SPEECH BY THE MINISTER FOR FINANCE
HON. BASIL P. MRAMBA (MP), INTRODUCING TO THE NATIONAL ASSEMBLY THE ESTIMATES OF GOVERNMENT REVENUE AND EXPENDITURE FOR THE FINANCIAL YEAR 2004/05
1. Mr. Speaker, I beg to move that this esteemed House now resolves to debate and approve Government proposals for Revenue and Expenditure estimates for the Financial Year 2004/05. The Government budget has been consolidated into four volumes. Volume one presents revenue estimates, volumes two and three describe recurrent expenditure estimates for ministries, government departments, and regions, including urban and district councils. Volume four presents development expenditure estimates for the ministries, government departments, regions, and councils. In addition, there is the 2004/05 Finance Bill.
2. Mr. Speaker, before I table the 2004/05 budget, allow me to express my appreciation to all those who participated in the preparation and finalization of this budget in various ways. In particular, I would like to thank the Finance and Economic Committee of the Parliament and Sector Committees for keenly scrutinizing the budget estimates with a high standard of professionalism. The invaluable advice offered by these committees greatly assisted in finalizing the budget proposal being presented today.
3. Mr. Speaker, preparation of the budget involved consultations with a broad range of stakeholders, both within and outside the Government. Let me take this opportunity to thank the staff of various ministries, independent government departments, regions, councils, non-governmental organizations, the private sector, national and international organizations, for their invaluable contributions to the preparation of this budget. Furthermore, I would like to thank the Office of the Attorney General for preparing the bills and legal notices for this budget. I would also like to express my gratitude to my colleagues from the Ministry of Finance, in particular, the Deputy Ministers for Finance, Hon. Abdisalaam Issa Khatib (MP) and Hon. Dr. Festus Limbu (MP); the Permanent Secretaries, Mr. Gray Mgonja and Mr. Peniel Lyimo; and Deputy Permanent Secretaries, Mr. Ramadhani Khijjah and Mr. Wilfred Nyachia; all Heads of Department and staff of the Ministry of Finance including all institutions under this Ministry. Let me also thank the Government Printer for the timely publication of this budget speech, the budget books and bills related to this budget. Finally, my thanks go to the various experts and all who made proposals to me and shared their insights and recommendations regarding policies in particular tax measures. Their views and comments have been taken into account in this budget.
4. Mr. Speaker, during this fiscal year we
have witnessed the formal establishment of the Pan African Parliament. I would
like to take this opportunity to congratulate the Members of Parliament who
were elected to represent us at that Parliament, that is, Hon. Gertrude
Mongela, MP for Ukerewe, Hon. Dr. William F. Shija, MP for Sengerema, Hon. Dr.
Amani Kabouroo, MP for Kigoma Urban, Hon. Dr. Remedius Edington Kissassi, MP for Dimani, Zanzibar, and Hon. Athumani
Janguo, MP for Kisarawe. I
would particularly like to congratuate Hon. Gertrude
Mongela for her election as the First President of that Parliament. Her
appointment is a demonstration of the confidence that the Parliamentarians of
the Pan African Parliament have towards her as an individual and towards
5. Mr. Speaker,
I would also like to take this opportunity to congratulate Hon. Arcado Ntagazwa, MP for Muhambwe,
for being elected President of the Governing Council of the United Nations
Environment Programme (UNEP). I believe that his election is well-deserved and
symbolizes the confidence that the Governing Council members have on Hon.
Ntagazwa and to our country. I would
also like to congratulate Hon. Sophia Simba MP for
Special Seats and the Chairperson of the Parliamentary Permanent Committee for
Community Development, for being elected to represent
6. Mr. Speaker, we
recall that on
7. Mr. Speaker, other
important events that occurred during this fiscal year include the appointment
of the President of the United Republic of Tanzania, Hon. Benjamin William Mkapa, and Professor Anna Tibaijuka,
as Commissioners in the Commission for
8. Mr. Speaker, the overall performance of the economy during 2003/04 has been satisfactory despite the severe drought that was experienced. Preliminary National Accounts indicate that GDP grew by 5.6 percent in year 2003 compared to the targeted growth rate of 6.3 percent. The inflation rate increased slightly from 4.0 percent in July 2003 to 4.6 percent at end - March 2004. The increase in the inflation rate resulted from pressure on food prices following the drought that adversely affected food production, and the sharp increase in oil prices. Official foreign exchange reserves at end-March 2004 had reached a level sufficient to cover imports of goods and services for a period of about 8 months, which is above the target of 6 months.
9. Mr. Speaker, the implementation of the Government’s Budget for the year 2003/04 has been satisfactory despite the adverse effects of drought, which necessitated the provision of additional financial resources to purchase and distribute food, as well as enabling TANESCO to import oil to generate thermal power and purchase power from IPTL.
10. Mr. Speaker, in fiscal year 2003/04 the Government planned to collect domestic revenue of at least 13.3 percent of Gross Domestic Product. In order to achieve this goal, the Government undertook various reform measures in tax administration and tax structure. These changes were aimed at expanding the tax base, increasing accountability of tax collectors and tax payers, eliminating nuisance taxes, improving the business environment, and increasing the efficiency of the Tanzania Revenue Authority (TRA) employees. Furthermore, the new Income Tax Act was tabled and passed by Parliament in April this year.
11. Mr. Speaker, during the first 10 months of this fiscal year (July to April 2004) domestic revenue collections surpassed monthly targets. Moreover, budget support from the Bilateral Development Partners, the World Bank, the African Development Bank and the European Union surpassed targets, and a large proportion of that aid was received in the first half of this fiscal year, thus giving us more leverage in executing the budget. It is expected that domestic revenue targets and budget support for this fiscal year will be attained.
12. Mr. Speaker, domestic revenue collections for the period July 2003 to March 2004 reached Shillings 1,089,262 million (one trillion, eighty nine billion, two hundred sixty two million) equivalent to 3.7 percent or Shillings 38,396 million more than the budget estimate of Shillings 1,050,866 million. VAT on domestic sales was projected at Shillings 142,242 million during the period under review, but actual collection reached Shillings 148,632 million, reflecting an increase of Shillings 6,390 million or 4.5 percent above estimates for that period. Regarding Income Tax, actual collections reached Shillings 256,888 million compared to estimates of Shillings 227,382 million, representing Shillings 29,506 million or 13 percent above estimate. Import Duty collections reached Shillings 95,239 million compared to estimates of Shillings 93,562 million, reflecting an over performance of Shillings 1,677 million or 1.8 percent. However, non-tax revenue collection by ministries, departments, agencies as well as regions was below target by 10 percent.
