From restrictions to hopeful economic activity Deloitte commentary on South Africa Budget 2021/22 - Making an impact that matters

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From restrictions to hopeful economic activity Deloitte commentary on South Africa Budget 2021/22 - Making an impact that matters
From restrictions to
hopeful economic activity
Deloitte commentary on
South Africa Budget 2021/22

Making an impact that matters
From restrictions to hopeful economic activity Deloitte commentary on South Africa Budget 2021/22 - Making an impact that matters
Budget 2021/22 | Deloitte Commentary

Budget 2021/22
“The damage caused by COVID-19 runs deep
and we share in the collective pain of many
South Africans who have lost their jobs.

All this notwithstanding, we are not without
hope. Our national icon, the Nobel Laureate,
Archbishop Emeritus Desmond Tutu
reminded us that: “Hope is being able to
see that there is light despite all of the
darkness". He observed that sometimes we
forget that just beyond the clouds the sun
is shining."

Minister of Finance
Mr Tito Mboweni, 24 February 2021

                                                                              2
Budget 2021/22 | Deloitte Commentary

Foreword
Delia Ndlovu, Managing Director,
Africa Tax & Legal

                                                a consolidated budget deficit of 14%            There are no tax increases except for
                                                of GDP, with gross debt at about 80%            excise duties (above inflation) and fuel
                                                of GDP for the 2021 fiscal year. Against        levies (in line with inflation). The Minister
                                                this background, Minister Mboweni               has elected to put on hold the tax measures
                                                emphasised that the path to fiscal              to generate additional tax revenue of
                                                consolidation was difficult and would           R40 billion over four years – as initially
                                                require us to be resolute and adamant. The      proposed in the October MTBPS. Personal
                                                debt trajectory is troubling and urgently       income tax brackets have been adjusted
                                                needs to be addressed. Gross loan debt will     by 5% – above inflation – for R2.5 billion
                                                increase from R3.95 trillion in the current     in tax relief. Corporate income tax will be
                                                year to R5.2 trillion in 2023/24. He said       lowered to 27% for companies with years of
                                                that we owe a lot of people a lot of money.     assessment commencing on or after 1 April
                                                The cost of servicing the debt detracts         2022. Further rate decreases are being
                                                from capital investment in infrastructure.      considered.
                                                Investors are sceptical about South Africa’s
                                                fiscal outlook and growth credibility.          It is encouraging that the Minister has
                                                                                                chosen to bolster capacity at the South
Finance Minister Tito Mboweni presented         South Africa’s economy is expected to           African Revenue Service (SARS) rather than
a budget which was an improvement               grow 3.3% in 2021 and average 1.9% in           increase taxes by:
compared to the October Medium-Term             the next two years. National Treasury has
Budget Policy Statement (MTBPS), however,       developed a R6.2 trillion spending plan         •		 deepen technology, data and machine
the fiscal crisis facing South Africa remains   over the next three years to implement the          learning capability
grave. He outlined aspects that gave him        Economic Reconstruction and Recovery
                                                                                                •		 expand specialised audit and
hope in these trying times, which include:      Plan. The main drivers of the more
                                                                                                    investigative skills in the tax and
                                                positive outlook are better than expected
                                                                                                    customs areas to renew its focus on
1)		 Fiscal framework that supports the         household spending and increased value
                                                                                                    base erosion and profit shifting and tax
     economy and public health services         of commodity exports. However, the
                                                                                                    crime
     while ensuring the sustainability of our   COVID-19 path remains uncertain and
     public finances in the medium term.        unknown and may remain a threat to the          •		 establish a dedicated unit to improve
                                                projected growth in the economy.                    compliance of wealthy individuals with
2)		 Much improved economic outlook both
                                                                                                    complex financial affairs.
     globally and in South Africa.
                                                Government now expects to collect
3)		 Meaningful progress in the                 R1.21 trillion in taxes during 2020/21,         To support the above, SARS has been
     implementation of our structural           R213 billion less than expected at the start    allocated additional spending of R3 billion
     economic reforms, including a              of the year. While better than anticipated      over the medium term.
		 R791.2 billion infrastructure investment     at mid-year (by almost R100 billion) this is
     drive.                                     nevertheless the largest tax shortfall on       The minister emphasised that this was not
                                                record. South Africa has a tax-to-GDP ratio     an austerity budget. However, it is essential
4)		 Budget explicitly supports economic
                                                of 24.6% in the 2021 fiscal year. Although      to narrow the public finance deficit and
     transformation and job creation.
                                                lower than the Organisation for Economic        invest in the future.
                                                Co-operation and Development average,
Despite the message of hope projected           South Africa’s ratio is still relatively high
by Minister Mboweni, South Africa faces         compared with other developing countries.

