Shareholders, Tax Amnesty and Tax Planning for Manufacture
Industry in Indonesia
Muhammad Rifky Santoso, Azhar Maksum, Ramli, Rina Br. Bukit
Economics and Business Faculty, Universitas Sumatera Utara, Jl. Prof. T.M Hanafiah, SH, Kampus USU, Medan,
Indonesia
Keywords: Tax Planning, Shareholders, Tax Amnesty
Abstract: The company minimizes the income tax expenses by applying the tax planning strategy. On the other hand,
the government needs income taxes revenues. Therefore, the government issued a tax amnesty policy so that
income tax revenues increase and taxpayers become more compliant. It is necessary to examine whether the
tax amnesty program can meet the expectations of the government, namely the increase in income tax
revenues and taxpayers being more compliant. By taking a sample of manufacturing companies listed on the
IDX and data from 2014 to 2017, it is known that the tax amnesty program that is in effective in 2016 and
2017 can increase income tax revenue in the tax amnesty year applied but makes the taxpayers more
aggressive in doing tax planning strategy. Compared to domestic institutional shareholders, foreign
shareholders are more aggressive in doing tax planning strategy when tax amnesty is applied. If the
government's goal is only to increase income tax revenues from the rupiah amount, then the tax amnesty can
be used. The negative effect of tax amnesty is that the taxpayers are increasingly aggressive in doing tax
planning.
1 INTRODUCTION
One of a corporates objectives is to increase the
shareholders’ wealth. The corporate can increase the
revenues with certain expenditures or decrease
expenditures with certain revenues. One of the
expenditures can be reduced is income tax expenses.
The schema to reduce the income tax expenses is by
using tax planning strategy. One indicator to know a
corporate using tax avoidance strategy is effective tax
rate (ETR). The lower the ETR of a corporate, the
more probable the corporate applied tax planning
strategy.
Management has applied a tax planning strategy
in order to shareholders’ benefits because the strategy
can increase profit after income tax (Wahab &
Holland, 2012) and finally increase the shares’ value.
In other side, tax planning applied by a multinational
company can reduce a government’s revenues and
increase economic efficiency problems (Johansson,
Skeie, Sorbe, & Menon, 2017). In general, tax
planning can harm the state’s revenues and national’s
economy; however, tax planning is beneficial for
shareholders and management.
Board of Directors (BoD) has a power to control
and to operate a corporate after receiving mandate
from the shareholders. BoD has an authority to do or
not to do a tax planning strategy in a corporate.
Meanwhile, the BoD decisions are influenced by the
shareholders. In fact, an individual shareholder can be
a member of the BoD and an institute shareholder can
have a representative in the BoD.
Many papers have examined the relationship
between ownership structure and tax planning. A
company controlled by families who own company
shares is less likely to carry out tax planning
compared to ownership that is not family (Chen,
Chen, Cheng, & Shevlin, 2010). The amount of
ownership is more than the minimum amount to be
able to exercise control will reduce the possibility of
doing tax planning (Gomes, 2000). However, other
studies explain that when the number of ownership is
at a certain minimum, there is no relationship between
ownership and tax planning (Richardson, Wang, &
Zhang, 2016). From previous research, there is a
relationship between ownership structure and tax
planning. Thus the ownership structure becomes a
variable that affects tax planning.
When the government needs more revenues from
taxes, a tax amnesty policy is issued. The application
of tax amnesty in Indonesia has begun on July 1, 2016
until March 31, 2017. The imposition of penalty
162
Santoso, M., Maksum, A., Bukit, R. and Ramli, .
Shareholders, Tax Amnesty and Tax Planning for Manufacture Industry in Indonesia.
DOI: 10.5220/0009200701620169
In Proceedings of the 2nd Economics and Business International Conference (EBIC 2019) - Economics and Business in Industrial Revolution 4.0, pages 162-169
ISBN: 978-989-758-498-5
Copyright
c
2021 by SCITEPRESS Science and Technology Publications, Lda. All rights reserved
through sanctions on tax amnesty consists of three
stages, each of which is valid for 3 months. The
application of tax amnesty can affect and does not
affect the company's tax planning strategy.
Companies with tax planning aggressively will be
affected by tax amnesty policy. For companies where
the implementation of tax planning is not aggressive,
there is a possibility that tax amnesty does not affect
the tax planning strategy.