13. Mr. Speaker, the main reasons behind the increase in domestic revenue include better supervision and improved tax administration especially with respect to income tax and VAT. The most important factor was the measure taken to curb tax evasion in the petroleum sector.
14. Mr. Speaker, in brief, the outcome of the revenue enhancing measures that the Government took include the following:-
Changes to the Customs Tariff Structure yielded Shillings 1,717 million during the period July 2003 to March 2004 compared to the target of Shillings 133.8 million for year 2003/04. This is equivalent to an over performance of 1183 percent.
Changes to the Excise Tariff Structure for various goods contributed additional revenue of Shillings 758.5 million during the period July to December 2003.
Reduction of Excise Duty rate on Liquefied Petroleum Gas (LPG) from Shillings 228 to Shillings 114 per kilo increased gas usage by 52.6 percent in line with expectation.
Tax exemption for water borehole drilling equipment had a positive outcome. Imports of such equipment increased by 68 percent in value terms from Shillings 12,602.1 million in 2002 to Shillings 21,187.8 million in 2003.
I am happy to inform your Esteemed House that the measures taken to curb tax evasion in the petroleum sector have been fruitful as anticipated. A total of Shillings 226,036 million was collected during the period July 2003 - April 2004, compared to the target of Shillings 208,002 million. This is an increase of 25 percent of taxes collected on petroleum imports over the same period during the previous year.
However, the impact of the export tax of 15 percent imposed on raw hide that was introduced this fiscal year with a view to promoting domestic leather processing is not satisfactory. Revenue realized during the first six months was Shillings 413 million compared to the target of Shillings 1,080 million for the period July - December 2003. This area will be subjected to an in-depth review during next fiscal year to determine ways of making it possible for all raw hides to be processed domestically for the benefit of livestock keepers and the economy as a whole.
15. Mr. Speaker, a full assessment of the impact of measures taken by the government to raise domestic revenue will be determined at the end of this month, nonetheless, the highlights I have given above confirm that sound policies, good governance, improvement in tax administration and supervision, contribute to increased revenue collection. The Government will continue to implement these measures together with new ones that I will explain later. Furthermore, the new Income Tax Act that was passed by Parliament in April this year will become operational from July 2004. Progress has been made in preparing the Regulations to the Act together with detailed Notes to the various provisions of the Act. This law will expand the tax base and introduce a new culture of self-assessment of income taxes. Moreover, the Large Taxpayers Department under the Tanzania Revenue Authority has been strengthened leading to efficiency and a substantial reduction in complaints from such taxpayers.
16. Mr. Speaker,
as explained above, performance on disbursements of grants and concessional loans has been in line with our targets during
the fiscal year 2003/04. By the end of
May, 2004 disbursements of programme grants and loans
reached Tshs. 490,253 million equivalent to 121
percent of the estimate of Tshs. 405,047
million. Most of the funds were received
during the early part of the fiscal year compared to delays that were
experienced in the past, and 90% of committed budget support had been received by
December 2003. Front loading of budget support funds has greatly contributed to
the government’s capacity to address the apparent budget execution pressure
especially those associated with the drought.
This remarkable development is a reflection of positive implementation
of the Tanzania Assistance Strategy (TAS) which guides cooperation with
Development Partners including the harmonization and simplification of
procedures to reduce transaction costs and bureaucracy in aid delivery. This established framework and the open
dialogue and consultative process with our Development Partners including the
Annual Public Expenditure Reviews, have all contributed to increased donor
confidence and commitment of our development partners to support
17. Mr. Speaker,
notwithstanding the good relationship that Tanzania is enjoying with her development
partners which is making her one of the shining examples, there are still many
challenges ahead. These include
strengthening local ownership and more importantly, the need for more dialogue
to ensure that all developed countries strive to attain their commitments to
increase the level of aid as a percent of their GNP to 0.7 percent or more as
18. Mr. Speaker, during the coming fiscal year, the Government will continue its dialogue with development partners to ensure that there is complete ownership of aid utilization. This will enable resources obtained from grants and concessional loans to be directed to financing those programmes which support our vision in line with the country’s policies and priorities for economic growth. These priorities include targeted support to agriculture, education, industry and infrastructure including bridges and paved roads connecting districts, regions and neighbouring countries. These are important areas of investment that can propel us faster from low skills and poverty compared to other areas which focus more on consumption than production. Planning means making choices among alternatives that can lead our nation to prosperity in the fastest possible way. It could enable us produce abundant agricultural and industrial products, process them and export to our neighbours, within our region and even overseas using well maintained roads and our ports especially in the northern, western and southern parts of Tanzania. And we cannot meet these and other objectives without human resources trained to a level that is consistent with today’s world of advanced education, science, and globalization.
19. Mr. Speaker,
allow me, on behalf of the Government, to take the opportunity to express our
sincere gratitude and appreciation to our Development Partners including
multilateral financial institutions who have provided
direct financial resources to support our budget this fiscal year. They include
20. Mr. Speaker, the Government continues to adhere to the objectives of the National Debt Strategy in the management of debt and continues to comply with the requirements of the Loans, Grants and Guarantees Act, 1974 (as amended in 2003). At present loans are solicited from concessional sources only and directed to support priority sector spending for economic growth and poverty reduction. Moreover, the issuance of Government guarantees for contracting external loans has been stopped and it is now prohibited for any official or any agency of the Government to borrow on behalf of the Government or enter into any arrangement of a financial nature without first obtaining the approval of the Minister for Finance. The Minister in turn must first be advised by the National Debt Management Committee established under the Act before he approves any borrowing proposal.