                                                                                                                                         3
Budget 2021/22 | Deloitte Commentary

 Economic outlook:
 Amidst improved economic outlook,
 long-standing challenges remain

After many years of lethargic GDP growth                                           South Africa’s decades-long struggle with               GDP growth is expected to rebound to
and structural challenges to uplifting growth,                                     poverty and inequality into even sharper                3.3% in 2021, from a low base; and to 2.2%
South Africa’s economy was hard-hit by the                                         spotlight, with poorer households severely              and 1.6% in 2022 and 2023 respectively.
COVID-19 pandemic.                                                                 affected by the consequences of the                     However, pre-pandemic GDP levels are
                                                                                   pandemic.                                               likely only going to be achieved after 2023.
In October 2020, the MTBPS painted a dire                                                                                                  The 2021 growth rebound is supported
picture of the state of the economy, as well                                       Yet, Finance Minister Tito Mboweni in the               by the vaccine rollout in South Africa, the
as South Africa’s public purse. This included                                      2021 Budget Speech painted a picture                    extension of short-term relief programmes
a big contraction in GDP for 2020, rising                                          of hope. Quoting Archbishop Emeritus                    to households, and the public employment
unemployment, a sizable fiscal deficit, and                                        Desmond Tutu, he noted “Hope is being able to           programme.
a fast-expanding debt-to-GDP ratio. With                                           see that there is light despite all of the darkness”.
limited fiscal space, taking the country out of                                                                                            This is also bolstered by the expected
its economic predicament via spending has                                          And some of this light is evident in                    rebound in global growth. Global tailwinds
not been an option.                                                                National Treasury’s proposal to continue                such as the vaccine rollout, low cost of
                                                                                   on the MTBPS 2020 outlined trajectory of                capital, rising commodity prices, as well as
Indeed, the 2021 Budget Review expects                                             supporting the country’s immediate-term                 normalising trade and supply chains has
GDP to have contracted by -7.2% in 2020 (an                                        economic recovery from the pandemic.                    the International Monetary Fund forecast
improvement from the MTBPS forecast of                                             It also includes stabilising the fiscus                 global growth at 5.5% in 2021, and 4.2%
-7.8%), with (narrow) unemployment levels                                          through pro-growth fiscal consolidation,                the year thereafter. China and India, at 8.1%
reaching 30.8% in the third quarter of 2020;                                       and implementing long-touted reforms to                 and 11.5% respectively, are expected to be
and an estimated 1.7 million fewer jobs the                                        eliminate structural constraints to growth.             at the forefront of the recovery in emerging
same quarter, compared to the same period                                                                                                  markets.
in 2019. Arguably, COVID-19 has thrown
                                                                                                                                           Downside risks to the growth outlook largely
                                                                                                                                           include new waves of COVID-19 infections,
                                                                                                                                           and a divergence from the proposed
                                                                                                                                           medium-term fiscal consolidation plan. A
   South Africa’s real GDP growth (2014-23f)                                                                                               deterioration in public finances could trigger
                                                                                                                                           an additional ratings downgrade resulting
                  4                                                                                                                        in an increase in debt-service costs, and at
                                                                                              3.3
                                                                                                                                           worst a “debilitating debt spiral”.
                  2                                              1.4
                                   1.8                                                               2.2
                                                                                                                                           Minister Mboweni has once again stressed
                                             1.2
                                                                        0.8                                  1.6                           the importance of both expenditure and
                  0                                 0.4                          0.2
                                                                                                                                           broader structural reforms, if South Africa
                                                                                                                                           is to achieve meaningful outcomes from
                 -2
     %

                                                                                                                                           government spending programmes, as well
                                                                                                                                           as to increase the country’s potential output
                 -4
                                                                                                                                           while achieving more inclusive economic
                                                                                                                                           growth.
                 -6

                                                                                       -7.2                                                Rebalancing the composition of expenditure
                 -8                                                                                                                        remains key, as higher government spending
                                                                                                                                           over the past decade has not promoted
                                  2014

                                            2015

                                                      2016

                                                                                       2020
                                                                         2018

                                                                                                     2022

                                                                                                            2023
                                                                                2019
                                                                 2017

                                                                                              2021

                                                                                                                                           growth. The budget remains focussed on
                                                                                                                                           social spending, including health, education
   Source: Statistics South Africa, National Treasury forecast
                                                                                                                                           and social grants. Growth in debt-service
                                                                                                                                           costs over the next three years, however,
                                                                                                                                           will continue to exceed spending growth on
                                                                                                                                           important functions like health.

