我国大企业税收专业化管理问题研究
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摘要
从世界经济发展史看,一个国家的经济发展,实现工业化、现代化,提高综合国力、经济实力,依赖于大企业。作为国民经济增长的重要推动力,大企业能够大规模地利用生产资本,如原材料、机器设备、人力资源及技术知识,创造了大量的物质财富和精神财富。目前经济全球化的进程越来越快,在世界经济竞争中,大企业的地位和作用也越来越重要,大企业的数量和质量已经成为一个国家综合国力和经济实力的标志。与一般企业相比,大企业的组织结构复杂、分支机构众多、跨国或跨区域交易频繁,而且其所缴纳的税款往往在国家整体税收收入中占据相当大的比重,大企业历来为各国政府及税务机关所重视。特别是二十世纪九十年代以来,随着纳税人数量的增加,尤其是信息技术的发展,大多数发达国家和部分发展中国家税务机关的组织结构有一个明显的变化趋势,即从税种管理演变为功能管理,并进一步向纳税人分类管理过渡,特别是组建了大企业税收管理机构,对大企业实施专业化管理。大企业税收管理实践问题开始受到各国税收专家的关注。1994年澳大利亚率先建立大企业与围际税收管理局,英国、美国、新西兰、荷兰等经济合作与发展组织(Organization for Economic Co-operation and Development,简称OECD)成员国先后建立了类似机构。在OECD、国际货币基金组织(International Monetary Fund,简称IMF)等国际组织的倡导下,一些发展中国家也建立了大企业税收管理机构。设立此类机构的50多个国家和地区的税收征管效率都得到了大大提高,而且有更多国家跟进的趋势。同时,各国大企业税收管理机构的征管职能存在较大的差异,在征管的税种、征管的工作内容方面都各有特点。研究分析国外设立大企业税收管理机构的理论基础和实践经验,对于我国税务机关管理好在华的跨国公司和实施“走出去”战略并快速发展的我国大企业和集团企业来说,无疑会具有很多有益的经验借鉴。
     当前我国正处于转变经济发展方式的重要时期,大企业要发挥经济社会发展的支柱作用,成为促进改革发展稳定的重要基础。我国大企业在发展中还存在诸多问题,如国有及控股企业处于绝对主导地位,效益和效率低于民营企业,垄断性资源依赖程度高,跨国经营、应对外部冲击能力弱,等等,以至于大企业对于我国实现转变经济发展方式,扩大内需和大国崛起的支撑作用还没有完全发挥出来。税收政策作为宏观经济调控的重要工具,要遵循公平、效率的税收原则,积极发挥税收职能,提高税收管理水平,保证大企业的稳定健康发展,促进经济结构战略性调整和长期平稳较快发展。在我国现行税制下,大企业税收集中度很高,而且经营范围广泛,涉税事项复杂,避税、逃税手段多样,税收风险很大,直接危及国家财政安全。国家税务总局已经认识到中国大企业的特点以及大企业管理部门的作用,成立了大企业税收管理司,并积极探索“税企双赢”的税收管理手段和措施。目前各个省市陆续成立了大企业税收管理部门,但在大企业标准、机构设置、税收管理和纳税服务方法处于探索阶段,而且在机构设置上存在交叉和重叠,在税收管理手段上落后于大企业税收风险状况。目前,税务风险管理和纳税服务专业化已成为绝大多数国家提高纳税遵从、控制税收流失的重要管理手段。因此,研究中国大企业税收风险管理和纳税服务专业化,提高中国大企业的税收遵从度,保证国家财政收入,对促进我国转变经济发展方式和实现改革发展稳定具有重大意义。
     在研究大企业税收专业化管理问题过程中,本文遵循了从抽象到具体、从理论研究到实践探索的思路,采取了理论分析与实证分析相结合,定性分析与定量分析相结合的研究方法。本文共分六章,第一章为导论,主要阐述了本文的研究背景和研究意义,总结分析了国内外研究学者在大企业、大企业税收管理、税收专业化管理、税收风险管理和纳税服务等方面的相关研究,介绍了论文的框架结构、创新和不足。第二章为大企业税收专业化管理的理论分析,本章首先解读了‘大企业”,阐释了大企业的一般性理解、衡量标准,通过研究分析认为大企业是市场经济的必然选择,而大企业的特性又决定了政府提供公共服务和实施公共管理的难度。然后运用税收遵从理论分析了大企业的税收不遵从行为,论述了税收专业化管理和大企业税收管理之间的关系,理清了与大企业税收管理相关的概念。其后运用税收风险理论分析了大企业税收风险的应对,最后运用新公共管理、客户关系和纳税服务等理论论述了个性化纳税服务是大企业税收专业化管理的必然要求。第三章为国外大企业税收专业化管理的比较与借鉴,本章首先对国外大企业税收专业化管理的起源、发展、趋势做了概述,然后分大企业的认定标准、管理机构和职责、管理方法和措施三个方面进行了比较分析,并进行了一般性总结。第四章为我国大企业税收管理现状及问题分析,首先阐述了我国大企业的发展状况以及特殊性,然后对我国各个时期的征管模式下大企业税收管理的实践探索进行了回顾并做了扼要分析。最后通过分析我国大企业税收专业化管理的问题,即当前我国大企业存在较高的税务风险和税务机关在大企业税收管理上存在着缺失。第五章为大企业税收专业化管理的实现路径与策略,本章首先给出了我围大企业税收专业化管理的一般路径,特别是着重对我国大企业税收管理中的标准和机构设置提出了富有建设性的改革建议。然后运用税收遵从理论和风险管理理论设计了大企业税收风险管理基本流程、方法以及应对策略。最后运用新公共管理理论和客户关系理论分析了大企业纳税服务需求,对税务机关为大企业提供集约化、个性化的纳税服务提出了建议。第六章为大企业税收专业化管理的案例研究,本章采用案例研究方法阐释了大企业税收风险管理基本流程和方法的应用,分析了某制药有限公司存在的税收风险,最后提出了税收遵从建议报告。
     本文的研究对丰富大企业税收管理和纳税服务的理论和实践具有一定意义。从理论上看,一方面本文的研究可以丰富税收征管理论。通过客观总结国外大企业税收专业化征管理论和实践经验,对我国当前大企业税收专业化管理探索提供了税收风险管理实证研究样本,深化了税收征管理论内涵,另一方面本文的研究可以丰富纳税服务理论。通过运用新公共管理、客户关系和纳税服务理论分析大企业纳税人的需求,总结一般性结论,拓展了纳税服务理论内涵,并提出了为大企业提供集约化、个性化的纳税服务策略。从实践上看,本文的研究可以为税收机关开展大企业税收管理和纳税服务提供理论依据和操作方法。本文设计提出了大企业税收风险管理的基本流程和方法,采用案例研究通过对某大企业的风险识别和评估,并提出了大企业税收遵从建议报告。
     大企业税收专业化管理的内容相当广泛,不仅包括税源管理和纳税服务,还包括税收政策管理、税收执法管理等。本文对大企业的税收政策管理(如转让定价、重组兼并、汇总纳税等等)有所探讨,但没有深入地进行理论分析和实证研究,有待进一步探讨,从而形成更为完整的大企业税收管理体系。