21. Mr. Speaker,
the Government has continued to seek debt relief from the Paris Club and
Non-Paris Club Creditors as agreed under the HIPC Programme. All Paris Club Creditors except
22. Mr. Speaker, overall fiscal performance during 2003/4 indicate improvements in budget execution and increased expenditure efficiencies especially in Ministries, Departments and Agencies (MDAs). The Government is therefore starting to realize the initial benefits of the measures it has been taking over the past eight years in expenditure planning and implementation, restraint on non essential expenditures and cash budget management. The improvements are also a clear signal that the initial problems of understanding the Public Procurement Act No 3 of 2001 are diminishing. Moreover, despite the large expenditures associated with food and electricity shortages caused by the drought, the Government’s recurrent expenditure has been kept on track and there is no adverse effect on the underlying budget frame. The Government has ensured that expenditures on priority sectors for poverty reduction, namely health, education, water, roads, agriculture, judiciary and legal departments get allocations in line with their budget estimates regardless of the huge expenditures for food supply and electricity generation. A clear indication of the strength of the fiscal consolidation and execution is that the Government did not borrow beyond the targets set under the PRGF programme with the IMF and the net domestic financing target (NDF) was also met with comfortable margins. This was made possible due to improved domestic revenue collection, frontloading of external budget support which exceeded the estimates, expenditure restraint and slow pace in the implementation of development projects.
23. Mr. Speaker, during the period from July 2003 to March 2004 actual total expenditure reached Tshs. 1,722,612 million compared to estimates of Tshs. 1,889,207 million. Out of this amount, Tshs. 422,559 million was for development expenditure and Tshs. 1,300,053 was for recurrent expenditure.
24. Mr. Speaker it is recalled that, during the February 2004 session, your Esteemed House approved a supplementary budget amounting to Tshs. 176,784 million on top of the original budget approved for the fiscal year 2003/04. The supplementary budget was to cater for the adverse effects of drought. The resources approved were used for procurement and distribution of food grain to the areas affected by the drought, assistance to TANESCO to enable it generate thermal electricity instead of hydropower, revenue compensation to Local Government Authorities following abolition of nuisance taxes, Government’s contribution to the Government Pension Fund and to the Parastatal Pension’s Fund to compensate for pensions contributions which were not remitted by various Public Corporations prior to privatization. Other additional requirements included costs related to preparation of a Permanent Voters Register, gold assaying and audit, and procurement of a new Government plane. These emerging needs were funded through two main sources, first, additional domestic revenues and budget support adding to Tshs. 87,250 million, and second, Tshs 89,534 million from budget reallocation within the approved votes. The supplementary estimates are being executed as approved.
25. Mr. Speaker, on the basis of trends in revenue collection and expenditure outlays, it is expected that domestic revenue for the fiscal year 2003/04 will exceed the projected target by Tshs. 74,210 million representing 5.3 percent over performance. It is further expected that, grants and concessional financing for budget support will exceed the target. Nonetheless, revenue from the ongoing privatization programme which was estimated at Tshs. 17 billion may not be realized. Regarding expenditure targets, the trend shows that both development and recurrent expenditure (in particular other charges) may not be in line with the expectations for the reasons mentioned above. However, it is likely that budget estimates for priority sectors for poverty eradication and economic growth will be met.
26. Mr. Speaker, in order to improve accountability for public funds and strengthen internal auditing function, the Government has taken a number of measures, including the establishment of audit committees within the ministries and other government agencies and institutions. Training sessions are being conducted to sensitize the MDAs on the effective use of the committees. An internal audit manual has been finalized and is being published. Improvements in the National Audit Office are underway including preparation of strategic plans with respect to core functions of departments and filing of key positions in the NAO. Amendments to the Public Procurement Act No. 3 of 2001 are underway, with a view to improving efficiency in the implementation of the Government budget especially with respect to execution of development projects. The Amendment Bill is expected to be tabled before this House for first reading during this budget session.
27. Mr. Speaker,
there has also been remarkable progress in the area of monetary policy. Money supply was tightened, with growth rate
decelerating to 18.7 percent at end March 2004 from 22.7 percent at end June
2003. This is a reflection of a strong
foundation for controlling inflation.
Credit to the private sector in domestic currency increased by 41.8
percent between July 2003 and March 2004, fueled in part by large corporations
switching from borrowing abroad to borrowing domestically. The switching was driven by a number of
factors the major ones being; the need to avoid exchange rate risks and to take
advantage of reduced cost of borrowing domestically stemming from increased
competition among commercial banks.
Thus, the weighted average lending rate has declined to 13.5 percent
while the weighted average deposit rate has increased to 4.1 percent. Consequently the margin between deposit and
lending rates has narrowed from 10.6 percentage points in June 2003 to 9.4
percentage points in March 2004. Although
the deposit rate is still relatively low and that of lending still high, the
trend is encouraging and is a positive sign that banks are now having
more-confidence and understanding of the Tanzania market better, especially in
respect of demand for banking services, and that deposit and lending rates will
continue to change to reflect market conditions. The Government believes that these changes
will happen on account of the measures that have been taken recently to create
incentives and an enabling environment to the banking sector especially through
the amendments to the Land Act, Strengthening of the
28. Mr. Speaker, as regards balance of payments, there is a
substantial increase in both imports and non-traditional exports. Imports have increased by 26.6 percent for
2003, largely on account of fuel (petrol) and food (rice). Fuel imports have increased due to TANESCO’s increased demand for Jet A –1 for generating thermal power instead of hydroelectricity for lack
of sufficient water. Non-tradition
exports increased by 16 percent attributed to gold and manufactured products. Traditional exports remained depressed
although there are signs of recovery in the prices of coffee, cotton, tea and cashewnuts at the World market. Receipts from tourism also rose during
2003. Overall, for the first time, the
balance of payments recorded a surplus of United States Dollars 243.9 million. Taking into account the lower debt service
payments due to debt relief, and an increase in official programme
grants and loans, gross international reserves reached
OTHER IMPORTANT LESSONS LEARNED DURING IMPLEMENTATION OF THE 2003/04 BUDGET.
29. Mr. Speaker, Although we are making substantial progress in policy and governance reforms, we are still faced with many challenges for our nation to become self sufficient and eradicate poverty. These include:
Government’s budget is to a large extent still dependent on foreign aid although the level of dependency is decreasing. During 2003/04 donors including international financial institutions have contributed 45 percent of the government budget compared to 47 percent during 2002/03 fiscal year. Therefore despite strong revenue performance the level of dependence remains high.
Despite the focus given to priority sectors for poverty reduction, resources made available to these sectors are still insufficient.
(i) Although there has been efficiency and fiscal discipline improvement in government implementation, capacity particularly in accounting, information communication technology, health delivery etc remains limited. This partly explains the problems of project implementation and accounting.
