at its headquarters and for providing invaluable support. The authors are also very grateful to all participants and ADB-invited speakers at the aforementioned workshop in Bangkok as well a

27、s at the technical workshop in Manila, the Philippines, in May 2019 and at the final property tax conference, also in Manila, in September 2019. With respect to the latter event, the authors would like to thank Naoyuki Yoshino, former dean of ADB Institute and our esteemed colleagues from ADB: Abdul

28、 Abiad, director of Macroeconomic Research Division; Hans van Rijn, principal public management specialist; and Seok Yong Yoon, principal public management specialist (e-Governance); as well as Justine Diokno-Sicat, research fellow from the Philippine Institute for Development Studies; and the inter

29、national experts from UN ESCAP (Thailand), PASCO (Japan), VNG-International (Netherlands), and the French organizations IGNFI and CSN for their insightful contribution to the conference and sharing international best practices. Specifically, the authors would like to thank Zheng Jian, economic affai

30、rs officer of the Macroeconomic Policy and Financing for Development Division; UN ESCAP, and Stephane Gil, ADB consultant on land management, for their expert advice and collegial collaboration throughout this project, as well as Paul Carr, ADB consultant and international valuation reform implement

31、ation specialist, and Arjen Schep, endowed professor Taxes of Sub Central Governments at Erasmus School of Law, for their valuable commentsviiiAcknowledgmentson draft of this report. Finally, but certainly not the least, the authors would like to express their sincere gratitude to ADB colleagues fro

32、m SDCC who facilitated the planning of in-country missions, workshops, and conference, in particular Christine Linaza. Special appreciation is also extended to Bruno Carrasco, Claudia Buentjen, Hanif Rahemtulla, Yasushi Suzuki, and Go Nagata for their ongoing support in this DRMTF benchmark study pr

33、oject and ADBs work on property tax reform.The views expressed in this report are the authors own and can in no way be taken to reflect the official opinion of ADB, ADB DRMTF, JFPR, or the Government of Japan. Notwithstanding the significant support provided from the above and many others, all mista

34、kes made in this report are the authors own.AbbreviationsADBAsian Development BankBIRBureau of Internal Revenue (Philippines)BLGFBureau of Local Government Finance (Philippines) CAMAcomputer-assisted mass appraisalDENRDepartment of Environment and Natural Resources (Philippines) DMCdeveloping member

35、 countryDOLDepartment of LandsDRMTFDomestic Resource Mobilization Trust FundeSREElectronic Statement of Receipts and Expenditures GDPgross domestic productGDTGeneral Department of Taxation GISgeographic information system IMFInternational Monetary FundIRAinternal revenue allotment (Philippines) LAOl

36、ocal administrative organization (Thailand) LGCLocal Government Code (Philippines)LGUlocal government unit (Philippines) LISland information systemLMBLand Management Bureau (Philippines) MEFMinistry of Economy and FinanceMLMUPC Ministry of Land Management Urban Planning and Construction (Cambodia) M

37、OIMinistry of InteriorMONRE Ministry of Natural Resources and Environment (Viet Nam) OECD Organisation for Economic Co-operation and Development PINProperty Identification NumberPPCProvincial Peoples Committee (Viet Nam) RPTReal Property Tax (Philippines)SMVschedule of market values (Philippines) UC

38、LGUnited Cities and Local GovernmentsUSAIDUnited States Agency for International DevelopmentCurrency Equivalents(As of 31 December 2019)Currency unit riel (KHR) KR1.00 = $0.0002457$1.00 = KR4,070.00Currency unit peso (PHP)$1.00 = $0.01974$1.00 = $50.6534Currency unit baht (THB) B1.00 = $0.03360$1.00

39、 = B29.7600Currency unit dong (VND) D1.00 = $0.0000431100$1.00 = D23,196.47Executive SummaryBackgroundAs part of its Strategy 2030 with a vision for a prosperous, inclusive, resilient, and sustainable Asia and the Pacific, the Asian Development Bank (ADB) has confirmed its commitment to assist devel

40、oping member countries (DMCs) to strengthen domestic revenue mobilization, enhance access to technology and innovation, and build capacity. Domestic public resources provide not only a more stable and sustainable source of income for developing countries to fund their development agenda; they also s

41、trengthen the social contract between the government and its citizens and foster good governance. As recognized by the Addis Tax Agenda, without effective mobilization of resources, the Sustainable Development Goals (SDGs) cannot be achieved. Property taxes are generally considered as “a good tax” f