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Budget 2021/22 | Deloitte Commentary

A reduction in the growth of the public wage                                                         A boost in infrastructure spending is another
bill will see wage bill growth moderate to                                                           vital component of the country’s economic
1.2% over the medium term. Unsuccessful                                                              recovery going forward. A project pipeline
implementation in this reduction will place                                                          in network industries such as energy, water,
significant risk on the debt stabilisation                                                           transport and telecommunications worth
process.                                                                                             R340 billion has been identified. Still, major
                                                                                                     reforms are needed to lower barriers to
Indeed, the expenditure proposals tabled                                                             doing business in general, and subsequently
in the 2021 Budget Review put the country                                                            unlock the large investment potential of the
on course to achieve a primary surplus                                                               private sector. Other key structural reforms
in 2024/25, and thus gross debt-to-GDP                                                               mooted include improving access to reliable
stabilising at 88.9% in 2025/26, down from                                                           electricity, enabling cost-effective digital
the 95.3% estimate in the 2020 MTBPS.                                                                services and supporting industries with high
                                                                                                     employment potential.

Gross debt-to-GDP outlook (2017/18-2028/29)

           100
                              2020 MTBPS                                   Revised                               94.6       95.3       95.1       94.5
           95                                                                                        92.9                                                   93.3
                                                                                   90.1
           90
                                                                  85.6                                                88.9
           85                                                                                               87.3 88.5                  88.3
                                                                                                                                                  87.4
                                                                                                    85.1                                                         86
                                                 81.8                              81.9
           80
                                                                  80.3
% of GDP

           75

           70

           65                       63.3

           60
                           56.6
           55
                      53
           50
                                                                                          2022/23

                                                                                                                  2024/25
                                                                                                       2023/24

                                                                                                                                                             2028/29
                                                                                                                             2025/26

                                                                                                                                        2026/27
                                                        2020/21

                                                                         2021/22

                                                                                                                                                  2027/28
                                           2019/20
                              2018/19
                 2017/18

Source: National Treasury

The economic landscape remains plagued with uncertainty, with the short-term outlook
highly dependent on a successful vaccine programme rollout. In the medium term, structural
reforms will need to be honoured if sustainable and inclusive growth is to be achieved in the
outer years. However, hope remains and, as the Minister mentioned in his closing remarks, “a
prosperous future is possible for our beautiful country.”

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Budget 2021/22 | Deloitte Commentary

 Tax policy proposals

Tax policy proposals                               the Road Accident Fund and 1 cent per          In keeping with this policy position the
                                                   litre for the carbon fuel levy.                sunset date for the venture capital
No major tax increases were proposed
                                                                                                  company initiative will not be extended
by the Minister in the 2021/2022 Budget           • Excise duties on alcohol and tobacco
                                                                                                  beyond 30 June 2021. This decision follows
Speech. The following are the major                 products are to be increased by 8%.
                                                                                                  a National Treasury assessment of the
proposals:
                                                  • Given the smaller revenue shortfall           program which determined that the
                                                    compared with October 2020 estimates,         incentive did not sufficiently achieve its
• Personal income tax brackets and                  the previously announced tax increases        objectives of developing small businesses,
  rebates are to be adjusted to give,               of R 40 billion have been withdrawn to        generating economic activity and creating
  what the Minister described as, relief in         support the economy.                          jobs but rather provided a significant tax
  excess of inflation amounting to R 2.2                                                          deduction to wealthy taxpayers.