BASIS, POLICIES AND OBJECTIVES OF THE 2004/05 BUDGET
30. Mr. Speaker, the thrust of the budget for 2004/05 is to sustain macroeconomic stability and support on-going reforms for growth and poverty reduction as follows:-
(i) Attaining a Real GDP growth rate of 6.3 percent in 2004 and 6.5 percent in 2005, to be driven by agriculture, manufacturing and exports.
(ii) Domestic Revenue is targeted to reach Tshs 1,739,288 million) equivalent to 13.8 percent of Gross Domestic Product.
(iii) Inflation is targeted at 4 percent by end June 2005 and stabilize at that level in the medium-term consistent with major trading partners and those we compete on exports.
(iv) Maintaining gross international reserves at a level above six months of imports of goods and non-factor services.
(v) Reducing aid dependency ratio of government budget to 41 percent in 2004/05.
(vi) Monitoring implementation of the micro-finance policy and the credit guarantee scheme for small-medium enterprises to create conditions for economic development through bank credit.
31. Mr. Speaker, the first cycle of the Poverty Reduction Strategy is now complete with the publication of the third Progress Report. The report describes the results of various studies on the status of poverty in the country. Minister of State, Vice President’s Office, responsible for the implementation of the Poverty Reduction Strategy, will provide more information on the report. The report, among other things identifies constraints in development of agriculture which is the most important sector in the economy. These include lack of access to credit for inputs and production, lack of extension services, a poor investment environment, poor infrastructure and many others. The small size of farms, inadequate use of technology, and dependency on rain are the main obstacles to meaningful transformation of the sector and the rural communities. The Government has been taking measures to reform the sector, but problems remain.
32. Mr. Speaker, in order to improve agriculture, the Government is taking additional measures aimed at creating better environment for attracting investment in the sector, and at the same time enabling small scale farmers to increase productivity and reduce poverty. The measures include:-
One: Under the Income Tax Act of 2004:
(a) Introduction of 100% capital allowance for costs relating to cleaning of land, irrigation systems, planting of permanent crops, and environmental preservation or control of land degradation on agricultural land. Under normal accounting principles these costs are considered to be of capital expenditure nature and would be deductable over a long-run.
(b) Costs associated with environment preservation on the land used for agriculture, livestock, fishing or for enriching the soil after degradation, will be deducted in the estimation of income as provided in the Income Tax Act.
(c) Research and development costs for agricultural farms and livestock will be deducted for the purpose of income tax.
(d) Irrigation equipments have been accommodated in the same category with the heavy trucks for assessing the maximum capital depreciation rate of 25 percent per annum.
(e) Tractors and other plants for agriculture, livestock farming and fishing have been categorized in the same group with the plant and machinery used in manufacturing and are to be allowed a capital depreciation of 50 percent in the first year, and 25 percent per annum in the subsequent years.
(f) Business community dealing with agricultural products are not required to pay tax on equal quarterly installments, but at the end of the year after harvest.
Two: Under the Customs Tariff Act,
Agricultural implements and inputs such as tractors, pesticides and fertilizers are exempted from customs duties. Any remaining duties in this area will be abolished.
Three: Under the Value Added Tax Act, 1997
(a) Agricultural and livestock raw products are exempted from VAT. These include unprocessed edible meat, unprocessed livestock products, unprocessed fish products and all other unprocessed agricultural products.
(b) No Value Added Tax on agricultural and fishing inputs such as pesticides, fertilizers, veterinary drugs and equipment, agricultural equipment such as tractors, hoes, spades, harrows, shovels, fishnets, machinery and fishing accessories.
(c) There is also VAT relief on agricultural products, which are exported in respect of farmers who have formed cooperative societies or associations that are registered under the VAT Act.
Four: Under the Stamp Duty Act
Agricultural, livestock and fishery products are exempted from stamp duty. Furthermore, stamp duties are not collected at community markets where these products are sold in large quantities.
Five: Under Local Government Finances Act.
(a) The Act prohibits Local Government to charge crop cess at more than 5 percent of the farm-gate price. Furthermore, the charge may only be levied in the district in which the produce originates or is first bought from farmers, not in the districts where it passes through on its way to markets or other districts or neighbouring countries.
(b) Taxes and fees to be charged are only those listed in the Local Government Finances Act, 1982 and Finance Act of 2003.
Six: In the Government Expenditure Budget
(a) The Government continues to set aside funds for implementing District Agricultural Development Plans.
(b) The Government will continue to set aside funds for subsidizing part of fertilizer transport costs to Rukwa, Mbeya, Iringa, Ruvuma Regions, and other Regions with adequate rain to be announced by the Minister for Agriculture and Food Security.
(c) The Export Credit Guarantee Fund for Cooperatives and other organizations handling farmers’ produce will be enhanced through additional funds in this budget. This scheme has proved to be very successful.
Speaker, these measures of abolishing nuisance taxes, providing tax relief
and subsidizing transport cost of fertilizer were announced during the current
fiscal year to farmers, livestock keepers, and fishermen, particularly small
and medium scale producers who form the majority of the population of
34. Mr. Speaker, additional measures to empower Tanzanians to mobilize savings and investments will be taken during the fiscal year 2004/05. The measures will include the sale of units by the Unit Trust of Tanzania (UTT); establishment of collective investment schemes to enable individuals make collective savings and participate in the capital market as a group; and active Government participation in the establishment of a credit reference bureau which will add to the confidence of banks to give credit. Moreover, the measures that are being taken to improve the operations of the Credit Guarantee Scheme are aimed at empowerment of Tanzanians to participate effectively in the management of the economy.
