The Fiscal Terms and Resource Revenue Collection 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally-held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? Stylized Mining and Gas Project Timeline Revenue Capital Costs Operating Costs Exploration Costs Project Timeline Source: Revenue Watch Institute Stylized Oil Project Timeline Source: Revenue Watch Institute Oil depleted faster than minerals, payback period is shorter, opex over the life of the project lower -> more profitable than mining , generally speaking High Potential For Increase In “Rent” “RENT” or “SUPER/EXCESS PROFIT” Stylized Project Breakdown Total Costs Minimum Return Rent Source: Revenue Watch Institute Extractive Industry: A Specific Sector With a Specific Tax Policy Why is Extractive Industry specific ? Calls for a resource specific taxation • Lengthy exploration period with no revenue • Special Tax Treatments to encourage exploration - always demanded and considered justified by companies • High Capital expenditure making the capital captive and not transportable • High probability of social and environmental damage • Cyclical revenues because of volatile commodity market • Minerals are finite and belong to the State or the land owner • Long life of mine implies potential for regime changes and policy instability •Tremendous potential for high “rent” (Financial returns above those a company requires to invest ). The rent increases with the quality of the mineral deposit •Use of taxation incentives for investment in communities and protection of the environment • Request for use of profit-based taxes by the investors • Royalty: price of the right to use the land belonging to either the national state / local government or the landowners (US) + immediate revenues •Need of a progressive fiscal regime that self-adjusts to circumstances and profitability to ensure stability of the system 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal design ? Main Types of Tax Instruments Royalty • • Corporate Income Tax Imposed on value of mineral sales (ad valorem) or on production volume (unit based). The value can be defined in different maners (FOB, CIF, mine – gate, netback ) • Most states apply a standard national corporate rate in the range of 20% to 35% of profits Investment Credit/ Capital allowance • A percentage of the capital expenditure that is tax deductible Loss and Carry Forward • An accounting technique that applies the current year's net operating losses to future years' profits in order to reduce tax liability Depreciation and Amortization (D&A) • Accounting mechanism to spread out the capital expenditure over many years-> tax deductible and investment incentive • On Dividends for foreign shareholders- common and encourage re-investment in the country Withholding Tax on Dividends Elements of Fiscal instruments 1. 2. 3. The Rate: 5% royalty 30% income tax rate 10% equity share Room for manipulation The Base The number against which the rate is applied. Revenue-based? Production – Based? Profit - Based? Need of a clear definition : gross revenue? Net revenues? Profit including depreciations? Before depreciation? Timing For developing countries funding growth and development, timing matters. Timing also relates to the risk of different revenue streams. Room for political economy Importance of the Tax Base! How to manipulate the royalty base? - Royalty Rate of 3% for Copper - Copper Sold at Export Point at $7500/Ton - Transport and Processing Costs of $500/Ton Royalty per Ton under Net Back = rate * (gross – costs) = 3% * (7500 – 500) = 3% * 7000 = $210 Royalty per Ton under Gross = rate * gross = 3% * 7500 = $225 Room for manipulation Complexity of the Definition of the Tax Base Source: World Bank Complexity of the Definition of the Tax Base Yes No No Is taxing point at mine gate? Yes Deduct Allowable Processing Costs Is taxing point FOB port of export? Use Gross Realized Value as per Invoice Deduct Allowable Export, Sea Freight and Marine Insurance Costs CIF Mine gate FOB Legend: Start of process Deduct Allowable Domes c and Export Transporta on Costs Decision point Task Fiscal Instruments – A Common Example In Extractive Industries Gross Revenue From Oil, Gas or Mining (P*Q) Gross Revenue To Investor Production Cost – “OPEX” Pre- Tax Profit (EBT) Profit Tax After-Tax Profit Includes financial cost and depreciations Royalty Dividends Reserves Inv.’s Dividend W/H Govt. tax Equity [W/H = withholding] Investor Return Source: Revenue Watch Institute Government Revenue Fiscal Regime in the Oil Sector is often Different from Mining Mining mostly here Profit Sharing – How Does It Work ? In PSC, contractor receives a share of the proceeds from Cost Recovery and Profit Split In PSC, government receives a share of the proceeds from Profit Split and taxes paid by the contractor on its take PSCs have never taken off in the mining sector … why? 