  billion. Medical tax credits have also          In addition, a number of other initiatives
  been adjusted for inflation. The Budget         and legislative amendments have been            A large number of other incentives
  Review noted that South Africa has              proposed to counter perceived avoidance         have fixed “sunset dates” when the
  the highest personal income tax share           or deal with identified anomalies. Certain of   incentive in question is due to terminate.
  amongst upper middle-income countries,          these are dealt with below.                     National Treasury is accepting detailed
  alongside one of the highest top personal                                                       submissions from affected stakeholders
  income tax rates. The conclusion                Establishment of dedicated unit to              who wish these incentives to remain. The
  reached is that further increases in            deal with wealthy individuals                   submission deadline is 31 March 2021.
  personal income tax rates would put                                                             To accommodate this review the urban
                                                  In order to improve the tax compliance of
  additional pressure on households and                                                           development zones and learnership tax
                                                  wealthy individuals and those who have
  undermine the chance of a stronger                                                              incentives will be extended for two years
                                                  complex financial arrangements, SARS will
  economic recovery. Consequently, the                                                            while the review is completed.
                                                  establish a new dedicated unit. The first
  conclusion is that there is no compelling
                                                  group of affected taxpayers have been
  case for increasing tax rates at this                                                           Limitation of Interest deductions for
                                                  identified and will receive communication
  time. In addition, the review notes that                                                        corporates
                                                  during April 2021. To support the
  substantial tax increases in previous
                                                  establishment of this unit an additional        At the time of the 2020 Budget a discussion
  years have raised less revenue than
                                                  spending allocation to SARS of R3 billion       document on limiting excessive interest
  anticipated due to their impact on
                                                  was proposed over the medium term.              deductions was released for public
  taxpayer behaviour and growth.
                                                                                                  comment. After assessing the feedback
• The corporate income tax rate will be           Potential wealth tax                            provided, government proposes to expand
  lowered to 27% with effect from years                                                           the scope of the current interest limitation
                                                  Following the recommendations of the
  of assessment commencing on or after                                                            rules to include some similar interest items;
                                                  Davis Tax Committee, SARS will focus on
  1 April 2022. It is intended that this                                                          to adjust the fixed ratio limitation for net
                                                  consolidating wealth data for taxpayers
  reduction in the corporate tax rate will                                                        interest expense to 30% of earnings; and
                                                  through third-party information. It is
  be done alongside the broadening of the                                                         to apply the restriction only to connected
                                                  expected that this will assist in broadening
  corporate income tax base by limiting                                                           party interest rather than total interest.
                                                  the tax base, improving tax compliance and
  the deductibility of interest and assessed                                                      This last change is significant as the initial
                                                  assessing the feasibility for a wealth tax.
  losses, which were proposals announced                                                          proposals drew no distinction between
  in the 2020 Budget. Consideration                                                               connected and third party debt.
                                                  Limitation of corporate tax incentives
  will be given to further rate decreases
  in the future to make our tax system            Government intends reducing the number          Tax regime for the upstream
  competitive. Any future reductions will         of tax incentives and other deductible          petroleum industry
  be done in a revenue-neutral manner             amounts with the aim of lowering the
                                                                                                  The Budget Review notes that two large
  leveraging off the insights of the Davis Tax    corporate income tax rate over the medium
                                                                                                  gas finds near Mossel Bay underline
  Committee.                                      term. It is expected that these changes
                                                                                                  the potential for additional exploration,
                                                  will enhance efficiency, transparency and
• Fuel levies will be increased by 27 cents                                                       development and production of South
                                                  fairness in the business tax system while
  per litre comprising 15 cents per litre for                                                     African petroleum resources. To move
                                                  facilitating economic growth through
  the general fuel levy, 11 cents per litre for                                                   towards a fairer and more certain fiscal and
                                                  improved investment and competitiveness.

