Taxation and Public Finance

PUBLIC FINANCE AND TAXATION
(Acct-331)
Rift Valley University College

Center for Distance Education
Adama 2010
UNIT ONE
PUBLIC FINANCE
1.1 Introduction
1.1.1 Meaning of Public Finance

Public finance is related to the financing of the state activities and a narrow definition of the
public finance would try to say that public finance is a subject which discusses the financial
operation of the fiscal or of the public treasury.
1.1.2 Nature of Public Finance

Public finance has been held as a science which deals with the income and expenditure of the
government’s finance. It has been held as a study of principles underlying the spending and
raising of funds by the public authorities. The various theories which form the basis of the
collection; maintenance and expenditure of the public income constitute the subject and
matter of finance.
1.1.3 Scope of Public Finance

The scope of public finance is not just to study the composition of public revenue and public
expenditure. It covers a full discussion of the influence of government fiscal operations on
the level of overall activity, employment, prices and growth process of the economic system
as a whole.
According to Musgrave, the scope of public finance embraces the following three functions
of the government’s budgetary policy confined to the fiscal department the:
 allocation branch,
 distribution branch, and
 stabilization branch.
These refer to three objectives of budget policy, i.e., the use of fiscal instruments to secure:
 adjustments in the allocation of resources
 adjustments in the distribution of income and wealth, and
 economic stabilization.
Copy © Rift Valley University College Adama 1

Public Finance and Taxation (Acct-331)
Public finance is composed of the following constituents public:
 expenditure
 revenue
 debt
 ( financial ) administration
Private finance is the study of the income, debt and expenditure of the individual or a
private company or business venture or an association. It includes the study of their own
view regarding earning expenditure and borrowing.
1.1.4 Similarities and Differences between Public Finance and Private Finance
Despite the differences in scope and nature of the public finance and private finance,
following are similarities.
A. Similarities
I. Based on Similar Theories
The basis of public as well as private finance is the same. Both seek the help of various
principles of economics in determining various interrelated problems. For example, a person
wants to secure maximum utility on count of minimum expenditure and government too
wants to secure public utility by spending the least possible amount of public money.
II. Both Face the Problem of Scarcity
Limitation of the resources is the problem before private as well as public finance.
Individuals’ resources are limited up to this earnings; past savings and ancestral property
similar governments’ resources also depend on taxable capacity of the individuals earnings
of the various corporations etc. None of the two is capable of extending its expenditure
beyond a certain limit; hence non can afford to go to the infinity in the use of finance.
III. Both Require Efficient Administration
Private as well as public finance require efficient administration to look after the various acts
of extravagance. In the event of the failure of an efficient administration both might be
compelled to face ‘dire-consequence’ in their financial field, individual never wants any kind
of wastage or misuse of his income, so the government if it is alive to the sense of duty.

IV. Both Borrow and Must Repay
To run the administration of finance some times money in hand fails to fulfill the
requirements especially in the times of emergency, governments borrow money from
individuals and also borrow from different sources like relatives, banks, at the same it is
obligatory for both the public finance as well as the private finance to repay the debt. The
point here is that none can live without repaying the amount.
V. Both are Based on Rationality of Thought
When an individual spends some money he makes it certain in his mind that money is
spent in the best way. He applies his rational faculties. In the same way any irrational step
taken by the government may bring wastage and misuse of finance. This irrationality lead
them to damages while rationality to prosperity and achievement of goals.
B. Differences between Public Finance and Private Finance

I. Individual determines his expenditure on the basis of his income but government
determines its income on the basis of its expenditure. As far as an individual is
concerned he determines his expenditure on the basis of the income, in the sense that
he cannot think of spending more than his income. He distributes the amount of
income to be spent on various subjects with income at his finger tips. The position is
quite contrary in the case of government. The government first decides the amount of
expenditures to be done during a period of time, and then frames scheme to secure
money to meet the expenditure. Government has the power to increase its income be
internal borrowings but this is not possible for an individual.
II. Government’s source of income is more flexible in comparison to private source.
Government has legal power to extend the sources of its income according to the
needs of the time. Government has the control over the whole national property but
individual has to rely upon his own individual standing. Moreover, government can
take the help of the foreignment and this is not possible for a person to secure such
supports. The last resort available to the government is the printing of new currency
notes to increase its income. But an individual will be definitely but behind the bars
for such an office.

III.It is easy for an individual to base his expenditure on the law of equal marginal
utility, but far difficult for governments. Individual is free to measure his expenditure
in the sense of utility and spends his money on the certain weighted subjects. These
subjects may not be of social need or may not add anything to social advantage. Such
expenditures are very prominent in the democratic countries for example building of
hospitals, roads, parks.
IV. Private finance is narrow and short lived in comparison to public finance. Private
finance faces suspension with the end of the individual’s life or with the closure of
the particular business enterprise. But governments are more tenable. It is well said in
this context is that ‘king may come and king may go but government is eternal.’
Governments keep on moving form generation to generation interlinking past from
present with an eye on future.
V. Public finance is subject to public censor but not the private finance. A complete
secrecy may be maintained by an individual regarding his income and savings. But
the government records are furnished to let the people see through the desirability of
the expenditure. Public is entitled to know, criticize and the press is free to comment
on the public finance outlays, its drawbacks and failures.
VI. There are pre-determined policies behind public expenditure but not so in the case of
private expenditure. Public expenditure is done to achieve the goals which are
predetermined in their nature.
VII. There is difference in the budgeting process of the public finance and the
private finance. The budget of the government is subject to the approval of the
parliament of the concerned country. It is now a well established principal no taxation
without representation and no tax shall be without the due/process of law. Unless the
demand gets approval of the parliament of the executive cannot spend even a single
penny. But individual is his own master and he need not ask for parliamentary
approval for spending his bricks.
VIII. Governments’ accounts are audited by constitutional authorities but private
finance has its own arrangement. An individual can audit his accounts without
performing formalities about it. But there is procedural necessity in the case of public

finance. The budget is to be prepared in the prescribed manner and to be presented
according to the settled norms.
IX. A private individual can face the crises of being bankrupt but no government can be
bankrupt. An individual may ‘run-riot’ his money and thus may become an insolvent,
but the question of the government being bankrupt is impracticable. It is funny to talk
of the bankruptcy of the government; since all the currencies are printed and
circulated by it.
1.2 Functions of Modern Government

We should know the role of the government to enable us to appreciate the importance of
government sector. Government of a modern state generally undertakes the following
functions:
1. Security - Both external and internal involving outlay for military, police and
other protective services.
2. Justice or settlement of disputes
3. The regulation and control of economy – including the services such as coinage,
a. weights and measures, the business practices , operation of public sector
b. undertakings
4. Of social and cultural welfare through education, social relief, social insurance, health
and other activities.
5. Conservation of natural resources.
6. Promotion of the unity of the state by control of transportation and
communication.
7. Administration and financial system, government revenue expenditure and fiscal
control.
8. Education and employment.
9. Housing.
10. Public health.
11. Upliftment of weaver sections of the society.
12. Restore social justice in the society.

Functions of modern governments are broadening due to socio-political reasons. Therefore,
to discharge these increasing functions, the government has to increase its expenditure. To
meet out the enormous amount of expenditure it has to mobilize funds with the help of public
finance policy. Hence public finance has developed into an important branch of economics.
1.3 Scope of Public Finance

Public finance deals with the income and expenditure pattern of the Government. Hence the
substances concerned with these activities become its subject matter. The subject matter of
the public finance is classified under five broad categories of which the first two are
discussed. They are,
1.3.1 Public Revenue
1.3.2 Public Expenditure
1.3.3 Public Debt
1.3.4 Financial Administration
1.3.5 Economic Stabilization
1.3.1. Public Revenue

Under this category, the sources of the public revenue, principles of taxation, effects of taxes
on the economy, methods of raising revenue and the like are dealt with. Public revenue is the
means for public expenditure. Various sources of public revenue are:
A. Tax Revenue, and
B. Non-tax Revenue
A. Tax Revenue
Taxes are compulsory payments to government without expectation of direct return or benefit
to tax payers. It imposes a personal obligation on the taxpayer. Taxes received from the
taxpayers, may not be incurred for their benefit alone. Tax revenue is one of the most
important sources of revenue.
Taxation is the powerful instrument in the hands of the government for transferring
purchasing power from individuals to government. The objectives of taxation are to reduce

inequalities of income and wealth; to provide incentives for capital formation in the private
sector, and to restrain consumption so as to keep in check domestic inflationary pressures.
From the above discussion we can conclude that the elements of taxation are as follows:
a. it is a compulsory contribution
b. government only imposes taxes
c. in payment of tax an element of sacrifice is involved
d. taxation is aimed at welfare of the community
e. the benefit may not be proportional to tax paid
f. tax is a legal collection.
The various types of taxes can be listed under three heads. First type can be titled taxes on
income and expenditure which include income tax, corporate tax etc. The second is taxes on
property and capital transactions and includes estate duty, tax on wealth, gift tax etc. The
third head, called taxes on commodities and services, covers excise duties, customs duties,
sales tax, service tax etc. These three types can be reclassified into direct and indirect taxes.
The first two types belong to the category of direct taxes and the third type comes under
indirect taxes.
B. Non-tax Revenue
This includes the revenue from government or public undertakings, revenue from social
services like education and hospitals, and revenue from loans or debt service. To sum up,
non-tax revenue consists of:
i) interest receipts
ii) dividends and profits
iii) fiscal services and others.
1.3.2 Public Expenditure
Recently, there has been both quantitative and qualitative change in government’s
expenditure. This category deals with the principles of public expenditure and its effect on
the economy etc.
Government of a country has to use its expenditure and revenue programs to produce
desirable effects on national income, production, and employment. The role of public

expenditure in the determination and distribution of national income was emphasized by
Keynes.
The term “Public Expenditure” is used to designate the expenditure of government-central,
state and local bodies. It differs from private expenditure in that governments need not pay
for themselves or yield a pecuniary profit. Public expenditure plays the dual role of
administration and economic achievement of a nation. Wise spending is essential for stability
of government and proper earnings are a prerequisite for wise spending. Hence planned
expenditure and accurate foresight of earnings are the important aspects of sound government
finance.
Public expenditure is done under two broad heads viz., developmental expenditure and non-
developmental expenditure. The former includes social and community services, economic
services, and grants in aid. The latter mainly consists of interest payments, administrative
services, and defense expenses. Expenditure can also be classified into revenue and capital
expenditure.
A. Plan and Non-plan Expenditure

Expenditure is classified under the following heads:
I. Non-plan Expenditure
Non-plan expenditure of central government is divided into revenue and capital expenditure.
Under non-plan revenue expenditure we include interest payment, defense expenditure,
major subsidies, interest and other subsidies, debt relief to farmers, postal deficit, police,
pensions, other general services, social services, grants to states and union territories. Non-
plan capital expenses include defense expenses, loan to PSUs, loans to states and union
territories, foreign governments etc.
II. Plan Expenditure

The second major expenditure of central government is plan expenditure. This is to finance
the following:

i) Central plans such as agriculture, rural development, irrigation and flood control,
energy, industry, and minerals, communication service and technology,
environment, social service and others.
ii) Central assistance for plans of the states and union territories.
Expenditure can also be categorized into revenue and capital expenditure. Revenue
expenditure relates to those, which do not create any addition to assets, and covers activities
of government departments’ services, subsidiaries and interest charges. Capital expenditure
involves that expenditure, which results in creation of assets. Finance ministry is responsible
for plan expenditure. This includes grants to the state.
Hence the expenditures are classified as capital and revenue. Alternatively, these expenses
can be re-classified into plan and non-plan expenditure.
B. Social Expenditure
Government takes the responsibility of protecting the interests of the community as a whole
and promotes the implementation of welfare programs. Government spends huge amounts for
providing benefits such as old age pensions, accident benefits free education and medical
services. This expenditure on human resources comes under social expenditure.
Governments are moving towards the objective of achieving maximum social welfare.
Expenditure on education, public health, welfare schemes for workers, relief and
rehabilitation of displaced persons and such other services may not yield direct benefit in the
short run. But in the long run they contribute to improvement in the quality at human
resources.

The main classifications of Government expenditure can be seen in the following diagram.
Public expenditure
Revenue capital
Expenditure expenditure
Plan Non-plan
Central plan Interest payments
Central assistance Subsidies
to states & PSUs Defense
Others
Plan Non- plan
Developmental Defense, capital
Projects Loans to PSUs
Loans to Regional/state
Governments & Others.
1.4 Role of Fiscal Policy- Its Significance to Business Economy in Developing

Countries
The main goal of the fiscal policy in developing countries is the promotion of the highest
possible rate of capital formation. Underdeveloped economies are in the constant deficit of
the capital in the economy and thus, in order to have balanced growth accelerated rate of
capital formation is required. For this purpose the fiscal policy has to be designed in a way to
raise the level of aggregate savings and to reduce the actual and potential consumption of
people.
• To divert existing resources from unproductive to productive and socially more desirable
uses. Hence, fiscal policy must be blended with planning for development.
• To create an equitable distribution of income and wealth in the society.

• To protect the economy from the ills of inflation and unhealthy competition from foreign
countries
. • To maintain relative price stability through fiscal measures.
• The approach to fiscal policy must be aggregate as well as segmental. The sectoral
imbalances can be curbed by appropriate segmental fiscal measures.
• The government expenditure on developmental planning projects must be increased. For
this deficit financing can be used. It refers to creation of additional money supply either
by creation of new money by printing by government or by borrowing from the central
bank.
• Public borrowing, loans from foreign nations etc can be used in the development of the
resources for public sector.
• Fiscal policy in the developing economy has to operate within the framework of social,
cultural and political conditions which inhibit formation and implementation of good
economic policies.
• In order to reduce inequalities of wealth and distribution, taxation must be progressive and
government spending must be welfare-oriented.
• The hindrances in the effective implementation of fiscal policy in the developing countries
are loopholes in taxation laws, corrupt tax administration, a high population growth,
extravagant governmental spending on non-developmental items, an orthodox society etc.

UNIT TWO
GOVERNMENT BUDGET
2.1 Revenue Budget

It represents the annual forecast of revenues to be raised by government through taxation and
other discretionary measures, the amount of revenues raised this way differ from country to
country both in magnitude and structure, mainly due to the level of economic development
and the type of the economy.
In Ethiopia, the revenue budget is usually structured into three major headings: ordinary
revenue, external assistance, and capital revenue. Hence, the funds expected from these three
sources are proclaimed as the annual revenue budget for the country. The revenue budget is
prepared by the Ministry of Finance (MoF) for the federal government and by Finance
Bureaus for regional governments.
Ordinary revenues include both tax and not tax revenues. The tax revenues being direct taxes
(personal income tax, rental income tax, business income tax, agricultural income tax, tax on
dividend and chance wining, land use fee and lease); indirect taxes (excise tax on locally
manufactured goods, sales tax o locally manufactured goods, service sales tax, stamps and
duty); and taxes on foreign trade (customs duty on imported goods, duty and tax on coffee
export). Non tax revenues include charges and fees; investment revenue; miscellaneous
revenue (e.g. gins); and pension contribution. The second major item in revenue budget is
external assistance. It includes: cash grants, these are grants from multilateral and bilateral
donors for different structural adjustment programs; and technical assistance in cash and
material form. The third item is capital revenue. This could be from domestic (sales of
movable properties and collection of loans), external loan from multilateral and bilateral
creditors mostly for capital projects, and grants in the form of counterpart fund.
2.2. Expenditures Budget

Government expenditures for administration and developmental activities are handled
through the expenditures budget. These expenditures are categorized into recurrent and

capital expenditures. This categorization gained acceptance since the Great Depression of the
1930s. The recurrent budget which covers the current expenditures is financed in principle by
taxation (more broadly by domestic revenue from tax and non tax sources), and the capital
budget which covers the acquisition of newly produced assets n the economy is financed
through external borrowing and grants.
The acceptance to this categorization of expenditures is related to the general change in the
perception of deficit. Prior to the 1930s, budget deficits were considered to be reprehensible
and indicate bad financial management. Over the years, however, the cardinal rule of
balanced budget was changed in favor of cyclical budget, and functional finance.
This change in the rule of budgeting, in turn, resulted in several approaches to measuring and
understanding the deficit some of the concepts that were developed include to:
a. public debt concept of deficit,
b. net worth concept of deficit,
c. overall deficit, and
d. concept of domestic deficit.
To illustrate these four approaches of measuring deficit, we can employ a simplified budget
balance given in Table -1 below:
A Simplified Budget Balance
Revenues Expenditures
A. Tax and Non Tax Revenues C. Recurrent Expenditure
B. Net Borrowing D. Capital Expenditure
A+B C+D
The public debt concept of deficit defines budget deficit as the difference between revenue
(A) and recurrent expenditures (C) and capital expenditures (D) this measure A-(C+D) is
equal to net borrowing (B), and the budget is considered to be balanced if net borrowing
remains unchanged from previous years or is equal to zero. This approach illustrates, the
understanding prior to 1930s, which emphasized balanced budget as a prudent fiscal policy.

 The Emergence of Active Fiscal Policy
The emergence of active fiscal policy (i.e. government could borrow as long as that liability
is matched by an increase in assets) right after the depression led to the development of the
net worth concept of deficit. Referring to the Table above, the net worth is defined as the
difference between recurrent expenditures and revenues (C-A), which is equal to the excess
of net borrowing over capital expenditures (B-D) this measure of deficit requires the division
of expenditures into current and capital budgets, with the latter being financed by borrowing.
The concept of the overall deficit or balance has several connotations and methods
construction. The common practice is to put revenues, expenditures, and borrowing as
distinct groups as in Table 2. Each budget category may then be related economic activity
being computed as a ratio of GDP, which then becomes a first approximation and an
important single measure of the impact of government fiscal operations.
The Overall Budget Deficit
The Overall Budget Deficit

A. Revenues
Tax revenues
Non Tax revenues
Grants
B. Expenditures
Recurrent Expenditures
Capital Expenditures
C. Overall Deficit (A-B)
D. Financing
1. Foreign Debt
2. Domestic Debt
Non Bank Borrowing
Commercial Banks
Central Bank

The domestic balance concept is a family of the overall budget deficit and became prominent
after the oil price increases in 1973/74. The basic argument being, in countries that had large
revenues, expanded incomes from government expenditures placed strains on the domestic
economy and spurred inflationary pressures. In such cases, budget surpluses will have an
expansionary effect. Under such circumstances the overall budget deficit or surplus measure
would be misleading to guide government policy. In fulfilling the requirements of oil
producing countries and others in similar circumstances, the technique of splitting the
domestic balance is the component of the overall balance from which external budget
transactions have been excluded.
The separation of recurrent and capital budget should, therefore, be viewed in terms of the
net worth argument above. The definition of these two budgets has been a common problem
in most countries, however. The problem relates to delineating, which specific expenditures
need to be included in the recurrent budget and which ones in the capital budget. In practice
three criteria have been in use to define budget into capital and recurrent. These are sources
of finance, object of expenditure, and nature of activity. Capital budgets were originally
defined by western governments by the source of finance, i.e., capital expenditures are
financed from loan not current revenue. The object of expenditure refers to the particular
activities to be performed with that budget like, formation of fixed assets, study and design,
salaries of civil servants, etc. the third criteria, the nature of activity, refers to whether the
activity is short term (i.e. project) or on going (that may not terminate in a specific period),
and objective specific.
In Ethiopia the definition of recurrent and capital budgets follow some combination of these
criteria. That is:
1. Recurrent budget is to be covered by domestic revenue from tax and non-tax sources.
But the economy could borrow to meet its capital budget.
2. The financial proclamation 57/1996 and financial regulations 17/1997 defined capital
budget based on the object of expenditure. Accordingly capital budget equals capital
expenditure which equals fixed assets and consultancy services.

3. Short-term activities that are project in nature are included in capital budget while
those activities that are recurring and continuous in nature are put in the recurrent
budget. In some instances activities with a very long life period have been entertained
in the capita budget. Since fiscal year 1994/95 efforts have been exerted to identify
many such projects that have been categorized under recurrent budget (projects in
Education, health and Agriculture sectors). The exercise does not seem complete, as
there are projects with recurring nature (e.g. Agricultural Research) though attempts
have been made to isolate the investment components.
The Expenditure Budget includes the following types of Budgets.
2.2.1 Recurrent Budget

Financial proclamation 57/1996 and financial regulation 17/1997 defined only the capital
budget, implicitly defining the recurrent one as a residual. To common practice, however, is
to include in the recurrent budget expenditures of recurrent nature (like salaries of civil
servants) and fixed assets with a multi-year life.
The recurrent budget is structured by implementing agencies (public bodies) under four
functional categories: administrative and general services, economic services, social services,
and other expenditures. All public bodies then fall under one of these functional categories.
The budget hierarchy will then be down to sub agencies.
2.2.2 Capital Budget

Capital budget is budget for capital expenditures. Financial proclamation 57/1996 defined
capital expenditure as “an outlay for the acquisition of improvements to fixed assets, and
includes expenditures made for consultancy services.” Financial regulations 17/1997 further
provided a detailed definition of capital expenditures to mean:
A. The acquisition, reclamation, enhancement as laying out of land exclusive of
roads, buildings or other structures;
B. The acquisition, construction, preparation enhancement or replacement of
roads, buildings and other structures;
C. The acquisition, installation or replacement of movable plant, machinery and
apparatus, vehicles and vessels;
D. The making of advances, grants or other financial assistance to any person
towards him/her on the matters mentioned in (a) to (c) above or in the
acquisition of investments; and
E. The acquisition of share of capital or loan capital in any body corporate;
F. Any associated consultancy costs of the above.
Capital budget could thus broadly be described as an outlay on projects that result in the
acquisition of fixed assets and the provision of development services (Ministry of planning
and Economic Development, 1993:4). It should therefore be need that, capital budget as a
wider coverage than simple outlays in fixed investments, since it includes expenditure on
development services like agricultural research and transfer payments related to a project.
The capital budget is presented under three functional groups viz., economic development,
social development, and general development. Economic development includes production
activities (agriculture, industry, etc.), economic infrastructure facilities (mining, energy, road
etc.), commerce, communication, and so on. Social development includes education, health,
urban Development, welfare and so on. General development include services like
cartography, statistics, public and administrative buildings, and the like.
 Line Item Budget

Capital budget, on the other hand is prepared by activity/project. This will be performed by
categorizing projects spectrally at the top, then grouping them by programs and sub-
programs. For instance, the “National Fertilizer project” is detailed as follows under the
sector agricultural development.
700 Economic Development
710 Agricultural Development
712 Peasant Agriculture Development
712/02 Crop Development
712/02/02 National Fertilizer Project.
Ultimately, however, the budget for both recurrent and capital will be presented by line items
(or code of expenditures). Thus, the budget for the sub agency or department in the case of
recurrent will be prepared by such line items as salaries, office supplies, etc. Similarly, the

capital budget for projects will be prepared by such line items as surveys and designs,
equipment and machinery, operating cost, and so on.
recurrent will be prepared by such line items as salaries; office supplies, etc. Similarly, the
Line item budget has a number of advantages: First, it promotes control since the budget is
detailed down to particulate expenditure items. The use of the budget of one line item for
another may require the verification of MoF and MoED. So, the spending public bodies will
not have the right to spend the budget as they want. Second, it is simple to manage. The
major drawback of line item budget, however, is it fives more emphasis to inputs not outputs.
At present, however, the civil service Reform Program in its component of budget reform is
trying to address the issue of output. To move from the existing input based (line item)
budgeting to that of cost center and performance budgeting, efforts are being made to
consolidate the recurrent and capital budgets by line item (i.e. to use the same line items for
both recurrent and capital budgets) and to map the budget into the organizational structure of
the implementing bodies.
2.3 Public Debt

This category deals with the causes, methods and problems of public borrowings and its
management. This includes both internal debt and external debt.
2.3.1 Internal Debt

Increasing need of government for funds cannot be fully met by taxation alone in under
developed and developing countries due to limited scope of taxation. Government therefore
has to resort to alternate sources. Rising of debt is one such source. Debt, though involves
withdrawal of resources by curtailing private consumption, has certain advantages. Transfer
of funds from public to government is voluntary. Loans do not reduce the wealth of the
lenders. Debt raised for productive purpose will not be a burden on the economy.