35. Mr. Speaker, during fiscal year 2004/05, the Government plans to collect shillings one trillion, billion, two hundred eighty eight million (Tshs.1,739,288 million) from domestic sources, equivalent to 13.8 of Gross Domestic Product. This represents an increase of 20% compared to revenue projections for 2003/04. The Government’s short and medium term policy objective is to enhance domestic revenue, lower aid dependency, allocate higher expenditure for poverty reduction, and ensure that debt remains sustainable. The main measures that will be employed to raise domestic revenue include:-
(i) To strengthen the supervision and administration of the Tanzania Revenue Authority, especially by expanding the Large Tax Payers Department;
(ii) To implement the new Income Tax Act, 2004 and to complete the review of all tax-related legislature with a view to improving them;
(iii) To commence implementation of the East Africa Customs Union Protocol;
(iv) To realize revenue from the sale of gas from the Songo Songo project. Gas is expected to begin flowing from July 2004;
(v) To continue rationalization of the tax structure so as to improve tax efficiency as well as to create incentives for select sectors in order to accelerate GDP growth;
(vi) To strengthen revenue collection in Ministries and Departments, particularly those under the retention scheme;
(vii) To closely monitor trading of petroleum products including the introduction of Flow Meters at the port in order to thwart tax evaders. Flow meters are expected to be installed in July 2004;
(viii) To continue the Treasury Voucher/Cheque System and to examine the possibility of including goods imported under donor-funded projects;
(ix) To improve TRA’s performance by increasing technology usage, improving staff incentives, training and good service delivery to taxpayers;
(x) Beginning July 2004 inspection of imported goods will be conducted at the point of destination rather than the current practice of pre-shipment inspection. This approach will make the business environment more conducive, will eliminate the harassment faced by importers and will improve the investment climate;
(xi) To increase working hours for Customs so as to reduce the backlog of goods in the port. All organs that provide customs related services will be required to collaborate closely with the Customs Department to ensure that this change is successful;
(xii) The exercise of rationalizing the provisions of the 1997 Investment Act which require amendments to close tax loopholes has begun;
(xiii) A Committee has been created to review the policy, legal, and fiscal regime governing investments in the mining sector with a view to recommending measures that will ensure that the government gets its rightful share of revenue.
36. Mr. Speaker, it is widely recognized that foreign aid is not the best way to develop a stable and sustainable economy. Nonetheless, during this period when we are implementing economic and social reforms to eradicate poverty, the contribution of development partners is an invaluable asset to our Government. Our right policies and good economic management have convinced development partners to continue to extend support through the budget. As I stated earlier, it is important to use this opportunity effectively to ensure that the support is used properly to generate the intended output and results as has been the case in many Asian countries. The Tanzania Assistance Strategy (TAS) will continue to guide us in this endeavour to ensure effectiveness of aid.
37. Mr. Speaker, based on the consultations
that we have had with the development partners and international financial
institutions, during the fiscal year 2004/05 we expect to receive grants and
concessional loans totaling (Tshs 1,367,025 million)
equivalent to 41 percent of total Government expenditure; out of which Tshs 509,140 million is budget support, and Tshs 857,885 million for development projects. This level
of grants and loans represents an increase of Tshs
191,204 million or 16 percent over this fiscal year 2003/04. We expect that
development partners will maintain their support to
38. Mr. Speaker, the Government intends to draw down its reserves with the Bank of Tanzania and to borrow from the domestic financial market by issuing short and long term securities a total of Tshs 231,110 million. These borrowings shall be largely used to settle maturing obligations, that is, roll-over and to pay for other debts arising from agreements. A portion will also be used to fund the export credit guarantee scheme.
39. Mr. Speaker, during the fiscal year 2004/05, the Government is committed to continue to enforce fiscal discipline. Further, the Government will continue to strengthen the Integrated Financial Management System, to be complemented by expansion of the computerization system until it reaches the Local Government level.
40. Mr. Speaker, the budget allocation for 2004/05 has taken into account the following:
(i) More attention to priority sectors in line with the Poverty Reduction Strategy. However, in view of the new financing needs associated with the forthcoming General Elections, and requirements of the energy sector particularly for electricity, the additional allocation to the poverty reduction sectors will not be robust, except for those sectors that receive substantial external financing.
(ii) Allocation for defraying transport cost for fertilizer to the selected regions has been maintained in 2004/05 budget.
(iii) The cash budget system will be maintained and improved.
(iv) Additional allocation has been made to the Export Credit Guarantee Scheme (ECGS) and the Credit Guarantee Scheme for Small and Medium Sized Enterprises (CGS-SME);
(v) Agricultural development initiatives at district level targeting at least one food crop and one cash crop will continue to be supported through budget allocation.
(vi) In recent years Government has moved to allocate own funds for construction of major roads considered strategic for development. During 2004/05, this strategic approach will be maintained and enhanced to ensure that contracts that have been entered into with contractors are respected, and the road projects are completed on schedule.
(vii) The Government will continue to implement its pay reform policy for civil servants, so as to reach 4.8 percent of GDP targeted under the policy. Further, the Government is soon to finalise a specific framework for processing salary adjustment arrears, including those for teachers. Payment of these arrears was suspended on account of fraud that was uncovered a year ago involving a few untrustworthy civil servants. Investigation is almost complete and legal action is underway against the perpetrators.
(viii) The Government’s policy is to implement large projects in phases depending on availability of funds. First priority is placed on projects that have legal agreements or agreements with development partners.
(ix) The budget continues to allocate 4.5 percent of proceeds from non-project grants to the Government of Zanzibar. This policy will continue until the final recommendations are received from the Joint Finance Commission and adopted by Government.
(x) During 2004/05, the Government will restore to the Pension registry those retirees who had received their pensions in lump-sum. These retirees are expected to begin receiving pension payments from January 2005 so as to allow for amendment of the relevant law.
(xi) In view of the recent increase in incidences of crime and other offences, and in preparation for forthcoming general elections the budget for 2004/05 has enhanced allocation for national security agencies.
(xii) During 2004/05, additional resources have been allocated for emergency food supply in the event of adverse weather conditions and for Strategic Grain Reserve.
(xiii) The budget for 2004/05 has allocated funds to meet emergency power supply requirements of TANESCO, as well as in support of TANESCO in meeting contractural capacity charge payments in respect of IPTL and Songas.
(xiv) In light of the anticipated increase in the number of Parliamentarians after the General Elections next year, Social Security Funds have agreed on their own accord to construct Parliament Chamber under a Build-Lease-Transfer (BLT) model. For this reason, this project is not in the budget for 2004/05. The Government is considering applying this model to other large projects including road construction.
(xv) Cognisant of the importance of sports, the budget for 2004/05 has allocated funds for the construction of a modern sports complex. The bulk of the project cost will be covered by Chinese Government grant.
(xvi) Transfers (grant) to the District Councils during 2004/05 is based on a new formula that has been developed following broad consultation with stakeholders. The new formula has been applied in the allocation of recurrent expenditure for the health and education sectors at the district level, and for all sectors at district level in respect of development budget. The new formula addresses the concerns of the Honourable Members of Parliament regarding equitable distribution of resources across regions and districts. Detailed description will be provided by the Minister of State – President’s Office, Regional Administration and Local Government when he tables the budget for his Ministry.