                                                                                                                                            6
Budget 2021/22 | Deloitte Commentary

regulatory regime, the National Treasury         The transfer of an insurance book of             • clarify the meaning of “interest” under the
and the Department of Mineral Resources          business between short-term insurers               debt relief rules
and Energy will publish a discussion paper
                                                 Some uncertainty exists in the current           • make certain refinements to the
on potential tax reforms.
                                                 tax legislation when an insurance book of          corporate reorganisation rules
                                                 business is transferred between short-term
International tax                                                                                 • deal with the tax implications of the
                                                 insurers, specifically regarding the transfer
                                                                                                    proposed establishment of a deposit
• Ratification of Multilateral Instrument        of liabilities, which is not specifically
                                                                                                    insurance scheme which is to be
  - The South African government takes           catered for in section 28 that deals with the
                                                                                                    established in order to protect depositors
  note of the fact that an effective tax         taxation of short-term insurers. This could
                                                                                                    in the event of a bank failure.
  system South Africa needs to take into         lead to inequitable tax treatments adopted
  account the globalised nature of trade,        between the two parties to the transaction,
                                                                                                  Individuals
  investment and technological change.           when the general provisions of the Act are
  Therefore, to reduce the possibilities of      interpreted and applied.                         The following tax proposals affecting
  any tax base erosion and profit shifting,                                                       individuals, and mainly aimed at curbing
  South Africa has committed to ratifying        In the Budget Speech the Minister                perceived avoidance, were announced:
  the multilateral instrument which              proposes amendments to section 28 to
  requires parliamentary approval and to         clarify the treatment to be followed. This       • It is proposed that the current provisions
  renegotiate existing bilateral tax treaties    clarification is welcomed.                         of the Income Tax Act be broadened to
  with countries that have not yet signed                                                           cover other non-cash awards granted
  the multilateral instrument.                   Refining the expense deduction                     to employees within the limits for long-
                                                 formula for long-term insurer                      service awards.
 We note that National Treasury has              policyholder funds
                                                                                                  • To curb abuse by schemes involving
 seen the importance of ratifying the
                                                 Long-term insurers have to a apply a               training institutions, it is proposed
 multilateral instrument, however, we
                                                 specific formula, called the expense               that the definition of an “employee”
 have not seen any commitment to the
                                                 ratio, when determining what portion of            be changed in the Employment Tax
 final date as to when National Treasury
                                                 indirect expenditure would be deductible           Incentive Act to specify that work must
 expects to actually receive parliamentary
                                                 in the calculation of taxable income of            be performed in terms of an employment
 approval to ratify their participation
                                                 policyholder tax funds. In general, this ratio     contract that adheres to record-keeping
 to the multilateral instrument.
                                                 is based on taxable income divided by              provisions in accordance with the Basic
 Consequently, this leaves a lot of
                                                 total income. A few years ago this formula         Conditions of Employment Act. These
 uncertainty in practice.
                                                 was revised to include unrealised capital          amendments will take effect from 1
                                                 gains, while unrealised capital losses             March 2021.
• Clarifying the controlled foreign
                                                 are disregarded. Since then uncertainty
  company (CFC) diversionary rules - South                                                        • The Income Tax Act is to be amended
                                                 has existed in the industry on whether
  Africa’s CFC rules contains a number                                                              to curb abuse by schemes that seek
                                                 unrealised losses should be disregarded
  of diversionary rules that serve as anti-                                                         to circumvent the gross income and
                                                 per individual asset, or only disregarded
  abuse measures. The diversionary rules                                                            donations tax provisions through the
                                                 when the aggregate of all the assets in a tax
  for CFC outbound sale of goods provides                                                           cession of assets by an employee or
                                                 fund is in an unrealised loss position.
  an exemption if the CFC that sells the                                                            independent contractor to for example, a
  goods also bought the goods from an                                                               family trust for no consideration.
                                                 The Minister announced that a change
  unconnected person whose residence is
                                                 would be made to clarify that it would           • The anti-avoidance rules initially
  in the same country as the CFC.
                                                 apply to the aggregate of all assets in a          introduced in 2016 to curb the transfer of
                                                 tax fund. Request for clarification in this        growth assets to trusts using low-interest
 It appears some taxpayers try to make
                                                 regard has been made previously by the             or interest-free loans will be revised
 use of this exemption by entering into a
                                                 insurance industry, and obtaining it now as        further to curb perceived continued
 contract that implies that the purchase of
                                                 announced by the minister is welcomed.             abuse through the transfer of loans
 the goods took place in the CFC’s country
                                                                                                    between trusts where the founder
 of residence, when it was in fact not the
                                                 Additional proposed amendments                     of one trust is related to one or more
 case.
                                                 affecting corporate taxpayers                      beneficiaries of the other trust.
 It is not yet clear how this stated objective
                                                 Additional amendments are proposed to,           • To clarify the time of disposal by an estate
 would be achieved as the authenticity
                                                 inter-alia:                                        of the deceased to the relevant heirs, it is
 of the sale and purchase transactions
                                                                                                    proposed that the legislation be changed
 would have to be addressed. Any
                                                 • clarify the definition of contributed tax        so that the disposal by the estate occurs
 amendments to the Act would require
                                                   capital                                          on the date when the liquidation and
 careful consideration in order to address
                                                                                                    distribution account becomes final.
 this effectively.                               • limit potential for double taxation under
                                                   the hybrid debt anti-avoidance rules