Form data of 137 manufacturing companies listed
on the Indonesia Stock Exchange (IDX), and the
period from 2014 to 2017, it is known that the
tendency of taxpayers to do tax planning after tax
amnesty still exists, as shown in Table 1. It can be
assumed that manufacturing companies listed on the
IDX have carried out aggressive tax planning because
the average of ETR decreases with the existence of
tax amnesty.
Table 1: Effective Tax Rate (ETR) Manufacture Companies
in IDX
2014 2015 2016 2017
M
ean 0.242 0.282 0.096 0.127
M
edian 0.242 0.244 0.249 0.242
M
aximu
m
4.552 5.795 3.924 1.806
M
inimu
m
-1.074 -7.492 -7.677 -10.172
Source: IDX (2018).
Manufacturing companies are more flexible to do
the tax planning strategy because there are no
restrictions in doing business besides the core
business. Some tax planning strategies include
finding businesses and/or tax facilities that have
lower tax rates than the generally applicable income
tax tariff, which is lower than 25%. The
manufacturing industry provides the largest
contribution to Indonesia's gross domestic product
(GDP), which is more than 20% of total GDP. For
2016 and 2017, the percentage of manufacturing
industry GDP to Indonesian GDP was 21.28% and
20.97%, respectively. From this data, this research
use manufacturing industry companies as research
samples.
This paper examines the influence of the
ownership structure on tax planning strategy that is
intervened by the existence of tax amnesty
regulations. The ownership structures in this paper
are domestic institution shareholders and foreign
shareholders. This paper finds that tax amnesty
influences the relation between domestic institution
shareholders and tax planning in different way. Tax
amnesty also influences the relation between foreign
shareholders and tax avoidance in significance.
This article consists of literature study that
explains theory and previous related studies. Method
section explains the type of research and data used.
The results section explains the descriptive statistics
of the data, the relation amongst the independent
variables, and relation between dependent variable
and independent variables. The discussion section
discusses the understanding of the results.
2 LITERATURE STUDY
2.1 Theory
Agency theory arises because of the collaboration
between the two parties resulting in risk sharing due
to different behaviors. The parties are principle and
agent. In the collaboration, there can be a problem
called the agency problem. Agency theory describes
this collaboration as a contract and seeks to divide the
existing problems into two, namely (Eisenhardt,
1989)
1. There is a conflict of interest between the
principle and the agent.
2. Difficult and/or expensive cost for the principle to
ensure that the agent has done his job as it should
be.
One of these conflicts of interest is the existence
of the opportunistic management that uses tax
planning as a tool for its interests, which is to increase
the incentives received. Supposedly, the tax planning
can add value to the company and the value exists if
good corporate governance is implemented (Desai &
Dharmapala, 2009). Without good governance, the
tax planning does not produce good results for
shareholders. Therefore, the control of shareholders
can influence the tax planning (Badertscher, Katz, &
Rego, 2013; Gomes, 2000; Khan, Srinivasan, & Tan,
2017) which can affect company value through
transparency (Wang, 2011). The good governance
can reduce the cost of ensuring the agent work
according to the principle expectations.
2.2 Previous Study
Many terms are used by experts to explain the
reduction in income tax, such as tax planning, tax
avoidance, tax sheltering, tax evasion, and tax
aggressive. All actions to reduce income taxes are
called tax planning (Lietz, 2013). Tax planning
includes all actions to reduce taxes, both legal and
illegal, compliant or non-compliant with tax
Shareholders, Tax Amnesty and Tax Planning for Manufacture Industry in Indonesia
163
regulations, and the burden of tax planning can be
related to income taxes or not (Myron S. Scholes,
Wolfson, Erickson, Hanlon, & M, 2016). Tax
planning is designed based on the company's business
strategy with the aim of maximizing returns after
income tax. Tax planning also includes utilizing
facilities provided by the tax authority.
According to agency theory, there are conflicts
between principles (shareholders) and agent
(management). One of these conflicts of interest is the
existence of opportunistic management that uses tax
planning as a tool for its interests, namely increasing
the incentives received. Supposedly, tax planning can
add value to the company and this can happen if the
implementation of good corporate governance (Desai
& Dharmapala, 2009). Without good governance, tax
planning does not provide good results for
shareholders. Therefore, control of shareholders can
influence tax planning (Badertscher et al., 2013;
Gomes, 2000; Khan et al., 2017) which can affect
company value with transparency (Wang, 2011).
With good governance, the cost of ensuring that the
agent has worked according to the principle
expectations can be reduced. Therefore, shareholders
can influence tax planning in the company.