There are many objectives of creation of public debt. Debt may be raised to meet the normal
current expenditure, exigencies like war, finance productive government enterprise, finance
public social welfare and economic development.
Capital receipts mainly consist of market borrowings, small savings and external loans,
disinvestments of PSUs and recoveries of loans.
2.3.2 External Debt

In under developed and developing countries, internal sources are limited. Under developed
and developing countries, therefore, go for external debt. The transfer of capital at
international level may take the form of:
i. financial aid through grants and loans
ii. commodity aid
iii. technical assistance
External debt is an immediate source of funds for development. However, such debt has
following drawbacks.
i) Political subordination
ii) Other obligation
iii) Excess supply of goods and services in debtor country
However, such external inflows help to achieve faster growth.
2.4 Financial Administration

This category includes the preparation of financial budget, the control and administrations of
the budget relevant problems auditing etc. The term budget includes ‘Annual Financial
Statements’ which incorporates all the annual statements of receipts and expenditures of the
government.
2.5 Economic Stabilization

Generally under developed countries have the following features.
1. Predominantly agriculture based economy
2. Low capital formation

3. Inferior technical know how
4. Low per capital income
5. Over population and poor health and educational facilities.
6. High propensity to consume leading to low capital formation.
This category analyses the use of public finance to bring the economic stability in the
country. It studies the use of financial policies of the Government from the view of
economic development.
2.6 Fiscal Policy

Fiscal policy is also called as budgetary policy. In broad terms, fiscal policy refers to that
segment of national economic policy, which is primarily concerned with the receipts, and
expenditures of these receipts and expenditures. It follows that fiscal policy relate to those
activities of the state that are concerned with raising financial resources and spending
them. Resources are obtained through taxation and borrowing both within the country and
from abroad. Spending is done mainly on defense development and administration. Financial
accounts of the income and expenditure position are shown in budgetary statement. Budget
can act as an important tool of economic policy. The state by its policy of taxation-regulated
expenditure can influence the economic activities and development.
Private outlay is insufficient to produce maximum national income. An increase in state

outlay beyond its revenue can increase national income. Keynes emphasized the effects of
government revenue and expenditure upon the economy as a whole and argued that they
should be used deliberately and consciously to secure economic stabilization. This
underscores the importance of budget in economic development.
Fiscal policy relates to the governments decision making with respect to the following:
1.Taxation
2. Government spending
3. Government borrowing and
4. Management of government debt.
The policy relates to government decisions, which influence the degree and manner in
which funds are withdrawn from private economy. Basically fiscal policy in these different

facets deal with the flow of funds out of the private spending and saving stream into the
hands of government and the recycle funds from government into the private economy.
It is thus obvious that fiscal policy deals quite directly with matters, which immediately
influence consumption and investment expenditure. Therefore, it influences the income,
output and employment in the economy. Fiscal policy is primarily concerned with the
aggregate effects of public expenditure and taxation on income output and employment. In
developed economies the propensity to consume leads to stability. Excess saving by the
community leads to lowering of demand for goods and services resulting in sub optimal
employment level. Fiscal policy should balance the economy by sustaining the consumption
in the economy.
In under developed and developing countries main objectives are rapid economic
development and an equitable distribution of the income. Fiscal policy can be an important
instrument for attaining these objectives. Fiscal policy influences the economy by the
amount of public income that is received and on the other by the amount and direction of
public expenditure. The important fiscal means by which resources can be raised for the
public exchequer are taxation, borrowing from public and credit creation. These means must
be used in harmonious combination so as to produce the best overall effects on the economic
life of the people in terms of economic progress and social welfare.
 Role of Fiscal Policy in the Economic Development:

1. In under developed and developing countries development is the main concern. The
primary task of fiscal policy in an under developed and developing countries is to allocate
more resources for investment and to restrain consumption.
2. The fiscal policy should reduce the economic inequalities of income and wealth. This
can be achieved by taxation and public distribution measures. Poverty and unity cannot
co exist. Therefore fiscal policy should attempt economic development of the socially
unfortunate to bring about national unity. Private section is not interested in investing in
social and economic overheads. Investments in social and economic overheads like
education, medical facilities, infrastructure, dams etc. are very essential to accelerate the
rate of economic growth.

3. In under developed and developing countries the requirement of growth demands that
fiscal policy has to be used progressively for raising the level of investments and savings
rather than keeping the consumption level. In under developed and developing countries
fiscal policy has to be used as an instrument of resource mobilization. In order to attain
growth with stability the goal of fiscal policy should be promotion of highest possible
rate of capital formation and should reduce the actual and potential consumption. Further
fiscal policy should encourage private investment and attract foreign funds for
development projects.
4. The existing pattern of investment may differ from the optimum pattern of investment.
Thus it becomes a responsibility of government to undertake investments in such a way
that it is most beneficial for the people of the country.
5. Fiscal policy should control inflation within tolerable levels since inflation mostly affects
the poor.
In under developed and developing countries there exist regional imbalances in addition to
social inequalities. Fiscal policy should aim at reducing both regional and social imbalances
by directing investments to less developed regions. Their marginal propensity to consume is
very high. Therefore, a small increment in investment can bring manifold employment due
to multiplier effect.
Fiscal policy should direct available resources for providing basic physical, infrastructural
needs like irrigation, roads, basic industries, railways, ports, telecommunications etc. Fiscal
policy should assign high priority to the creation of overhead capital. Spending of the
government should also take care of education and health of the community. Returns on
these investments are long-term and private sector cannot provide above investments.
Therefore government of a country through its fiscal policy is able to increase rate of
investment and also alter the pattern of investment. It follows that the main role of fiscal
policy in an under developed and developing countries is to expand productive capacity by
raising the level of real capital including skills as well as plants and equipment and to check
the demand generating effect of expanding investment. In developed countries its role is to
expand both production capacity as well as the level of aggregate monetary demand in

relation to their economic growth. In under developed countries the better approach is to
transfer resources to capital formation without inflation.
Fiscal policy through its different measures such as taxation policy budgetary policy, public
debt policy and a co-ordination with monetary policy can direct the economic destiny of a
nation. Fiscal policy can be used to mitigate the effects of trade cycles such as inflation and
depression.

UNIT THREE
TYPES OF TAX SYSTEM
3.1 Historical Background of Taxation

Taxation is a system of raising money to finance government. All governments require
payment of money - taxes - from people. Governments use tax revenues to pay soldiers and
police, to build dams and roads, to operate schools and hospitals, to provided food for the
poor and medical care to the elderly, and for hundreds of others purposes. Without taxes to
funds its activities, government could not exist.
3.1.1 Ancient Times

In the ancient civilizations of Palestine, Egypt, Assyria, and Babylonia, individuals’ property
rights did not exist. The king was sole owner of everything in this domain, including the
bodies of his subjects. Thus, instead of taxing individuals to support the government, the king
could simply force them to work for him. Ancient kings earned income in the form of food
from their lands and precious metals from their mines. If this income did not meet the king's
demands, he might lead his armies into neighboring countries to confiscate their property. In
societies that operated without money, the rulers taxed farmers by requiring that they hand
over some proportion of their crops to the state. Poll taxes were a major source of revenue in
Egypt under the Prolemaic Dynasty (323Bc-300Bc).
The government of ancient Athens, Greece, relied on publicly owned silver mines, tribute
from conquered countries, a few customs duties, and voluntary contributions from citizens
for revenue. It levied poll taxes only on slaves and aliens (non citizens) and made failure to a
capital crime.
In early years of Roman republic all Roman citizens paid a poll tax. However, Roman
military victories brought in so much foreign tribute that the government exempted citizen
from this tax in the 2nd century BC, after the public wars between Rome and carthage. More
than 100 years later. Emperor Augustus introduced land and, inheritance taxes. Succeeding
emperors raised rates and found an increasing number of things to tax, including wheat and
salt.
3.1.2 Medieval time
During the Middle Ages from about the 5th century AD to 15 century AD, taxation varied
from, region to region. Europeans were subject to many forms of taxation, including land
taxes, poll taxes, inheritance taxes, tolls (payments for the use of bridges, roads, or seaports),
and miscellaneous fees and fines. Many people paid taxes in the form of money or crops
directly to the local lord whose land they farmed.
Under the system of feudalism that dominated in Western Europe beginning; in about the 11th
century, kings, noble and church rulers all collected taxes.
The Roman Catholic Church was a tax collector during the middle ages. One of the most
important sources of church revenue was the tithe that is a compulsory payment, one-tenth of
a person’s harvest and lives stock. An important development towards the end of feudal
period was the dramatic growth in the number and population of towns and cities. These
urban centers collected revenues using taxes on property as well as sales taxes on certain
items.
3.1.3 16th Century to Modern Period

Over a period of time, feudalism faded and strong centralized states emerged in Europe,
during 16th and 17th centuries. These states relied heavily on revenues generated by the king's
own estates and by taxes on land. In England, the power of parliament grew steadily because
the kinds and queens had to convene it frequently to obtain money. In 1689 the English bill
of rights guaranteed that the kind could not tax without parliament's consent.
By 18th century, England started imposing various taxes on transactions .As times passed,
people become dissatisfied with this system of public finance for several reasons. In general
people perceived that the burden of taxes fell mostly on the poor. In addition, tax systems did
not generate as much revenue as the governing classes wanted. Finally, economists and
political leaders began realizing that by reducing trade, tariffs crated economic losses for
society.
In the late 19th and early 20th centuries, concerns about both fairness and the ability of tax
systems to generate sufficient revenue led governments to enact income tax, to finance the
Napoleonic wars. The government discontinued the tax when the war ended in 1815, but
revived it in 1842. The first progressive income tax, which imposed a greater tax burden on
people with higher, income-was introduced in Russia in 1853. Other countries introduced
progressive income taxation in subsequent decades, including Britain in 1906, the United
States in 1913, and France 1917. Although income taxes generated little revenue at first,
today they play major role in all modern tax systems.
3.2 The Financing Function of Taxes

Traditionally, the primary purpose of a tax was to pay for goods and services provided by the
government. The financing function of taxes remains important although taxes have other
purposes today. Taxes are the main source of revenue or income for governments and
provide the chief means of covering current costs or expenditures.
The major issue involving the financing function of taxes is their effect on the efficient use of
scarce resources. Taxes divert resources away from alternative uses. These uses may be a
source of lesser benefits than the uses to which these resources are put in the public sector.
However, if taxes divert resources away from their best alternative use, they are a source of
allocative inefficiency. The efficient distribution of resources to the public sector via taxes
requires that benefits derived from government spending have a value equal to or grater than
the alternative uses these resources would have in the private sector of the economy.
3.2.1 The Allocation Function of Taxes

In the financing function, the diversion of resources by taxes from the private sector is done
under the presumption that resources are used efficiently in the private sector. Thus, the
primary concern is to divert resources in a manner that does not interfere, or interferes the
least, with the allocation of resources in the private sector. If resources are not efficiently
allocated in the private sector, taxes can be purposely used to have non-neutral effects, that
is, taxes can be used to change the allocation of resources.
3.2.2 The Redistribution Function of Taxes

The redistribution function of taxes raises the question of the appropriate way of distributing
taxes among taxpayers. Taxes and tax rates can be selected in a manner that alters the pattern

of income among taxpayers. Taxes can shift the pattern of income away from certain income
groups and towards others. For example, progressive income tax rates take a higher percent
of income for higher incomes than for lower; thus, they tend to reduce the after tax income of
higher income groups more than they reduce the after tax income of lower income groups.
Progressive income tax rates, then would be expected to shift the after tax income pattern
away from higher income groups to lower income groups. This effect, however, can be offset
in part or in whole by tax deductions, credits, and the like which higher income groups can
take advantage of in order to minimize their tax payments. Tax incidence studies try to find
out whom really pays taxes that is, to find out who bears the real burden of taxation. Such
discussion will be examined in the next chapter.
3.2.3 The Stabilization Function of Taxes

The stabilization function of taxes view taxes as a variable that can be altered to direct the
economy toward economic stability; that is, full employment and a stable price level. An
increase in taxes normally reduces private consumption and saving therefore reducing private
spending. A decrease in taxes increases private consumption and saving and therefore has the
opposite effect on private spending. Thus, taxes can play an important role in changing the
level of private demand. When the economy is near or at full employment and is
experiencing inflation, tax rates can be increased to reduce inflationary pressures. When the
economy is experiencing declining real output and rising unemployment, tax rates can be cut
in order to increase private spending. Taxes, then, can be viewed as a fiscal policy variable to
be changed depending upon overall economic conditions. This role places taxes in quite a
different perspective than the role in which they are traditionally seen simply as a method of
finance. During periods of economic expansion, tax collections tend to automatically rise
because of the growth in tax bases such as sales and income. This automatic growth in taxes
tends to slow down the expansion. During periods of economic contraction, tax collections
automatically decline because of the decline in sales and income in the economy. Therefore,
even if tax rates are not changed during the ups and downs in the economy, tax collections
automatically change in a way that tends to stabilize the economy.

3.3 Objectives of Taxation
Government levies and collects taxes for various objectives. These objectives may be
specific or general.
3.3.1 Specific Objectives

The basic purposes of levying taxes are as follows to:
1. support the operation of that government itself.
2. influence the macro economic performance of the economy, the government's
strategy for doing this is called its fiscal policy.
3. carry out the functions of the government such as national defense and providing
government services.
4. redistribute resources between individuals or classes in the population. Historically
the nobility were supported by taxes on the poor modern social security systems and
intended to support the poor by taxes on the rich.
5. modify patterns of consumption or employment within an economy by making some
classes of transaction more or less attractive.
3.3.2 General Objectives

Taxes are compulsory payments to the Government by the taxpayers. In the beginning,
Government imposed taxes for three basic purposes viz., to cover the cost of administration,
maintaining law and order in the country and for defense.
But, in modern days, there has been a sea change in the Government’s expenditure pattern.
Today, the Government is in the position to restore social justice in the society by way of
providing various social services like education, employment, pension, public health,
housing, sanitation and the development of weaker sections of the society. Besides the above,
the Government announces heavy subsidies for agriculture and industry. For example,
subsidies to fertilizing industries. Thus, Government requires more amount of revenue than
before. Non-tax revenues are not sufficient to meet the entire expenditures. Hence,
Government imposes taxes of various types.

Let us discuss the general objectives of taxation hereunder.
A. Raising Revenue
The basic purpose of taxation is raising revenue. To render various economic and social
activities, Government requires large amount of revenue. To meet this enormous expenditure,
Government imposes various types of taxes in addition to the non-tax revenue.
B. Removal of Inequalities in Income and Wealth
The welfare state aims at the removal of inequalities in income and wealth. By framing
suitable tax policy, this end can be achieved. It is stressed in the Canon of Equality. In India,
the progressive taxation on income and wealth and heavier excise and customs duties, and
taxes on luxurious goods are the suitable examples in this regard.
C. Ensuring Economic Stability
Taxation affects the general level of consumption and production. Hence, it can be used as an
effective tool for achieving economic stability. That is, by means of taxation the effects of
trade cycle i.e. inflation and deflation can be controlled. During the period of boom or
inflation, the excess purchasing power in the hands of people leads to rise in the price level.
Raising the existing tax rates or imposing additional taxes can remove such excess
purchasing power. Then the abnormal demand will be reduced and the economic stability
can be achieved. At the same time, by providing grants, tax exemptions and concessions,
production can be encouraged thereby inflation is controlled.
Likewise, during the period of depression or deflation, the role of tax policy in the economy
is important. Reduction in the existing tax rates and removal of certain taxes, consumption
can be induced which in turn results in increasing demand. This encourages business
activities, and the economic growth can be achieved.
Thus, through properly devised tax system, the economic stability can be achieved by
controlling the effects of trade cycle.
D. Reduction in Regional Imbalances
It is normal that certain parts of the country are well developed, whereas some other parts or
states are in backward conditions. To remove these regional imbalances, the Government can
use tax measures. By way of announcing various tax exemptions and concessions to that
particular backward regions or states, the economic activities in those areas can be induced
and accelerated.
E. Capital Accumulation
Tax concessions or rebates given for savings or investment in provident funds, life insurance,
unit trusts, housing banks, post offices banks, investment in shares and debentures of certain
companies etc. lead to large amount of capital accumulation which is essential for the
promotion of industrial development.
F. Creation of Employment Opportunities
More employment opportunities can be created by giving tax concessions or exemptions to
small entrepreneurs and to the industries adopting labour-intensive techniques. In this way,
unemployment problem can be solved to certain extent.
G. Preventing Harmful Consumption
Taxation can be used to prevent harmful consumption. By way of imposing heavy excise
duties on the commodities like liquors, cigars etc., the consumption of such articles are
reduced to a considerable extent.
H. Beneficial Diversion of Resources
The imposition of heavy duties on non-essential and luxury goods discourages the producers
of such goods. The resources utilized for the production of these goods may be diverted into
the production of other essential goods for which various tax concessions are given. This is
called as beneficial diversion.
I. Encouragement of Exports
Now-a-days export oriented industries are encouraged by way of providing various
exemptions like 100% relief from income tax, free trade zones etc. It results in the large
earnings of foreign exchange.
J. Enhancement of Standard of Living
By way of giving various tax concessions to certain essential goods, the Government
enhances the standard of living of people.

3.4 Canons of Taxation
The Government requires funds for the performance of its various functions. These funds are
raised through tax and non-tax sources of revenue. Imposing tax on income, property and
commodities etc. raises tax revenues. In fact, tax is the major source of revenue to the
Government. According to Adam Smith, "a tax is a contribution from citizens for the
support of the Government".
No one likes taxes, but they are a necessary evil in any civilized society. Whether we believe
in big government or small government, governments must have some resources in order to
perform their essential services. So how does one go about evaluating a particular tax?
Taxation is an important instrument for the development of economy of the country. A good
tax system ensures maximum social advantage without any hardship on taxpayers. While
framing the tax policy, the government should consider not only its financial needs but also
taxable capacity of the community. Besides the above, government has to consider some
other principles like equality, simplicity, convenience etc. These principles are called as
"Canons of Taxation". The following are the important canons of taxation.
3.4.1 Canons Advocated by Adam Smith
A.Canon of Equality.
B.Canon of Certainty.
C.Canon of Convenience.
D.Canon of Economy.
3.4.2 Canons Advocated by Others
A.Canon of Productivity.
B.Canon of Elasticity.
C. Canon of Diversity.
D. Canon of Simplicity.
E. Canon of Expediency.
F. Canon of Co-ordination.
G. Canon of Neutrality.We shall now discuss them briefly.

3.4.1 Canons Advocated by Adam Smith
No one has yet come up with a better set of criteria for judging a tax than the Canons of
Taxation first proposed by Adam Smith more than two hundred years ago. Adam Smith in
his book, “Wealth of Nations” has explained the four canons of taxation that are mentioned
above. All accepts them as good taxation policy. We shall now explain them briefly.
A. Canon of Equality
According to this principle of Adam Smith, “the subjects of every state ought to contribute
toward the support of the Government, as nearly as possible, in proportion to their abilities".
That is, a good tax system should be based on the ability to pay of the people. That is, all
people should bear the public expenditure in proportion to their respective abilities. Tax
burden should be more on the rich than on the poor. Since the rich people can pay more for
public welfare, more tax should be collected from richer section and less tax from the poor.
The ability to pay may be determined either on the basis of income and wealth or on the basis
of consumption i.e. luxury or necessity. In simple terms, canon of equality implies that when
ability to pay is taken into consideration, a good tax should distribute the burden of
supporting government more or less equally among all those who benefit from government.
B. Canon of Certainty
Another important canon of taxation advocated by Adam Smith is certainty. According to
him, "the tax which each individual is bound to pay ought to be certain and not arbitrary.
The time of payment, the manner of payment, the quantity to be paid, should be clear and
plain to the contributor and every other person". It means the time, amount and method of
payment should all be clear and certain so that the taxpayer can adjust his income and
expenditures accordingly. This principle removes all uncertainties in the payment of tax and
ensures smooth functioning of the tax department.
C. Canon of Convenience
In the canon of convenience, Adam Smith states that, "every tax ought to be levied at the
time or in the manner in which it is most likely to be convenient for the contributor to pay it".
That is, the tax should be levied and collected in such a way that is convenient to taxpayer.
For example, it may be in installments, land revenue may be collected at the time of harvest
etc. This principle reduces the tendency of tax evasion considerably.

It includes the selection of suitable objects for taxation, and also the choice of convenient
periods for requiring payment. The canon of convenience is a special form of the general
principle that the public power should as far as possible adjust its proceedings to the habits of
the community, and avoid any efforts at directing the conduct of the citizens in order to
facilitate its own operations. The sacrifices that inconvenient methods of fiscal
administration impose may indeed be treated as violations of both economy and equity.
D. Canon of Economy
The next important canon of taxation is economy. According to Adam Smith, "every tax
ought to be so contrived as both to take out and keep out of the pockets of the people as the
little as possible over and above what it brings into the public treasury of the state". This
principle states that the minimum possible amount should be spent on tax collection and the
maximum part of the collection should be brought to the Government treasury.
Taxation should be economical i.e. this should be much more than mere saving in the cost of
collection. Undue outlay on the official machinery of levy is but one part of the loss that
taxation may inflict. It is a far greater evil to hinder the normal growth of industry and
commerce, and therefore to check the growth of the fund from which future taxation is to
come. Thus the canon of ‘Economy' is naturally sub-divided into two parts viz.,
1. ‘Taxation should be inexpensive in collection', and

2. ‘Taxation should retard as little as possible the growth of wealth'.
It may also be remarked that there is a close connection between "Economy" and
"Productivity", since the former aids in securing the latter.
3.4.2 Canons Advocated by Others

Other researchers of taxation at other times have added to Adam Smith’s criteria. Some have
noted that a tax should be adequate, meaning it should produce sufficient revenue to support
whatever it is that citizens want their government to do. Some have argued for a "Benefit
Principle" whereby the amount of tax each is called upon to pay bears some relationship to
the benefits each taxpayer receives from government. Others have argued that a tax should

be neutral in its effect on the way markets work. But Smith’s Canons are the starting point
for any serious evaluation of a tax. The various canons added by others are explained below:
A. Canon of Productivity
According to C.F. Bastable, the tax system should be productive enough i.e. it should ensure
sufficient revenue to the Government and it should encourage productive activity by
encouraging the people to work, save and invest.
B. Canon of Elasticity
The next principle advocated by Bastable is elasticity. The taxes should be flexible. It should
be levied in such a way to increase or decrease the tax revenue depending upon the need. For
example, during certain unforeseen situations like floods, war, famine, drought etc. the
Government needs more amount of revenue. If the tax system is elastic in nature, then the
Government can raise adequate funds without any extra cost of collection.
The tax system should be elastic is a desirable canon of taxation. It may, indeed, be regarded
as the agency for realising at once "Productivity" and "Economy". Where the public
revenue does not admit of easy expansion or reduction according to the growth or decline of
expenditure, there are sure to be financial troubles. For this purpose some important taxes
will have to be levied at varying rates. The particular taxes chosen will vary according to
circumstances, but the general principle of flexibility should be recognised and adopted.
C. Canon of Diversity
According to this principle, there should be diversity in the tax system of the country. The
burden of the tax should be distributed widely on the entire people of the country. The
burden of the tax should be decentralised so that every one should pay according to his
ability. To achieve this, the Government should impose both direct and indirect taxes of
various types. It should not depend upon one or two types of taxes alone.
D. Canon of Simplicity
This principle states that the tax system should be simple, easy and understandable to the
common man. If the tax system is complex and vague, the taxpayer cannot estimate his
tax liability and it will cause irregularities in the payments and leads to corruption.

