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Exploring the Roots of Systematic Tax Avoidance in Greece: Business, the Tax System and Tax Conscience, 1955–2008 1st Edition Zoi Pittaki full chapter instant download
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PALGRAVE STUDIES IN ECONOMIC HISTORY
Series Editor
Kent Deng, London School of Economics, London, UK
Palgrave Studies in Economic History is designed to illuminate and enrich
our understanding of economies and economic phenomena of the past.
The series covers a vast range of topics including financial history, labour
history, development economics, commercialisation, urbanisation, indus-
trialisation, modernisation, globalisation, and changes in world economic
orders.
© The Editor(s) (if applicable) and The Author(s), under exclusive license to Springer
Nature Switzerland AG 2021
This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights
of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on
microfilms or in any other physical way, and transmission or information storage and
retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology
now known or hereafter developed.
The use of general descriptive names, registered names, trademarks, service marks, etc.
in this publication does not imply, even in the absence of a specific statement, that such
names are exempt from the relevant protective laws and regulations and therefore free for
general use.
The publisher, the authors and the editors are safe to assume that the advice and informa-
tion in this book are believed to be true and accurate at the date of publication. Neither
the publisher nor the authors or the editors give a warranty, expressed or implied, with
respect to the material contained herein or for any errors or omissions that may have been
made. The publisher remains neutral with regard to jurisdictional claims in published maps
and institutional affiliations.
This Palgrave Macmillan imprint is published by the registered company Springer Nature
Switzerland AG
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
Contents
1 Introduction 1
2 Unstable Politics, Unfair Taxation and a Public
Administration Afflicted by Clientelism: Key
Information About the Greek State 39
3 A ‘Sibylline Authority’ in a Growing Economy,
1955–1967 63
4 ‘No Mutiny Will Be Allowed’: Dismantling Democracy
and Delegitimising the Tax System, 1967–1974 117
5 A ‘Tax Surprise’ Amidst Economic Recession,
1974–1981 163
6 A ‘Wild Tax Hunt’ in the Era of Rapid
De-Industrialisation: 1981–1989 205
7 A Tale of Hope, Disillusionment and Crisis: 1989–2008 247
8 Conclusion 255
Bibliography 267
Index 283
v
Abbreviations
vii
List of Charts
ix
x LIST OF CHARTS
xiii
CHAPTER 1
Introduction
In a letter leaked to the Financial Times in early March 2015, the ex-
Finance Minister of Greece Yanis Varoufakis suggested that the Greek
state could use undercover tax agents in order to curb tax evasion. The
idea was for the government to have ‘students, housekeepers and even
tourists to serve as undercover tax inspectors’, by wiring them ‘with audio
and video equipment to track down lawbreakers’.1 Such a measure would
act as a deterrent to potential tax evaders and would also ‘[engender] a
new tax compliance culture’ in Greece.2
No matter how absurd this idea sounds, the mere fact that it was
proposed by a then member of the Greek government indicates how
serious the problem of tax evasion has been for Greece and how diffi-
cult it has been for state mechanisms to cope with it.3 More recently,
1 The letter was addressed to the president of the Eurogroup and Dutch minister
of Finance Jeroen Dijsselbloem and it contained a number of suggested measures for
the reform of the Greek economy (see Peter Spiegel, ‘Greece Proposes Tourists as
Tax Inspectors’, The Financial Times, 6.3.2015. http://www.ft.com/cms/s/0/b65fa81c-
c411-11e4-a02e-00144feab7de.html#axzz3pOaWCPUW [accessed 2.11.2015]).
2 Spiegel, and Ian Traynor and Helena Smith, ‘Wired-Up Tax Snoopers Could
Be Unleashed in Greece’, The Guardian, 6.3.2015. http://www.theguardian.com/
world/2015/mar/06/wired-up-tax-snoopers-could-be-unleashed-in-greece [accessed
2.11.2015].
3 For the purposes of this research, tax evasion is defined as every illegal act or omission
aiming to the reduction of the tax liability or the payment of no tax at all. Tax avoidance,
reports suggested that the country has the second-highest level of VAT
tax evasion in Europe.4 It is characteristic that, according to Varoufakis,
‘the prospects of successfully countering tax dodging are dismal because
of the demoralised and understaffed state of the tax inspection service’.5
This last point indicates that tax evasion, a ‘burning issue’ all around
the EU,6 is, for the Greek case, also an outcome of administrative prob-
lems that have been burdening the country’s system of taxation for
decades. These problems mainly stem from the characteristics of the tax
system such as its complexity, constant change and tax officers’ inad-
equate training. This reality has made it particularly challenging for
Greek taxpayers to understand and comply with the tax legislation, and
equally difficult for the members of the tax services to manage the tax
administration mechanism.