Tax amnesty has applied in Indonesia from July
2016 to March 2017. The tax amnesty gives taxpayers
the opportunity to disclose assets that have not been
reported in annual tax returns by paying a fine. The
nature of the tax amnesty is voluntary. If in the future
the taxpayer is known to have assets that have not
reported during the tax amnesty, the taxpayer will be
subject to more severe sanctions. By participating in
the tax amnesty, the taxpayer debts in the past have
been deleted. The tax amnesty policy is a popular
government policy to increase government revenues
from taxes but it does not increase tax payers’
compliance (Stella, 1991). This revenue increasing is
only from taxpayers who gain benefit from the tax
amnesty (Malik & Schwab, 1991). The
implementation of the tax amnesty can make the
taxpayers not compliant with taxes because there is
hope for the subsequent tax amnesty (Bayer,
Oberhofer, & Winner, 2015).
Many researchers have examined the relations
between ownership structure and tax planning. With
a sample of companies in the USA, companies
controlled by family as owners is less likely to do tax
avoidance compared to ownership that is not family
(Chen et al., 2010). The amount of ownership more
than the minimum amount to be able to control will
reduce the possibility of doing tax avoidance (Gomes,
2000). However, other studies explain that the
relationship between ownership concentration and
tax avoidance is non-linear and inverted U-Shaped.
When ownership concentration is low, the increase in
ownership concentration is positively related to tax
avoidance. Passing the minimum level associated
with effective control, the increase in addition of
ownership concentration negatively associates tax
avoidance (Richardson et al., 2016).
By using a sample of companies in the USA, an
increase in share ownership by institutions in a
company is associated with an increase in tax
avoidance (Khan et al., 2017). With increasing
ownership, the number of shareholder representatives
in the company will increase. Thus the control of
shareholders towards the company is getting bigger to
increase the value of the company by reducing the tax
burden. However, companies that have a greater
concentration of ownership and control, will make
fewer tax deductions than companies with fewer
concentrations of ownership and control (Badertscher
et al., 2013).
Using a sample of companies in Thailand, it is
known that domestic institutional shareholders will
provide effective control of the company compared to
institutional foreign shareholders (Thanatawee,
2014). This monitoring is related to the improvement
of corporate governance that ultimately relates to tax
planning. Foreign shareholders take company
resources that are borne by minority shareholders.
Thus, shareholders have a relationship with tax
planning.
3 METHODS
This study uses a causally comparative method. This
study answers how the relationship between the
dependent variable and the independent variables by
analyzing the effect of independent variables on the
dependent variable. Independent variables are
variable that affects the relationship between
shareholders and tax planning. In this study tax
planning is a dependent variable. The definition of
these research variables is shown in Table 2.
EBIC 2019 - Economics and Business International Conference 2019
164
Table 2: Variable Definitions
Variable Definition
Dependent Variable
Effective Tax
Rate (ETR)
The ratio of the total current income tax expenses to current income before tax according to
accounting (Armstrong, Blouin, & Larcker, 2012; Badertscher et al., 2013; Khan et al., 2017;
Phillips, 2003).
Independent Variables
Shareholders:
1. Institution
(PSInstitusi)
2. Foreign
(PSAsing)
1. The ratio of the domestic institutional shareholders to the number of outstanding shares.
2. The ratio of the foreign shareholders to the number of outstanding shares.
State shareholders, cooperative, union, and foundation established in Indonesia are classified
as domestic institutional shareholders. Some papers use the percentage of institution shareholders
as proxy (Bird & Karolyi, 2017; Wahab & Holland, 2012).
Tax Amnesty
(TA)
It is a dummy variable. The value is =0 if the data used before the tax amnesty applied, and
the value is =1 if the tax amnesty is applied.
Control Variable
LnSize It is a logarithm of the total assets of the company (Taylor & Richardson, 2014).
The population of this study is all manufacturing
companies whose shares are traded on the Indonesia
Stock Exchange (IDX) in 2017. Data collection is
from 2014 to 2017. the samples of this study are:
1. All manufacturing companies whose shares are
traded in 2017 on the IDX,
2. Available financial report data and annual reports,
and
3. Already registered on the IDX before 2017.
There are 126 companies as samples and 504
observations using in this paper. The model in this
paper is as follow:
ETR
i,t
= α
0
+ β
1
TA
it
+ β
2
PSAsing
i,t
+ β
3
PSInstitusi
i,t
+ β
4
(TA
it
* PSAsing
i,t
) + β
5
(TA
it
*
PSInstitusi
i,t
) + β
6
LnSize
it
+ ε
i,t
4 RESULTS
The descriptive variables in this paper are shown
in Table 3.