E. Canon of Expediency
According to this principle, a tax should be levied after considering all favorable and
unfavorable factors from different angles such as economical, political and social.
F. Canon of Co-ordination
In a federal set up like Ethiopia, Federal and State Governments levy taxes. So, there should
be a proper co-ordination between different taxes imposed by various authorities. Otherwise,
it will affect the people adversely.
G. Canon of Neutrality
This principle stresses that the tax system should not have any adverse effect. That is, it
shouldn’t create any deflationary or inflationary effects in the economy.
Applying Smith’s Canons to any particular tax is largely a subjective undertaking. Yet, if
one attempts to evaluate the principal taxes – that is, property tax, income tax, and sales tax –
against Smith’s Canons, one will quickly find that there is no such thing as a perfect tax. The
property tax, for instance, scores fairly low on convenience and efficiency, but fairly high on
certainty. The income tax scores fairly high on equality, but is costly to administer and is so
complicated that it leaves much to be desired on certainty. A sales tax scores high on
convenience, certainty, and efficiency, but poorly on equality. Because there is no perfect
tax, an argument can be made that the best tax system is one that uses all three major types of
taxes in small doses. By combining all three major types, it is possible to offset the
weaknesses of each with the strengths of the others. In the final analysis, however, the
standard for judging a tax is often political. In a democracy, when revenue must be raised,
the tax selected is often based upon plucking the goose that squawks the least. Some have
called this political test the other canon.
These are the general canons that experience seems to prescribe, and which should be
observed in a well-ordered State. Besides, their simplicity has not saved them from frequent
violation. Their value lies in their assertion of truths plain and intelligible to common
understandings but for that very reason too often passed over. A system of taxation, which
conforms to them, may without hesitation be pronounced a good one. Where they are
neglected and broken through, the evil consequences will be almost certainly conspicuous.

A further point deserves notice. There is at first sight a probability of conflict between the
several canons. A productive tax may be inconvenient, as a convenient one may be unjust,
and how, it may be asked, is a solution of the difficulty to be reached? The plain answer is,
by the surrender of the less important canon. The successful administration of the State is the
final object, and therefore convenience, or even equity, may have to yield to productiveness.
But though opposition is possible, agreement is on the whole the ordinary case. We have
seen that economy increases productiveness, but so do certainty and convenience. Elasticity
aids both productiveness and economy, while growing productiveness in turn permits better
observance of all the other canons. There is thus a harmony in a properly administered
financial system that tends to promote its improvement in the future.
In a democratic country like Ethiopia, the political factors are also influencing the tax policy
of government. While deciding an appropriate taxable system, the government has to follow
the above-mentioned canons of taxation.
3.5 Types of Tax System

The tax system structure can be:
3.5.1 proportional,
3.5.2 progressive,
3.5.3 Regressive and
3.5.4 digressive type.
3.5.1 Proportional Tax Structure
Proportional tax structure is a system that taxes everyone at the same rate, regardless of his or
her income bracket. Supporters of a flat tax argue that it gives people incentive to earn more,
because they wouldn’t be penalize by graduating to a higher tax bracket (as they would in a
progressive-rate system).

Tax base(Income in Birr) Tax rate (in %)
Over Birr To Birr
0 500 20
501 1500 20
1501 3000 20
3001 5000 20
5001 7500 20
7501 10500 20
Income tax on games of chance is an example of proportional tax. If Alem wins birr 150,000
and Hagos wins Birr 100,000 both persons pay taxes equal to 15% of the prizes, birr 22,500
and 15,000, respectively.
A. Advantage of Proportional Tax Structure
Proportional tax system has the following advantages:
-It is simple in nature
-It is uniformly applicable
-It leaves the relative economic status of taxpayer unchanged
B. Disadvantages of Proportional Tax Structure
Proportional tax system has the following disadvantage:
-Inequitable distribution
-Inadequate resources: means that the tax for the rich and poor are the same. Hence,
the government cannot obtain from the richer sections of the society as much as
they can give
-Inelastic in nature: because the government cannot raise the rate whenever it wants
to raise the revenue.
Proportional tax system suffers from the defects of inequitable distribution of the tax burden,
lack of elasticity and inadequacy of funds for the increasing needs of the modern
government. Hence, it is not particularly and universally accepted.
3.5.2 Progressive Tax Structure

A progressive tax is a tax that is larger as a percentage of income for those with larger
incomes. It is usually applied in reference to income taxes, where people with more income
pay a higher percentage of it in taxes. The term progressive refers to the way the rate
progresses from low to high.
The rate of taxation increases as the tax base increases.

Over Birr To Birr
0 500 10
501 1500 15
1501 3000 20
3001 5000 25
5001 7500 30
7501 10500 35
A. Advantages of Progressive Tax Structure

 Equality in sacrifice: under progressive tax system, the rate of taxation increases as
the tax base increase. That is, the burden of taxation is heavy upon the rich than on
the poor.
 Reducing the inequalities of income and wealth
 Elastic: the government can easily raise its revenue by increasing the rates of taxes.
 Stabilizing the economy: Progressive tax system may be helpful in preventing the
inflationary trends in the economy as it reduces the disposable income and
purchasing power of the people.
B. Disadvantages of Progressive Tax

 Ideal progressive is impossible: the main drawback of progressive taxation is that it
is difficult to frame an ideal progression in tax rates. They are arbitrary depending
on the government’s need for additional funds without taking into account the
burden of people with different incomes.
-Disincentive taxation: it is argued that too progressive a tax rate acts as a
disincentive to work.
-Discourage saving and investment
3.5.3 Regressive Tax Structure

A regressive tax is a tax which takes a larger percentage of income from people whose
income is low. Often it is a fixed tax – every person has to pay the same amount of money,
such as a poll tax. A poll tax is a fixed tax for each person: since each person pays the same
amount of money, it is a lower proportion for people with higher incomes. A regressive
taxes fall more heavily on the poor section of the community, than on the richer section.
Thus, it violates the principle of equity and social justice.
Over Birr To Birr
0 500 35
500 1500 30
1500 3000 25
3000 5000 20
5000 7500 15
7500 10500 10
3.5.4 Digressive Tax Structure

It is an alternative of progressive tax marked by a steadily declining rate of increase in the
progressive tax rates, which are applied to the upper segments of the tax base. An
incremental tax rate in each additional layer of tax bracket (marginal tax rate) decrease as the
segment of the tax base increase.
Over Birr To Birr
0 500 5
500 1500 10
1500 3000 14
3000 5000 17
5000 7500 19
7500 10500 20
 Arguments for and against proportional Taxation

 Proportional taxation is based only upon the hypothesis that marginal utility of income
is lower for the richer sections. It is claimed that this cannot be proved because utility
being a subjective thing cannot be measured and inter-personal comparisons of utility

are not possible. It follows that we cannot impose a large money burden upon the richer
sections on ground of sacrifice.
 Proportional tax schedule is administratively simple. But, there is counter argument to
this because the points at which tax collection is to take place become too numerous
and administratively unmanageable.
 It is claimed that a proportional tax does not change the relative position of different
tax-payers. It is neutral in terms of the allocation of resources of the economy to
different uses. This type of reasoning is quite misleading. Because when the income of
a tax-payer is reduced he adjusts his demand pattern for various goods and services.
Example: (1) A richer person maintains his consumption by reducing his saving and
supply of investment funds and the demand for capital goods would fall. This would
retard the rate of economic growth.
 The poorer sections will have to reduce their consumption which is not good for their
health and efficiency.
 Arguments for and against progressive Taxation

Arguments For
 A very strong case for progressive tax rats exists in terms of ability to-pay and the
corresponding sacrifice which taxation involves. This argument is based upon the
assumption of the law of diminishing utility. But the problem is measurability of
utility or the possibility of interpersonal comparisons.
 Progression can be advocated on the basis of social justice because it taxes the
people according to their ability to pay.
 Progressive taxation acts as a built in stabilizer. i.e., it acts against an excessive
upward or downward movement of income and prices.
Argument Against
 Progressive tax has been disputed on the grounds of non-measurability of utility and
the impossibility of interpersonal comparisons of utility

 The benefit-received principle is against progressive taxation from the very beginning,
because this principle requires the poor to pay more tax as he receives more benefit
from the government.
 Progressive taxation is said to have negative bearing on the process of saving and
capital accumulation in an economy, because it taxes more the rich who is the big
saver in the economy.
In a poor, underdeveloped country raising resources through budgetary savings may
necessitate the use of regressive taxes (or indirect taxes). Indirect taxes can be imposed on
articles of mass consumption. Thus the low income majority will be captured by those taxes.
Because of this, the value of the property in the neighborhood will rise. This rise in the value
will provide an unearned increment. Hence, the Government has a right to appropriate a part
of this unearned increase. This appropriation is called as special assessment.
3.5.5 Direct and Indirect Taxes
Taxes are sometimes referred to as direct or indirect. The meaning of these terms can vary in
different contexts, which can sometimes lead to confusion. In economics, direct taxes refer
to those taxes that are paid by the person who earns the income. By contrast, the cost of
indirect taxes is borne by someone other than the person responsible for paying them. For
example, taxes on goods are often included in the price of the items, so even though the seller
sends the payments to the government, the buyer is the real payer. Indirect taxes are
sometimes described as hidden taxes because the purchaser of goods or services may not be
aware that a proportion of the price is going to the government.
A. Direct Taxes
A direct tax is paid by a person on whom it is levied. In direct taxes, the impact and
incidence fall on the same person. If the impact and incident of a tax fall on the same person,
it is called as direct tax. It is borne by the person on whom it is levied and cannot be passed
on to others. For example, when a person is assessed to income tax or wealth tax, he has to
pay it and he cannot shift the tax burden to anybody else. In India, Union Government levies
the direct taxes such as income tax, wealth tax, gift tax, and estate duty. Tax on agricultural
income, professional tax, land revenues, taxes on stamps and registrations etc. are levied by
State Governments. From the above discussion, it can be understood that the direct taxes
levied in India take the form of taxes on income and property.
I. Merits of Direct Taxes

Direct taxes have the following merits:
a. Ensures the Principle of Ability to Pay
Direct taxes are based on the principle of ability to pay. They fall more heavily on the rich
than on the poor. The tax burden is distributed on different sections of the society in a just
and equitable manner.
b. Reduces the Social and Economical Inequalities
Direct taxes reduce a disparity in the distribution of income and wealth. By adopting the
progressive tax system, rich people pay on higher rates of adopting the progressive tax
system, rich people pay on higher rates of taxation, while the poor pay on lower rates or
given exemptions. This reduces the gap between the poor and rich to a considerable extent.
c. Certainty
Direct taxes satisfy the canon of certainty. In direct taxes, the time of payment, mode of
payment, the amount to be paid etc. are made clear. Both the taxpayers and the Government
know the amounts to be paid and the Government can estimate the revenue from these taxes.
d. Economy
The cost of collection of these taxes is low because the government adopts the different
methods of collections like tax deduction at source, advance payment of tax etc. Besides, the
taxpayers pay the amount of tax directly to government. Thus, the principle of economy is
achieved in the case of direct taxes.
e. Elasticity
Direct taxes are elastic in nature. For example, when the income of the people increases, the
tax revenue also increases. Moreover, during the unforeseen situation like flood, war etc.
the government can raise its revenue by increasing the tax rates without affecting the poor.
f. Educative Effect

Direct taxes create civic consciousness among taxpayers. Since the taxpayers feel the burden
of tax directly, they are interested in seeing that the Government properly spends the money.
They are conscious of their rights and responsibilities as a citizen of the State.
g. Control the Effects of Trade Cycles
Direct taxes control the effects of trade cycles. They can be used as a tool to mitigate the
effects of inflationary and deflationary trends by raising or reducing the tax rates.
II. Demerits of Direct Taxes

The following are the demerits of direct taxes:
a. Arbitrary in Nature: Direct taxes tend to be arbitrary because of the difficulty in
measuring the ability to pay tax. Paying capacity of the people cannot be measured
precisely. The levy is highly influenced by the policies of the Government.
b. Difficulties in the Formulation of Progressive Tax Rates: Direct taxes take the form of
progressive taxation i.e. the tax rates increases with the rise in income. It is very difficult
to formulate the ideal progressive rate schedules in this regard, since there is no scientific
base.
c. Inconvenience: Under direct taxes, the taxpayer has to adhere to many legal formalities
such as submission of the income returns, disclosing the sources of income etc.
Moreover, he has to follow numerous accounting procedures which are difficult to
comply with. Further, direct taxes have to be paid in lump sum and at times, advance
payment of tax has to be made. This causes much inconvenience to the taxpayers.
d. Possibility of Tax Evasion: The high rates of direct taxes create the tendency to evade
more. There is possibility for tax evasion by fraudulent activities. Thus, it is said that the
direct taxes are the taxes on honesty.
e. Limited Scope: The scope of the direct tax is very limited. In India, most of the people
come under the middle-income category. If only direct tax is followed, these people
cannot be brought into the tax net because of the basic exemption given. Thus, the
Government cannot depend upon direct tax alone.

f. Disincentive to Work, Save, and Invest: When the taxpayer earns certain level, they have
to pay more, because of the higher rate of taxes attributed to the higher slabs. This will in
turn discourages them to work further, save and invest.
g. Expensive to Collect: Under direct taxes, each and every taxpayer is separately assessed.
Thus, the large number of taxpayers to be contacted and assessed and the prevention of
tax evasion make the cost of collection more expensive.
B. Indirect Taxes
Under indirect taxes, the impact and incidence fall on different persons. It is not borne by the
person on whom it is levied and can be passed on to others. For example, when the excise
duty is levied on the manufacturer of cement, he shifts the burden of tax to the consumers by
raising the selling price. Here the impact of excise duty falls on the manufacturer and the
incidence on the ultimate consumers. The person who is required to pay the tax does not bear
its burden. Thus, indirect taxes can be shifted.
I. Merits of Indirect Taxes

Indirect taxes have the following merits.
a. Convenience
Indirect taxes are more convenient to the taxpayers. Since the tax is included in the selling
price of the commodities, the consumer pays the tax when he purchases them. He pays the
tax in small amounts (installments) and does not feel its burden. Thus, indirect taxes are quite
convenient and less burdensome.
b. Wide Scope
While the people with income and wealth above a certain limit, are brought under the levy of
direct taxes, indirect taxes are paid by all both poor and rich. Under indirect taxes, everybody
pays according to their ability. The tax burden is not imposed on to the small section but it is
widely spread. Thus, the indirect tax has wider scope.

c. Elastic
The revenue from the indirect taxes can be increased. Whenever the Government wants
to raise its revenue, or lower it, it can be achieved by increasing and decreasing the rates
of taxes on the commodities whose demand is inelastic.
d. Tax Evasion is Not Possible
Indirect taxes are included in the selling price of the commodities. So, evading of such tax
becomes very difficult. If the person wants to evade the tax, it can be done only by refraining
the consumption of the particular commodity.
e. Substantial Revenue
Indirect taxes yield substantial revenue to both Central and State Governments. The
developing countries like India are heavily dependent on indirect taxes. Direct taxes have a
limited scope in these countries because of low per capita income.
f. Progressive
Indirect taxes can be made progressive by imposing lower rates of taxes or giving exemption
to the necessary articles and heavy taxes on luxurious articles. Thus, indirect taxes also
confirm the principle of equity.
g. Effective Allocation of Resources
Indirect taxes have great influence in the allocation of resources among different sectors of
the economy. Resources allocation can be made effective by imposing heavy excise duties on
low priority goods and by granting relief to industries producing high priority goods. This
results into mobilization of resources from one sector to another positively.
h. Discourages the Consumption of Articles Injurious to Health
Indirect taxes discourage the consumption of certain commodities, which are harmful to
health. By imposing very high rates of taxes on commodities like liquors, drugs, cigarettes
etc., which are harmful to health, their consumption can be reduced.

II. Demerits of Indirect Taxes
The following are the demerits of indirect taxes
a. Ability to Pay Principle is Violated
Indirect taxes are not directly connected to the taxpayers' ability to pay. Therefore, both the
rich and poor equally pay the tax. Thus, the principle of ability to pay is violated. Indirect
taxes are regressive in nature.
b. Uncertainty
If indirect taxes are not levied on the commodities of common consumption and levied only
on luxurious articles, they tend to be inelastic. The quantity demanded will be affected by the
imposition of the taxes. Thus, the revenue generated from them is uncertain.
c. Discourages Saving
Indirect taxes are included in the selling price of the commodities. Hence, the people have to
spend more on the purchase of the goods. This, in turn affects the savings of the people.
d. High Cost of Collection
Indirect taxes are uneconomical as they involve high cost of collection.
e. Civic Consciousness is Not Created
Under indirect taxes, taxpayers don’t feel the burden of the tax. They are not aware of their
contribution to the State. Thus, indirect taxes do not create the civic consciousness in the
minds of the people.
f. Inflationary
The indirect taxes cause an increase in the price all around. The increase in the prices of raw
materials, finished goods and other factors of production creates inflationary trends in the
economy.
D. Differences between Direct and Indirect Taxes

Direct and Indirect taxes differ among themselves on the following grounds.

I. Shiftability of the Burden of Tax
In the direct taxes, the impact and incidence fall on the same person. It is borne by the person
on whom it is levied and is not passed on to others. For example, when a person is assessed
to income tax, he cannot shift the tax burden to anybody else, and he himself has to bear it.
On the other hand, in the case of indirect taxes, the impact and incidence fall on different
persons. It is not borne by the person on whom it is levied. The burden of the tax can be
shifted. For example, when the manufacturer of cement pays excise duty, he can shift the tax
burden to the buyers by including the tax in the price of the cement.
II. Principle of Ability to Pay
Direct taxes conform to the principle of ability to pay. For example, now people having
income above Birr.150 pm, only is liable to pay income tax.
But, indirect taxes are borne and paid by the weaker sections of the society also. As such,
these taxes do not conform to the principle of ability to pay.
III. Measurement of Taxable Capacity
In the case of direct taxes, tax-paying capacity is directly measured. For example, the taxable
capacity for income tax is measured on basis of the income of the individual.
On the other hand, in the case of indirect taxes, taxable capacity is measured indirectly. The
luxurious articles are levied at the higher rate of taxes on the assumption that they are
purchased by the rich people. However, low rate is charged on the articles of common
consumption.
IV. Principle of Certainty
Direct taxes ensure the principle of certainty. Both the Government and the taxpayer know
what amount is to be paid and the procedures to be followed.
But in the case of indirect taxes, it is not possible. The taxpayer does not know the amount of
tax to be paid and the Government cannot predict the quantum of revenue generated from the
indirect taxes.
VI. Convenience
Direct taxes cause much inconvenience to the taxpayers since they are to be paid in lump
sum.

But the indirect taxes are paid by the consumers in small amounts as and when they purchase
the commodities. Moreover, the taxpayers need not follow any legal formalities in the
payment of tax. Thus, indirect taxes are more convenient to them.
VII. Civic Consciousness
People felt the burden of direct taxes directly. The taxpayer is conscious of his contribution
to the Government and interested in knowing whether the tax paid by him is properly used or
not. In this way, it creates civic consciousness among the taxpayers.
But indirect taxes do not raise such consciousness among the taxpayers, because they pay the
taxes indirectly.
VIII. Nature of Taxation
Direct taxes are progressive in nature. The rates of taxes go up with the increase in the tax
base i.e. income of a tax payer.
But rich and poor irrespective of their income equally pay indirect taxes. Thus, they are
regressive in nature.
IX. Removal of Disparity in Income and Wealth
Since the direct taxes are progressive in nature, they reduce the disparities of income and
wealth among the people to a considerable extent.
But indirect taxes have a negative effect. Actually they are widening the gap between the
rich and poor when they are levied on the goods of common consumption.

UNIT FOUR
ETHIOPIAN PUBLIC FINANCE
4.1. Budget in Ethiopia

The word Budget originally meant the moneybag or the public purse. The word now means,
“Plans of government finances submitted for the approval of the legislature”. The budget
reflects what the government intends to do. The budget has become the powerful instrument
for fulfilling the basic objectives of government. The budget covers all the transactions of the
central government.
Budget is a time bound financial program systematically worked out and ready for execution
in the ensuing fiscal year. It is a comprehensive plan of action, which brings together in one
consolidated statement all financial requirements of the government. The budget goes into
operation only after it is approved by the parliament. A rational decision regarding allocation
of resources to satisfy different social wants requires considerable thinking and planning.
Thus budget is an annual statement of receipts and payments of a government.
4.2 Functions of Budget

The functions of budget include the following:
- proper allocation of resources: - to relate expenditure decisions to specified policy

objectives and to existing and future resources;
- to relate all major decisions to the state of the national economy;
- long term economic growth:- to ensure efficiency and effectiveness in the

implementation of government programs;
- to facilitate legislative control over the various phases of the budgetary process.
- equitable distribution of income and wealth and
- Securing economic stability and full employment.

It implies that the objective of budget policy is to take corrective measures or to adopt
regulatory policies to remove imperfection or inefficiencies of market mechanism. Besides,
the objective of the budget policy is to make provision of social goods or the process by
which total resources are divided between private and social goods. It means that the
objective of budget policy is to ensure equitable distribution of income and wealth. This may
be termed as distribution function. Third objective of budget policy is to maintain a high
level of employment, reasonable degree of price stability and an appropriate rate of economic
growth.
To implement its economic functions government raises revenues through taxation. Fees and
charges, and spend them on different programs and activities. This process of rising revenues
and spending by government is performed through budgeting. Budget thus stands for the
yearly plans/forecasts of government revenues and expenditures. The budgeting process
starts from the initial stage of preparing the annual revenues and expenditures forecast and
end at the stages of approval by the higher government body followed by its implementation.
4.3 The Concept of Budgeting in Ethiopia

The government budget represents a plan/forecast by government of its expenditures and
revenues for a specified period. Commonly government budget is prepared for a year, known
as a financial year or fiscal year. in Ethiopia the fiscal year is from July 7 of this year to July
6 of the coming year (Hamle 1-Sene 30 in Ethiopian calendar). Budgeting involves different
tasks on the expenditures and revenues sides of government finance. On the side of
expenditure, it deals with the determination of the total deals with the determination of the
total size of the budget (i.e total amount of money for the year), size of outlays on different
functions, and the magnitude of outlays on various activities; on the revenue side, it involves
the determination of the size of the overall revenue and foreign aid.
Furthermore, budgeting also address the issue of the budget deficit (i.e. the excess of outlays
over domestic revenues), and its financing. Budgeting is not solely a matter of finance in the
narrow sense. Rather it is an important part of government’s general economic policy.
Budget is not solely a description of fiscal policies and financial plans, rather it is a strong
instrument in engineering and dynamiting the economy and its main objectives are to devise

tangible directives and implement the long term, medium term, and annual administrative
and development programs”.
4.4 Budget Structures in Ethiopia

Budget structures are the formats that organize budget data. Budget data could be classified
in different ways and for different purposes. In the early days, for instance, budget
classification basically focused on providing a better understanding of the intentions and
purposes of government for which funds were planned and to be spent. Later on, the budget
structures started to be influenced largely by the issue of accountability. That is in addition to
providing information on what the government proposed to do, the budget structures indicate
the full responsibility of the spending agency. To this end the budget heads or nomenclatures
the full responsibility of the spending agency. To this end the budget head or nomenclature of
the budget are mostly mapped to each spending agency. This should not, however, imply
unnecessarily extended and detailed structure (or mapping). Perhaps, due consideration must
be taken to make the structure manageable and appropriate. The first classification of the
budget is between revenue and expenditure.
4.4.1 Revenue Budget

It represents the annual forecast of revenues to be raised by government through taxation and
other discretionary measures, the amount of revenues raised this way differ from country to
country both in magnitude and structure, mainly due to the level of economic development
and the type of the economy.
In Ethiopia, the revenue budget is usually structured into three major headings: ordinary
revenue, external assistance, and capital revenue. Hence, the funds expected from these three
sources are proclaimed as the annual revenue budget for the country. The revenue budget is
prepared by the Ministry of Finance (MoF) for the federal government and by Finance
Bureaus for regional governments.

