The Research On The Collection And Management Of Non-tax Revenue In China

Public finance is the foundation and important pillar of national governance.Non-tax revenue is a vital source of revenue for national finance and an indispensable part of local government revenue.Non-tax revenue covers political,economic,social,cultural and other fields,providing an important financial guarantee for public finance to play its role in national governance.Comprehensively improving the efficiency of the collection and administration of non-tax revenue is an inevitable requirement for the modernization of national governance and an important link in the comprehensive establishment of a modern fiscal system.It will play a fuller and more positive role in deepening reform of the fiscal and tax systems.China’s non-tax revenue collection and management system has been in the process of continuous construction and improvement.In the past 40 years,China has made some achievements in the collection and management of non-tax income.However,with the gradual expansion of the scale of non-tax revenue,the problems in the collection and management of non-tax revenue are also constantly emerging.For example,the flexibility of non-tax revenue collection and management is relatively large,which is easy to become the regulator of local finance.The legislative level of non-tax revenue collection and management is relatively low,and the compliance of collection and management needs to be strengthened.Non-tax revenue collection and management system has not been straightened out,there are multiple management problems.It is extremely urgent to face and actively solve the problem of non-tax revenue collection and management,and to form a scientific and efficient system of non-tax revenue collection and management.The research on the collection and management of non-tax revenue in China has important theoretical value and practical significance for perfecting the fiscal theory and expanding the government governance mechanism.Centering on the collection and management of non-tax income,this paper follows the research ideas of discovering,analyzing and solving problems,and mainly conducts research from four aspects.Firstly,the paper makes a theoretical study on the collection and management of nontax income.This paper clarifies and defines the basic concept,theoretical basis and applicable model of non-tax revenue collection and management.For the feasibility of the research,this paper focuses on the non-tax revenue in the general public budget,including special revenue,administrative institutional charges,confiscation revenue,state-owned capital operation income,state-owned resource assets paid use income,etc.The process of collection and management of non-tax revenue is actually a kind of entrusting agent of the central government to the local government and the non-tax collection department.Because of the moral hazard caused by information asymmetry,it is necessary to build a principal-agent mechanism with incentive compatibility.Based on the principal-agent theory and its classical model,this paper deduces that the essence of non-tax revenue collection and management is to solve the problems of incentive,supervision and information asymmetry under the conditions of information symmetry and information asymmetry,according to the Pareto optimal equilibrium faced by the principal.This corresponds to the influence of target incentive in the early stage of non-tax revenue collection and management,the influence of information disclosure in the process of collection and management,and the influence of supervision and deterrence in the late stage of collection and management.Secondly,the paper studies the institutional evolution of non-tax revenue collection and management.From a historical perspective,this paper investigates the development of non-tax revenue collection before the founding of new China.Such as the historical dilemma of non-tax revenue governance in ancient times,the financial crisis and non-tax revenue collection and management in the late Qing Dynasty,the collapse of the Government of the Republic of China and the origin of local finance.Furthermore,the management system of extrabudgetary funds in the planned economy era,the expansion of extrabudgetary income in the early stage of reform and opening up,and the formation of non-tax revenue collection and management system since the tax distribution system.This paper analyzes the institutional causes of the failure of non-tax revenue governance in ancient China from the historical dimension and draws inspiration and reference from the reform of non-tax revenue in modern China.From the realistic level,this paper systematically combs the budget management system of non-tax revenue,the reform of clearing fees and establishing taxes and the reform of institutional transfer.At the same time,combined with the financial audit reports over the years,the research summed up the existing problems such as artificial regulation of illegal expropriation,fuzzy and frequent changes in standards,and difficulties in territorial management and supervision.Combined with the governance history,reform logic and system status quo of non-tax revenue in China,three basic challenges in the collection and management of non-tax revenue in China are summarized,that is,the contradiction between incentive and constraint in the system level,the contradiction between efficiency and fairness in the collection level,and the contradiction between flexibility and norms in the supervision level.Thirdly,this paper conducts three empirical studies on the collection and management of non-tax income.In this paper,based on the collection and management of non-tax income-the principal-agent model,combined with the basic characteristics of the historical dimension,realistic dimension,build the theoretical framework for the non-tax revenue collection,collection of target incentive from the non-tax revenue,collection list of middle management,collection and administration of the late financial audit the three stages,the influence factors and influence mechanism of non-tax revenue collection for empirical testing.In the empirical analysis of the impact of target incentives on the collection and management of non-tax revenue,this paper uses the tax survey data at the enterprise level and the data at the prefecture level to build a two-way fixed effect model.In the benchmark regression,it is found that the higher the expected target,the more non-tax expenditure of enterprises.After that,by changing the fiscal revenue target and controlling the number of cities,the robustness test was carried out to eliminate the interference of sample selection on the basic conclusion,and the endogeneity problem was avoided by using instrumental variables.In the mechanism analysis,it is found that the achievement of the target has a U-shaped impact on the collection and management behavior.When the target is not fulfilled or the target is overfulfilled,the government will strengthen the collection and management of non-tax income out of the motivation of refusing to be at the bottom and striving for the top,which confirms the important role of target incentive in the collection and management of non-tax income.In the heterogeneity analysis,it is found that the number of prefecture-level cities in the province and the homogeneity of cities will reduce the impact of the target on enterprises’ non-tax expenditures.Moreover,the non-tax burden is more borne by smes and non-state-owned enterprises.In the extended analysis,it is found that the completion of tax revenue will affect the non-tax burden of enterprises,and there is a phenomenon of "tax replacement",which