In fact, the problems of tax administration have been a topical issue
in a number of European states. This is indicated through the Euro-
pean Commission’s 2014 Competitiveness Report, which contained the
results of a survey exploring the dimensions of public administration
that most impede firms’ operations across a number of European coun-
tries.7 The survey utilised business perceptions methodologies and drew
primary data from the World Bank’s Enterprise Surveys. It examined 15
different dimensions of public administration, among which were corrup-
tion, ineffective justice systems, customs and trade, labour regulation, tax
administration and tax rates. The finding of the survey was that the most
severe obstacles to firm growth are tax administration (not tax rates),
a term also used here, has the same results, but is achieved through technically legal acts,
which do not entail the breach of the rule of law (for a more extensive analysis see Nikos
Tatsos, Shadow Economy and Tax Evasion in Greece [Athens: Papazisi, 2001], pp. 16–26,
in Greek).
4 Spyros Dimitrelis, ‘Greece Loses the Revenue from Three ENFIA Taxes Due to
VAT Evasion’, Capital.gr, 05.09.2019, https://www.capital.gr/oikonomia/3380524/
treis-enfia-xanei-i-ellada-apo-ti-forodiafugi-fpa [accessed 10.07.2020].
5 Traynor and Smith, ‘Wired-Up’.
6 Vanessa Houlder, ‘Europe’s Shadow Economy Costs e454bn in ‘Lost’ Taxes’, The
Financial Times, 24.9.2015. http://www.ft.com/cms/s/0/9c30cc14-5e1c-11e5-a28b-
50226830d644.html?siteedition=uk#axzz3mpp1uGbt [accessed 5.12.2015].
7 The study covered 11 European Union Member States, four candidate countries, one
applicant country and one country that is neither a candidate nor an applicant.
1 INTRODUCTION 3
that the sort of problematic aspects of the tax system examined here
created difficulties for business. According to the journalist Nikos Niko-
laou, Zolotas always had a standard response when asked about how
to promote business investment in the country: ‘What the entrepreneur
needs is not the introduction of incentives but the removal of disincen-
tives. That is, he needs to stop being chased by the tax officers, the
ministries’ bureaucrats, the immoral members of the local authorities,
etc’.10 In broad terms, Zolotas’ view was similar to that of Johannes
Witteveen, the director of the International Monetary Fund from 1973
to 1978. Witteveen considered that a stable tax regime is one of the most
important conditions for the promotion of private investment.11
The coming chapters show that the Greek tax system was burdened
by the complexity and continuous changes of the tax laws as well as the
insufficient organisation and bureaucratic rigidities12 of the tax services.
Entrepreneurs’ relations with tax officers were also problematic, with
tax officers often accused to be lacking in training,13 arbitrary in their
decisions14 and sometimes corrupt. It seems that such problems created
difficulties for business in the post-Second World War setting. Due to the
complexity and the frequent change of tax legislation, entrepreneurs knew
that they were constantly at risk of being accused of breaking the tax law.
It becomes clear from the evidence that will be presented here that this
was a source of constant upset for them. At the same time, because of the
arbitrariness of the system, taxes were the object of a constant negotiation
between business and the tax authorities. Entrepreneurs could never be
certain about where they stood with regard to their tax liabilities. This
increased their vexation even more.
With this evidence in mind, the research also throws light on some
of the main causes of the current economic crisis affecting Greece, as
the difficulties facing entrepreneurship seem to have contributed to the
general weakness of the economy and to the gradual emergence of the
crisis. Of course, what also contributed to the crisis was the great increase
in public deficit from the 1980s onwards, from 8.7 between 1980 and
1985 to 11.7 between 1990 and 1995.15 One of the causes of the contin-
uously growing public deficit was tax evasion, which also started growing
significantly from the late 1970s.16
It will be argued in Chapter 2 that tax evasion occurred mainly as a
result of the perceptions that the tax system was money-driven and unfair.