Ordinary revenues include both tax and not tax revenues. the tax revenues being direct taxes
(personal income tax, rental income tax, business income tax, agricultural income tax, tax on
dividend and chance wining, land use fee and lease); indirect taxes (excise tax on locally
manufactured goods, sales tax o locally manufactured goods, service sales tax, stamps and
duty); and taxes on foreign trade (customs duty on imported goods, duty and tax on coffee
export). Non tax revenues include charges and fees; investment revenue; miscellaneous
revenue (e.g. gins); and pension contribution. The second major item in revenue budget is
external assistance. It includes: cash grants, these are grants from multilateral and bilateral
donors for different structural adjustment programs; and technical assistance in cash and
material form. The third item is capital revenue. This could be from domestic (sales of
movable properties and collection of loans), external loan from multilateral and bilateral
creditors mostly for capital projects, and grants in the form of counterpart fund.
4.4.2 Categories of Revenues to Government

 Revenue on the basis of Nature
The revenues on the basis nature can be classified as in the following table. Of these two
types of classifications of revenues the classification of revenues based on the nature is
considered as the ideal classification.
A. Tax Revenue
The revenue form tax includes the following.
I. Tax on Income
The Government imposes two types of taxes on income.
They are tax on:
a) personal income, and
b) corporation profits.
The personal income tax is levied on the net income of individuals, firms and other
association of persons. The tax on the net profits of the joint stock companies is known as
corporation tax.

II. Taxes on Property:
It is the tax revenue from properties including rental income tax land use tax etc.
On the basis of Nature of

Revenue
Tax
TaxRevenue
Revenue Non –Tax Revenue
Commercial
Administrative Revenues
Tax on on Tax on
Tax
Taxon on Tax Commodities Revenue Prices on Others
Income Property
Property 1. Fees goods and
Income services
2. licensee
3. Form Issue of
4. Forfeits currency
5. Escheats
6. Special
Assessment
Personal Corporate Tax

Personal
Income
Incometax tax
Excise Tax Turnover Tax

Borrowings Gifts and
Customs Grants
Tax 1. From general
Public (Issuing 1. With in the
of Bonds etc Country
2. From other 2. From other
Value Added Tax Countries Countries
3. From other
Institution (IMF.
Copy © Rift Valley University College Adama World Bank, etc)
53
III. Taxes on Commodities
The important taxes levied by the Government on commodities are:
a) Customs Duty,
b) Excise Duty,
c) Value Added Tax
d) Turnover Tax
 Customs Duty includes both import and export duties. These duties are le
vied when the goods cross the boundaries of the country.
 Excise duties are levied on the commodities produced in the country.
Excise duties now constitute the single largest source of revenue to the
Union Government.
 Value Added Tax is levied by the Government on the commodities sold
at specified percentage on the value of sales.
 Turnover Tax is levied by the Government on the sales which are not
covered under Vat.
B. Non-Tax Revenues
The following categories of revenue are included under non-tax revenue.
 Administrative Revenue
It includes the following:
I. Fees
It is the compulsory payment made by the individuals who obtain a definite service in return.
Fees are charged by the Government to bear the cost of administrative services rendered by
it. These services are rendered for the benefit of general public. It includes court fee,
registration fee, etc.
II. Licenses
A license fee is collected not for any service rendered, but for giving permission or a
privilege to those who want to do a special or specified work. It is charged on the grounds of
control of certain activities.
III.Fines and Penalties
Fines and penalties are imposed as a form of punishment for the mistakes committed such as
violation of the provisions of law, etc. The basic aim behind them is to prevent the people
from making mistakes. A fine is also compulsory like a tax, but it is imposed more as a
deterent as a source of revenue.
IV. Forfeitures
Forfeiture means the penalty imposed by the courts on the persons who have not complied
with the notice served by it or for the breach of contract or has failed to pay the dues in time,
etc.
V. Escheats
The property of a person having no legal heirs and dying intestate, will be taken possession
of by the Government that is, the Government can take over the property cannot be
considered as a main source of revenue to the Government.
VI. Special Assessment
According to Prof. Seligman, special assessment means “a compulsory contribution levied in
proportion to the special benefit derived to defray the cost of the specific improvement to
property undertaken in the public interest “. Thus, it is a compulsory payment or
contribution. It is levied in proportion to the special benefits derived to bear the cost of
specific improvement to property. Whenever the Government has made certain
improvements, somebody will bet benefited. For example, irrigation facility, road and
drainage facility, etc.
4.5 Budget Deficit

A budget is considered as surplus or deficit according to the position of the revenue accounts
of the government. Thus a surplus budget is one in which revenue receipts exceed
expenditure charged to revenue account regardless of the gap in capital accounts; while a
deficit budget is one in which expenditure is greater than current revenue receipts.
Budget deficit is the excess of total expenditure over total revenue of the government.
The deficit financing denotes the direct addition to gross national expenditure through budget
deficits whether the deficits are on revenue or capital accounts”. It implies that the
expenditure of the government over and above the aggregate receipt of revenue account and
capital account is treated as budget deficit of the government.
The meaning of deficit financing is different in different countries. In western countries, the
budget gap, that is covered by loans is called deficit financing because, if the government
borrows from the banks rather than from individuals the idle funds will be activated and there
will be an increase in the total public expenditure and thus there will automatically be an
deficit financing has been used in a different sense,. Here it is used to denote the direct
addition to gross national expenditure as a result of budget deficit.
Thus deficit financing can be defined as “the financing of a deliberately created gap between
public revenue and public expenditure”. The government of Ethiopia has used deficit
financing for acquiring funds to finance economic development. When the government
cannot raise enough financial resources through taxation, it finances its developmental
expenditure through borrowing from the market or from other sources.
4.5.1 Methods of Financing Deficit

There are four important techniques through which the Government may finance its
budgetary deficits. They are as follows:
A. borrowing from central bank
B. the running down of accumulated cash balances
C. the government may issue new currency
D. borrowing from market or from external sources.
Under the first method, government borrows from central bank as per budgetary policy. In
the second source, government spends from available cash balance,. In the third measure,
government issues new currency for financing deficit. The last method is that government
borrows from internal and external sources to finance its deficit.
4.5.2 Objectives of Deficit Financing

1. Deficit financing has generally been used as a method of meeting the financial needs
of the government in times of war, when it is considered difficult to mobilize
adequate resources.

2. Keynes advocated deficit financing as an instrument of economic policy to overcome
conditions of depression and to raise the level of output and employment.
3. The use of deficit financing has also been considered essential for financing economic
development especially in under developed countries.
4. Deficit financing is also advocated for the mobilization of surplus idle and unutilized
resources in the economy.
4.5.3 Effects of Deficit Financing

Deficit financing has both positive and negative effects in the economy as under:
A. Inflationary Rise in Prices
The most serious disadvantage of deficit finance is the inflationary rise of prices. Deficit
financing increases the total volume of money supply. Unless there is proportional increase
in production this can lead to inflation. When deficit financing goes too far it becomes self-
defeating. There was inflationary pressure during the decade due to deficit financing.
B. Effects on Distribution of Wealth and Income
The real income of wage earners gets reduced and that of entrepreneurs/ businessmen
increased, leading to distribution of wealth in favour of business class
C. Faster Growth
Country is able to implement the developmental plans through deficit financing thereby
attaining faster growth.
D. Change in Pattern of Investment
Deficit financing leads to encouragement for investment in certain fields like construction,
luxury consumption inventory holding and speculation. This may lead to investment in
undesirable fields.
E. Credit Creation in Banks
Inflationary forces created by deficit financing are reinforced by increase credit creation by
banks.
Among various fiscal measures, deficit financing has been assigned an important place in
financing developmental plan and various developing countries including Ethiopia resort to
deficit financing to meet budgetary gaps.

4.5.4 Deficit Financing in Ethiopia
Deficit financing in Ethiopia was mainly resorted to enable the Government of Ethiopia to
obtain necessary resources for the plans. The levels of outlay laid down were of an order,
which could not be met only by taxation or through a revenue surplus. The gap in resources
is made up partly through external assistance. But when external assistance is not enough to
fill the gap, deficit financing has to be undertaken. The targets of production and employment
in the plans are fixed primarily with reference to what is considered as the desirable rate of
growth for the economy. When these targets cannot be achieved through resources obtained
from taxation and external borrowing, additional resources have to be found. Deficit
financing is the easier option. It is important to emphasis the fact that deficit financing
cannot create real resources which do not exist in the economy
4.6 Pattern of Revenue Sharing

Ethiopia has chosen the federal structure in which a clear distinction is made between the
union and state functions and sources of revenue, but residual powers, belong to the center,
although the states have been assigned certain taxes, which are levied and collected by them,
they also share in the revenue of certain federal taxes. In addition, the states receive grants-
in-aid of their revenue from the federal government, which further increase the amount of
transfers between the two levels of government. The transfer of resources from the central
government to the states is an essential feature of the present financial system.
4.6.1 Distribution of Revenues between Central and States
The present federal fiscal system in Ethiopia is of a recent origin. The distribution of
revenues between the centre and states is followed on the basis of "constitution of Ethiopia”
and proclamation no.33/1992-proclamation “to define sharing of revenue between the central
government and the national/regional self governments”. The articles 96, 97, 98, 99 and 100
of the constitution of Ethiopia make a clear demarcation of areas where the central alone or
state alone have authority to impose taxes. It contains a detailed list of the functions and
financial resources of the center and states.
4.6.2 Objectives of Revenue Sharing
The sharing between the central government and the National/Regional Governments shall
have the following objectives:
1. enable the central government and the national/regional governments efficiently carry
out their respective duties and responsibilities.
2. assist national/ regional governments develop their regions on their own initiatives;
3. narrow the existing gap in development and economic growth between regions;
4. encourage activities that have common interest to regions.
4.6.3 Basis for Revenue Sharing

The sharing of revenue between the central government and the National/ Regional
governments shall take in to consideration the following Principles:
1. ownership of source of revenue;
2. the national or regional character of the sources of revenue;
3. convenience of levying and collection of the tax or duty;
4. population, distribution of wealth and standard of development of each region;
5. other factors that are basis for integrated and balanced economy.
4.6.4 Categorization of Revenue
According to "Constitution of Ethiopia” and Proclamation No.33/1992-Proclamation,
revenues shall be categorized as Central, Regional and Joint. That is there are three lists
given in the Articles. They are as follows:
A. Central List,
B. Regional List, and
C. Joint/Concurrent List
The important sources of revenue under "Constitution of Ethiopia” and The Proclamation
No.33/1992-Proclamation “To Define sharing of Revenue between the Central Government
and the National/Regional Self Governments” are explained below:
A. Central List
The sources of revenue are given under Federal/Central List are as follows:
I). Duties, tax and other charges levied on the importation and exportation of goods;
II). Personal income tax collected from the employees of the central Government and the
International Organizations;
III). Profit tax, Personal income tax and sales tax collected from enterprises owned by the
Central Government. (Now sales tax is replaced with VAT and Turnover taxes).
IV) Taxes collected from National Lotteries and other chance winning prizes;
V). Taxes collected on income from air, train and marine transport activities;
VI). Taxes collected from rent of houses and properties owned by the central
Government;
VII) Charges and fees on licenses and services issued or rented by the central
Government;
B. Regional List
The following shall be Revenues for the Regions:
I). Personal income tax collected from the employees of the Regional Government and
employees other than those covered under the sources of central government.
II) Rural land use fee.
III) Agricultural income tax collected from farmers not incorporated in an organization.
IV) Profit and sales tax collected individual traders.
V) Tax on income from inland water transportation.
VI) Taxes collected from rent of houses and properties owned by the Regional
Governments;
VII) Profit tax, personal income tax and sales tax collected from enterprises owned by the
Regional Government:
VIII) With prejudice to joint revenue sources, income tax, royalty and rent of land
collected from mining activities.
IX). Charges and fees on licenses and services issued or rented by the Regional Government;
C. Joint/Concurrent List
The following shall be Joint revenues of the Central Government and Regional
Governments.
I. Profit tax, personal income tax and sales tax collected from enterprises jointly
owned by the central Government and Regional Governments;
II. Profit tax, dividend tax and sales tax collected from Organizations;
III. Profit tax, royalty and rent of land collected from large scale mining, any
petroleum and gas operations;
IV. Forest royalty.

The domestic balance concept is a family of the overall budget deficit and became prominent
after the oil price increases in 1973/74. The basic argument being, in countries that had large
revenues, expanded incomes from government expenditures placed strains on the domestic
economy and spurred inflationary pressures. In such cases, budget surpluses will have an
expansionary effect. Under such circumstances the overall budget deficit or surplus measure
would be misleading to guide government policy. In fulfilling the requirements of oil
producing countries and others in similar circumstances, the technique of splitting the
domestic balance is the component of the overall balance from which external budget
transactions have been excluded.
The separation of recurrent and capital budget should, therefore, be viewed in terms of the
net worth argument above. The definition of these two budgets has been a common problem
in most countries, however. The problem relates to delineating, which specific expenditures
need to be included in the recurrent budget and which ones in the capital budget. In practice
three criteria have been in use to define budget into capital and recurrent. These are sources
of finance, object of expenditure, and nature of activity. Capital budgets were originally
defined by western governments by the source of finance, i.e., capital expenditures are
financed from loan not current revenue. The object of expenditure refers to the particular
activities to be performed with that budget like, formation of fixed assets, study and design,
salaries of civil servants, etc. the third criteria, the nature of activity, refers to whether the
activity is short term (i.e. project) or on going (that may not terminate in a specific period),
and objective specific.
In Ethiopia the definition of recurrent and capital budgets follow some combination of these
criteria. That is:
1. Recurrent budget is to be covered by domestic revenue from tax and non-tax sources. But
the economy could borrow to meet its capital budget.
2. The financial proclamation 57/1996 and financial regulations 17/1997 defined capital
budget based on the object of expenditure. Accordingly capital budget equals capital
expenditure which equals fixed assets and consultancy services.
3. Short-term activities that are project in nature are included in capital budget while those
activities that are recurring and continuous in nature are put in the recurrent budget. In
some instances activities with a very long life period have been entertained in the capita
budget. Since fiscal year 1994/95 efforts have been exerted to identify many such
projects that have been categorized under recurrent budget (projects in Education, health
and Agriculture sectors). The exercise does not seem complete, as there are projects with
recurring nature (e.g. Agricultural Research) though attempts have been made to isolate
the investment components.
The Expenditure Budget includes the following two types of Budgets:
1. Recurrent Budget, and
2. Capital Budget.
1. Recurrent Budget
Financial proclamation 57/1996 and financial regulation 17/1997 defined only the capital
budget, implicitly defining the recurrent one as a residual. To common practice, however, is
to include in the recurrent budget expenditures of recurrent nature (like salaries of civil
servants) and fixed assets with a multi-year life.
The recurrent budget is structured by implementing agencies (public bodies) under four
functional categories: administrative and general services, economic services, social services,
and other expenditures. All public bodies then fall under one of these functional categories.
The budget hierarchy will ten be down to sub agencies.
2. Capital Budget
Capital budget is budget for capital expenditures. Financial proclamation 57/1996 defined
capital expenditure as “an outlay for the acquisition of improvements to fixed assets, and
includes expenditures made for consultancy services.” Financial regulations 17/1997 further
provided a detailed definition of capital expenditures to mean:
i. The acquisition, reclamation, enhancement as laying out of land exclusive of roads,
buildings or other structures;
ii. The acquisition, construction, preparation enhancement or replacement of roads, buildings
and other structures;
iii. The acquisition, installation or replacement of movable plant, machinery and apparatus,
vehicles and vessels;

iv. The making of advances, grants or other financial assistance to any person towards
him/her on the matters mentioned in (a) to (c) above or in the acquisition of investments;
and
v. The acquisition of share of capital or loan capital in any body corporate;
vi. Any associated consultancy costs of the above.
Capital budget could thus broadly be described as an outlay on projects tat result in the
acquisition of fixed assets and the provision of development services (Ministry of planning
and Economic Development, 1993:4). It should therefore be need that, capital budget as a
wider coverage than simple outlays in fixed investments, since it includes expenditure on
development services like agricultural research and transfer payments related to a project.
The capital budget is presented under three functional groups viz., economic development,
social development, and general development. Economic development includes production
activities (agriculture, industry, etc.), economic infrastructure facilities (mining, energy, road
etc.), commerce, communication, and so on. Social development includes education, health,
urban development, welfare and so on. General development include services like
cartography, statistics, public and administrative buildings, and the like.
 Line Item Budget

Capital budget, on the other hand is prepared by activity/project. This will be performed by
categorizing projects spectrally at the top, then grouping them by programs and sub-
programs. For instance, the “National Fertilizer project” is detailed as follows under the
sector agricultural development.
700 Economic Development
710 Agricultural Development
712 Peasant Agriculture Development
712/02 Crop Development
712/02/02 National Fertilizer Project
recurrent will be prepared by such line items as salaries, office supplies, etc. Similarly, the

recurrent will be prepared by such line items as salaries; office supplies, etc. Similarly, the
Line item budget has a number of advantages: First, it promotes control since the budget is
detailed down to particulate expenditure items. The use of the budget of one line item for
another may require the verification of MoF and MoED. So, the spending public bodies will
not have the right to spend the budget as they want. Second, it is simple to manage. The
major drawback of line item budget, however, is it fives more emphasis to inputs not outputs.
At present, however, the civil service Reform Program in its component of budget reform is
trying to address the issue of output. To move from the existing input based (line item)
budgeting to that of cost center and performance budgeting, efforts are being made to
consolidate the recurrent and capital budgets by line item (i.e. to use the same line items for
both recurrent and capital budgets) and to map the budget into the organizational structure of
the implementing bodies.
Preparing the budget this way by line items is usually referred to as line item budgeting.
Hence, our recurrent and capital budgets are prepared by line items. Budget request and
disbursement are then performed by line items.
IV.7 The Budget Process in Ethiopia

Budgeting from the initial stage of forecasting the annual revenues and expenditures, to the
final stage of approval of the annual budget by the Council of Peoples Representatives,
passes through a sequential and an iterative process. This budgeting process includes:
 preparation of the macro-economic and fiscal framework;
 revenue forecast and determination of expenditure budget ceiling:
 allocation of expenditure budget between Federal and Regional governments;

 allocation of Federal government expenditure budget between recurrent and
capital budgets:
 budget call and ceiling:
 budget review by MoF and MoED;
 budget hearing and defense:
 review and recommendation:
 submission of the budget to the council of Ministers:
 submission of the budget to the Council of Peoples’ Representatives:
 notification and publication of the budget; and
 allotment.
The budget process thus includes al these stages, which obviously are sequential (one after
the other) and iterative. Peterson summarized the budget process into three phases: analyzing,
fitting, and implementing. The analysis phase is the assembly and integration of financial
data which might include processes from the formulation of macro-economic and fiscal
framework to the allocation of expenditure budget between Federal and Regional
governments the fitting phase is the process of prioritizing activities to fit with policy and
reducing a budget to a ceiling. Referring to the budgeting processes outlined above this might
range from the processes of allocation of Federal government expenditures budget between
recurrent and capital budget down to the submission of the budget to the council of peoples’
Representatives. The final paste, implementing, is distributing and using the allocation, i.e.
the notification and publication of the budget, allotment and the monitoring processes.
Budget being a one-year plan prepared for the coming fiscal year it requires a time schedule
(deadlines) for each and every processes hat should strictly be adhered to. The time schedule
is usually handled through the budget calendar. In effect the budget calendar is the major
instrument to manage the budgetary process. Thus far we don’t have an authoritative and
binding budget calendar that could force al public bodies involved in the process f budgeting.
The only dates proclaimed by law are the final approval and notification dates of the budget.
Financial proclamation 57/1996 states that “the budget appropriation shall be approved by
the council of peoples; Representatives by sine 30th (July 6) and all public bodies shall be
notified by Hamle 7 (July 13). “the other deadlines in the process of budgeting will be set by

the MoF and MEDaC who are responsible for the preparation of the recurrent and capital
budgets, respectively. The MoF and MEDaC will notify the spending public bodies well
ahead of time about the important deadlines, the budget ceiling and other information
through the budget circular. the budgeting process usually took between six to eight months,
and the MoF and MoED will release the budget circular around November to December.
IV.7.1 The Budgetary Process at the Federal Level

The budget processes at the Federal level follows sequential and iterative the steps. These
steps can be explained with the help of the following Chart. Let us briefly explain these steps
one by one here under.
A. Step One - Macro-Economic and Fiscal Framework
The preparation of the macro-economic and fiscal framework is basically a component of the
recently initiated public investment program (PIP). It is a planning practice and as stated in
Ministry of Economic Development, the macro-economic and fiscal framework determines
the overall level of government expenditures based on policies related to the role of
government in the economy, government deficits, and priorities for resource allocation
between regions and sectors. For the Federal government the framework is a three years
forecast and will be updated each year.
The framework is composed of macro-economic forecast and fiscal forecast. The macro-
economic forecast gives the forecast of Gross Domestic product based on past performance
and estimates for future years, and provides base line information in preparing the fiscal
forecast. Financial Regulation 17/1997 gave the responsibility of preparing this framework to
the Ministry of Economic development (MoED). Where as, the later, establish the level of
total resources available for expenditure. it provides a more detailed forecast of revenue (both
Federal and Regional), end projection of expenditure. Given the policy of no borrowing from
domestic banks to finance budget deficit the level of expenditure mainly depend on the
amount of resources to be raised in the form of domestic revenues and external fund that

include counterpart funds. Once prepared by the concerned coordinating ministries, i.e. MoF
and MoED, it will be reviewed and approved by the Prime Minister’s Office (PMO).
B. Step Two- Determination of Federal Government Expenditure and
Subsidy to Regional Governments
After the revenue and expenditure of the government are estimated through the fiscal
framework, the PMO will decide on the shares of Federal government expenditures and
subsidies Regional governments. it is known that, following the decentralization policy,
Regional governments took grants from the Federal government in the form of subsidy.
Once the amount of subsidy is known, the allocation among regions is determined on the
basis of a formula. Initially the formula was composed of five parameters (population, level
of development, revenue generating capacity, utilization capacity, and land area). At present,
how ever, the formula takes account of three parameters: population, the level of
development, and revenue generating capacity of each region which are given a relative
weight of 60%, 25% and 15% respectively. This allocation will fist be prepared by MoED,
then reviewed by the PMO and finally approved by the Council of peoples’ Representatives.
C. Step Three-Allocation of Federal Expenditure between Recurrent and
Capital Budget
The practice in the allocation of recurrent and capital budget is to consider the latter as a
residual. That is, first the amount of budget necessary to cover such recurrent expenditures
like pensions, debt servicing, wages and non-wage operating costs will be determined. The
balance will then be allotted to capital expenditures. This will be performed by the PMO in
consultation with MoF and MoED.
D. Step Four - Budget Call and Ceiling Notification
This includes two items. They are:
I. Recurrent Budget
MoF will release the budget ceiling to the line ministries in a budget call. The budget call
provides each ministry such information as the macro-economic environment, an aggregate
recurrent budget ceiling, and priorities to budget.
II. Capital Budget
MoED issues detailed capital budget preparation guidelines to spending public bodies along
with the ceilings provided to each line institution. MoED will set the ceiling for each sector.