THE STRUCTURE OF 2004/05 BUDGET ESTIMATES
41. Mr. Speaker, As I mentioned earlier, the Government aims to collect domestic revenue totaling Tshs. 1,739,288 million in fiscal year 2004/05 under the current tax structure and with the proposed amendments to the tax structure. This level of revenue represents 13.8 percent of GDP. The Government also aims to enhance its domestic revenue by Tshs.10,115 million sourced from the sale of shares in various companies of which Government is a shareholder.
42. Mr. Speaker, the Government plans to spend a total of Tshs.3,347,538 million during fiscal year 2004/05. Given domestic revenue projection of Tshs. 1,739,288 million, and proceeds from the sale of Government shares worth Tshs. 10,115 million, the budget would have a financing gap of Tshs 1,598,135 million. This financing gap will be covered largely by grant aid from bilateral donors, and the European Union and concessional loans from the International/Regional Financial Institutions, specifically the World Bank and the African Development Bank. Based on the agreements reached between the Government of Tanzania and the development partners, we expect to receive grants and concessional loans equivalent to Tshs 1,367,025 million during 2004/05. Therefore, the financing gap shrinks to Tshs 231,110 million. This gap will be met by drawing down reserves with the Bank of Tanzania and through issuance of government securities in the domestic financial markets.
43. Mr. Speaker, I have explained at length achievements recorded in the fiscal policy area arising from measures taken by the Government to increase efficiency in tax collection and curb tax evasion. I also have explained Government’s intention to see to it that productivity in agriculture is enhanced as a means to improve rural incomes as well as to increase food production and exports. The Government will take additional measures this coming fiscal year, with a view to providing more incentives that would induce medium-scale and large investments in this sector to effectively utilize the land which is at the moment not fully utilized and enhance employment in the rural areas. The focus is also on increasing productivity for industries producing farm implements and agro-processing industries. The additional measures are as follows;
(a) Large scale agriculture and livestock farming:
First: In the Income taxation, 100 % capital deduction will be allowed on plant and machinery for agriculture in the year the capital is put into operation. This deduction will include irrigation system and machinery. The purpose of this measure is to increase investment in agriculture technology.
Second: Under stamp duty taxation, a flat nominal amount of shs.500 will be charged on conveyance of agricultural land. The purpose of this measure is to reduce transaction costs on conveyance of ownership of agricultural land
Third: The Skills and Development Levy, will be abolished in respect of employment in agricultural farming.
(b) Small-Scale Farmers and Livestock Farming.
Measures adopted last year aiming at improving the incomes of farmers including small-scale livestock farmers need to be implemented effectively. I would like to make a reminder that, District Councils, Town Councils, Municipal and City Councils, are allowed to collect only those local government taxes and fees stipulated in the Local Government Finance Act as amended in 2003. Furthermore, Local Authorities are reminded that there is a 5% cap of farm gate price charged as agricultural produce cess and that the cess is applicable only within the borders of the District from which the crops have been produced. Further, it has been observed that some Local Authorities are charging numerous new contributions on the agricultural produce under pretext that they are voluntary contributions. It should be emphasized that such contributions can be allowed only if villagers are involved in deciding on the arrangements and such contributions should be for special projects that are implemented within the location of the village concerned, based on villagers own initiative.
(c) Industries producing agricultural implements and fishing gears.
As agricultural inputs and fishing gears are exempt from VAT, local producers of these products are facing unfair competition from imports. In order to resolve this problem, the Government proposes to include these products in the zero-rated supplies category when these products are sold by local producers so as to enable local producers to reclaim input VAT on agricultural inputs and raw materials. This measure will improve the investment environment associated with the production of agricultural implements.
(d) Industries producing Agricultural and fish products.
In addition to measures under the Income Tax Act:
First: It is proposed that wine and brandy produced from locally grown
grapes be exempted from excise duty. The
purpose of this measure is to expand the local market for grapes so as to
increase production of this crop particularly in
Second: It is proposed to exempt black tea and packaged tea from VAT so as to enhance its competitiveness following liberalization of the tea market in the EAC context. The main objective is to protect incomes of small and medium scale farmers in tea production.
EMPOWERMENT OF SMALL AND MEDIUM SIZE ENTERPRISES:
44. Mr. Speaker, another area which will be given focus in this budget is the Small and Medium size businesses (SMEs). It is clear that in terms of employment creation after agriculture, follows the small and medium size enterprises. The agricultural sector has a very important role to play in the poverty reduction strategy. Another focus of this budget is to improve the business climate in order to create conducive environment for the growth of small and medium size enterprises.
45. Mr. Speaker, currently, SMEs with sales turnover of less than Tshs. 20 million per annum are paying two types of taxes to TRA; stamp duty on receipt, and presumptive income tax. These taxes are assessed on the basis of value of sales. In order to reduce compliance costs for such businesses it is proposed to abolish stamp duty on receipt, and increase the presumptive income tax rates to partly compensate the loss resulting from this measure. The proposed new annual rates of presumptive income tax are as follows:
Sales turnover (Tshs.)
Tax payable where sufficient records are kept to demonstrate turnover band
Tax payable where records are not kept to demonstrate turnover
0 - 3,000,000
1.2% of turnover per year
Tshs.35,000 per year
3,000,001 - 7,000,000
Tshs.35,000 plus 1.5% of turnover in excess of Tshs.3,000,000 per year
Tshs.95,000 per year
7,000,001 – 14,000,000
Tshs.95,000 plus 2.8% of turnover in excess of Tshs.7,000,000 per year
Tshs.291,000 per year
Tshs.291,000 plus 5.0% of turnover in excess of Tshs.14,000,000 per year
Tshs.589,000 per year
Apart from reducing the overall tax burden, this system will provide incentive for better record keeping among small businesses and build confidence of lenders for them to borrow. Furthermore, if the small individual businesses keep records on income and expenses to a standard satisfactory to TRA, they will file returns and be assessed on their profits rather than their turnover, which is fairer.