proves once again that non-tax revenue is easy to become the "regulator" of local government fiscal revenue.In the empirical analysis of the impact of inventory management on the collection and management of non-tax revenue,the dual difference model is constructed based on the quasi-natural experiment of the gradual implementation of the inventory management system of non-tax revenue in all provinces of China from 2014 to 2016.The data were compiled by hand from 314 prefecture-level cities across the country.The results show that the expansion of local non-tax revenue can be restrained to a certain extent through the management of information disclosure system.At the same time,parallel trend test and placebo test of 800 random samples were carried out to prove that the use of differential difference method is reasonable for estimation.Subsequently,robustness tests were performed by changing the policy identification strategy and changing the observation window period.In the heterogeneity analysis,it is found that the impact of bill system management on special income,administrative income and confiscation income is particularly obvious.However,the small coefficient indicates that although the inventory management reduces the local non-tax revenue on the whole,the effect is limited.This is mainly because the current inventory management system is mainly implemented at the provincial level,and the implementation intensity and implementation time of grassroots governments are quite different.In the empirical analysis of the impact of fiscal audit on the collection and management of non-tax revenue,this paper uses the relevant data of 31 provinces in China from 2008 to 2017,and constructs a two-way fixed effect model.It is found that national audit can improve the compliance of local non-tax collection and management by exerting supervision effect,thus reducing the non-tax burden of enterprises.After a series of tests,such as changing the measurement method of explained variables,regression with a lag of one period,and adjusting the observation window period,the research conclusion of this paper is still robust.The endogeneity problem is eliminated by using instrumental variables.In the further mechanism examination,it is found that the non-tax collection and administration work is often scattered in multiple departments,so its revealing,defensive and deterrent functions are still very limited.Heterogeneity analysis shows that audit can play a better role in supervision in areas with higher economic development.However,in the extended analysis,it is found that for different types of non-tax income,the supervision effect of national audit is quite different.Fourthly,this paper gives relevant policy suggestions on the collection and management of non-tax income.This study puts forward three basic ideas and principles for the optimization of non-tax revenue collection and management in China,as well as specific measures to improve the efficiency of non-tax revenue collection and management.In terms of basic ideas and principles,the first is to uphold the people-centered concept of collection and administration,and adhere to people-centered as the basis of the theoretical logic,historical logic and realistic logic of China’s non-tax revenue collection and administration.Second,set up the new era of "outstanding achievements" and "latent achievements" equal view,adhere to both internal and external repair.Third,actively transform government functions,comprehensively deepen reform of the administrative system,properly handle the relationship between the government and the market,and finally establish a service-oriented government that the people are satisfied with.The specific optimization path is as follows: First,refine the performance appraisal management of non-tax income,build a multi-dimensional performance appraisal system with compatible incentives for the collection and management of non-tax income,and strengthen the incentive strength and punishment strength of performance appraisal related to the collection and management of non-tax income.Second,the project boundary of nontax revenue of the government should be clarified and clarified,and the "administration of fees according to law" should be implemented into the whole process of the collection and management of non-tax revenue,so as to fundamentally promote the legalization process of the collection and management of non-tax revenue.Third,perfect the audit system,ensure the independence of financial audit,strengthen the construction of audit capacity,and realize the professionalism of financial audit.We will innovate audit mechanisms and establish an audit supervision system that covers the entire process of collection and management of non-tax revenue.Finally,we can promote collection and management by supervision and build a large regulatory pattern of non-tax revenue.There are three possible innovations and marginal contributions in this paper.Firstly,this paper constructs the principal-agent model of non-tax income,and takes it as the analysis framework to systematically analyze the collection and management of non-tax income from three aspects: target incentive in the early stage of collection and management,list management in the process of collection and management,and supervision and deterrence in the later stage of collection and management.This is the innovation of the research framework.Secondly,this paper combines the theories of management,behavioral economics,history and other disciplines to discuss the problems of finance.Among them,the systematic research on the historical perspective of non-tax revenue lays a solid and heavy foundation for this paper,which is the innovation of the research perspective.Finally,this paper makes a quantitative-research on the collection and management of non-tax income through double difference method and two-way fixed effect model,and uses the data of enterprise level and prefecture level city level to explore the collection and management of non-tax income from a deeper level,which is the innovation of research methods.Standardizing the management of non-tax revenue and improving the efficiency of collection and management of non-tax revenue are related to the credibility of the Chinese government and the compliance degree of the payers.It is an important entry point for the reform of China’s administrative system,an important focus for optimizing the economic development environment,and an important support for the modernization of social governance.At the same time,non-tax revenue is an important source of revenue for local governments.Only by strengthening the collection and administration of taxes and fees in accordance with the law and ensuring that all tax receivables are collected can we provide financial support for key government expenditures.Strengthen non-tax revenue collection is not in a narrow sense,in fact,expand the scale of income,non-tax income and other government revenues is not a "zero-sum game",only increase the efficiency of the non-tax revenue collection and management and realize the benign growth,non-tax revenue in the management of the specification is the non-tax revenue on economic and social development in the new era should be a useful contribution.In fact,strengthening the collection and management of non-tax revenue is not to expand the scale of income in a narrow sense,nor is it a "zero-sum game" between non-tax revenue and other government revenue.The only beneficial contribution of non-tax income to economic and social development is to improve the efficiency of collection and management of non-tax income and realize the benign growth of non-tax income in standardized management.