From the perspective of world economic development, large business play important functions for countries economic development. The realization of modernization, industrialization, and improvement of economic strength mainly depend on the large business. As the promotion for national economic improvement, large business utilized the production capital on a large scale to create a lot of material and spiritual wealth, such as raw materials, machinery and equipment, human resources and technical knowledge. With the accelerated process of economic globalization, the status and role of large business in the world economic competition is more and more important, accordingly, the number and the quality of large business is increasingly becoming the mark of economic strength of a country. Compared with the common enterprises, large business have been paid more attention by governments and tax authorities, because its complex structures, branches organization, the frequent cross-border or cross-regional transactions and the amount of tax which they paid take a large proportion of overall tax revenue. Since the1990s, with the increasing of taxpayers and development of information technology, the organizational structure of tax authorities in most developed and some of developing countries has the obvious changed, that evolved from taxes management to functional management, and transformed to taxpayers classified management, especially, the establishing of large business tax administration agencies and begging to professional management to large business. The practice of large business tax management has gotten the attention by the national tax experts. On1994, Australia take the lead in establishing large business and the International Tax Authority, then the United Kingdom, the United States, New Zealand, the Nehterlands and other OECD countries have established the similar institutions. Under the advocate of the OECD, IMF and the other international organizations, some developing countries also established a tax professional management of large business. Present, there are more than50countries and regions set up the large business tax management agencies in the world, and the tax collection efficiency in these countries has greatly improved and more and more countries begin to follow. Furthermore, there are great difference in large business tax management agencies and tax collection and management function for different countries. And they have their own characteristics in collection and management of taxes, collection and management work. Study on the foreign large business tax administration theoretical basis and practical experience can give us more useful experience for reference and is favorable to our tax authorities for better implement of "going out" strategy and rapid development of china's large business and conglomerates.