46. Mr. Speaker, It is also proposed to increase the threshold at which VAT registration becomes compulsory from Tshs. 20 million to Tshs.40 million per annum. The purpose of this measure is to remove small businesses from the VAT threshold taking into account compliance and administrative costs involved in the collection of this tax. However, businesses below the new threshold may still register if they wish to do so but will have to satisfy TRA conditions on compliance. This measure will lower compliance costs for small businesses and administrative costs for TRA. If this reform becomes successful in terms of revenue enhancement, the government will consider reducing the VAT rate. The lowering of VAT by two percentage points (2%) only will result in revenue loss of shs.59,000 million which will have serious impact on the budget.
47. Mr. Speaker, the third proposal aimed at improving business environment and removing impediments in business undertakings, particularly the small and medium size enterprise sector is on business licensing under the Business Licensing Act of 1972. Given that business licenses are intended to play a regulatory role and not as a source of revenue, the following measures are proposed.
First: To abolish business license fees for hospitals, dispensaries and health centres operated by religious organisations to allow expansion of health services delivery by these organisations.
Second: To abolish business license fees charged under the Business Licensing Act, 1972 for businesses with a turnover of less than Tshs.20 million per year in order to reduce costs of establishing businesses for both youth and small entrepreneurs. These businesses will be provided with business licenses and no license fees will be charged.
Third: All businesses with a turnover exceeding shs.20 million will pay a license fee of shs.20,000/= only, and this measure is intended to reduce costs of establishing business and create a conducive environment for transforming many businesses into the formal economy.
Fourth: To abolish license fees charged under the Business Licensing Act of 1972 where a business is regulated by another law in a specific sector in which it is provided, (for example banking; insurance, hotels e.t.c). It is important again to underscore the point that the objective of a license is to supervise businesses and not raising revenue.
Fifth: Business license under the Business Licensing Act be issued only once when a business is established and not every year. District Councils, Town Councils, Municipals and City Councils will be required to prepare and provide accurate statistics on business licenses to the relevant authorities whenever they are asked to do so. Given that business operators are also required to register their businesses with TRA through the Tax Identification Number (TIN), there is no need for them to renew business licenses every year.
Six: In addition to these measures related to taxes and other levies, I would like to repeat what I said earlier that the Small and Medium Enterprises Credit Guarantee Scheme which was established this fiscal year, has been allocated an additional of Tshs.1,500 million in this budget. The regulations and administrative procedures for the management of this scheme have been finalized, and the scheme will be operational soon.
48. Mr. Speaker, Further to the measures enlisted above intended to lift agriculture, small and medium size businesses, the Government is proposing yet a number of new measures in the tax structure as follows:
(i) The Income Tax Structure
As you are aware, the New Income Tax Act (2004) which was
passed by the Parliament in April this year will be effective from
(ii) The Value Added Tax Structure
(a) In order to allow domestic producers to be refunded VAT paid on raw materials, it is proposed to transfer the following items from the VAT exemption schedule to VAT zero rating schedule. These are pharmaceuticals, veterinary drugs, mosquito nets and articles for blind and disabled persons.
(b) To amend the tax exemption regime for those with tax exemption on vehicles so as to include vehicles, which are in HS Code 8703, 8702.10.20 and 8702.90.20 which are vehicles with engine capacity of cc 3000 or above.
All changes proposed in respect of Value Added Tax (VAT) are expected to reduce Government revenue by shs.4,954 million.
These new measures which I have just mentioned are aimed at improving the agricultural and business sectors and enable our people particularly those in the low income band to join the formal economy and be able to earn more income and reduce poverty among themselves. Furthermore the reforms in business license fees structure responds to concerns of investors both domestic and foreign, and donors, including religious NGOs which are offering social services in this country.
(iii) THE STRUCTURE OF EXCISE TARIFF
Mr. Speaker, it is proposed to make some amendments in the area of excise tariff as follows:-
First, It is proposed to adjust for inflation, the specific excise duty rates on the following products:-
One: Carbonated soft drinks, from the current rate of shs.37.50 per litre to shs.40.00 per litre.
Two: Beer, from the current rate of shs.232.00 per litre to shs.243.0 per litre.
Three: Wine produced with less than 75 percent
content of locally grown grapes from the current rates of shs.743.40 per litre to shs.780.00 per litre.
Four: Spirits from the current rate of shs.1,102.50 per litre to shs.1,158 per litre.
Five: Cigarettes containing tobacco of length not exceeding 70 millimetres, with domestic tobacco content exceeding 75 percent, from the current rate of shs.3,781.05 per 1000 cigarettes to shs.3,970 per 1000 cigarettes.
Six: Cigarettes containing tobacco of length equal to 70 millimetres or more, with domestic tobacco content exceeding 75 percent from the current rate of shs.8,920.30 per 1000 cigarettes to shs.9,367 per 1000 cigarettes.
Seven: Other cigarettes containing tobacco not
mentioned in Five and Six above from shs.16,206.75 per 1,000 cigarettes to shs.17,017 per 1,000 cigarettes.
Eight: Cut rag/filler from the current rate of
shs.8,183.70 per kilogramme to shs.8,593 per kilogramme.
Nine: The excise tariff on Cigar remains at 30 percent ad-valorem.
Second: It is proposed to impose excise duty on
Satellite Televisions broadcasting
(DSTV) at a rate of 5% of retail selling price on provision of such services.
Lastly, Exemption on excise duty on vehicles for
eligible beneficiaries is amended to include vehicles under HS Codes 8703, 8702.10.20 and 8702.90.20 with engine capacity of cc 3000 or above.
The reforms in excise tariff will increase government revenue by shs.6,143 million per year
(iv) Local Government Finance Act
Mr. Speaker, It is proposed to make an amendment in the Local Government Finance Act in order to give authority to Local Authorities to collect royalty on gypsum, pozolana and lime which are used as raw materials in industries.
(v) Business License Fees Collected by Ministries and Government Departments:
Mr. Speaker, All the measures that I have outlined in this area will have adverse impact on government revenue by shs.14,000 million, which encompasses shs.11,200 million for District Councils, Town Councils, Municipals and City Councils, and shs.2,800 million for the Ministry of Industries and Trade. This budget has allocated funds to compensate the Local Authorities and Ministry of Industries and Trade for the full amount as estimated by themselves.
(vi) Visa Fees and Issuance Procedures
Mr. Speaker, currently,
(a) The Business Visa Fee be reduced from USD200 to USD50, in order to improve investment and tourism climate.
(b) New system of Visa administration be introduced whereby “Visa Stickers” will be used instead of stamping the passports, to protect government revenue.
Both these measures are estimated to generate shs.19,823 million in additional revenue.
