Summary: After abolishing export tariffs, the cost advantages of Russian crude oil and oil products in the international market will be more obvious, which will help to enhance Russia’s influence in the oil market.
The Russian government passed two decrees in July and August 2018 to reform the tax and fee of its oil industry. The general principle is to reduce the export tax on crude oil and petroleum products year by year until it is abolished, while raising the oil exploitation tax equally. Although the tax reform will raise the price of Russian domestic refined oil in the short term, and the new tax rebate system and dumping coefficient will make its oil tax and fee system more complex, in the long run, the new tax system will help to improve government revenue and the competitiveness of Russian oil in the international market, as well as promote the upgrading of its domestic refining industry, whether to the Russian government or to the Russian government. For the oil industry, the advantages outweigh the disadvantages.
The abolition of export tariffs is not a temporary phenomenon
The abolition of export tariffs on crude oil and petroleum products is not a temporary rise in Russia. It tried in the mid-1990s, but the subsequent financial crisis forced it to give up. Since then, Putin has repeatedly asked relevant departments to study the abolition of tariff measures on crude oil and oil exports, and when the plan took shape, it caught up with the sharp fall in oil prices in the second half of 2014 and was postponed again. However, with the implementation of joint production reduction, international oil prices began to recover as a whole since the beginning of 2017. The financial situation of the Russian government and oil companies has greatly improved, which provides an opportunity for tax reform. In addition, from the direction and content of the adjustment, this is not an independent adjustment. It continues the basic principles and direction of the adjustment of oil tax policy from 2015 to 2017, formulates supplementary and solutions to the unresolved problems of the last adjustment, and finally forms a relatively complete tax reform plan.
The main contents of the Russian oil tax policy adjustment from 2015 to 2017 are to reduce the export tax rate, increase the exploitation tax rate, keep the profit level of upstream oil companies basically stable, postpone the time of raising the export tariff of petroleum products to the export tariff level of crude oil from the original plan of 2015 to 2017, and provide enough time for refineries to complete the modernization of equipment. Avoid a shortage of gasoline or a sharp rise in oil prices at home. Another important background of the reform at that time was that in 2015, when Russia, Kazakhstan and Belarus established the Eurasian Economic Union, the tax revenue of the government would inevitably decrease due to the duty-free imports within the Union. In order to maintain the level of federal tax revenue, additional tax revenue should be considered. Oil tax, as the main source of budget revenue of the Russian Federation, naturally became the government revenue. The preferred target for line adjustment.
However, the Russian government believes that the reform in the oil and gas field from 2015 to 2017 is not thorough enough, and some problems have not been fundamentally solved. First, Belarus and Kazakhstan imported crude oil from Russia, resulting in tariff losses on Russian crude oil exports. For a long time, for different purposes, Belarus and Kazakhstan have been importing crude oil from Russia, especially Belarus, whose annual refining volume greatly exceeds consumption (e.g., 20 million tons of refining oil in Belarus in 2014 and 7.5 million tons of consumption). All remaining oil and gas products are exported, equivalent to low tariffs from Russia (before the establishment of Eurasian Economic Union) or zero tariffs (Eurasian-Asian Economic Union). After the establishment of the alliance, the government of Belarus and Kazakhstan gained additional tariff revenue by importing crude oil and exporting high value-added petrochemical products after domestic refining, while Russia suffered tariff losses. Secondly, the difference in export tax rates of crude oil and petrochemical products causes the problem, which is essentially equivalent to the subsidies provided by the Russian government to refineries. In the past, the export tariff on petrochemical products was lower (66% of the export tariff on crude oil after October 2011), while the export tariff on crude oil was heavier. After purchasing crude oil, refineries exported to the international market after paying less tariff after primary refining processing, so that they could obtain considerable profits. Therefore, refineries generally lack enthusiasm to carry out products. Deep processing, or investment in modernized refineries, has resulted in a low proportion of refined products meeting European standards in the Russian market.