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Budget 2021/22 | Deloitte Commentary

Retirement                                      Value-added tax (VAT)                             incurred to build residential property for
                                                                                                  sale. If the developer is unable to sell the
• South Africa may forfeit its taxing rights    • Taxing the digital economy - Annexure A
                                                                                                  residential property and chooses to let
  where an individual ceases to be a South        to the 2021 Budget Review indicated that
                                                                                                  such property temporarily until it can be
  African tax resident but retains his/her        National Treasury and SARS are required
                                                                                                  sold, the developer has to account for
  investment in a South African retirement        to provide updates in the 2021 Budget
                                                                                                  output VAT based on the open market
  fund. If that individual becomes tax            Review on the developments in resolving
                                                                                                  value of the property when it is leased
  resident in another country he/she may          the question regarding the taxing rights
                                                                                                  for the first time. The current rate of VAT
  be able to avail himself/herself of relief      of countries involving income derived
                                                                                                  recovery for the developer is inequitable
  provided in terms of the relevant tax           from digital activities. South Africa is
                                                                                                  as the VAT treatment is disproportionate
  treaty between South Africa and the             one of the few countries that are already
                                                                                                  to the exempt rental income. Therefore,
  other country.                                  collecting VAT from the digital economy.
                                                                                                  changes to the VAT Act need to be
                                                  It is stated that National Treasury should
 To prevent such forfeiture, it is proposed                                                       made to ensure that the property
                                                  also collaborate with the African Tax
 that when the individual ceases to be a                                                          developer has a right to a fair recovery.
                                                  Administration Forum on the digital tax
 South African tax resident, the retirement                                                       It is proposed that the VAT Act will be
                                                  framework. The Budget Review indicates
 fund interest will form part of the assets                                                       amended to address this matter.
                                                  that work continues towards developing
 that are subject to retirement withdrawal
                                                  a consensus by mid-2021. However,
 tax. The individual will be deemed to                                                           Customs and excise duty
                                                  where these efforts fail, South Africa
 have withdrawn from the fund on the day
                                                  will consider the appropriateness of a         • The effective date of the proposed export
 before he or she ceases to be a South
                                                  unilateral approach.                             tax on scrap metals which was aimed
 African tax resident. If the individual
                                                                                                   to replace the current price preference
 does not immediately withdraw from             • Measures to combat malpractice relating
                                                                                                   system, was postponed from 1 March
 the fund then the retirement withdrawal          to gold transactions - SARS intends to
                                                                                                   2021 to 1 August 2021 to allow SARS
 tax (including associated interest) will         introduce measures to address undue
                                                                                                   and taxpayers’ systems to be ready and
 be deferred until payments are received          VAT refunds on gold transactions relating
                                                                                                   because the price preference system was
 from the retirement fund. When the               to exports. In the past, gold has been
                                                                                                   extended to 31 July 2021 or the date on
 individual eventually receives payment           used in order to create fraudulent input
                                                                                                   which the export tax is fully implemented
 from the fund, the tax due will be               tax deductions by non-vendors selling
                                                                                                   at a rate that is higher than 0%, whichever
 calculated based on the prevailing lump          illegal gold to vendors. This had the effect
                                                                                                   date comes first.
 sum tables or in the form of an annuity. A       of legitimising illegally obtained gold
 tax credit will be provided for the deemed       by selling it into the formal economy.         • It is proposed that section 6(1)(hC)
 retirement withdrawal tax calculated             In addition, the zero rate cannot apply          of the Customs and Excise Act which
 when the individual ceased to be a South         where second-hand goods are acquired             authorises the Commissioner to make
 African tax resident.                            and subsequently exported after notional         rules prescribing the places where de-
                                                  input tax has been deducted on the               grouping depots may be established, be
 While the intention to avoid the erosion of
                                                  acquisition thereof. It is proposed that a       amended to regulate the consolidation
 the South African tax base is understood,
                                                  domestic reverse charge mechanism be             of air cargo for export at de-grouping
 the practical application of the deferral
                                                  included in the VAT Act to deal with the         depots. The presents rules do not
 mechanism remains to be seen.
                                                  malpractice.                                     currently contemplate the mentioned
• Currently, a member of a retirement fund                                                         consolidation.
                                                • Zero-rating of super fine maize meal - it
  is prohibited from using their retirement
                                                  is proposed that super fine maize meal is      • SARS is amending the current
  interest to acquire multiple annuities. To
                                                  included in schedule 2 part B of the VAT         accreditation system to more closely
  increase flexibility for retiring members
                                                  Act as a zero-rated basic foodstuff item.        reflect the requirements of the SAFE
  this restriction will be eased.
                                                  This amendment is proposed in order              Framework of Standards issued by the
• It is proposed that amendments be made          to align the VAT Act with the Agricultural       World Customs Organisation. In light of
  to allow tax-free transfers into more or        Products Standards Act.                          these developments, it is proposed that
  similarly restrictive pension, provident or                                                      the Customs and Excise Act be amended
                                                • Introducing VAT rules for micro-insurance
  retirement annuity funds for members                                                             accordingly.
                                                  - to align with the New Insurance Act
  who are 55 years or older and have opted
                                                  (2017), which makes provision for micro-       • To ease the administrative burden on
  to retire early.
                                                  insurance, it is proposed that the VAT Act       SARS and taxpayers, it is proposed to
• It is proposed that certain amendments          be amended to provide clarity on the VAT         increase the minimum threshold for the
  be made so that retirement funds that           treatment of these services.                     payment of refunds on certain imports.
  provide both defined contribution
                                                • VAT treatment of temporary letting of          • It is proposed that the unlawful use or
  component retirement benefits and
                                                  residential immovable property - the             possession of a customs uniform be
  self-insured risk benefits can provide the
                                                  VAT Act allows property developers to            included as an offence which will be liable
  fringe benefit value based on the actual
                                                  claim an input VAT deduction on costs            on conviction to a fine or imprisonment.
  contributions.

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Budget 2021/22 | Deloitte Commentary