(vii) The Customs Tariff Structure:
Mr. Speaker, three amendments are proposed in this area:
(a) The Customs tariff structure
will change following the coming into force of the East African Customs Union
Protocol signed in March 2004. These changes include elimination of customs tariffs on goods originating from the
Partner states, on a phased basis and
introduction of Common External Tariff on
goods originating outside the East African Community. Principles
and procedures relating to Customs will be harmonised
across Partner States, although each State will administer the customs and
collect customs duty in their respective
countries. The protocol on the East
African Customs Union will be
implemented after the ratification by the
Parliaments of the Partner States. It is
expected that the Customs Union will
be operational with effect from
(b) In accordance with the East African Community, Customs Union Protocol suspended duties that are currently imposed on some imported products will be abolished, except for goods that have been agreed by the Partner States in the context of the Protocol. This measure will have negative revenue impact of shs.4,811 million for the year 2004/05.
(c) Exemption of Import Duty for eligible beneficiaries is amended to include vehicles under HS Codes 8703,8702.10.20 and 87.90.20 with engine capacity of cc3000 and above.
Altogether, the measures on the Customs Tariff are estimated to generate new revenue to the tune of shs.1,138 million during the fiscal year 2004/05.
It is proposed to make amendments to various tax laws with the objective of updating them and simplifying their administration as follows:-
a. Income Tax Act
b. Value Added Tax Act
c. Customs Tariff Act
d. Excise Tariff Ordinance Act
e. Stamp Duty Act
f. Business Licensing Act
g. Local Government Finance Act
h. Vocational Education and Training Act
i. Gaming Act
Such amendments will have neutral effect on revenue.
Unless otherwise stated, all revenue
measures shall become effective from
The effect of proposed tax measures for 2004/05
49. Mr. Speaker, the objectives of the proposed tax measures are to provide conducive environment for economic growth, employment and poverty alleviation and to widen the tax base. Some of the measures will have positive revenue impact while others will have adverse impact on revenue. Overall however, the combined effect of the measures will be revenue-neutral.
Revenue Increase/Decrease (shs. millions)
The Excise Tariff Structure
The Income Tax Structure
The Customs Tariff Structure
The Stamp Duty Structure
The Development Levy Structure
The Business License Structure
The Visa System
THE STRUCTURE OF 2004/05 BUDGET ESTIMATES
50. Mr. Speaker, in line with fiscal policies forming the basis of the budget frame explained above, the structure of the budget for 2004/05 will be as follows:-
Revenue Tshs. Million
A: Domestic Revenue 1,739,288
(i) Tax Revenue 1,603,886
(ii) Non-Tax Revenue 135,402
B: Foreign Loans and Grants 1,367,025
D: Drawdown on reserves
including domestic financing 231,110
E: Recurrent Expenditure 2,239,000
(i) Public Debt 481,175
(ii) Ministries (sector ministries) 1,293,467
(iii) Regions 33,473
(iv) Local Governments 386,768
(v) Special Expenditure 44,117
(a) Wages (MDA) 6,000
(b) Wages (Central Govt.) 32,699
(c) Transport escrow account 561
(d) Anticorruption drive 857
(e) Retrenchment 4,000
F: Development Expenditure 1,091,590
(a) Domestic Resources 233,705
(b) External Resources 857,885
G: Contingent Proper 16,948
Total Expenditure 3,347,538
51. Mr. Speaker, the 2004/05 Budget has been developed in the context of the government’s reform programme with a view to implementing the following strategies:
(i) The objectives of the CCM Election Manifesto of 2000
(ii) The National Development Vision 2025
(iii) The Poverty Reduction Strategy (PRS)
(iv) The macro-economic policies and targets for 2004/05
52. Mr. Speaker, as I have stated above, the agriculture sector has potential to create jobs to the majority of the population if necessary steps are implemented to revolutionalise it. The Government has done what is in its reach given the available resources, and it is now the turn of the public and investors both local and foreign to respond to develop this sector. Equally important is manufacturing sector which has the potential to contribute to GDP growth, employment creation, and exports. Success will only be achieved through affirmative action towards promoting economic growth. This budget is therefore focusing on building further the foundation for small and medium size enterprise sector businesses to grow and fill the obvious gap that exists in the economy.
53. Mr. Speaker, all in all, success in economic development and poverty eradication will only be achieved when we are able to connect our country through infrastructure, involving roads, railway, communication and energy. Second we need to create capacity in professional competencies that are essential in this era of globalization. Third, given that, the majority of the people lives in rural areas and depend on agriculture for their food supply and employment, it is crucial that our strategy for raising agricultural output is more focused and create backward and forward linkages with industry and commerce so that the sector is transformed into a modern sector. Perhaps we need to re-examine our priorities in order to determine areas that we should focus on, for getting maximum return on the use of the meager resources that we have. This could be done by way of selecting a few areas first instead of spreading our little resource base so widely without significant impact. I would be happy to receive advice from Honourable Members of Parliament on this idea during the deliberations of this budget proposal.
54. Mr. Speaker, this Budget is a continuation of the programme of reform of the third phase Government aimed at attaining the goals of the Vision 2025, notably eradication of poverty. It is aimed at consolidating the gains attained in macroeconomic stability, and creating conditions for accelerating economic growth, enabling environment for self employment, and self-prosperity and advancement. It provides equal opportunities for all to improve their conditions for higher productivity especially in agriculture and small scale businesses. It is an enabler for those individuals who have taken the first step to self employment and self economic empowerment to move forward by eliminating red tape, providing them with guarantees so that they may be bankable and obtain credit from banks, reducing the burden of tax, and cumbersome repetitive licensing requirements, removing the hurdles of overregulation, and many others. It is envisaged that Honourable Ministers will expound on these issues when they present their sector policies and strategies and announce more sectoral measures to enable Tanzanians to achieve self economic and social advancement. Mr. Speaker, notwithstanding these measures, it should be noted that universally there is no government that can deliver wealth and prosperity to households on a silver plate. Wealth at household level is created by the Household members while the wealth of a Nation is the aggregate of the contributions of Households. The Government will therefore continue to improve the conditions for enabling those determined and eager to bring wealth to their families and the Nation as a whole to do so. I am pretty sure that, Honourable Members of Parliament understand what I am saying and I hope they will support this budget through their individual votes.
55. Mr. Speaker, I beg to move.