E. Step Five - Budget Review by MoF and MoED
I. Recurrent Budget
Prior to a formal budget hearing, spending public bodies will submit their budget proposals
to the MoF-Budget Department. In consultation with spending public bodies, MoF will
prepare an issue paper on Major issues at each head level in the proposed budget. Here,
spending public bodies can submit above the ceiling but need to have a compelling
justification
II. Capital Budget

The sector departments of MoED review the capital budget requests from different public
bodies. At this stage projects will be screened. If there exist a discrepancy between the
respective sector department and the public body, a series of discussions will be held to reach
agreement. After such a process the various sector departments of MoED will submit their
first round recommendation to the Development Finance and Budget Department of MoED.
Then it will be consolidated and prepared for the capital budget hearing and defense.
F. Step Six - Budget Hearing and Defense:
I. Recurrent Budget
Spending public bodies defend their budget submission in a formal hearing with the MoF.
The issue paper will be the basis of the hearing. The hearing focuses on policies, programs
and cost issues, when necessary it might involve discussion down to line item. Spending
public bodies could also challenge the ceiling. Presenting the hearing will be ministers and/or
vice ministers, heads of public bodies and the MoF.
II. Capital Budget
Spending public bodies will be called to defend their projects to a budget hearing convened
by the PMO which will be chaired by the prime Minister or the deputy Prime Minister or the
their economic advisers. The hearing customarily includes a review of status of the project,
implementation capacity of the institution, compatibility with the countries development
strategy and policy, cost structure, and regional distribution. A project description will be
presented which includes objectives of the project, main activities of the project, status of the
project, total cost, past performance of the project, source of finance, and whether the project

is accepted or rejected by MoED. On the basis of the discussion the respective sector
departments of MoED in consultations with the spending public body will further refine the
capital projects.
G. Step Seven - Review and Recommendation
I. Recurrent Budget
After the hearing is over, the budget committee of the MoF will review the discussion and
make a recommendation. If there is an increase (over ceiling) this will go to the PMO for
approval.
II. Capital Budget
After the hearing and defense with the PMO and MoED, sector departments of MoED will
give a final recommendation to the development finance and budget department of MoED.
This will then be compiled and put in appropriate formats for submission to the council of
ministers.
H. Step Eight: Submission to the council of Ministers
At this stage the two budgets (recurrent and capital) will be consolidated, and MoF will
prepare a brief analysis of the total budget.
I. Recurrent Budget
The recommended budget will be submitted to the deputy Prime Minister for economic
affairs. This will first be reviewed by ministers and vise ministers in economic affairs, and
then presented to the Prime Minister along with a brief. The Prime Minister may or may not
make amendments and then the budget will be sent to the council of Ministers for discussion.
II. Capital Budget
A brief analysis of the capital budget will be prepared by MoED on the final recommended
budget and, along with the consolidated capital budget, will be submitted to the council of
ministers. MoED will defend the budget in the council. The council of ministers may make
some adjustment and the draft capital budget will pass the first stage of approval.
I. Step Nine - Submission to the Council of Peoples’ Representatives

Once approved by the council of ministers, the Prime Minister will present both the recurrent
and capital budget to the council of peoples’ representatives. The budget will then be debated
based on the recommendation of the budget of the committee.
J. Step Ten - Notification and Publication
The approved budget will then get the legal status through the publication in the ‘Negaret
gazeta.’ Spending public bodies will then formally be notified of their approved budget by
line items from MoF and MoED for recurrent and capital budgets, respectively. MoF will
notify spending public bodies through Form 3/1. Likewise, MoED will inform through Form
3/2. Both Forms will be copied to the Treasury Department of the MoF which disburse funds
to spending public bodies. Until Form 3/1 is released spending public bodies are authorized
to spend one-twelfth of the previous year’s budget with no provision for new expenditures
(e.g. new staff posts) in the case of recurrent budget. For capital budget spending public
bodies are authorized to use approved budget for on going projects even when Form 3/2 is
not released.
The final stage of the budgetary process is to request spending public bodies to prepare
adjusted work plan and cash flow for the approved budget. The adjusted work plan and cash
flow will be verified by MoF-for the recurrent budget-and by MoED-for the capital budget,
and then will be sent to the treasury Department of the MoF.
K. Step Eleven - Supplementary Budget
In the course of the budget year supplementary (additional) budget will be proclaimed when
necessary, following almost the same process as the initial budget preparation. Likewise
budget reallocation will be made mainly based on performance.
IV.7.2 The Budgetary Process at the Regional Level
It is quite difficult to present the budget process at the Regional level in the way discussed
for Federal Budgeting. At present the budget process followed by regions is not uniform.
Hence, let us discuss the process of budgeting in a more general terms with out referring to a
particular region.
The process is more or less a mirror image of the Federal budget process. In place of MoF
the Regional Finance Bureau (RFB) is responsible for the preparation of the recurrent budget.
While the Regional planning and Economic Development bureau (RPEDb) is responsible for

the capital budget. At the higher level the Regional council is the one responsible for the
appropriation of the region’s budget. One significant deviation is, the regional budget process
starts at the woreda level and goes up to Zone and Region levels.
A. Pre-ceiling Budgeting
Pre-ceiling budgeting is the budgeting practice at the woreda and zone levels before the
region receives its subsidy/grant from the Federal government. The process is as follows: the
woreda prepares a budget with no indicative or final ceiling from the Zone or the Region.
The Finance Office will consolidate the budget of the sectoral offices and submit to the
woreda council. The woreda executive committee will then form a budget committee to
review the budget. This budget will be sent to the zone through two channels: one, the
woreda counsel submit the budget to the zone executive committee,: second, the woreda
sectoral offices send to the zone sectoral departments. The zone executive committee will
then form a budget committee that will be chaired by the head of the Finance Department, to
review the woredas’ and zones’ budget proposal.
In passing the budget to the region it will again be through two channels. The zone executive
committee submits to the Region executive committee and the zone sectoral departments will
submit to the region sectoral bureaus. The sectoral bureaus then prepare a budget submission
to the Region Finance Bureau.
B. Post-ceiling Budgeting
Following the notification of the subsidy from the Federal government, the regional public
expenditure envelope will be determined based on the Federal subsidy, local revenue and
local borrowing. Once the expenditure envelope is set, then it will be split up between
recurrent and capital expenditures. The practice is similar to the Federal government, i.e. the
allocation begins with recurrent expenditures and the balance of the envelope will be
reserved for capital expenditures.
After this stage, different regions fallow different approaches to allocate recurrent
expenditure between salary and organization and management, and to allocate capital
expenditure among the different sectors. In some regions the budget will be prepared up to
line items at the region level, where as in some regions a lump sum will be allotted to zones

that will be in turn allocated to woredas,. At last, the budget will be published in the region’s
‘Negarit gazeta’.
 Budget Deficit
A budget is considered as surplus or deficit according to the position of the revenue accounts
of the government. Thus a surplus budget is one in which revenue receipts exceed
expenditure charged to revenue account regardless of the gap in capital accounts; while a
deficit budget is one in which expenditure is greater than current revenue receipts.
Budget deficit is the excess of total expenditure over total revenue of the government.
The deficit financing denotes the direct addition to gross national expenditure through budget
deficits whether the deficits are on revenue or capital accounts”. It implies that the
expenditure of the government over and above the aggregate receipt of revenue account and
capital account is treated as budget deficit of the government.
The meaning of deficit financing is different in different countries. In western countries, the
budget gap, that is covered by loans is called deficit financing because, if the government
borrows from the banks rather than from individuals the idle funds will be activated and there
will be an increase in the total public expenditure and thus there will automatically be an
deficit financing has been used in a different sense,. Here it is used to denote the direct
addition to gross national expenditure as a result of budget deficit.
Thus deficit financing can be defined as “the financing of a deliberately created gap between
public revenue and public expenditure”. The government of Ethiopia has used deficit
financing for acquiring funds to finance economic development. When the government
cannot raise enough financial resources through taxation, it finances its developmental
expenditure through borrowing from the market or from other sources.
 Methods of Financing Deficit
There are four important techniques through which the Government may finance its
budgetary deficits. They are as follows:
1. borrowing from central bank
2. the running down of accumulated cash balances

3. the government may issue new currency
4. borrowing from market or from external sources.
Under the first method, government borrows from central bank as per budgetary policy. In
the second source, government spends from available cash balance,. In the third measure,
government issues new currency for financing deficit. The last method is that government
borrows from internal and external sources to finance its deficit.
 Objectives of Deficit Financing
- Deficit financing has generally been used as a method of meeting the financial
needs of the government in times of war, when it is considered difficult to
mobilize adequate resources.
- Keynes advocated deficit financing as an instrument of economic policy to

overcome conditions of depression and to raise the level of output and
employment.
- The use of deficit financing has also been considered essential for financing
economic development especially in under developed countries.
- Deficit financing is also advocated for the mobilization of surplus idle and
unutilized resources in the economy.
 Effects of Deficit Financing

Deficit financing has both positive and negative effects in the economy as under:
A. Inflationary rise in prices
The most serious disadvantage of deficit finance is the inflationary rise of prices. Deficit
financing increases the total volume of money supply. Unless there is proportional increase
in production this can lead to inflation. When deficit financing goes too far it becomes self-
defeating. There was inflationary pressure during the decade due to deficit financing.
B. Effects on distribution of wealth and income
The real income of wage earners gets reduced and that of entrepreneurs/ businessmen
increased, leading to distribution of wealth in favour of business class
C. Faster growth
Country is able to implement the developmental plans through deficit financing thereby
attaining faster growth.
D. Change in pattern of Investment
Deficit financing leads to encouragement for investment in certain fields like construction,
luxury consumption inventory holding and speculation. This may lead to investment in
undesirable fields.
E. Credit creation in banks
Inflationary forces created by deficit financing are reinforced by increase credit creation by
banks.
Among various fiscal measures, deficit financing has been assigned an important place in
financing developmental plan and various developing countries including Ethiopia resort to
deficit financing to meet budgetary gaps.
 Deficit financing in Ethiopia

Deficit financing in Ethiopia was mainly resorted to enable the Government of Ethiopia to
obtain necessary resources for the plans. The levels of outlay laid down were of an order,
which could not be met only by taxation or through a revenue surplus. The gap in resources
is made up partly through external assistance. But when external assistance is not enough to
fill the gap, deficit financing has to be undertaken. The targets of production and employment
in the plans are fixed primarily with reference to what is considered as the desirable rate of
growth for the economy. When these targets cannot be achieved through resources obtained
from taxation and external borrowing, additional resources have to be found. Deficit
financing is the easier option. It is important to emphasis the fact that deficit financing
cannot create real resources which do not exist in the economy.
4.8. Public Finance Vs Private Finance

There are both similarities and differences between public finance and private finance. Let
us discuss the similarities first.
4.8.1. Similarities between Public Finance and Private Finance:

A. Satisfaction of Human Wants

Individual is concerned with the personal wants, while the Government is concerned with the
social wants. Thus, both the private and public finance have the same objective, viz, the
satisfaction of human wants.
B. Balancing of Income and Expenditure
Both individual an Government have incomes and expenditures and trying to balance each
other.C3. Maximum Satisfaction: Both private and public finance aim at maximum
satisfaction.
C. Borrowing a Common Feature
As and when the current incomes become insufficient to meet the current expenditure, the
individuals and Governments rely upon borrowings. Both of them are having loan
repayment plans.
D. Economic Choice a Common Problem
Both the individual and Government face the problem of economic choice. That is their
sources of revenue are limited, comparing with their expenditure. Hence they have to satisfy
the unlimited ends with limited means.
4.8.2 Dissimilarities between Public Finance and Private Finance

Even though the private and public finances look alike, there are certain fundamental
differences between them.
They are,
A. Adjustment of Income and Expenditure
In private finance, the individual first considers his income and then decides about his
expenditure.
But the case of public finance, the government first estimates the volume of expenditure and
then tries to find out the methods of raisins the necessary income
That is the private finance tries to adjust its income to expenditure, whereas the public
finance tries to meet the expenditure by raising income.
B. Nature of Benefit
The private finance aims at individual benefit ie the benefit of individual household.
But the public finance aims at collective benefit, i.e. the benefit of the nation as a whole.
C. Postponement of Expenditure
In private finance, the individual can postpone or even avoid certain expenditure, as he likes.
But in the case of public finance, the Government cannot avoid certain commitments kike
social welfare measures and thus cannot postpone the certain expenses like relief measures,
defense, etc.
D. Allocation of Resources
In private finance the individual can allocate or distribute his income to various expenditure
in such as way to get the maximum satisfaction.
But it is not possible in the case of public finance, Government cannot aim at maximum
satisfaction on the expenditures made.’
E. Motive of expenditure
In the case of private finance, the individual expects return in benefit from the expenditure
made.
But the government cannot expect return in benefit from various expenditures made.
That is profit or benefit is the motive of private finance whereas the social welfare and
economic development is the motive of public finance.
F. Influence on expenditure
The expenditure pattern of private finance is influenced by various factors such as customs,
habits culture religion, business conditions etc.
But the pattern of expenditure of public finance is influenced and controlled by the economic
policy of the Government.
G. Nature of Perspective
In private finance, the individual strives for immediate and quick return. Since his life span
is definite and limited he gives importance to the present or current needs and allots only a
little portion of income for the future.

But, the Government is a permanent organization and is the caretaker of the present and the
future as well. Thus, the Government allots a considerable amount fof its income for the
promotion of future interests.
That is private finance has a short-term perspective whereas the public finance has a ling
term perspective.
H. Nature of Budget
In private finance individuals prefer surplus budget as virtue and a deficit budget is
undesirable to them.
But the Government does not prefer a surplus budget. If the Government bring surplus
budget, it will create negative opinion on the Government. This is because surplus budget is
the result of high level of taxation or low level of public expenditure both of which may
affect the Government adversely.
I. Nature of resources
In private finance the individuals have limited resources. They cannot raise the income, as
they like. Thy do not have the power to issue paper currencies.
But, in the case of public finance the Government has enormous kinds of resources. Besides
the administrative and commercial revenues the Government can get grants-in-aid and
borrow from other countries. The government can print currency notes to increase its
revenue.
J. Coercion
Under private finance the individuals and business units cannot use force to get their income.
But, in public finance the governments can use force in the form of imposing taxes to get
income i.e. taxes are compulsory in nature. It is an obligation on the part of the tax payer.
No one can refuse to pay taxes if he is liable to pay them. Besides the above the Government
can undertake any of the existing private business by way of nationalization, which is not
possible in the hands of individuals.
K. Publicity
Individuals do not like to disclose their financial transactions to others. They want to keep
them secret.

But, the Government gives the greatest publicity to its budget proposals and the allocation of
resources to different heads. It is widely discussed. Publicity strengthens the confidence of
the people in the Government.
L. Audit
In the case of private finance, auditing of the financial transactions of the individuals is not
always necessary. But the accounts of the public authorities are subject to audit and
inspection.
UNIT FIVE
EMPLOYMENT INCOME TAX
“Income” means every sort of economic benefit including non-recurring gains in cash or in
kind, from whatever source derived and in whatever form paid, credited or received.
“Taxable income” means the amount of income subject to tax after deduction of all expenses
and other deductible items allowed under this Proclamation 286/2002 and Regulations
78/2002 issued.
“Employee” means any individual, other than a contractor, engaged (whether on a permanent
or temporary basis) to perform services under the direction and control of the employer.
(a) “Unskilled employee” means an employee who has not received vocational training,
does not use machinery or equipment requiring special skill, and who is engaged by
an employer for a period aggregating not more than 30 days during a calendar year.
(b) “Contractor” means an individual who is engaged to perform services under an
agreement by which the individual retains substantial authority to direct and control
the manner in which the services are to be performed.
5.1 Obligation to Pay Income Tax

Every person having income as defined below shall pay income tax in accordance with the
Proclamation number 286/2002.
5.1.1 Residence
A. An individual who is resident in Ethiopia, if he
(a) has a residence within Ethiopia;
(b) has an habitual abode (residence) in Ethiopia; and/or
(c) is a citizen of Ethiopia and a consular, diplomatic or similar official of
Ethiopia posted abroad.
B. An individual, who stays in Ethiopia for more than 183 days (½ year) in a period of
twelve (12) calendar months, either continuously or intermittently, is resident for the
entire tax period.
5.1.2 Taxable Employment Income

A. Every person deriving income from employment is liable to pay tax on that
income at the rate specified in Schedule “A”, shown bellow. The first Birr
150 (one hundred fifty Birr) of employment income is excluded from taxable
income.
B. Employers have an obligation (Liability) to withhold the tax from each
payment to an employee, and to pay to the Tax Authority the amount
withheld during each calendar month. In applying preceding income
attributable to the months of Nehassie and Pagumen shall be aggregated and
treated as the income of one month.
5.1.3 Determination of Employment Income

A. Employment income includes any payments or gains in cash or in kind received
from employment by an individual, including income from former employment or
otherwise or from prospective employment.
B. Income received in the form of wages does not include representation and other
similar expenditures (on social functions, guest accommodations, etc.)
 Exemptions

The following categories of income are exempt from payment of income tax or are excluded
from income in arriving at taxable income.
(a) Income from employment received by casual employees who are not regularly employed
provided that they do not work for more than one (1) month for the same employer in any
twelve (12) months period;
(b) Pension contribution, provident fund and all forms of retirement benefits contributed by
employers in an amount that does not exceed 15% (fifteen percent) of the monthly salary
of the employee;
(c) Subject to reciprocity, income from employment, received for services rendered in the
exercise of their duties by:
(I) diplomatic and consular representatives, and
(II) other persons employed in any Embassy, Legation, Consulate or
Mission of a foreign state performing state affairs, who are national of
that state and bearers of diplomatic passports or who are in accordance
with international usage or custom normally and usually exempted
from the payment of income tax.
(d) Income specifically exempted from income tax by:
(I) Any law in Ethiopia, unless specifically amended or deleted by the
income Proclamation;
(II) International treaty; or
(III) An agreement made or approved by the Minister.
(e) Payments made to a person as compensation or gratitude in relation to:
(I) Personal injuries suffered by that person;
(II) The death of another person.
 According to the Income tax regulation the following items are exempted
from Employment income Tax.
I. Amounts paid by employers to cover the actual cost of medical
treatment of employees
II. Allowance in lieu of means of transpiration granted to employees
under contract of employment
III. Hardship allowance

IV. Amounts paid to employees in reimbursement of traveling expense
incurred on duty
V. Amounts of traveling expense paid to employees recruited from
elsewhere than the place of employment on joining and completion of
employment, or in case of foreigners traveling expense form or to their
country, provided that such payments are provided by the contract of
employment.
VI. Allowance paid to members and secretaries boards of public
enterprises and public bodies as well as to members and secretaries of
study groups set up by federal or regional government
VII. Income of persons employed form domestic duties
VIII. The tax authority is empowered to determine the amount of payment
specified by numbers II, IV and V above.
5.1.4 Schedule ‘A’: Tax on Income from Employment

Employment income shall include any payment or gains in cash or in kinds received from
employment by an individual. Except those exempted, any income arising from employment
is taxable under this schedule.
A. Taxable income
Every person deriving income for employment is liable to pay tax on that income at the rate
specified in schedule `A`, set out in Article 11. The first Birr 150 (one hundred fifty Birr) of
employment income is excluded form taxable income. If the tax on income from
employment, instead of being deducted from the salary on wage of the employee, is paid by
the employee in whole or in part, the amount so paid shall be added to the taxable income
and shall be considered as part there of
According to Article 10 of income tax proclamation, the employers have an obligation to

with hold the tax from each payment to an employee and to pay to the tax authority the
amount with held during each calendar month. In applying the procedure, income attributable
to the months of Nehassie and pagume shall be aggregated and treated as the income of one
month.

B. Tax Rate
The tax payable on income from employment shall be charged, levied and collected at the
following rates:
No Employment income (Income per month) Tax rate

Over Birr To Birr %
1 0 150
2 151 650 10
3 651 1400 15
4 1401 2350 20
5 2351 3550 25
6 3551 5000 30
7 Over 5000 ***** 35
It can be explained as follows
Schedule A
No Employment income (Income per month) Tax rate Deduction in birr
Over Birr To Birr % Birr
1 0 150 Exempt threshold
2 151 650 10 15.00
3 651 1400 15 47.50
4 1401 2350 20 117.50
5 2351 3550 25 235.00
6 3551 5000 30 412.50
7 Over 5000 ***** 35 662.50
C) Determination of Employment Income

 Employment income shall include any payments or gains in cash or in kind received form
employment by an individual including income from former employment or other wise or
form prospective employment.

 The type of taxable fringe benefits and the manner of their assessment shall be
determined by regulations to be issued by the council of ministers.
 Income received in the form of wages does not include representation and other similar
expenditures (on social functions, quest accommodations, etc.).
The determination of employment income involves a series of steps and requires such as in
puts as taxable income and the use of relevant and appropriate tax rates. The determination of
taxable income, on the other hand, requires identifying categories of income that are
exempted from the payment of tax from these taxable under the law.
D) Exemptions
The following categories of income shall be exempted from payment of income tax.
I. Income form casual employment
Income from employment received by casual employees who are not regularly employed
provided that they do not work for more than one month for the same employer in any twelve
months period.
II. Contribution of retirement benefits by employers:
Pension contribution, provident fund and all forms of retirement benefits contributed by
employers in an amount that does not exceed 15% (fifteen percent) of the monthly salary of
the employee.
III. Reciprocity, income from employment: subject to reciprocity, income from
employment, received for services rendered in the exercise of their duties by:
(i) Diplomatic and consular representatives, and
(ii) Other persons employed in any Embassy, Legation, Consulate or Mission of a
foreign state performing state affairs, which are national of that state and bearers of
diplomatic passports or who are in accordance with international usage or custom normally
and usually exempted from the payment of income tax.
IV. Specifically exempted income: income specifically exempted from income tax
by:
i. Any law in Ethiopia, unless specifically amended or deleted by this Proclamation;
ii. International treaty; or
iii. An agreement made or approved by the Minister.