     Now, our country is in an important period of transformation of economic development. The large business played a pivotal role in the social economic development, and have become an important foundation for promoting reform, development and stability. However, our large business still exist many problems, such as state-owned and controlled enterprises play an absolute dominance, effectiveness and efficiency is lower than private enterprise, highly dependent on the monopolistic resources and the weak ability to cope with external shocks, etc. That result in the function of large business has not been taken full advantage use in our country to achieve the transformation of economic development, expanding domestic demand and the supporting role of great country rising. Tax policy as an important tool of macroeconomic regulation and control should follow fair and efficient tax principles, actively play a tax functions and improve the level of tax administration to ensure a stable and healthy development of large business, promote the strategic adjustment of economic structure and long-term, stable and rapid development. Under our current tax system, large business has highly tax concentrated, wide range of business, complexes tax related matters, tax avoidance and evasion various. These will direct threat to the national financial security. Fortunately, the State Administration of Taxation has realized the role of large business, and established the Enterprise Taxation Management Division, and actively explores the tax administration methods for both of tax and enterprises benefits. Various provinces and municipalities have set up the large business tax administration department, but the standard of large business, establishment of institution, tax administration and method of revenue service has till in exploratory stage, furthermore in institutional settings exist cross and overlap and the method of tax administration is simple. Presently, tax risk management and tax professional service have become an essential management tool to improve tax compliance and control the loss of tax revenue in many countries. Therefore, research on the large business tax risk management and tax professional service can improve tax compliance of Chinese large business and ensure the state revenue, which is important to promote the transformation of economic development and achieve the reform of stable and development.
     In this study the methods were employed from abstract to concrete, from theory to practice. The theoretical analysis, empirical analysis, qualitative and quantitative analysis methods were mainly adopted. This article is divided into six chapters. The first chapter is an introduction, mainly introduced the background and significance of this study, and reviewed the foreign relevant researches about the large business, the large business tax management, tax professional management, tax risk management and revenue service,, and provided the frame structure, innovations and deficiencies of this paper. The second chapter is the theoretical analysis of large business tax professional management. The definition of "large business" and its characteristics and standards were provided. The relationships of large business and economics development were discussed. Thus the meaning of tax management and tax professional management were provided and their relationships were reviewed. Further, use tax compliance theory to analyze the large business tax non-compliant behavior, and use tax risk theory to analyze the response of large business to tax risk. Finally, the large business tax professional services were discussed using the theory of new public management, customer relations, and tax services etc. The third chapter was the compared and reference of foreign large business tax management and practices. The origin of the foreign large business'tax management, developments and trends were reviewed from the standard of large business, institutional arrangements and responsibilities and management method three aspects to compare the large business characteristics and make a general summary. The fourth chapter was realistic analysis of the tax professional management of large business in China. The development state and particularity of China's large business were analyzed. Then, the large business tax management practices were reviewed under the various periods of tax collection and management mode. Finally, the necessity of professional management of our large business tax were discussed by analyzing that the large business exist the higher tax risks and exist of tax authorities in large business in China. The fifth chapter was measurement and suggestions of the professional management of large business tax management. First, the general process of the tax professional management of large business was provided in China. The constructive reform proposals about China's large business standards and institutional settings were also provided. Then use the tax compliance theory and the theory of risk management to design large business tax risk management processes and methods. Finally, using the new public management theory and client relations theory to analyze the service needs of large business, and give the advices to the tax authorities for revenue service to intensive, personalized tax service. The sixth chapter study on the large business tax professional cases. This chapter illustrates the large business tax risk management basic procedure by cases study method through analyzing one of Pharmaceutical Co., Ltd. existed tax risk and provided the tax compliance report.
     This research is significant to enrich large business theory and practice of tax management and tax services. In theory, on the one hand, this study can enrich the theory of tax collection. From the objective review the foreign large business tax management practice, can provide study samples for exploring the large business tax management in our country and deepen the theoretical connotation of the tax collection. On the other hand, this study can enrich tax service theory. Analyzing the needs of taxpayers through using the new public management, customer relation and tax services theory and summed up the general conclusions of large business taxpayers demand can expand the theoretical connotation of tax service and. From a practical, this study can provided the theoretical basis and methods of operation for tax authorities to carry out large business management and tax services. And at last one of strategy were proposed for large business to provide intensive and individualized revenue service. From a practical, this study can provided the theoretical basis and methods of operation for tax authorities to carry out large business management and tax services. This paper designed the basic procedure for large business tax risk management. Cases were used to study on the risk identification and assessment of one of large business and provide the report of large business tax compliance.
     The content of large business tax management is very rich. It is not only include tax sources management and revenue service but also include the tax police management and law enforcement management of tax. Although, this paper has mentioned the large business tax management police (such as transfer pricing, annexation and reorganization, consolidated tax payment), the theory analyzing and empirical research still need to deeply discuss, and to form the complete tax management system for large business.
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