Carbon tax                                          a 5% allowance to taxpayers that             In addition the following tax administrative
                                                    participate “during or before the tax        initiatives were noted:
• Carbon tax rates - the Budget announced
                                                    period”. This allowance will be phased
  an increase in the carbon tax rate from
                                                    out once legislation is enacted making       • Public benefit organisations who are
  R127 to R134/tCO2e (effective from 1
                                                    participation in the budgets with              entitled to issue section 18A income tax
  January 2021) on taxable greenhouse gas
                                                    potential caps mandatory. A mandatory          certificates are currently not required to
  (GHG) emissions. The increase will also
                                                    carbon budget system is expected in            provide third-party data on the donations
  reflect as an additional 1 cent per litre in
                                                    2023. It is proposed that reference to         to SARS on a systematic basis. To ensure
  the fuel levy (effective from 7 April 2021)
                                                    “before the tax period” be replaced with       that only valid donations are claimed and
  bringing the total carbon tax related fuel
                                                    the specific timeframes, i.e. 2021 and         to enhance SARS’ ability to pre-populate
  levy to 8 cents per litre petrol and 9 cents
                                                    2022, for the carbon budget to avoid           individuals’ returns, it is proposed that
  per litre diesel.
                                                    any ambiguity.                                 the information required in the receipts
• Clarification on selected issues - The                                                           be extended and third-party reporting be
  proposed amendments provide much               • Alignment with Department of                    extended in future to cover the receipts
  needed clarity on the following issues           Environment, Forestry and Fisheries             issued.
  that have been unclear in the past:              - The Carbon Tax Act specifies which
                                                                                                 • SARS will only pay a valid refund of
                                                   activities are subject to carbon tax
                                                                                                   dividends tax if the claim is submitted
 – Renewable Energy Premium                        and also stipulates how the taxable
                                                                                                   within three years from the date of
   Beneficiaries (REP) – An amendment              emissions should be determined. The
                                                                                                   payment of the cash dividend. It is
   is proposed (effective from 1                   National Greenhouse Gas Emissions
                                                                                                   proposed to align the rule for dividends
   January 2021) to clarify the eligibility        Reporting Regulations performs a parallel
                                                                                                   in specie (which links the three year
   requirements and calculation                    function indicating which activities
                                                                                                   period to the payment of the dividends
   methodology required to deduct the              (and subsequent emissions) should be
                                                                                                   tax), to the above rule for cash dividends.
   REP from an electricity producer’s              reported to DEFF on an annual basis.
   carbon tax liability. The amendment             Several amendments are proposed               • No withholding tax on interest applies in
   proposes that only entities that                to align carbon tax and the activities          circumstances where a foreign person
   generate electricity and also directly          reported to DEFF, these are:                    submits a declaration that he/she is, in
   purchase additional primary renewable                                                           terms of double tax agreement, exempt
   energy are eligible to claim the REP           – including “Other Emissions from Energy         from the tax. As a similar declaration
   deduction.                                       Production” (IPCC code 1B3)                    does not exist for withholding tax on
                                                  – developing emission factors for waste          royalties, a legislative amendment will be
 – Definition of carbon capture and                 tyres for possible inclusion in the 2022       proposed to address this anomaly.
   sequestration – The Carbon Tax Act               Budget Review
                                                                                                 • Farmers are allowed to deduct the cost of
   presently allows for the deduction             – changing schedule 2 of the Act to align
                                                                                                   livestock purchased, within a fixed period,
   of sequestered emissions from                    activities and thresholds published by
                                                                                                   to replace livestock sold in a previous
   fuel-combustion related emissions.               DEFF.
                                                                                                   tax year on account of drought, fire or
   These sequestered emissions have
                                                                                                   other specified reasons, by reopening the
   to be verified and certified by the           Tax administration
                                                                                                   assessment for the previous tax year. It
   Department of Environment, Forestry
                                                 The process of rebuilding SARS continues.         is proposed that the period during which
   and Fisheries (DEFF). It is proposed
                                                 In this regard the Budget Review notes            the assessments may be reopened and
   that the definition of greenhouse gas
                                                 that SARS continues to implement the              document retention requirements be
   emissions sequestration should be
                                                 recommendations made by the Nugent                aligned.
   amended to remove carbon capture
                                                 Commission. Furthermore, a National
   and storage in geological reservoirs
                                                 Treasury discussion document proposing
   from the scope of the deduction to                                                            • SARS may impose a penalty for the non-
                                                 legislative amendments to SARS’
   address possible double benefits for                                                            submission of the six-monthly employees’
                                                 governance will be published soon.
   the same sequestered emissions. It is                                                           tax returns by employers. As the penalty
   also proposed that only actual forestry                                                         is calculated as a percentage of the
                                                 An additional spending allocation of
   plantation sequestered emissions                                                                employees’ tax covered by the return,
                                                 R3 billion will be provided to SARS to
   should be eligible for the deduction.                                                           it can only be imposed retrospectively
                                                 modernise its technology infrastructure
                                                                                                   when the non-compliance is remedied
                                                 and systems, expand and improve the use
 – Carbon budget allowance – DEFF                                                                  by the employer. As this undermines
                                                 of data analytics and artificial intelligence
   supports South Africa’s climate                                                                 the purpose and deterrent effect of the
                                                 capabilities, and participate meaningfully
   change commitments under the Paris                                                              non-compliance penalty, it is proposed
                                                 in global tax compliance initiatives. A
   agreement through the development                                                               that SARS be enabled to raise the penalty
                                                 digitalised SARS is intended to lower cost of
   of a carbon budget system. The                                                                  on an alternative basis in such cases,
                                                 compliance, simplify tax administration and
   Carbon Tax Act supports voluntary                                                               for example, through an estimate of the
                                                 improve collections.
   participation in the budget by granting                                                         employees’ tax with an adjustment being