Table 3. Descriptive Variables
Mean Median Max Min Std.Dev.
ETR 0.198 0.247 5.795 -10.172 0.807
PSInstitusi 0.394 0.419 0.982 0.000 0.316
PSAsing 0.295 0.118 0.998 0.000 0.326
TA*PSInstitusi 0.203 0.000 0.954 0.000 0.306
TA*PSAsing 0.137 0.000 0.998 0.000 0.267
LnSize 14.609 14.425 19.505 11.400 1.548
Table 4. Independent Variables Correlation.
TA PSInstitusi PSAsing
TA*
PSInstitusi
TA*
PSAsing
LNSIZE
TA 1.000
PSInstitusi 0.042 1.000
PSASing -0.067 -0.776 1.000
TA*PSInstitusi 0.666 0.565 -0.441 1.000
TA*PSAsing 0.513 -0.447 0.569 -0.143 1.000
LNSIZE 0.047 -0.040 0.033 -0.001 0.069 1.000
Shareholders, Tax Amnesty and Tax Planning for Manufacture Industry in Indonesia
165
Table 5: The data Processing Results
Independent Variables
Dependent
Variables
ETR
C 0.160350
Prob. (0.0000)
TA 0.015030
Prob. (0.0001)
PSInstitusi 0.050533
Prob. (0.0000)
PSAsing -0.000632
Prob. (0.9491)
TA*PSInstitusi -0.024469
Prob. (0.0004)
TA*PSAsing -0.126650
Prob. (0.0000)
LnSize 0.002218
Prob. (0.2834)
R-squared 0.974389
Adjusted R-squared 0.965370
Prob(F-statistic) 0.000000
Durbin-Watson stat 2.523695
The median of ETR is near to statue tax rate in
Indonesia for the corporate taxpayer, 25%. Std.Dev
of the ETR is 0.81. This fact explains that some
companies have applied tax planning strategy
aggressively. This condition is also supported by the
large range value of the maximum and the minimum
value of ETR. The domestic institution shareholders
(PSInstitusi) have more percentage shares than the
foreign shareholders (PSAsing). This fact is
supported by mean and median of the percentage.
The model in this paper is fixed model because
the number of cross section (N=126) is large, the
number of time (T=4) is small, and the sample is not
random (purposive sampling) (Gujarati, 2003:650-
651). By using big panel data (504 observations), this
paper should pass the correlation and
heteroscedasticity tests. For correlation, this paper
uses the limit 0.8 as a rule of the thumb. If the
correlation is still under 0.8, the correlation is
accepted. The correlation among the independent
variables is shown in Table 4.
The correlation between domestic institution
shareholder (PSInstitusi) and foreign shareholder
(PSAsing) is high (0.776) but it is still under 0.8.
These two independent variables are using the same
base to calculate the ratio, the outstanding shares. For
the heteroscedasticity tests in this fixed model, this
paper is comparing the weighted and unweighted test
in the eviews program. The result of the comparison
is shown in Appendix 1. This comparison argues that
this model has heteroscedasticity and consequently
the model should have treatment to have the best
model. The treatment is done by using the White
cross section standard errors & covariance (no d.f.
correction). The results of the data processing are
shown in Table 5.
5 DISCUSSION
In theory and empirically, tax amnesty is positively
and significantly related to tax planning. Tax amnesty
can increase corporate income tax expenses and
payments of a corporate to be the State’s revenues.
This is evidenced by the increase in state revenues
from taxes in rupiah. So, the government's goal to
increase tax revenues with the tax amnesty policy can
be realized during the enactment of the tax amnesty
policy. This result is in accordance with Stella's
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166
statement (1991) and the income tax revenues
collected by government as shown in Table 6.
Table 6: Corporate Income Taxes Revenues
Year
Income Tax Revenues
(Rp.Billions)
2012 513.650
2013 538.760
2014 569.867
2015 679.370
2016 855.843
2017 783.970
Tax Amnesty is positively and significantly
related to ETR. Tax amnesty can increase ETR and
reduce tax avoidance. The tax amnesty regulation
requires the taxpayer to declare its assets that have not
been reported so far; consequently the tax burden of
the taxpayer has increased.
Domestic institutional shareholders are positively
and significantly related to ETR. By applying the tax
amnesty policy, the relationship of domestic
institutional shareholders with tax planning
(TA*PSInstitusi) changes, from positive to negative.