E) Exempted income by regulations
The Council of Ministers may by regulations exempt any income recognized as such by this
Proclamation for economic, administrative or social reasons.
F) Payments as compensation
Payments made to a person as compensation or gratitude in relation to:
(i) personal injuries suffered by that person;
(ii) the death of another person.
G) Compensation payments
An employee who has completed his probation but whose contract is terminated is entitled to
receive compensations payments from the employer. This form of income falls under
schedule ‘A’, income which represents income form employment. For such an employee
whose contract is terminated, the employer is bound to pay compensation, an amount equal
to the employee’s one month salary for one year of service plus 1/3 rd of his monthly salary.
Income tax is, therefore, payable on the earnings from compensation payments.
 One month’s salary is computed by the average daily wages/ salary paid on the
last week services multiplied by thirty (
 The maximum amount payable in compensation shall not exceed twelve month’s
wage /salary.
H) Allowable Deductions
The following payments, made to an employee by an employer, are allowed as deductions to
determine taxable income.
 Reimbursed medical expenses
 Transportation allowance (if provided in the contract)
 Hardship allowance
 Reimbursed traveling expense (incurred on duty)
 Traveling expenses from the place of recruitment to the place of employment and on
completion of employment from the place of employment to the place of recruitment.
 Allowances paid to the members and secretaries of the board of public enterprises and
of study groups set up by federal or regional government.
 Income of persons employed for domestic duties.


 Computation of employment tax
Example 1): Ato Alemu received a monthly Salary of Birr 1200 during the year 2003, and
then the amount of tax liability and the amount received by him after the withholding of tax
by the employer from his salary would be:
Solution:
 Taxable income :
=birr 1,200
 Employment tax ( tax liability)
=taxable income*rate-deduction
=1200*15%-47.50
=132.50
 Amount received by employee
=Gross pay-deduction (tax)
=1200-132.50
=1067.50
Example 2) the following data relate to the income of X, Y, and Z for the month of Hamle.
Employees Compensation
Basic Transportation Housing Reimbursed Position Over
salary allowance allowance medical Allowance time
(birr) (birr) (birr) allowance(birr) (birr) (hours)
X 600 240 - - - 15
Y 1400 240 400 200 - 8
Z 1800 240 400 - 150 9
 Additional information, “X” is entitled to receive 130% and Y and Z receive
120% each for over time. Assume number of working days 140.
Required: compute the taxable income and tax payable of X, Y and Z
Solution:
 Over time payment
=regular per our payment*over time payment * over time worked
X=600/140 *1.3 *15 hours=83.57
Y=1400/140*1.2*8 hours=96.00
Z=1800/140*1.2*9 hours=138.86
 Taxable payment of
=basic salary + over time + taxable allowance
X=600 + 83.57=683.57
Y=1400+96=1496
Z=1800+138.86+150=2088.86
 Tax payable (employment tax)
=taxable income * rate
X=683.57*15%-47.5=55.04
Y=1496*20%-117.50=181.70
Z=2088.86*20%-117.50=300.30
Example 3) Ato Gelta gets salary of birr 8000 per month. He also gets hardship allowance of
birr 800 per month. During the year he felt sick and was hospitalized and the employer paid
him medical bills amounting to birr 600. His contribution to provident fund is 20% of his
salary and his employer contributes 18% of his salary to wards provident fund.
Required: compute the taxable income and tax payable of Ato Gelta
Solution
Source (income) Taxable Income Non-Taxable income
(Birr) (Birr)
Salary 8,000 ----
Medical Allowance ----- 600
Hardship allowance -------- 800
Employer’s Contribution to Provident fund ------- 1200
Which, is legally permitted
(15% of 8,000)
employer‘s contribution to provident fund
In excess of legally permitted
(18%-15%) * birr 8,000 240 -----
Free lunch ------ ------
----------- -----------
Total 8,240 2,600
======= =======

There fore the taxable income of Ato Gelta equals to birr 8,240 ,then the tax liability would
be:
 taxable income
= Birr 8,240
 tax liability
= Taxable income * rate- deduction
=birr 8,240*35%-birr 662.50=2,221.50
5.2 Tax on Income from Rental of Buildings (Schedule ‘B’)
5.2.1 Introduction
Any income arising from rental of buildings is taxable under schedule ‘B’. Rental income
includes all form of income from rent of a building and rent of furniture and equipment if the
building is fully furnished. Income from the lease of business including goods, equipments
and building which are part of the normal operation of a business, (called business lease) are
taxable under another schedule that is in schedule ‘C’
Gross rental income also includes any cost incurred by the lessee for improvement to the land
or building all payments made by the lessee on behalf of the lessor in accordance with the
contract lease. In the lease contract there are two parties involved in renting a building, the
lessor and the lessee. The party who grants rent of the building is the lessor. The one who
leases the property for use is the lessee. In some occasions the lessor may allow the lessee to
sub lease the building for another party. In such circumstances the first lessee becomes the
sub-lessor. The sub lessor must pay tax on the difference between income from the sub
leasing and the rent paid to the lessor, provided that the amount received by the sub lessor.
The owner of the building who allows a lessee to sub- lease is liable for payment of the tax
for which the sub lessor is liable, in the event the sub-lessor fails to pay.
When a building is constructed for the purpose of giving on lease, the owner and contractor
should inform the Kebele Administration about its completion and the intention of giving it
on lease. This is also applicable when the building is rented before its completion. The
Kebele Administration will pass the information to the tax office for the administration of
tax. It is also the responsibility of Kebele administration to gather any such information and
communicate to tax office in case where the parties fail to do so.

5.2.2 Taxable Income
Gross income includes all payments, either in cash or benefited in kind, received by the
lessor and all payments made by the lessor on the behalf of the lessee. The value of any
renovation or improvement to the land or the building is also part of taxable income under
this schedule if such cost is borne by the lessee in addition to rent payable.
A. Deduction
Taxable income from schedule B income is determined by subtracting the allowable
deductions from the gross income. Allowable deductions include the following:
 taxes paid with respect to the land and buildings being leased; except income taxes; and
 for taxpayers not maintaining books of account, one fifth (1/5) of the gross income
received as rent for buildings furniture and equipment as an allowance for repairs,
maintenance and depreciation of such buildings, furniture and equipment;
 For taxpayers maintaining books of account, the expenses incurred in earning, securing,
and maintaining rental income, to the extent that the expenses can be proven by the
taxpayer and subject to the limitations specified by this Proclamation, deductible
expenses include (but are not limited to) the cost of lease (rent) of land, repairs,
maintenance, and depreciation of buildings, furniture and equipment in accordance with
Article 23 of this Proclamation as well as interest on bank loans, insurance premiums.
B. Tax Rate
The tax payable on rented houses shall be charged, levied and collected at the following
rates:
(a) On income of bodies thirty percent (30%) of taxable income,
(b) On income of persons according to the Schedule B (hereunder) Schedule –B

No Taxable income from rental Tax rate
(Income per year)
Over Birr To Birr %

1 0 1,800
2 1,801 7,800 10
3 7,801 16,800 15
4 16,801 28,200 20
5 28,201 42,600 25
6 42,601 60,000 30
7 Over 60,000 ***** 35
It can be explained as follows
Schedule B
Taxable income from rental of building Tax rate Deduction in
No (Income per year) birr
Over Birr To Birr % Birr

1 0 1,800 Exempt threshold
2 1,801 7,800 10 180
3 7,801 16,800 15 570
4 16,801 28,200 20 1410
5 28,201 42,600 25 2820
6 42,601 60,000 30 4950
7 Over 60,000 ***** 35 7,950
 Computation of income tax on income from rental of building
In order to compute the taxable income from rental of building we use the following
approach.
Sources (income) Amount in birr Amount in birr
Rental Income Received xxxxx

Add: Amount received on the
i) Lease of furniture xxx

ii) Lease of equipment xxxxx xxxxxx
Less: Deductions:
i) Taxes paid on land and buildings
Leased xxxx
ii) For those not maintain books of
Accounts
Allowance for repair, maintenance
and depreciation (1/5 of gross income) xxxx
(OR)
iii) For those maintain books of Accounts
 Expenses on
a) Cost of lease of land xxxx
b) Repairs xxxx
c) Maintenance xx
d) Depreciation of building, furniture and
Equipments xxx
e) Interest on bank loans xxx
f) Insurance premiums -- xxxxxx (xxxxxx)
Taxable Income from rental of Buildings xxxxxx

Example1) Mr. X has a building that is available for rent. The following are the details of the
property let out
 He has let out for twelve month
 Actual rent for a month is birr 2000
 He paid 15% of the actual rent received as land taxes and 3% as other taxes
 He spent birr 1000 for maintenance of the building
 He does not maintain any books of accounts in this regard
Required : compute the taxable income and tax liability
Solution :
Annual rental income (birr 2000*12 months)---------------------------------------24,000
Less: allowable deductions

 Land tax(15% of 24000)-------------3600
 Other taxes(3%of 24000)--------------720
 Maintenance (1/5 of 24000)----------4800 (9,120)
Taxable income………………………………………………14880
 Then tax liability should be calculated as follows
= taxable income* tax rate- deduction
=birr14, 880*15%-570
=birr 1,662
Example 2) assumes that in example 1, Mr. X has maintained books of accounts.

Required : compute the taxable income and tax liability
Solution :
Annual rental income (birr 2000*12 months) ---------------------------------------24,000
Less: allowable deductions
 Land tax(15% of 24000)-------------3600
 Other taxes(3%of 24000)--------------720
 Maintenance ---------------------------1000 (5320)
Taxable income………………………………………………18680
 Then tax liability should be calculated as follows
= taxable income* tax rate- deduction
=birr18, 680*20%-1410
=birr 2326
UNIT SIX
VALUE ADDED TAX
6.1 Value Added Tax
The value added tax (vat) was first introduced in France in 1954. thereafter, various
European countries introduced it as an alternative to turnover taxes.
6.1.1. Meaning of Value Added Tax

The VAT belongs to the family of sales tax. A VAT may be defined as "a tax to be paid by
the manufacturers or traders of goods and services on the basis of value added by them". It is
not a tax on the total value of the commodity being sold but on the value added to it by the
manufacturer or trader. They are not liable to pay the tax on the entire value of the
commodity. But they have to pay the tax only on the net value added by them in the process
of production or distribution.
Thus, the value added by them is the difference between the receipts (from the sale) and
payments made to various factors of production (land, labour, capital and organisation) in the
form of rent, wages, interest, and profits.
6.1.2. Computation of Value Added

The value added by a firm can be calculated in any one of the following two methods:
A) Addition Method
Under this method, the value added by a firm i.e. the tax base is determined by adding the
payments made by the firm to the various factors of production such as wages, rent, interest
and profits.
B) Subtraction Method
In this method, the value added by the firm is determined by subtracting the cost of
production from the sales receipts of the firm.
But, in these two methods, the tax liability is identical.
6.1.3 Forms or Kinds of Value Added Tax

The value added tax can be determined in different forms. It may vary depending upon the
form of tax base. The forms may differ on the items to be included in the tax base.
The possible varieties of VAT are given below:
A. Consumption Type
B. Income Type
C. Production Type and

D. Wages Type.
Let us explain the meaning of these forms one by one.
A. Consumption Type
In this type of VAT, apart from the non-capital inputs purchased, the capital equipments
purchased is also considered. As such, the firm is allowed to deduct the entire value of the
capital equipments purchased during the year. This type provides 100% depreciation, which
is equivalent to tax exemption.
Thus,
Tax Base = Gross Value - Total Value of Inputs Purchased (Capital and non-capital)
B. Income Type
According to this form, the firm is allowed to deduct the depreciation on the capital goods
(during the year) apart from the full value of its non-capital purchases. Here, the firms cannot
deduct the entire value of the capital goods purchased during the year but they can deduct the
respective amount of depreciation attributable to that year.
Thus, the tax base is calculated as follows:
Tax Base = Gross Value – (Value of non-capital Purchase +Depreciation on
on capital goods for that year)
This variety clearly gives the proper net value added.
C. Production Type
In this type, instead of total value of inputs purchased, the value of non-capital purchases
alone is allowed to deduct for determining the tax base. That is, to compute the value added
by the firm, depreciation on capital goods is not allowed.
Thus, the tax base under this type will be:
Tax Base = Gross Value - Value of non-capital goods Purchased

Since depreciation is not allowed, it is not considered as a good system and is not popular
and universally accepted.
D. Wage Type

Here, to determine the tax base, an amount equivalent to the net earnings is deducted from
the capital of the firm for that year. The difference will be equivalent to the wages paid
during the year. That is:
Tax Base = Capital of the firm – Net earnings for that year
Capital of the firm = Net Income (i.e., Gross Income – Depreciation)
Net Earnings = Net Profits (inclusive of interest on own capital)
Since the tax base arrived at as above is equivalent to the wages paid, it is called as wages
variety of value added tax.
Example: Now we can explain the concepts of VAT with the help of the following example.
Let us assume a consumer product is clothing and the number of stages involved is six before
it reaches the ultimate consumers and the rate of tax is 10%.
No. Stage Receipts Value Tax

Birr. Added 10%
1. Farmer 700 700 70

2. Ginner 1, 000 300 30
3. Spinner 1, 500 500 50
4. Weaver 2, 100 600 60
5. Wholesaler 2, 300 200 20
6. Retailer 2, 400 100 10
----------------------------
2, 400 240
=====================
In the above example, final sale price to consumer is Birr.2 400 and the total value added is
Birr.2 400.
From the above table, it can be understood that there are six stages involved in the process of
converting cotton into clothing and before it reaches ultimate consumer. The ginner buys
cotton from the farmer at a price of Birr.700 per quintal and sells the cotton after ginning to
the spinner for Birr.1, 000. The Spinner, for converting the cotton into yarn, has added
Birr.500. The weaver converts the yarn into clothing, which he sells to the wholesaler for 2
birr per 100 bale of clothing. The wholesaler has added value of Birr.200 and sells the
clothing to retailer for Birr.2, 300. The retailer finally sells the clothing to the consumer for
Birr.2, 400. The remaining value of Birr.100 (difference between price of wholesaler and that
of retailer) represents value added by the retailer.
From the above example, it can be observed that the final retail price paid by the consumers
is simply the sum of the value added at each stage of production and distribution. The value
added tax is assessed at each stage of production.
6.1.4 Advantages of Value Added Tax

The VAT has the following advantages.
A. Easy to Administer
Since the impact of VAT system is like the single point sales tax system, the administration
becomes easier.
B. Effective and Efficient
The VAT replaces inefficient and poorly administered taxes such as taxes on capital goods
and those that reduce the tax base and involved in difficult administration. Hence, it is
considered as more effective and efficient.
C. Neutrality
VAT is expected to be perfectly neutral in the allocation of resources i.e. in the forms of
production and commercialisation. Thus, it helps the economy in adopting the forms of
production that are economically more suitable.
C. Reduce Tax Evasion

In the case of VAT, the tax is divided into several parts depending on the number of stages of
production and sale. Thus, the possibility and intention to evade tax is considerably reduced.
D. Possibility of Crosschecking
In VAT system, cross checking becomes possible. When a firm purchases raw material from
another firm and pays tax on such purchase, it has to maintain records about from whom it
purchased goods and the amount of tax paid by it etc. The firms maintaining these records
alone can reclaim the tax already paid. The other firm also has to maintain such records. This
obligation makes tax evasion difficult.
F. Less Tax Burden
Under VAT, the tax is collected in small fragments at different stages of production and sale.
Hence, the taxpayers feel the burden of the tax less.
F. Encourages Exports
Under VAT system, the tax burden is less and it reduces the cost of production. Such a
reduction in the prices of commodities increases the competitive efficiency of the firms in the
global market.
Besides, to promote exports, the Government may refund the taxes paid on the exportable
goods. It is possible only when the tax paid is easily identifiable. In the system of VAT, it is
easy to separate the tax from the cost of production, which is not possible in the case of other
taxes. In this way, it encourages the exports.
G. Improves Productivity
In the system of VAT, a firm has to pay tax even though it runs into loss. It cannot claim any
exemption for loss because it pays taxes on the value produced and not on profits. So the
firms will always try to improve their performance and reduce the cost of production. As a
result, the overall productivity of the country will be improved.
H. Burden of Tax is Shared by all Factors
The value added tax falls on the wages, interest, rent and profits. As such, the burden of tax is
shared by all factors of production.
I. Non-distortionery
Under VAT system, exemption is allowed to the minimum. The tax net is wide enough to
cover almost everything. Hence, it proves to be non-distortionnery.
J. Major Source of Revenue
In most of the countries, the value added tax contributes a considerable amount of revenue to
the Government. This makes it a reliable and valuable source of revenue.
6.1.5 Disadvantages of VAT
VAT system has the following disadvantages.
A. Not a Simple and Easy System
VAT System is not easy and simple to adopt in under developed countries where the tax
administrative set-up is inefficient and inexperienced to understand any complicated tax
structure.
B. Requires Advanced Economic Structure
The proper implementation of VAT system requires advanced financial and economic
structure and the firm should be in the habit of keeping proper accounts. Hence, it becomes
difficult to implement the system in all types of economy.
C. Possibility of Tax Evasion
The VAT system largely depends upon the co-operation of the taxpayers because
crosschecking is not possible always. Hence, there is a greater possibility for tax evasion.
D. Uneconomical
This system involves high cost of administration, assessment, verification, collection etc.
Hence, it is highly uneconomical.
E. Does not Increase Efficiency
In a scarce economy i.e. economy of shortages where speculation is practiced, hoarding and
non-competitive price rise are common, the producers will not increase their efficiency. The
goods will be purchased irrespective of their high price and inferior quality. Thus in such an
economic condition, VAT will not increase efficiency.
F. Lesser Revenue
The revenue collected under VAT system is far less than the revenue collected under the
multi-point turnover tax system.
G. Additional Burden

Under VAT system, the manufacturers and shopkeepers have to observe various legal
formalities in the form of maintaining various records, accounts books etc. The verification
of those records puts additional burden to the tax enforcing authorities.
H. Inflationary in Nature
Under VAT system, the tax burden will be less which results into surplus income in the
hands of consumers. Thus, there is a possibility for wide spread inflation in the economy.
But, this argument does not hold good. Because, VAT itself cannot be inflationary and the
other accompanying policies of the Government might make it so.
I. Regressive in Nature
According to Allan A. Tait, a straight forward single rate VAT, with few exemptions would
tax lower income households more heavily than the higher income household. Thus, it is
considered as regressive in nature.
Even though the VAT system is suffering from the above said drawbacks, the benefits sought
are more and it can be applied to the Indian economy after rationalisation, modification and
restructuring of the system. Various Tax Reforms Committees and other eminent economists
advocated this system as suitable to the prevailing economic conditions of the developing
countries.
6.1.6 Double Taxation

Today, with enormous range of expenditure outlays, the Governments cannot depend upon a
single tax. Because it will not provide sufficient revenue to meet their financial needs.
Moreover, with the single tax, the Government cannot achieve the principles of equality,
ability to pay and equitable distribution of income and wealth among the people. Thus, the
principle of multiple taxation is recommended whereby the Government may resort to
various direct and indirect taxes to attain their objectives both fiscal and social.
But such multiple taxation should not lead to double taxation. Double taxation occurs when
the Government levies taxes on the same base in more than one way. Hence, double taxation
can be defined as, “taxation of the same tax base twice either by one authority or by different
authorities”. Here, the two taxes should be levied with reference to the same period.

A. Examples of Double Taxation
1. Mr. X earns his income in Etiopia and U.S.A. If both the Governments levy taxes on
his entire income, it is considered as double taxation i.e. international double taxation,
because he has to pay tax in two countries on the same income.
2. The Government of a country levies taxes on the profits of a company before the
distribution of dividends. Thereafter, it taxes the individual shareholders on the
dividends received by them. Then it becomes a double taxation. Here the company
and shareholders are taxed on the same income.
Hence, double taxation means, taxing the same tax twice and it may be of international or
federal double taxation.
B. Kinds of Double Taxation
Double taxation can be classified on the following ways:
1. Double Taxation by different authorities.
2. Double Taxation by the same authority.
The components of these kinds are explained with the chart given in Fig. 5.1.
Kinds of Double taxation

Double Taxation by the same
Authority
International Federal 1. Taxation on capital and

Double Double income.
Taxation. Taxation. 2. Taxation on both debtors
and creditors for the
1. Taxes levied 1.Taxes levied by amount of loan.
by the govt. of two two Govt. of the 3. Taxation on profits before
different countries same country ie distribution and on dividends
Union & States. after distribution.
Let us explain these kinds one by one.

1. Double Taxation by Different Authorities
When the same tax base is levied by two different taxing authorities either international or
federal, it becomes a case of double taxation.
(a) International Double taxation
This type of double taxation occurs when the Governments of different countries levy on the
same tax base. The scope of a tax determines the incidence of its burden. It includes both
direct and indirect taxes. Generally the income tax, wealth tax and customs duty cause such
international double taxation.
(b) Federal Double Taxation
This kind of double taxation occurs when the Governments within a country levy tax on the
same base. When the Union Government and State Governments of a country levy tax on any
one tax base, it is called federal double taxation.
2. Double Taxation by the Same Authority

Such a double taxation occurs when a Government either Union or State levies on the same
tax base twice. The tax on capital and income, debtors and creditors on the amount of loan,

on the profits before and after distribution and the like are the notable examples in this
regard.
C. Effects of Double Taxation
Generally, double taxation is not liked by the taxpayers and is highly criticised by the
economists. It will affect the economy of the country directly and indirectly. The main effects
of double taxation are given below:
I. Injustice to the Taxpayers
Double taxation causes injustice to the taxpayers. It discriminates among the different
taxpayers.
II. Does not Conform to the Principle of Ability to Pay
In case of double taxation, the tax system does not conform to the principle of ability to pay.
Because when both the Central and State Governments tax the same group on the same tax
base, the principle of ability to pay is violated.
III. Does not Ensure the Principle of Equity
When the Union and State Governments levy taxes on the same commodities especially on
the necessities, it will broaden the gap between the rich and the poor. Thus, the double
taxation violates the principle of equity also.
V. Discourages the Ability to Work, Save and Invest
Double taxation increases the price of the commodities and leaves the people with lower
disposable income. This in turn affects the standard of living of the people and thereby
reduces their ability to work, save and invest.
VI. Discourages the Small-scale Industries
When the taxes are uniformly levied without any exemption to small-scale sector, the
competitive efficiency of them will be affected. Because of a rise in their prices, they cannot
compete with the large-scale industries in the market.
VII. Discourages Exports

It may be due to federal double taxation. When the same commodities are taxed both by
Union and State Governments, their price will automatically be increased which in turn
affects the export market.
VIII. Affects the Overall Economic Development of the Country
Since double taxation affects the individual economic activities, the whole economic
development will be affected. In such a situation, the Government cannot use the taxation as
a weapon, boost the sick industries and to curb the effects of trade cycles in the economy.
D. Remedies for Double Taxation
To remove the effects of double taxation, the following remedial measures can be adopted.
They can be classified on the following two categories:
I. Remedies for the Problem of International Double Taxation
(a) Agreement for Mutual Exemption
The countries may enter into an agreement to exempt the income of non-residents when they
take the income outside.
(c) Basis for Incidence
The double taxation can be avoided when the taxes are levied either on residential status or
on citizenship and not on the both.
(d) Special Measures
Some special measures should be devised so that the Governments of two countries may tax
different parts of the income earned by a person.
II. Remedies for Internal or Federal Double Taxation
The following are the remedies to avoid internal or federal double taxation:
(a) Separate List
There should be a separate list of taxes that can be levied by the Union Government and State
Governments.
(b) Co-ordination between the Fiscal Policies
There should be a perfect co-ordination between the fiscal policies of the Union and the State
Governments. And the problem of double taxation can be solved through the centralisation of

finance. This can be done by getting the final approval from the Central Finance Minister for
the State budgets.
(c) Avoiding Overlapping of Taxes
There should not be any overlapping of taxes. The problems of double taxation can be solved
to a considerable extent if due consideration is given in this regard. To avoid the double
taxation caused by overlapping of sales tax and excise duties, they may be replaced by a
centrally administered value added tax.
In Ethiopia, the problem of double taxation is considerably reduced because of the provisions
made in the Ethiopian Constitution. Articles 96, 97, 98, 99, 100, 101, and 102 of the
Constitution, there is a separate list for the Federal Government, State Governments and
Concurrent List. There are specific Articles for revenue sharing and principles of taxation.
D. Methods of Elimination of Double Taxation
Many a times, situation arises whereby same income is taxed twice; i.e. in the State of
Residence as well as in the State of Source. In order to eliminate double taxation two
methods are used. They are:
I. Exemption Method, and

II. Credit Method.
I. Exemption Method
The exemption methods include the following:
(a). Full Exemption Method
Under this method, income earned in the State of Source is fully exempt in the State of
Residence.
(b). Exemption with Progression
Under this method, income from State of Source is considered by the State of Residence only
for the rate purpose.
II. Credit Method
The credit methods include the following.
(a). Full Credit

Total tax paid in the State of Source is allowed as Credit against the tax payable in the State
of Residence.
(b). Ordinary Credit
State of residence allows credit of tax paid in the State of Source only to that part of income
tax, which is attributable to the income taxable in the State of Residence.
(c). Method of Tax Sparing
State of Residence allows credit for deemed tax paid on income, which are otherwise exempt
from tax in the State of Source.
F. Illustration- Double Taxation Elimination Methods
Let us understand these methods with the help of an example.
- Income derived by "A" from

State of Residence Birr. 1, 00, 000
- Income derived by "A" from
State of Source Birr. 50, 000
Total Income of A: Birr..1, 50, 000
Tax rates are : State of Source @ 40% flat rate.