                                                                                                                                          9
Budget 2021/22 | Deloitte Commentary

 made once the actual employees’ tax is         In what is expected to be a multi-year         The risk-based list of capital flow measures
 known.                                         project, and starting with consultations       proposed in the 2020 budget and which
                                                during 2021/22, the National Treasury will     should be finalised during the current year
• It is proposed that a first provisional tax
                                                review the current travel and home office      will include:
  payment and return will not be required
                                                allowances to investigate their efficacy,
  in instances when the duration of a
                                                equity in application, simplicity of use,
  year of assessment does not exceed six                                                       • South African corporates will not be
                                                certainty for taxpayers and compatibility
  months.                                                                                        allowed to shift their primary domicile
                                                with environmental objectives.
                                                                                                 except under exceptional circumstances
• SARS has recently invited public comment
                                                                                                 and as approved by the Minister
  on the advance tax ruling process for         The review of the diesel refund
  binding rulings to assess whether it can      administration is still in progress. Further   • approval conditions for corporates with a
  be improved. The Budget Review notes          to comments and technical inputs received        primary listing offshore will be aligned to
  that legislative amendments may be            from various stakeholders, the second            current foreign direct investment criteria
  required to give effect to improvements       draft of the diesel refund notes was
                                                                                               • export of intellectual property for fair
  identified during the consultation            published on 9 February 2021 for public
                                                                                                 value to non-related parties will not be
  process.                                      comment.
                                                                                                 subject to approval.
• The voluntary disclosure provisions will
                                                Exchange control
  be reviewed in 2021 to ensure that they                                                      The above list is not exhaustive.
  align with SARS’ strategic objectives and     During the 2020 budget it was announced
  the policy objectives of the programme.       that a modernisation of the current foreign    The following has also been proposed for
  It is unclear whether this review is linked   exchange system will be phased in over the     individuals:
  to a recent High Court decision where         following twelve months. It was envisaged
  it was held that SARS had to consider,        that by end February 2021 a system would       • Transfers in excess of R10 million will
  adjudicate and decide a request for the       be in place where all transactions will be       result in a more stringent verification
  waiver of (VAT) interest previously paid in   permissible except for a risk-based list of      process by SARS. There will be no
  compliance with the terms of a voluntary      capital flow measures which will mainly          limits on individuals externalising funds
  disclosure agreement. SARS held the view      affect legal entities.                           provided the necessary tax clearance has
  that the request could not be considered.                                                      been obtained.
                                                Progress appeared to have been slow as
                                                                                               • Natural person residents and natural
Tax research and reviews                        during 2020, the only change related to the
                                                                                                 person emigrants will be treated
                                                lifting of the loop threshold from 40% to
The following discussion documents are                                                           identically, and the current exchange
                                                100% for both companies and individuals.
expected                                                                                         control emigration concept will be
                                                                                                 phased out and be replaced by a SARS
                                                The February 2021 budget reaffirmed
• The National Treasury and the                                                                  verification process. It is expected that
                                                that National Treasury and the Reserve
  Department of Mineral Resources                                                                this will be implemented before 1 March
                                                Bank continue to work and develop a new
  and Energy will publish a discussion                                                           2021.
                                                legislative framework for the capital flow
  document on potential reforms to the
                                                management system.
  tax regime for the upstream petroleum
  industry
                                                A set of Capital Flow Management
• During 2021, the National Treasury            Regulations will be issued during the
  and the Department of Science and             current year and the entire system is
  Innovation will publish a discussion          expected to be completed by the end of
  paper for comment on the future of the        2021.
  research and development tax incentive
  which is due to expire on 1 October 2022.

                                                                                                                                       10
Budget 2021/22 | Deloitte Commentary

Contacts

For more information, contact your nearest Deloitte tax office.

Managing Director, Africa Tax & Legal
Delia Ndlovu, Tel: +27 (0)11 806 6185, Email: delndlovu@deloitte.co.za

Gauteng: Delia Ndlovu, Managing Director, Africa Tax & Legal
Tel: +27 (0)11 806 6185, Email: delndlovu@deloitte.co.za

KwaZulu-Natal: Mark Freer, Regional Leader
Tel: +27 (0)31 560 7079, Email: mfreer@deloitte.co.za

Western Cape: Anthea Scholtz, Regional Leader, Africa Tax & Legal
Tel: +27 (0)21 427 5504, Email: ascholtz@deloitte.co.za

Editorial team
Hannah Marais
Tel: +27 (0)11 304 5463, Email: hmarais@deloitte.co.za

Moray Wilson
Tel: +27 (0)21 427 5515, Email: morwilson@deloitte.co.za

Ruben Johannes
Tel: +27 (0)21 427 5516, Email: rjohannes@deloitte.co.za

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