Tax amnesty affects this relationship. Tax amnesty
affects domestic institutional shareholders to reduce
the tax burden.
Domestic institutional shareholders affect the
company's tax burden calculated by ETR. In rupiah,
there are additional tax revenues received the State,
but on the corporate side there are actions to reduce
the tax burdens as a percentage of accounting profit.
The relationship of foreign shareholders with
ETR is not significant. By applying the tax amnesty
policy, the relationship of foreign shareholders with
ETR (TA*PSAsing) becomes negative and
significant. It can be concluded that without tax
amnesty policy, the foreign shareholder does not pay
too much attention to ETR. The tax amnesty policy
affects the foreign shareholder to reduce income tax
burdens.
The mean of manufacturing companies’ ETR in
the tax amnesty year is smaller than that of the year
before the tax amnesty applied. This data is shown in
Table 7. These facts are supported by the value of
maximum, minimum, and standard deviation of the
ETR. Thus it is evident that the tax amnesty policy
makes the taxpayers to do more aggressive tax
planning strategy (Bayer et al., 2015).
The tax amnesty policy has more influencing to
the relation between foreign shareholders and tax
planning than that of between domestic institutional
shareholders and tax planning. It is supported by the
coefficient from the data processing results. The
effect of TA*PSInstitutions to ETR is -0.024 and
TA*PSAsing to ETR is -0.127. The foreign
shareholders’ responses are greater than that of the
domestic institution shareholders due to tax amnesty
policy. By applying the tax amnesty policy, the
foreign shareholders are more aggressive in tax
planning strategy than that of domestic institutional
shareholders.
Table 7: ETR Descriptive
Descriptive 2014 2015 2016 2017
Mean 0.257 0.284 0.124 0.125
Median 0.247 0.248 0.248 0.242
Max 2.274 5.795 2.018 1.806
Min -0.513 -7.492 -5.550 -10.172
St.Dev. 0.301 1.014 0.674 1.014
This study does not further examine how the tax
planning strategy with the influence of domestic
institutional and foreign shareholders carried out by
the company when the tax amnesty policy applies.
The results of this regression also find that increasing
the percentage of domestic institutional and foreign
shareholders causes the company carried out the
aggressive tax planning strategy.
Table 5 explains that the adjusted R-squared is
0.965. It can be concluded that the shareholders have
a significant role in doing a tax planning strategy
when the enactment of the tax amnesty policy.
6 CONCLUSION
One way to increase the wealth of a company's
shareholders is to reduce the tax burden and the
burden can be reduced by the tax planning strategy.
On the other hand, the government has an interest in
increasing tax revenues, one of which is tax amnesty
policy. This tax amnesty policy will certainly cause a
reaction from shareholders so that their wealth in the
company does not go down.
The domestic institutional shareholders have a
positive influence on tax planning as measured by
ETR. This means that there is no influence to reduce
the tax burden aggressively. Once tax amnesty is
applied, a reaction arises to reduce the tax burden
aggressively. This could be due to anxiety about the
decline in the value of wealth because they have to
pay greater taxes.
The foreign shareholders do not care about the tax
planning strategy done by the management in the
company. Once there is a tax amnesty policy is
Shareholders, Tax Amnesty and Tax Planning for Manufacture Industry in Indonesia
167
applied, the foreign shareholders will feel disturbed
and influence the corporate tax planning strategy so
that the tax burdens becomes smaller.
The reaction of the foreign shareholders is greater
than that of the domestic institutional shareholders in
carrying out tax planning strategies when the tax
amnesty is implemented. This fact relates to the
ability to monitor a company conducted by the
foreign shareholders is not as good as that carried out
by the domestic institutional shareholders
(Thanatawee, 2014).
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APPENDIX
By using reviews program, the fixed model is tested
by weighted and unweighted for heteroscedasticity.
The result of this test is as follow:
Effective Tax Rate (ETR)
Unweighted Weighted
Significant
Independent
Variables
- TA*PSAsing
R-squared 0.313458 0.974389
Adjusted R-squared 0.071692 0.965370
Prob(F-statistic) 0.031126 0.000000
Durbin-Watson stat 2.669778 2.523695
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There are some different significant between
weighted and unweighted for ETR. The Adjusted R-
squared is 0.071692 for unweighted and 0.965370 for
weighted. It means that the model with ETR as a
dependent variable has heteroscedasticity. It means
that fixed model in this paper has heteroscedasticity
problems
Shareholders, Tax Amnesty and Tax Planning for Manufacture Industry in Indonesia
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