State of Residence Up to Birr..1,00,000 @ 30% and
between Birr.1 lakh & 2 lakhs @ 35%.
Tax paid in State of Source on Birr. 50, 000 = Birr..20, 000
(@ 40% on Rs.50, 000)
Tax paid in State of Residence = Birr..47, 500
on Birr.1, 50, 000. (@ the rates specified)
G. Tax Liability in State of Residence under various Methods of Elimination of

Double Taxation
I. Full Exemption Method
State of Residence levies tax only on domestics income i.e. tax on Birr.1, 00, 000 @30% =
Birr.30, 000. It does not levy any tax on income earned in the State of Source (i.e. on
Birr.50, 000 in this case). In other words, it exempts income earned in the State of Source

from its tax. Similarly, tax is levied by the State of Source only in respect of income, earned
therein. As a result, double taxation of income is automatically eliminated.
II. Exemption with Progression
Domestic income of Birr.1, 00, 000 will be taxed at the rate applicable to total Income i.e.
Tax on Birr.1, 00, 000 @ 35% (rate applicable to slab of Birr.1, 50, 000) = Birr.35, 000. This
offers partial exemption compared to the Full Exemption Method.
III. Full Credit
Tax payable on total income in the State of Residence will be as below:
Birr.1, 50, 000 on slab basis Birr.47, 500

Less: Credit for tax paid in the
State of Source Birr.20, 000
Tax Liability in State of Residence Birr.27, 500
IV. Ordinary Credit

At first, tax liability on total income is worked out in the State of Source. However, such
credit is restricted to the amount of tax attributable to the income from the State of Source i.e.
35% of Birr.50,000 = Birr.17, 500.
Tax payable on Birr.1, 50, 000 Birr.47, 500 (slab basis)

Less: Tax paid in the State
of Source Birr.20, 000
Maximum Deduction Birr..17, 500
Restricted to
(35% on Rs.50, 000)
Tax Liability Birr..30, 000
V. Tax Sparing
Now let us assume for a moment that Mr. A has tax free export income of Birr.30, 000 in the
State of Source. In this situation, a deemed tax credit for Birr.12, 000 (being 40% Rs.30, 000)
will be granted by the State of Residence. Usually, DTAA prescribes the exact nature of
such tax-free income and or relevant provisions of the domestic law, covered by this method.

H. Double Tax Avoidance Agreements
Article on elimination of Double Taxation assumes great significance, as it is the central
point of any Treaty. Treaties generally use combination of various methods for granting
relief from double taxation. It is also a powerful tool for the purpose of Tax Planning. In
fact, it serves well the ultimate objective of Treaty namely overall minimization of tax
burden or avoidance of same income being taxed by two countries. This brings in harmony
and equity in tax legislation and bids good-bye to the famous dictum in the taxation statutes
that Tax and Equity are strangers.
I. Present Day Scenario and Need for Tax Treaties
Due to advances in communication and technology, the world has become a global village.
No nation can afford to remain in isolation. For survival in a competitive environment, one
has to view the entire world as market and create a niche for one's products in the
international market. The need of the hour is to integrate the national economy with the
international economy. This gives rise to full-fledged joint ventures in place of limited
participation, creating production and marketing bases in different countries with diverse
political systems and tax regimes. Movement of capital and cross border transactions become
common place. The transnational corporations are the vehicles used for the purpose.
Every nation has sovereign right to tax its residents on their worldwide incomes. As a result,
the income of an organisation can get taxed both in the home country (country of its origin)
as well the host country (country where it has its operations). In such an environment, cost
of operating worldwide would become prohibitive and the benefits of international trade, and
competitive cost advantages would be lost. Double taxation is harmful for movement of
capital, technology and people.
In civilised society, in home country tax is an obligation and in host country tax is a cost.
There is need to achieve tax efficiency. The Double Tax Avoidance Agreements come into
play to mitigate the hardships caused by taxing the same income twice, in a home country as
well as in the host country.

Tax Treaties remove the obstacles and try to achieve balance and equity. They aim at
sharing of tax revenues by the concerned states on a rational basis without causing undue
hardships to the taxpayers operating internationally. Tax Treaties do not altogether eliminate
double taxation, but reduce the incidence to tolerable extent.
II. Differences between Advalorem Duty and Specific Duty
Advalorem duty is levied on a certain percentage on the value of the commodity to be taxed
and weight, length or bulky of the goods are not important for this purpose.Specific duty is
levied according to the weight, length, bulky or some other unit of measurement of the
commodity concerned.
The following are the differences between advalorem and specific duty:
Differences between Advolerom and Specific Duty
ADVALOREM DUTY SPECIFIC DUTY
1. Basis of levy Specific duty is levied as to the weight,
Advalorem duty is levied on the certain length, bulky, etc. of the commodity to be
percentage on the value of commodity to be taxed
taxed
2. Administration of Duty It is easier to administer and collect. Once it is
It is very difficult to administer. Thus the duty possible to identify the goods, it is easy to
is levied on the value of commodity. But, in levy and collect tax.
practice it is very difficult to estimate the value
of thousands of commodities imported from a
large number of countries
3. Prediction of Quantum of Revenue Under specific duty, the Government can
Under advalorem duty, the government cannot easily predict the quantum of revenue yield.
correctly predict the quantum of revenue yield
4. Chance of Tax EvasionUnder advalorems Under specific duty, unit of measurement of
duty, the government cannot correctly predict commodities i.e weight, length, bulketc, can
the quantum of revenue yield. be ascertained at any time. Hence there is less
chance of tax evasion.
5. Tax Burden
Advalorem duty keeps the burden of tax steady Specific duty does not keep the tax burden
i.e during the times of boom the tax liability steady. For example, in time of recession,
tends to rise in time of recession, the liability there is an overall downward trend in prices,
also goes down. tax will be imposed only on the basisi of
commodities weight, lengthetc, and not on the
6. Revenue Yield value of the commodity. Hence, specific duty
Advalorem duty brings higher revenue during increase the tax burden during that period.
the period of rising prices. Because when the
price tends to increase, the revenue yield also Under specific duty, revenue yield is of static
increases. in nature.

UNIT SEVEN
TAX EVATION, AVOIDANCE AND BLACK MONEY
Content
7.1 Tax Avoidance and Evasion
7.2 Examples for Tax Evasion
7.3 Black Economy
7.4 Impact of black money in Ethiopian Economy
7.1 Tax Avoidance and Evasion

Tax avoidance and evasions constitute a problem in almost all the countries of the world. tax
avoidance is different from tax evasion, while evasion is against the law; avoidance is within
the ambit of law.
Tax evasion is the general term for efforts by individuals, firms, trusts and other entities to
evade the payment of taxes by breaking the law. Tax evasion usually entails taxpayers
deliberately misrepresenting or concealing the true state of their affairs to the tax authorities
to reduce their tax liability, and includes, in particular, dishonest tax reporting (such as under
declaring income, profits or gains; or overstating deductions).
By contrast tax avoidance is the legal exploitation of the tax regime to one's own advantage,
to attempt to reduce the amount of tax that is payable by means that are within the law whilst
making a full disclosure of the material information to the tax authorities. Tax avoidance
may be considered as either the amoral dodging of one's duties to society or the right of every
citizen to find all the legal ways to avoid paying too much tax. Tax evasion, on the other
hand, is a crime in almost all countries and subjects the guilty party to fines or even
imprisonment.

7.1.1 Tax Avoidance
Tax avoidance means, “tax-payer may resort to a device within the ambit of law to divert the
income before it accrues or arises to him”.
“Tax Avoidance has to be recognised that the person whether poor or wealthy has the legal
right to dispose of his income so as to attract the least amount of tax”.
The tax avoidance can be defined as “escaping from the tax liability by using the available
loop-holes of the tax laws”.
Thus, tax avoidance means legal minimisation of tax burden by the taxpayers.
7.1.2. Examples for Tax Avoidance

The following are the examples for tax avoidance:
1. suppose a taxpayer’s total income exceeds the maximum tax-free amount, then he has
to pay the tax on such excess amount. But if he invests the excess amount in any of
the approved schemes for which there is a relief in the tax law, he can save on tax
altogether.
2. an individual sells his let out house property (long-term capital asset) for Birr.2,
00,000 making a capital gain of Birr 60, 000. This capital gain would normally be
taxed. But, if he invests the sale proceeds in a particular manner stipulated by law, he
need not pay any tax.
3. divorcing the wife on paper so that her income is not added together with husband’s
income is also a common device for tax avoidance.
7.2 Tax Evasion

Tax evasion means fraudulent action on the part of the taxpayer with a view to violate civil
and criminal provisions of the tax laws. It can be defined as “tax evasion implies the
activities involving an element of deceit, mis-representation of facts, falsification of accounts
including down right fraud”.
Thus, it may be said that the tax evasion is tax avoidance by illegal means i.e. tax evasion is
against the law and is an unsocial act.

There are two forms of tax evasion. They are as follows:
1. Suppression of income, and
2. Inflation of expenditure.
7.2.1 Examples for Tax Evasion

The following are the examples for tax evasion:
1. A trader makes a sale for Birr.20, 000 and does not account it, in his books under
sales. He is evading tax.
2. An individual lends his money of Birr.50, 000 to another person at 20% interest per
annum and does not include this income in his total income.
3. Under-invoicing of sales and inflation of purchases.
4. A manufacturing business employs 30 workers but include 2 more additional
namesake workers (not in actual) in the muster roles. The sum shown as paid to such
additional namesake workers will amount to evasion.
Human intelligence devices new methods of evasion and the Governments are constantly
trying to remove the loopholes in the tax laws.
7.2.2 Causes of Tax Evasion

The following are the important causes for Tax evasion:
A. Multiplicity of Tax Laws
A number of laws enacted for the recovery of a variety of taxes often leads to widespread
tax evasion.
B. Complicated Tax Laws
Complicated tax laws are another reason for tax evasion. The tax laws contain a number of
exemptions, deductions, rebates, relief, surcharges and so on. For example: the Income Tax
Act has 28 chapters and 298 sections including sub-sections. So, such complication in tax-
laws is also a root-cause for the tax evasion.

C. High Rates of Taxation
India is said to be the most taxed nation in the world. High rates of taxes cause widespread
tax evasion, because the greater the risk undertaken for the purpose of tax evasion, the
greater is the reward.
D. Inadequate Information as to Sources of Tax Revenue
Lack of adequate information as to the sources of revenue also contributes to tax evasions. In
India, small businessmen and farmers rarely maintain any accounts of their income. Even
lawyers, medical practitioners, film actors etc. are defaulters in this field.
E. Investment in Real Property
Investment in real property, both movable and immovable, and concealment of its true
ownership have also been a major cause for tax evasion. In India, our tax laws in a way
permit the holding of benami properties etc. All these facilitate the channelising of black
money into profitable ways.
F. Ineffective Tax Enforcement
Lack of proper training and efficiency for the authorities enforcing the tax laws is also a
major cause for widespread tax evasion.
G. Deterioration of Moral Standards
There has been deterioration in standards of moral behaviour of people since independence.
The values, which formed the basis of Indian Society, are shown little respect. In this modern
competitive world, the deterioration of moral standards, among the people leads to
falsification of accounts, mis-representation of facts and fraudulent behaviour.
7.2 3 Remedies for Tax Evasion

If steps are not taken to reduce tax evasion, it may cause irreparable harm. The following are
the remedies to prevent tax evasion.
A. Thorough Overhauling of Tax Laws
One of the main reasons for tax avoidance and tax evasion is loose drafting of tax laws which
contain several loop-holes and weak points that enable the tax evaders to carry on the
unlawful activities. Hence, it is necessary to re-draft the tax laws thoroughly without any
loopholes and weak points.
B. Reduction in Tax Rates
The prevalence of high rates is the first and foremost reason for this tax evasion. Hence, the
rate of tax should be reduced to a reasonable level.
C. Replacement of Sales Tax & Excise Duties with VAT
As the crosschecking is possible in the case of VAT, it is more effective. Hence, such tax can
be introduced instead of sales and excise duties.
D. Tax on Agricultural Income
Agricultural income is exempted from income tax and for this reason it is used to convert the
black money into white. In recent years, agricultural farms and orchards, and vineyards have
come to be acquired by industrialists; film stars etc. because this enables their owners to
whiten their black money. Tax evasions can be avoided by taxing the agricultural income at
normal rates.
E. Maintenance of Proper Accounts
Maintenance of proper accounts should be made compulsory for persons whose business and
professional income exceeds a prescribed limit. In the Income Tax law, a provision to this
effect has been introduced recently.
F. Introduction of Expenditure Tax
In Ethiopia, expenditure tax is levied in the form of commodity taxation such as excise
duties, VAT, Turnover tax etc. There is no personal expenditure taxation. However, it is
recognised by all that if a tax is based on personal expenditure and if all effective machinery
is devised to investigate and ascertain personal expenditure, tax evasion can considerably be
reduced.
G. Tightening of Tax Enforcement
This may be said to be the crucial remedy if the penalties for violation of tax laws are strictly
enforced, incidence of tax evasion could automatically be reduced.
7.3 Black Money

Black money is a complex phenomenon. It has various connotations such as unaccounted
incomes, tax-evaded incomes, undisclosed wealth and unrecorded gain and suppressed or
number two accounts transactions. It is earned by violating the laws and going against the

conscience by the very name itself. We can understand how the money is earned and this
money carries a secret behind it.
The parallel economy or black economy as it is also known, is generally considered to be that
area of economic activity, which remains “Underground”, concealed from the vision and
approach of the State authorities responsible for earning economic policies and implementing
them. It is usually referred to those perfectly legitimate activities, resulting in transactions
either in kind or for payment, between individuals, which are then hidden, from the tax
authorities. Activities in the black economy are therefore, primarily undertaken with a view
to evade the payment of various direct and indirect taxes, especially the latter.
As the term and definition of the black economy is self-explanatory, obviously one can only
estimate the size of the parallel economy, but even conservative estimates are mind-boggling.
After having asked a number of analysts, economists and people in the various financial
institutions, the figure that keeps popping up is that the parallel economy is easily three times
as large as the legitimate or documented economy. While the figure does force us to think
and reflect upon the ethical decay in society it also hints at the benefits if this sector of the
economy could somehow be documented or channeled. However, the possible benefits of
this are not really as significant as most people are led to believe by the estimated size of the
parallel economy.
7.3.1 Black Economy

“Black Money” or “Black Market” or “Black Economy”, gained currency for the first time
in British India during the Second World War, when the dormant deflationary primitive
agrarian economy, known as “Coin Economy” was assailed by war endeavor.
Not only are the developing countries affected by black economies. The emergence and
growth of parallel economies in recent decades in Europe, America, Africa and the rest of the
world is notable. It reveals the growing immorality in human behavior across the globe.
However, as compared to developed countries, developing nations suffer much more as a
consequence of large and ever growing parallel economies.

7.3.2. Black Income and Black Wealth
The National Institute of Public Finance and Policy of India in its report make a distinction
between the black income and the black wealth. Conceptually, the black income is a flow
and the black wealth is a fund or stock. The black income is generated over a period of time.
The black wealth is an accumulated unaccounted income at any given point of time. The
black money is black wealth held by the public in terms of currency as well as liquid bank
deposits. A large portion of black wealth is held in the form of real estate, gold jewellery,
stocks in business, benami financial transactions, cash, inventories and foreign currencies and
undisclosed holdings of foreign assets.
This black income in a macro sense is defined as the aggregate of taxable incomes not
reported to tax authority. In essence, income-evading taxation is referred to as black income.
Evasion of taxes of all varieties (excise duties, customs duties and sales tax) leads to black
income. Second, black income could arise from both “Reportable” and “Non-reportable”
sources. Non-reportable black income is called so because the manner in which it is
generated is illegal e.g. income from crime, bribery, black marketing, wealth (jewellery,
business assets, foreign currency, real estate-especially benami transactions). Reportable
black income is generated through legitimate activities or transactions but is suppressed and
not reported to the tax authorities so as to evade taxes that will be levied on it. Third, black
income activity not only generates black income but also results in black consumption and
black saving. Black saving when accumulated leads to Black Wealth.
7.3.3. Black Economy and Black Money

“Parallel Economy” or “Black Economy” refers to the functioning of an unsanctioned
sector in the economy whose objectives run parallel to, or in contradiction with the declared
social objectives.
The black economy is said to have taken birth during the Second World War. In scarcity
conditions, controls on the distribution and prices of goods in short supply led to the
emergence of black markets and hoarding. Black market prices, which were higher than the
controlled prices, led to the emergence of “Black Incomes”, popularly called “Black
Money” or “Number Two” income.
Dr. Raja Chelliah defines the black money income as “the sum total of transactions
deliberately kept out of the books of accounts by household and business in the economy”.
We can define Black money as “that the money which has not been brought into account, the
income not shown to the authorities wholly or partially i.e. unaccounted property or money
can be called black money”.
Black income now comprises a significant and fast growing element in the Indian economy.
It is today an all-pervasive phenomenon that requires serious attention. When we talk of
black income, an important point to be noted here is that it is not limited to the evasion of
income tax; it is a heterogeneous category that extends to bribes, smuggling and even
leakage.
7.4. Impact of Black Money in Ethiopian Economy

The effects of the black money are considered significant on the basis of the following:
a) Significant size compared to other major sectors or the size of the government.
b) White economy cannot act as a proxy for the total economy.
c) Economic laws applicable to the totality of the economy and not a part of it.
d) Sectoral implications.
e) Failure of policy linked to it.
f) Has led to a change in the economic policy paradigm.
7.4.1 Macro Economic Impact of Black Money
The black money has the following macro effects on the economy:
a) Failure of planning and resource mobilization and contradiction amongst other

policies.
b) Growth and stagnation and income distribution effect.
c) Investment, unemployment and the multiplier.
d) Inflation.
e) Forces a change in the fiscal policy regime.
f) Various budgetary deficits and debt trap.
g) Raises transactions costs and leads to a high cost economy in spite of a low wage.
h) Savings and investment raises. Consumption propensity falls.
i) Import propensity rises.
j) Monetary Policy - Velocities of circulation and stability properties of the multipliers.
7.4.2 Micro Economic Impact of Black Money
The black money has the following micro effects in the economy.
a. Aspects of Policy Failure.
b. Social Sectors. Poor left at the mercy of the markets.
c. Criminalization of society.
d. Impact on National Security.
e. Social Waste. Like ‘digging holes and filling holes’.
f. Impact on the work ethic.
g. Impact on the quality of products and exports.
h. Reduces the individual's faith in state intervention.
i. Increases the alienation of the individual from society. Reduces faith in social actions.
The ‘usual is the unusual and the unusual the usual'.
7.4.3 Measurement or Estimation of Black Money
It is widely accepted that most of the country’s problems arise mainly from the tendencies
unleashed by the large and growing unaccounted “parallel economy”. Any estimate of the
size of undeclared clandestinely (secretly) held wealth; current income and capital flights
would exceed the marginal levels of our savings and bop deficits. Effective restraint of the
black economy therefore becomes very important, as this would go a long way in improving
the quality of growth. But for this an estimate of the “parallel economy” is a must.
Measuring black income is not an easy task. This may be due to non-availability of reliable
data. A number of individual and institutional efforts have been directed towards
measurement of size and growth of black income in Ethiopia. To examine this serious
national problem the Government of Ethiopia has made many efforts from time to time for
estimating and control of black money. It is difficult to know the exact holdings of black
money. But, from the several guesswork and estimates, it is evident that black money is of a

high magnitude in the Ethiopian economy and has been expanding at a rapid rate over the last
two decades.
There are several alternative approaches to the estimations of black income. They are as
follows:
1. Expenditure Approach.
2. Fiscal Approach.
3. Monetary Approach.
4. Physical input Approach.
5. Labour-market Approach.
6. National accounts Approach.
7.4.4 Sources of Black Income
There are many ways and sources of generating black income that it is very difficult to list
them all. Black money is also earned from perfectly legal and legitimate activities, but when
the income is fully or partly concealed in order to evade the taxes, it is treated as black
money.
The various research committees have identified that the following are the items, which
generally deemed to generate black money:
1. Evasion of Personal Income Tax.
2. Evasion of Corporation Tax.
3. Real Estate Transactions.
4. Excise Duty Evasion.
5. Customs (Import) Duty Evasion.
6. Evasion of Sales Tax.
7. Black Income from Smuggling.
8. Black Income from Exports.
9. Black Income from Public Expenditure.
10. Black Income from Private Corporate Investor.
11. Film Industry.
12. Professions.