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? Fiscal Regimes Are Assessed Against 2 Main Indicators Revealed by the Fiscal Model Effective Tax Rate (ETR) Internal Rate of Return (IRR) Definition: Total government taxes ETR= Cumulative Pre-tax profit Definition : Makes the positive cash flows (project revenues) equal to negative cash flows (initial investments) - Must be above the cost of capital Comparing the fiscal regimes based on this ETR in a selection of countries that compete for mining investment (“peer countries”) helps assess the fairness FOR BOTH PARTIES of the fiscal regime - The higher the better! - Can be used to rank several prospective projects a firm is considering. - Can be increased by leverage hence the interest of thin capitalization Assess what is called the Government Take in the project Assess the profitability of the project When commodity prices go up and/ or project costs go down, everybody benefits, but the percentages may change. Low Oil Prices or High Cost situation Contractor Total Net Profit Contractor Share Government Share (Gov Take) 37% 33% Government 67% $1 Billion $330 Million - 33% $670 Million - 67% WHY WOULD IT HAPPEN? High Oil Prices or Low Cost situation 63% $1.5 Billion $555 Million - 37% $945 Million - 63% Source: Adapted from Daniel Johnston The Need For a Progressive Fiscal Regime Prices, Internal Rate of Return, Rent.. From B. Land, Taxing the Minerals Industry in Turbulent Times, 2009 (citing PWC report, “Mine: As Good as it Gets?” 2008) HOW TO FIX THIS SITUATION ? Easy First Step But Not Optimal : Progressive vs. Flat Royalty Rates Progressive Royalty Rate Price Rate Total Royalty Take $100 7% $200 8.5% $17 $300 9% $27 $7 Flat Royalty Rate Price Rate Total Royalty Take $100 7% $7 $200 7% $14 $300 7% $21 Reminder: Costs Go Down Naturally “RENT” Source: Revenue Watch Institute What Would Be Such a Progressive Tax? Resource Rent Tax Rate 50% Gradual increase If suddenly the net cash flow is negative again, the RRT stops kicking in 20% 0% 25% Threshold 45% Project Internal Rate of Return Resource Rent Tax: Highly tied to profitability and to accumulated cash flow Can the fiscal regime carry one more input tax and still remain viable for the investor? Withholding Tax Resource Rent Tax Royalty Tax Income Tax Timing of Different Fiscal Tools Source: Revenue Watch Institute Timing matters for developing countries Optimal Progressive Taxation Qualities of a progressive fiscal regime? • Captures the rent • Does not distort investment decisions • Self-adjusts to richness of the deposit, price, cost and risk = capable of accommodating wide ranges of profitability • Avoids the need to change tax regime (fiscal reforms) according to market and geological conditions BUT! Almost NO African countries have progressive taxation! Less Optimal Progressive Taxation Other less progressive ainstruments • Windfall profit tax (often pricebased) • Variable income tax • Other sliding-scale instruments Less progressive but maybe more adapted to the tax administration capacity Responsiveness of Proxies to Profitability Source: IMF 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7 - What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? Mirage Of Equity Participation Paid-up equity Carried interest So-called “free” equity EQUITY PARTICIPATION FORMS Tax swapped for equity Equity in exchange for a non-cash contribution Paid-up equity for local ownership WHY CAN WE SPEAK ABOUT A MIRAGE? The Mirage – WHY? Motivation for state equity • Economic: share in any upside of a project, • Non-economic : nationalistic sentiment (DRC), transfer of technology and know-how (South Africa), direct control over project development (Guinea) Problems • Can be costly option. (ex: Nigeria) • Possibly, dividends never paid (widely experienced ) • Possible conflict of interest ( government’s role as regulator vs equity shareholder. ) (ex: Mozambique) THE IRONY • Economic impact of an equity share can in principle be replicated by tax instruments. The government is often better off by focusing on taxing and regulating a project rather than being directly involved as an equity participant. State Equity Problems Can be Exacerbated in the Presence of a SOE Problems of NOC in general: - Are assigned contradictory objectives: - Providing employment (China, Russia) - Providing fuel subsidies (Saudi Arabia, Venezuela) - Providing infrastructure (Nigeria – Angola : pipelines) - Foreign policy objectives (China) - Answer government’s cash demand (Mexico) - And…. Be the National Oil Company! 