42、or raising revenues in developing countries, especially in a time of globalization and increased international competition for mobile capital (Youngman 2016). ADB is committed to scale up its support to DMCs in their efforts to increase domestic revenue, including through fuller utilization of recur

43、rent property taxes.The objective of this study is to provide an analysis of the property tax regime in Cambodia, the Philippines, Thailand, and Viet Nam in terms of the scope for increasing domestic resource mobilization, the contribution to government strategies, the coherence with other systems a

44、nd government functions related to land management, the design of the tax, and the effectiveness of the administration. This analysis can serve as a basis for DMCs to compare, evaluate, and improve the performance of property taxation and help foster broader policy discussions on reform opportunitie

45、s. This report will also inform ADBs future operations on revenue mobilization and capacity development in the Asia and Pacific region.Rationales for Property TaxationProperty taxation has significant revenue potential for developing countries and it is widely regarded as one of the best forms of ta

46、xation for promoting inclusive economic growth. Its merits include having a stable and expanding tax base with predictable revenue streams for governments, being economically efficient and relatively hard to evade due to asset immobility, and having the ability to contribute to social equity through

47、 redistributive policies that can help narrow the wealth gap. Property taxation is also increasingly seen as a policy tool to achieve other nonfiscal objectives, such as promoting efficient land use by increasing the costs of holding property vacant or underutilized, stabilizing house prices by curb

48、ing speculation in the real estate market, and capturing part of rising property values to finance urban infrastructure development and spur economic growth. As a local tax, property tax can play an important role in democratic local governance, and it has been argued that it allows the local popula

49、tion to hold their elected political leader accountable.xiiMapping Property Tax Reform in Southeast AsiaYet despite its many favorable features and applications, governments in developing countries are only in recent years beginning to consider reforms to develop and maintain an efficient and effect

50、ive property tax system. Their efforts are often complicated by additional, country-specific challenges, such as underdeveloped formal land markets, rapid urbanization, growth in informal settlements, diversity in land tenure and occupation, and large disparities in income and wealth. Attempts to im

51、prove the system have been difficult because of established special interests, political and institutional constraints, and shortcomings in the reform strategy of governments to address these challenges effectively. As pointed out in the literature, the main strategic shortcoming of reform efforts i

52、s either failure to clearly articulate the rationale for reform or having un-prioritized, contradictory objectives (Rosengard 2013).Factors to Improve Revenue Performance:Key FindingsThe four countries in this study all have some type of recurrent taxes on immovable property in place; some more than

53、 one. These property taxes, however, do not emerge as an important source of revenue, with reported revenue yield between 0.024% of gross domestic product (GDP) (Viet Nam) to 0.38% of GDP (Philippines) in 2017. Consistent with international practices, revenues from property taxes in the four countri

54、es are allocated to subnational governments budget, with varying degrees of local revenue autonomy. While property tax is one of the most important tax revenue sources for local governments, it represents only a small fraction of the overall subnational budget. Intergovernmental transfers and centra

55、l governments grants and subsidies remain in most cases the mainstay of subnational income, which are often formula-based and not linked to the local tax mobilization efforts. This reliance on intergovernmental transfers and tax sharing may work as a disincentive for subnational governments to alloc

56、ate resources to improving revenue raising from property taxation.From the assessment of the main design features of property taxation (Chapter 4), property registration and fiscal cadastre (Chapter 5), and administrative arrangements (Chapter 6) in the four countries, the following factors can be a

57、ddressed to improve revenue performance:Policy Design IssuesBroaden the tax base. All countries have a range of tax benefits in their tax code such as exemptions for government properties and historic and cultural sites, but also tax incentives for businesses operating in E-zones and tax reliefs to

58、protect vulnerable taxpayers (e.g., by using basic property tax thresholds or exempting owner-occupied housing). These tax benefits significantly narrow the tax base and their objectives may be achieved in other ways.Increase effective rates. The statutory rates are generally low, with the effective

59、 rates even lower. Increases can be phased in over a number of years.Use up-to-date market-price valuations. Often assessed values do not reflect the current market value, either by design or due to constraints in administrative capacities. Regular revaluation of property is necessary to maintain bu

60、oyancy and to ensure fairness.Executive SummaryxiiiCadastral Record-Keeping IssuesModernize data infrastructure. Among the principal prerequisites for effective property taxation are adequate systems of property registration and fiscal cadastre that contain complete and up-to-date information about