13. Constructions.
14. Selling of Licenses and Permits.
15. Other sources of black income are,
(a) Gambling.
(b) Bribes including illegal commissions, “cuts” and kickbacks.
(c) Black marketing in goods in short supply such as steel, copper, coal and other
items of industry quota of raw materials and imports. There is also the black
market sale of import licenses and foreign exchange at a premium.
(d) Financial transactions in the unrecognized sector of the money market.
(e) Hotels and Restaurants.
(f) Unaccounted stock market profits on black transactions carried on in the private
account of stockbrokers.
(g) Income earned through the adulteration of food items, drugs, country liquor,
production and sale of cheap imitations, forgeries and frauds of various kinds.
(h) Publishing Piracy.
Hereunder, we shall discuss the important sources of generating black money in detail.
7.4.5 Sources Generating Black Money
A. Evasion of Income Tax
When we talk of evasion of income tax, it could mean both personal income tax and
corporation income tax. Income tax can be evaded by the following ways:
I. Suppressing True Income
It is well known that a large part of black income comes through illegitimate sources,
whether it is bribes, smuggling, black marketing or other such sources. Professionals like
lawyers, doctors, architects, businessmen and even film stars and film producers are
examples where the sources are legitimate but income is suppressed to evade tax.
II. Manipulating Business Expenditures and Profits
The corporate sector indulges in under-reporting of profits, overstating expenditures, non-
reporting of production and excise, raising fictitious bills on companies. While under-

reporting of profits helps evade tax, non-reporting production helps generate black income in
cash and generally increases the promoters’ wealth.
III. Misuse of Tax Exemptions and Deductions
It is known that agricultural income is exempted from tax. Many people divert their income
to purchase of agricultural land, show high agricultural profits and avail tax exemptions. It is
possible that the profits come from non-agricultural operations and are taxable but misuse of
a facility helps evade tax and create black income.
B. Evasion of Excise Tax
Excise Taxes are duties or taxes on the domestic manufacture of commodities. These are
divided between Union excise duties and State excise duties. For the Central government tax
revenues alone, Union Excise taxes are the second most important source of revenue, next
only to customs duties.
Excise duty evasion is both widespread and large in India. The most common methods of
evasion are:
I. Suppression of Production
This is especially true of small-scale industries such as electrical goods, steel furniture and
utensils, plastics and art silk fabrics. It also takes place in medium-scale and large-scale
industries. This can be done either by not fully accounting for raw materials or not keeping
statutory records fully up-to-date.
II. Under Valuation
This is quite true of the organised sector and can be done with the help of under-invoicing the
product or even showing certain expenses as technical expenses. Floating of benami
agencies that either raise supplementary invoices or collect the differential in value from
dealers is another method.
III. Misclassification of Goods
Tariff rates provide numerous classifications and sub-classifications carrying different rates
of duty. Thus people indulge in misclassification as well as wrong declaration of goods.
High-duty excisable goods often get billed as non-taxable items and then the difference in the
market values of two kinds of items gets recovered in black.

C. Evasion of Customs Duties
Methods of evasion of customs duties are broadly the same as those for excise duties (taxes)
on the flow of goods traded both imports and exports of a country. Customs duties are levied
and collected by the Central Government. Methods of custom duty evasion are:
I. Under Valuation
This is done by under-invoicing of imports, usually by arrangement with the foreign supplier
of goods who, mostly, willingly obliges the Indian importer pays in foreign currency the full
difference between the actual price and the lower invoiced price of the goods imported.
II. Misclassification/Wrong Declaration of Goods
False declarations about goods imported in the documents submitted to the customs are made
and higher-duty goods are cleared on payment of lower duty charged on the wrongly
declared goods.
D. Trade Controls and Foreign Exchange Leakage
Excessive Import and Export Controls have also led to several kinds of illegal activities, such
as the generation and use of unauthorised foreign exchange (through the faking of invoices)
and smuggling. A rush for licenses also results in corruption, favouritism and bribes.
Foreign exchange leakage occurs as a result of high import tariffs or comprehensive foreign
exchange control. These can occur through under-invoicing of exports, over-invoicing of
imports, inward remittances of foreign exchange through illegal channels, smuggling of
goods such as silver, animal skins, antiques, narcotics and illegal purchase of foreign
exchange from foreign tourists and others visiting Ethiopia.
Although a number of steps have been taken to control black income, foreign exchange
leakage and corruption continue to be a disturbing feature of the Indian economy.
E. Smuggling
Smuggling refers to the illegal import or export of goods. The numerous controls and tariffs
create profitable opportunities for trade by smugglers in several goods. It is generally said
that the smuggling of goods into the country is more serious than the latter. Smuggling has,
over the years, expanded at such a high rate that it has even attained the title of the “Third

Economy”. Affluent sections of society whose wealth has increased rapidly - mainly
through black income provide a ready market for smuggled goods. We can thus say that all
factors responsible for growth of black income activities in the economy also encourage the
increased smuggling of goods in India by creating a demand for these goods. Smuggling
causes loss of revenue to the Government (through evasion of customs duty, excise duty and
income and wealth taxes), large illegal outflows of foreign exchange and result in large
amassing of funds by smugglers. These funds are not put to any socially productive use or
investment.
Predominately, smuggling of gold, synthetic textiles, diamonds and narcotic drugs takes
place in India.
I. Price and Distribution Controls
Wherever operative, price and distribution controls, besides attaining the primary objective
of keeping the price of essential commodities “Under Control”, have also been responsible
in leading to black marketing operations i.e. the sale of goods at higher than listed prices,
unaccounted sales -or, sales without bills or cash memos. Sometimes price and distribution
controls also lead to excessive hoarding of essential commodities.
II. Industrial Licensing:
Industrial licensing has also contributed to creation of black income in India. Excessive
industrial licensing over the years had put up barriers to the entry of fresh capital and
enterprise. A few large industrial houses were preferred. Moreover, excessive delay and
red-tapism in the process of clearing applications for licenses have also been prevalent. In
many cases, this has been taken as indications for bribes. The Government had not organised
any separate machinery to monitor the actual implementation of industrial licensing.
Therefore, there have been many violations and creation of black income.
F. Other Sources
I. Urban Real Estate
Transactions in urban real estate generate a large amount of black income every year. There
could be many frauds in this business. First, there could understand the value of a transaction
to evade a large part of tax liability. Second, encroachment on public land; third, acquisition
of raw land for resale as housing plots, developments of this land for setting up a colony, sale

of plots or houses or flats constructed on it, exceeding the legally permissible limit of the
built up area on a given plot of land. All these-specifically, understanding the value of all
such transactions-lead to black gains. Another method is to under-report rents. Benami
transactions are rampant, as is the role of “Black Money” in the acquisition of urban real
estate.
II. Leakage from Public Expenditure and Property
These leakages take the form of illicit, and undeclared commissions or bribes (kickbacks or
cuts). Also, most of the time, allocated funds for various anti-poverty programs never
reaches the targeted people. Another aspect is pilferage or misappropriation of State
Property e.g., food grains of the Food Corporation of India, cement and other construction
material etc.
III. Bribes
Bribes as a source of black income are common. These are used mainly to influence the
decision of the authority dealing with a case, or the power to approve or recommend an
application or even to forward case files. This phenomenon of bribe taking leads to the
spread of corruption from one work place to another.
G. Causes of Black Money
There are several causes for the generation of black money in the economy. The major
contributory factors in this regard may be stated as under:
I. High Rates of Taxation
High rates of taxation are basically responsible for inducing tax evasion and consequent
black money generation in the country. In India, the tax rates are abnormally high. The
prevailing high rates of taxation are one of the main causes of black money.
II. Corrupt Business Practices
The corrupt business practice such as smuggling and other restrictive trade practices cause
the existence of black money in the country. In an economy under the environment of
scarcities, controls and inflation, hoarding and black marketing are always profitable which
apparently generate black incomes.

III. Controls and Regulations
Right from the advent of planning to establish socialist pattern of society, India’s mixed
economy was subject to a plethora of controls and regulations. Though the Government
resorts to the economic policy of controls with a good intention of dealing with the problem
of shortage and effecting a fair distribution of essential goods with equity, their improper
implementation vitiates the very purpose of controls. In India, the Government fixed up
prices of various essential consumer goods like kerosene, wheat flour, vegetable ghee, drugs,
etc. Their prices are controlled and the distribution is regulated. Along with various controls
on imports and exports, tight exchange control is also implemented. Such controls are
implemented with licenses, permits and quotas. Thus there have been statutory controls
combined with the bureaucratic and administrative controls. These all-pervasive economic
controls are also responsible for the intensification of black money attuned evils like
corruption, procedural wrangles, delays, artificial scarcity, fraud, suppression etc. involved in
the very network of the bureaucratic public administration.
IV. Political Corruption
This makes the fight against black income growth very difficult and is closely linked with
evasion of taxes and customs duties. The political bribing of party and Government
members is a common phenomenon. Donations to political parties were banned in 1968 and
this has prompted businessmen to fund political parties, especially the ruling party, with
black money. Politics is the main weapon for fighting social ills; and when this weapon itself
gets corrupted, chances of tackling black income get bleak. The Politics-business-crime
nexus that exists in our society is a result of, and further accentuates black income
generation.
V. Bureaucratic Corruption
Controls breed corruption. Loose and dishonest public administration becomes an easy prey
of corruption.
Corruption and black incomes are inter-linked. Corruption makes it easy to earn and enjoy
black money. Today, “Speed Money”, “Secret Commission”, “Paper Weight”, “Mithai”,
“Hush Money” have become almost a routine for getting any work done, legal or illegal, at
official levels.

UNIT EIGHT
BUSINESS INCOME TAX
Contents
 General
 Determination of Taxable Business Income
 Allowable Deductions
 Non-Allowable Expenses
 Computing Taxable Income
 Tax Rate
General Objective
When you have studied this section you should be able to:
- Determine taxable business income
- Identify allowable deductions and non-allowable expenditures
- Apply the Generally Accepted Accounting Principles applicable for the purpose of
tax accounting with regard to depreciation, stock, receivables and others.
- Assess business income tax
- Recognize treatment of loss carry forward
8.1 Determination of Taxable Business Income

Taxable business income is determined for each tax period on the basis of profit and loss
account otherwise known as income statement which should be prepared in accordance with
Generally Accepted Accounting Principles, and subject to provisions of Income Tax
Proclamation No.286/2002 and related directives issued by the Tax Authority.
At the end of each fiscal year, each taxpayer submits a tax return to the Income Tax
Authority. The tax return is a statement containing statistical information filled in a pre-
printed form (provided by the Tax Authority), given to the Income tax Office. The return
should contain full and true information about the income earned by the tax payer. The law
requires the tax payer to furnish such information within a stipulated period.

Many businesses use the service of qualified professional accountants to prepare tax returns
and determine taxable income. Profits as shown by the accountants may not be the same as
admissible for tax assessment. There may be certain items of expenditure reasonably
chargeable to the income statement but not allowable for tax purposes. Likewise, certain
revenue items permissible to be included in the income statement may not be permissible to
include in the tax return. It becomes thus necessary to adjust those items to determine taxable
income.
8.2 Allowable Deductions (Deductible Expenses)

The general principle regarding deductibility is that deductions will be allowed for expenses
incurred for the purpose of earning, securing and maintaining the business income to the
extent that the expenses can be proven by the tax payer and subject to the limitations
specified by the proclamation. On the basis of this, the law permits the following lists of
expenses as deductible from business income.
1. The direct costs of producing the income, such as the direct cost of manufacturing,
purchasing, importations, selling and such other similar costs;
2. General administrative expenses connected with the business activity;
3. Premiums payable on insurance directly connected with the business activity;
4. Expenses incurred in connection with the promotion of the business inside and outside
the country, subject to the limits set by the directive issued by the Minister of Revenue.
5. Commissions paid for services rendered to the business, provided that:
(a). said services were in fact rendered.
(b). the amount paid corresponds to normal rates paid for similar services. By other
persons or bodies similarly situated.
6. In the case of a business located and operating in Ethiopia as the branch, subsidiary or
associated company of a business located and operating abroad, no payment of any kind
made to the holding or associated company of the business in Ethiopia shall be accepted
as deduction unless:
a. the payment in question was made for service actually rendered: and
b. said service was necessary for the business and could not be performed by the persons
or bodies or by the business itself at a lower cost.

7. If the income tax authority has reason to consider that the total amount of salaries and
other personal emoluments payable to the manager of a private limited company is
exaggerated it may reduce paid amount for taxation purpose to the limit which, in view of
operation of the company, appears justifiable, either by disallowing the payments made to
more than one manager or in any other way which may be just and appropriate.
8. Sums paid as salary, wages or other emoluments to the children of the proprietor or
member of the partnership shall only be allowed as deduction if such employees have the
qualifications required by the post.
In computing taxable income, the above listed expenses could be deducted from gross
income. If some conditions are met, the proclamation also allows such expenses as
depreciation, bad debts, interest expense and donation and gifts, which is covered separately
in this section as deductible expenses. (Refer the proclamations articles 23 to 27 and the
regulation 78/2002 articles 10 to 14.) Some of them are discussed in 2.3 below
8.3 Non-allowable Expenses

All those expenses, which are not wholly or exclusively incurred for the business activity, are
not allowable deductions from gross income. Therefore, in computing taxable income the
following expenses should be added back.
a. Capital Expenditure- the cost of acquisition, improvement, renewal and reconstruction
of depreciable assets
b. Additional Investment- an increase of the share capital of a company or the basic capital
of a registered partnership
c. Declared dividends and paid out project shares.
d. Voluntary pension or provident fund contributions over and above 15% of the monthly
salary of the employee.
e. Damages covered by insurance policy
f. Interest in excess of the rate used between the National Bank of Ethiopia and the
commercial Banks increased by two percentage points.
g. Punitive damages and penalties
h. The creation or increase of reserves, provisions and other special purpose funds unless
otherwise allowed by the proclamation.
i. Income tax paid on schedule “C” income and recoverable Value Added Tax (VAT)
j. Representation expenses over and above 10% of the salary of the employee.
k. Personal consumption expenses
l. Expenditures exceeding the limits set forth by the proclamation or regulations
m. Entertainment expenses “Entertainment” means the provision of food, beverages,
tobacco, accommodation, amusement, recreation or hospitality of any kind to any person
whether directly or indirectly.
n. Donation and gift other than those permitted by regulation.
o. Sum paid as salary, wages or other personal emoluments to the proprietor or partner of
the enterprises. Expenditure for maintenance or other private purpose of the proprietor
or partner of the enterprise.
p. Losses that are not connected with or not arising out of the activity of enterprise.
q. Grants and donations that exceed 10% of the taxable income of the tax payer.
8.4 Allowable Deductions that need Certain Conditions to be Met

The following expenses need certain conditions to be met before all are allowed to be
deducted from gross income:-
8.4.1 Interest expense
A) Interest which is not in excess of the rate used between National Bank of Ethiopia
and Commercial banks increased by 2 %) is allowable deduction if the lending
institution is recognized by NBE or a foreign institution permitted to lend to
enterprises in the country. Moreover, for the interest paid to foreign banks to be
deductible, the lending bank shall, prior to the granting of any loan to any such
person, file a declaration in writing with the Tax Authority wherein it informs said
authority concerning all loans granted to any person liable to pay income tax in
Ethiopia. In addition, the borrower shall withhold 10% from the gross interest
payable and transfer same to the Tax authority within two months of the end of the
fiscal year.
B) Interest paid to share holders on loans and advance can be deducted to the extent
that the interest paid is less than the average of four times the amount of share capital
in a tax period. This provision doesn’t apply to banks and insurance companies.

8.4.2 Representation Allowances
Representation allowance is hospitality expense incurred in receiving guests coming from
outside the enterprise in connection with the promotion and enhancement of the business.
Such expenses are deductible to the extent of 10% of the salary of the employee.
8.4.3 Gifts and Donations
Gifts and donations are allowable deductions under the following conditions
a. If they are given to a registered welfare organization and where it is certified by the
registering authority that the organization has a record of outstanding achievement and its
utilization of resources and accounting system operates transparency, accountability.
b. If the payment is made in response to emergency call issued by the government to defend
the sovereignty and integrity of the country, to prevent man made or natural catastrophe,
epidemic or for any other similar cause.
c. Donation made to non commercial education or health facilities.
Nonetheless, grants and donations made for purpose listed above may only be allowed as
deduction where the amount of the donation or grant does not exceed 10% of the taxable
income of the taxpayer.
8.5 Trading Stock
 Trading stock is a business asset that is either used in the production process or
become part of the product, or that is held for resale purpose.
The cost of trading stock disposed of during a tax period is allowable deduction for
the purposes of ascertaining income.
 The cost of trading stock disposed of during a tax period is determined on the basis
of the average cost method, i.e. the generally accepted accounting principle under
which trading stock valuation is based on an average cost of units on hand.
8.6 Depreciation
Any business may acquire assets that have non-current nature to generate profit. In
determining periodic income, the cost of these fixed assets should be transferred to expense
account in a systematic and rational approach called Depreciation. Generally Accepted
Accounting Principles (GAAP) allows different methods of computing annual deprecation
charges for preparing general purpose financial statements.
Among these methods, the Ethiopian government adopts the straight line – pooling system
method. Generally, except the cost of building, intangible assets and Information Technology
Equipments purchased by a business, all other assets become part of a pool of expenditures
on which capital allowances may be claimed. Under the pooling system, when addition is
made, the pool increases; on disposal the pool is reduced by the sale proceeds.
In accordance with the newly enacted income tax proclamation and regulation, depreciation
may be deducted in the determination of taxable business income. Nonetheless, fine arts,
antiques, jewelry, trading stock and other similar business assets not subject to wear and tear
and obsolescence shall not be depreciated.
 Depreciation rate
a. In determining the amount of depreciation the acquisition or construction cost, and the
cost of improvement, renewal and reconstruction of buildings and constructions shall be
depreciated individually on a straight-line basis at five percent (5%).
b. The acquisition or construction cost, and the cost of improvement, renewal and
reconstruction, of intangible assets shall be depreciated individually on a straight line
basis at ten percent (10%).
The above two categories of business assets are depreciated at the given rates based on their
cost (gross value).
The following two categories of business assets shall be depreciated according to a poling
system at the following rates;
a. Computers, Information systems, software products and data storage equipment as a

rate of 25%
b. All other business assets at the rate of 20%. This category includes motor vehicles, plant
and machinery, furniture and equipment, etc.

For assets for which the pooling methods are used, the rate is applied to the depreciation base
for the determination of depreciation. The depreciation base is the book value of the asset as
recorded on the opening day of the balance sheet of the tax period increased by the cost of
asset acquired or created and the cost of improvement, renewal and reconstruction of the
asset during the tax period. The amount can also be decreased by the sales price of assets
disposed of during the period. Losses incurred during the period due to natural calamity and
other involuntary conversion will also be considered in the computation of depreciation base.
Any compensation received for these purposes will be deducted from the book value.
While determining the depreciation base, if the depreciation base becomes negative amount,
that amount will be added to taxable income and the depreciation shall become zero. On the
other hand, if the depreciation base does not exceed Birr 1,000 the entire depreciation base
will be a deductible business expense.
If a revaluation of business assets takes place, no depreciation will be allowed for the amount
of the revaluation. In determination of taxable business income a deduction is permitted in
respect of each category of business assets for the maintenance and improvement expenses
up to a maximum of 20% of the depreciation base of the end of the year. Any actual expense
exceeding this 20% will increase the depreciation base of that category (or it is capitalized).
Nonetheless, depreciation is not allowed for assets in respect of which all capitalized costs
have been fully recovered if the transfer of such assets is made between related persons.
 The regulation issued by the Council Of Ministers indicates that depreciation

will be allowed as deduction only if the taxpayer claiming deductions for
depreciation keeps proper records showing the cost of acquisition of the asset
and the total amount deducted since the date of acquisition. Moreover, the tax
payer must furnish the Tax Authority with satisfactory evidence that the data
mentioned in the records are true and correct.

8.7 Bad Debts
In the determination of taxable income, a deduction for a bad debt is allowed if the following
conditions are met:
 An amount corresponding to this debt was previously included in the income;
 The debt is written off in the books of tax payer; and
 Any legal action to collect the debt has been taken but the debt is not recoverable.
8.8 Computing Taxable Income

Using the income statement, taxable income may be determined as follows;
1. Take the net profit as shown in the income statement which is
prepared in accordance with Generally Accepted Accounting Principles
(GAAP) or International Accounting Standards (IAS).
2. Add back any item deducted as expense, which is not allowed for tax
purposes.
3. Deduct any item included in the income on which income tax has
already been withheld by the payer. Examples of such items are income
received from royalties, income from games of chance, dividends and interest
received, etc. refer schedule ‘D” other income in the proclamation.
4. Multiply the figure so arrived (from step 1through step III) by the
income tax rate. For bodies use the progressive tax table for persons (other tax
payers) to get the tax payable for the fiscal year.
5. Determination of Taxable Business Income
6. Allowable Deductions
7. Non-Allowable Expenses
8. Computing Taxable Income
9. Tax Rate
8.9 Tax Rate

 Taxable business income of bodies is taxable at the rate of 30%
 Taxable business income of other taxpayers shall be taxed in accordance with the
following schedule C.

Taxable Business Income (Per Year)
Over Birr To Birr Income Tax

Payable
0 1,800 Exempt Threshold
1,801 7,800 10
7,801 16,800 15
16,801 28,200 20
28,201 42,600 25
42,601 60,000 30
Over 60,000 35
The short cut method of computing business income tax is provided below.
Taxable Income Deduction
From To Rate
0 1,800 O Nil
1,801 7,800 10% 180
7,801 16,800 15% 570
16,801 28,200 20% 1,410
28,201 42,600 25% 4,950
42,601 60,000 30% 7,950
60,001 and above 35%
8.10 Loss Carry Forward

A business is said to have made loss when the total expenses incurred by the business during
a fiscal year are greater than the total income generated by the business in the same year.
Loss carry forward is a procedure whereby a loss incurred in one tax period is carried
forward to the next tax period to be deducted from the available profit, if any. Loss carry
forward is one of the several changes introduced by new tax law. The importance of the loss
carry forward provision to a company is that it preserves valuable cash which otherwise
would have to be paid out in taxes. Such funds are retained in the business and can be used
for working capital and/or expansion of the business. A business, which has alternate profit
and loss years of about the same dimension, would pay no tax at all.

The subsequent paragraphs explain loss relieves available for companies and related
eligibility conditions. If the determination of taxable business income results in a loss in a tax
period, that loss may be set off against taxable income in 3 years tax periods; earlier losses
set being set off before later losses. A continuous set off will be permitted only for a
maximum period of 6 years (two periods of three years).However, if during a tax period the
direct or indirect ownership of the share capital or the voting rights of a body changes more
than 25% by value or by number the provision for set off will not apply to losses by that
body in that tax period.
 Loss carry forward will only be permitted where the books of accounts
showing the loss are acceptable to the tax authority.


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PUBLIC FINANCE AND TAXATION

Rift Valley University College

1.1.1 Meaning of Public Finance

1.1.2 Nature of Public Finance

1.1.3 Scope of Public Finance

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B. Differences between Public Finance and Private Finance

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1.2 Functions of Modern Government

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1.3 Scope of Public Finance

1.3.1. Public Revenue

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A. Plan and Non-plan Expenditure

II. Plan Expenditure

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1.4 Role of Fiscal Policy- Its Significance to Business Economy in Developing

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2.1 Revenue Budget

2.2. Expenditures Budget

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The Overall Budget Deficit

The Overall Budget Deficit

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2.2.1 Recurrent Budget

2.2.2 Capital Budget

 Line Item Budget

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2.3 Public Debt

2.3.1 Internal Debt

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2.3.2 External Debt

However, such external inflows help to achieve faster growth.

2.4 Financial Administration

2.5 Economic Stabilization

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2.6 Fiscal Policy

Private outlay is insufficient to produce maximum national income. An increase in state

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 Role of Fiscal Policy in the Economic Development:

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3.1 Historical Background of Taxation

3.1.1 Ancient Times

3.1.3 16th Century to Modern Period

3.2 The Financing Function of Taxes

3.2.1 The Allocation Function of Taxes

3.2.2 The Redistribution Function of Taxes

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3.2.3 The Stabilization Function of Taxes

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3.3.1 Specific Objectives