UNIFORMITY VERSUS SELECTIVITY IN INDIRECT TAXATION *

There are (at least) five groups of arguments which might suggest that indirect taxes should be at a uniform proportionate rate. The first is theoretical and concerns results which show that, under certain assumptions, uniform indirect taxation is an optimum solution in the sense of Pareto efficiency or a combination of equity and efficiency as reflected in a social welfare function. Related results characterise conditions under which movements towards or away from uniformity are welfare improving. The second concerns our ignorance of the information on which theory suggests differential rates of tax should be based. The third group is administrative where it is argued that uniform taxes are simpler to organise and collect, and provide less scope for evasion, than selective taxes. The fourth concerns the role of political and other influences, including unproductive or rent-seeking activities, where, it is suggested, the possibility of non-uniform taxes will lead to considerable opportunities for misuse of the tax system, including expenditure on lobbying by interested parties for special tax treatment. The fifth argues that it is wrong to discriminate between people (and thus goods) on the basis of their preferences. Most of the arguments in favour of uniformity have some serious content but, it will be argued, their proper evaluation requires an understanding of the assumptions underlying the theoretical results, an involvement with the empirical analysis of household behaviour and tax reform, and finally experience with how policy is formed and taxation administered. Any judgement of the case for uniformity will depend on the country concerned and, in particular, the range of policy instruments available and how they are set and function in practice. We shall suggest that for developed countries the case for uniformity is stronger than for developing countries although even in the former the arguments for