Indeed, tax evasion has been to a large extent an outcome of Greeks’
low tax conscience, where tax conscience can be defined as the moral
sense of right and wrong guiding tax-paying behaviour.17 Through this
perspective, tax evasion in Greece has often taken the form of a justified
reaction towards an unfair, untrustworthy and therefore illegitimate tax
system. The term tax conscience is considered of value here, precisely
because it denotes that Greeks were aware that avoiding paying taxes
was an unlawful act, they did commit it though because their conscience
allowed it: as noted above, it seems that they considered tax evasion to
be a justifiable practice.
For example, a 1953 article noted that the fact that there were people
having their salaries ‘decimated by the state each month’ whereas others
managed to ‘slip through the fingers’ of tax authorities, was a sign of an
undeveloped tax conscience. The state never managed to cultivate citi-
zens’ tax conscience, it was noted, mainly because it lacked the necessary
‘inspiring ethos’. According to the author, this was one of the reasons why
tax evasion had become ‘exonerated’, taking the form of taxpayers’ ‘just
15 Barry Bosworth and Trifon Kollintzas, Economic Growth in Greece: Past Performance
and Future Prospects, in Greece’s Economic Performance and Prospects, eds Ralph C. Bryan,
Nikolaos C. Garganas and Georgios S. Tavlas (Athens: The Bank of Greece and The
Brookings Institution, 2002), p. 177.
16 K. Kalyvianakis et al., Tax Regime, Shadow Economy and Tax Evasion in Greece
(Athens: Papazisis, 1993), pp. 275–279.
17 In Oxford Dictionaries conscience is defined as ‘[a] person’s moral sense of right
and wrong, viewed as acting as a guide to one’s behaviour’ (see ‘Conscience’, Oxford
Dictionaries. http://www.oxforddictionaries.com/definition/english/conscience [accessed
2.12.2015]).
6 Z. PITTAKI
27 See Chapter 2.
28 Douglass C. North, ‘Institutions’, Journal of Economic Perspectives, 5, 1 (1991),
p. 97. See also Geoffrey M. Hodgson, ‘What Are Institutions?’, Journal of Economic Issues,
XL, 1 (2006), p. 2, who defined institutions as ‘systems of established and prevalent social
rules that structure social interactions’.
29 Douglass C. North, Understanding the Process of Economic Change (Princeton:
Princeton University Press, 2005), p. 6.
1 INTRODUCTION 9
the work of Rudolf Goldscheid. Specifically, in The Crisis of the Tax State,
Schumpeter quoted the following famous phrase by Goldscheid: ‘The
budget is the skeleton of the state stripped of all misleading ideologies’.30
This phrase denotes that, a state’s needs for funding, usually covered
through taxes, is the decisive factor for the various policies undertaken
and, eventually, for the general economic profile the state will adopt.
According to this perspective, the emergence of specific types of economic
activities, the economic prevalence of specific social classes as well as the
establishment of specific types of industry, are all an outcome of the way
the system of taxation of a state has been structured.
The importance of taxation is underlined also in a subsequent work
of Goldscheid, where he embarked on an analysis that demonstrated the
way that society affects and largely shapes financial and political condi-
tions within a state. According to his view, social needs determine to
a great extent the interconnection between public revenue and public
expenditure. In such a framework, taxation seems to be a factor of crucial
importance, as ‘[t]ax struggles were the oldest form of class struggle’,
‘fiscal matters were an important contributory cause even in the mightiest
spiritual movements of mankind’ and even ‘the great religious revolutions
can be proved to have been strongly rooted in intolerable tax pressure’.31
Goldscheid also maintained that there is a direct link between the state
and households, as the latter are merely a reflection of the former. The
‘soundness’ of the state, he noted, defines public economy and morality
and thus also the economic and moral position of individuals. Therefore,
he asked: ‘[w]hat is the point of eternal complaints about low tax ethics,
if the financial practices of the State and other public authorities cannot
stand the test even of economic standards, let alone moral ones?’32
The arbitrary character of the tax system and the regressive distribution
of the tax burden in Greece33 was, for me, an example of state prac-
tices that did not seem to follow specific economic or moral standards
of fairness. In this way, they contributed to the very high levels of tax
30 Schumpeter, p. 100. This phrase is found in this work: Rudolf Goldscheid and Robert
Lazarsfeld, ‘Staatsozialismus oder Staatskapitalismus - Ein finanzsoziologischer Beitrag zur
Lösung des Staatsschulden-Problems, Archiv für Rechts- und Wirtschaftsphilosophie, 11,
2 (1917/1918), pp. 255–259.
31 Rudolf Goldscheid, ‘A Sociological Approach’, p. 202.
32 Ibid., p. 210.
33 See Chapter 2, for more detail.
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