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? Capital Gains Taxes and Indirect Transfer There is no direct transfer or “assignment” of the rights in the project. A new agreement (e.g., mining license) is not signed. There is a change in control (“indirect transfer”) , happening offshore of the company holding the right/ mining license Change in control = sale of shares of either the company holding the license, or of one of the companies in the chain of ownership of that company (e.g., the holding company/ultimate parent company) (sales happening somewhere in the beneficial ownership) A Famous Case from Mozambique AUSTRALIA – STOCK EXCHANGE Rio Tinto Riversdale Mining Limited MAURITIUS Riversdale Energy MOZAMBIQUE Riversdale Mozambique Limitada Rights to the Coal project Owns the company Bought Owns the right The Regulatory Solution to CGT Indirect transfers should also be covered by CGT regs All license holders should disclose “beneficial ownership” Prior notice of such transactions + with all relevant documents should be given to the Government Sometimes restriction of scope of application (% of mineral assets ownership or % of shares transferred) Enforcement: tax withheld from the purchase price. “Lien” on the concession agreement and/or other assets of the local company to cover defaulted tax obligations. Shares of the local company would be considered to be held in trust for the government. Ability to tax depends on DTA – that might only authorize taxation on residents or taxation on direct transfer Challenge: not easy to determine to what extent the value of the non- resident shares is reflected by an increase in value the host country’s assets when the non-residents owns several assets! 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? Different Investment Incentives Corporate income tax incentives • Tax holidays or reduced tax rates • Tax credits • Investment allowances • Accelerated depreciation -> tax base – transfer tax burden but doesn’t wave it • Reinvestment or expansion allowances Other tax incentives • Exemption from or reduction of withholding taxes • Exemption from import tariffs • Exemption from export duties • Exemption from sales, wage income or property taxes • Reduction of social security contributions Financial and regulatory incentives • Subsidized financing • Grants or loan guarantees • Provision of infrastructure, training • Preferential access to government contracts • Protection from import competition • Subsidized delivery of goods and services • Derogation from regulatory rules and standards Developmental Impact of Tax Incentives TANZANIA ZAMBIA • 1992 international copper prices 2280$/ton production 400 000 tons: In coffer: 200 m$ • 2004 copper price 2868$/ton production 400 000 tons: Text In coffer : 8m$ • • No companies had paid income tax until 2011 besides Anglogold Text Ashanti, 10 years after starting production Barrick Gold 97 million$ between 2004 and 2007 but 0 income tax Tax Incentives and Loopholes In addition to progressive decrease in tax rates AND tax base Lack of ring-fencing Thin capitalization Transfer Pricing 70’s-80’s Washington consensus REVENUES COLLAPSED! 2000’s Do Countries Need Tax Incentives to Attract Investment? Mc Kinsey, 2009: “popular incentives, such as tax holidays (..) serve only to detract value from those investments that would likely be made in any case” IMF, 2009 : “ tax incentives in sub-Saharan Africa are now used more widely than in the 80’s with more than two thirds of the countries in the region providing tax holidays to attract investment. Such incentives not only shrink the tax base but also complicate tax administration and are a major source of revenue loss and leakage from the tax economy DOES THIS ISSUE ONLY AFFECT AFRICA? IF no Ring Fencing, Government loses! Project 1 Project 2 - Gross Revenue $750 - Gross Revenue $ 5000 - Total Costs - Total Costs $4000 - Net Revenues $3500 - Net Revenues - Tax (@30%) - Tax (@ 30%) $1050 $ 7000 -$ 2000 $ 0 Project 1+2 (NO Ring-fencing) – Gross Revenues: $12500 – Total Costs: $11000 – Net Revenues: $1500 – Tax (@ 30%) = $450 If the law is silent, you just don’t apply ring fencing of profits and losses! Transfer Pricing Practice and How To Limit It? TRANSFER PRICING PRACTICE • Definition: prices charged for cross-border transactions between related parties • WHAT DO YOU NEED TO SUCCEED ( as a company) ? • The creation of an affiliate entity • To whom you sell exports at below market price (=‘transfer price’) • To whom you charge imports/ leasing at above market price (=‘transfer price’) • From whom you borrow at above market interest rates to highly leverage projects HOW TO FIX IT ? • Regulatory Solution! Law/ Contract: 1) require arms-length basis transactions between related parties ( article 9 of UN and OECD Models for DTA) Difficulty : for some specialized goods and services , difficult to determine what exactly is a fair market price. • Requires closer monitoring • More reporting • Requests for comparable transactions • Cooperation with tax authorities of home countries 2) impose a cap on the allowable debt-leverage of a project $10 bn/ year left Africa between 2002 and 2006 as a result of transfer pricing Transfer Pricing Practice – Example Transfer Pricing (2) Parent (UK) Example: Sub1 (British V.I.) Sub2 (Angola) Sub3 (UK) Purchase of Inputs: $100 Sale of Minerals: $120 Fair Market Value: $150 Fair Market Value: $50 Taxable Profit: $20 Taxable Profit (fair market value): $100 Source: Revenue Watch Institute The UN Model Tax Convention Article 9(1) “Where: (a) an enterprise of a Contracting State participates directly or indirectly in the management, control or capital of an enterprise of the other Contracting State, or (b) the same persons participate directly or indirectly in the management, control or capital of an enterprise of a Contracting State and an enterprise of the other Contracting State, and in either case conditions are made or imposed between the two enterprises in their commercial or fi nancial relations which diff er from those which would be made between independent enterprises, then any profi ts which would, but for those conditions, have accrued to one of the enterprises, but, by reason of these conditions, have not so accrued, may be included in the profits of that enterprise and taxed accordingly”. A concrete example Assume a corporation P (parent) manufactures automobile seats in Country A, sells the finished seats to its subsidiary S in Country B which then sells those finished seats in Country B to unrelated parties (say, the public at large). In such a case S’s taxable profits are determined by the sale price of the seats to the unrelated parties minus the price at which the seats were obtained from its parent corporation (cost of goods sold in the accounts of S, in this case the transfer price) and its expenses other than the cost of goods sold. If Country A where the seats are manufactured has a tax rate much lower than the tax rate in Country B where the seats are sold to the public at large, i.e. to unrelated parties, then perhaps corporation P would have an incentive to book as much profi t as possible in Country A and to this end show a very high sales value (or transfer price) of the seats to its subsidiary S in Country B. If the tax rate was higher in Country A than in Country B then the corporation would have an incentive to show a very low sale value (or transfer price) of the seats to its subsidiary S in Country B and concentrate almost the entire profit in the hands of Country B. Source: UN Manual Applying the Arm’s Length principle (ALP) in practice • Several acceptable transfer pricing methods exist, providing a conceptual framework for the determination of the arm’s length price. • All these transfer pricing methods rely directly or indirectly on the comparable profit, price or margin information of similar transactions. • 5 major transfer pricing methods: • Comparable Uncontrolled Price Resale Price Method Cost Plus Profit Comparison Method Profit Split Advance Pricing Agreement (APAs): pricing methodologies agreed in advance in relation to certain types of transactions, often called the “covered transactions”. Provide greater certainty for the taxpayer on the taxation of certain cross-border transactions and are considered by the taxpayers as the safest way to avoid double taxation Applying ALP is COMPLEX Fight against Thin Capitalization: International Practice US: 1.5:1 debt-to-asset ratio Australia: 3:1 debt-to-asset ratio Canada: 2:1 debt-to-asset ratio Chile: 3:1 debt-to-asset ratio Liberia: interest + 50% taxable income before interest (or as negotiated) Peru: 3:1 debt-to-asset ratio Saudi Arabia: lower of actual interest or interest + 50% taxable income before interest Sierra Leone: 3:1 debt-to-paid up share capital South Africa: 3:1 debt-to-asset ratio Tanzania: lower of actual interest or 70% of taxable income before interest Zambia: 3:1 debt-to-asset ratio Malawi: 4:1 debt-to-asset ratio Mongolia 3:1 debt-to-asset ratio (only applies to related-party debt) No Thin Capitalization Rule in Brazil - China - India - Indonesia - Papua New Guinea – many African countries! 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7- What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? As a Starting Point : Fallacy of Discussing Individual Fiscal Tools in Isolation Knowing that a royalty is 4%, 5% or 10% will not give you a sense of whether the country is getting a good deal unless you also know how much the country earns from other fiscal tools (profit taxes, bonuses etc )! FISCAL MODELING TO KNOW THE OVERALL FISCAL BALANCE! AND UNDER DIFFERENT SCENARIOS! Fiscal modeling will tell you that Different Combinations of Fiscal Tools Can Yield the Same Outcome for the Government Example 1 Example 2 Corporate Income Tax as primary tool to extract revenue Royalty as primary tool to extract revenue Royalty = $10 million Royalty = $45 million Profit tax = $40 million Profit tax = $5 million Total revenue= $50million Total revenue = $50 million Financial Modeling: A Tool For Fiscal And Public Investment Policy What long term public investment policy can be funded and planned? What is the fairness of the current and potential deals? WHY Forecasting the revenue flows to the government under different scenarios ? What is the equitability of the fiscal regime for investors and government? What is the trade-off between “quick money” through signature bonuses and a higher share of profits ? What is the efficiency of tax incentives? If we change the tax regime, what is the impact for the parties? How does this fiscal regime compare with others? Fiscal Regimes Are Assessed Against 2 Main Indicators Tested By The Model Effective Tax Rate (ETR) Internal Rate of Return (IRR) Definition: Total government taxes ETR= Cumulative Pre-tax profit Definition : Makes the positive cash flows (project revenues) equal to negative cash flows (initial investments) - Must be above the cost of capital Comparing the fiscal regimes based on this ETR in a selection of countries that compete for mining investment (“peer countries”) helps assess the fairness FOR BOTH PARTIES of the fiscal regime - The higher the better! - Can be used to rank several prospective projects a firm is considering. - Can be increased by leverage hence the interest of thin capitalization Assess what is called the Government Take in the project Assess the profitability of the project International Benchmarking Comparing Government Take AND Profitability Is Needed To Assess The Fairness Of a Deal Copper Mines Govt Take= Effective tax rate (ETR)* Percentage Burkina Faso Uzbekistan Ivory Coast Papua New Guinea Ghana Greenland Mexico Indonesia Tanzania Kazakhstan Philippines South Africa Bolivia Peru China Argentina Zimbabwe Poland Chile Average IRR Percentage 84 63 62 58 54 50 50 49 48 46 45 45 43 43 42 40 40 37 37 3.3 9.3 8.9 10.8 11.9 13 11.3 12.2 12.4 12.9 13.5 13.5 11.4 12.3 12.7 13.9 13.5 12.2 15 49.2 Source: J. Otto et al, Global Mining Taxation Comparative Study, Colorado School of Mines Important Note On Government Take : Mining Is Not Oil! Government Take Mining: 25-60% Government Take Oil: 60-80% WHY? In mining, a lot more fiscal incentives, no cartel like OPEC to keep prices up, no progressive fiscal regime, less rent to make 1- Why does extractive industry require a special taxation regime? 2- What is this special taxation system? 3- Why do we need progressive fiscal regime? 4- Why can we speak about a mirage regarding locally held equity ? 5- Capital Gains Tax: What is challenging about it ? 6- Do low income countries need tax incentives to attract investment? 7 - What is the importance of fiscal modeling for host countries? 8- What are the main challenges of fiscal regime design ? What Are the Common Goals to Take Into Account in a Fiscal Regime Design ? Government Take/Overall fiscal balance adapted to level of attractiveness of the mineral/ hydrocarbon deposits Government Take/Overall fiscal balance competitive with the peer group countries Government Take not collapsing over time Government Take/Overall fiscal balance adapted to capacity of the tax administration What Are the More Country-Specific Objectives? Source: IMF Tax Administration Capacity and Policy Design Possible trade-off between progressivity and ease of administration The simplest fiscal tools to administer (bonuses and royalties) are also the least progressive …whereas the most complicated (resource rent taxes) are the most progressive. “Most complicated” means high risk of leakages in low capacity governments Possible trade-off between efficiency/credibility and ease of administration Ex: price-based taxes may eventually become untenable and require adjustment if costs rise disproportionately and thus decrease profit margins Policy response ? DON’T GIVE UP ON PROGRESSIVE TAX REGIMES BUT INVEST IN CAPACITY BUILDING !! -> MINIMIZE TRANSFER PRICING -> STANDARDIZE CONTRACTS -> FOCUS ON THE MAIN REVENUE STREAMS -> ELIMINATE MINOR TAXES
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