The Russian government believes that the fundamental way to solve the above problems is to gradually abolish export tariffs on crude oil and petrochemical products and increase oil and gas exploitation taxes so as to compensate for the decrease in federal tax revenue caused by the reduction (abolition) of export tariffs. This will not only ensure that federal tax revenue does not decrease, but also avoid tariff losses due to the existence of Eurasian Economic Union in the future, but also solve the downstream problem. The issue of export subsidies for enterprises. It is expected that after the gradual abolition of export tariffs, Russian domestic petrochemical products will participate more in international competition. Refineries will take the initiative to improve their technological level, modernize their equipment, produce more high-quality refinery products, and further adjust their petroleum tax policies in 2018.
Tax reform is vigorous
The main contents of Russia’s current oil tax reform include three aspects, namely, reducing export tax on crude oil and oil products year by year, synchronously increasing oil exploitation tax (MET), providing tax preferences and introducing tax rebate system.
In terms of reducing export tax, the new scheme stipulates that from January 1, 2019, constant coefficients will be introduced in the collection of export tax on crude oil and oil products, which will be 0.833 in 2019, and will be reduced year by year from 2020 to 2023, which will be 0.677, 0.5, 0.333 and 0.167, respectively. By 2024, the export tax will be completely abolished. In terms of raising the exploitation tax, a formula for calculating the tax rate of crude oil exploitation is designed considering the factors of crude oil reserves, production, quality, oil price and exchange rate. From January 1, 2019, the tax rate calculated by this formula will be multiplied by the tax rate of constant coefficient, which is 0.167 in 2019, 0.333, 0.5, 0.667, 0.833 in 2020-2023, and 1 in 2024, respectively. The reduction of export tax corresponds.
Since the tax base of exploitation tax is larger than export tax, the implementation of the new tax system will inevitably lead to a rise in the price of crude oil and oil products in Russia, which will have a greater impact on downstream enterprises and consumers. In order to balance the interests of many parties, the Russian government has introduced preferential tax policies for refineries, including refineries in remote areas, refineries investing in upgrading refinery facilities, and the proportion of gasoline with high octane number. High refineries and sanctioned refineries almost cover all refineries in Russia, which are mainly subordinate to companies, to help them mitigate the short-term impact of rising raw material prices. At the same time, tax rebates and dumping coefficients are introduced to reduce the range and fluctuation length of domestic oil prices and the impact of tax and fee reform on the cost of life of end-users.
Positive effects far outweigh negative ones
In view of the important role of oil in Russia’s economic development and diplomacy, the impact of the oil industry tax adjustment on Russia is multifaceted, and from the overall and long-term development perspective, the positive impact far exceeds the negative impact.
First, the new tax system increases government revenue and reduces the financial burden. In the past, crude oil export tax was levied on crude oil for export, which accounted for about half of Russia’s crude oil production, while the object of exploitation tax was all crude oil produced in Russia. Its tax base was bigger than export tax. Therefore, although the increase of exploitation tax rate and the decrease of export tax rate in this reform were the same, the actual tax revenue of the government was increased. . The Deputy Prime Minister of Russia expects that this reform will add 20 to 25 billion US dollars in revenue to the government in the next six years. According to Wood McKinsey’s oil price-based estimates, the new tax plan will provide the Russian government with an additional income of $112 billion between 2019 and 2024. Although the expected data are quite different, the basic understanding is unanimous, that is, the new tax scheme will help increase government revenue and facilitate the implementation of Russia’s “economic recovery plan”. Until 2017, Russia’s oil export tariff has been significantly lower than the crude oil export tariff. It is very important for refineries to extract only domestic crude oil. After extracting light diesel oil and gasoline, they will export the remaining heavy oil as oil products at a lower tariff rate to earn profits. In order to meet the demand of domestic market for oil consumption, the Russian government often needs to subsidize refineries to help them upgrade their technology and equipment. The annual cost is about 15 billion US dollars. After the export tax rates of crude oil and oil products are unified, refineries will take the initiative to upgrade their equipment, and government subsidies will be greatly reduced.
The second is to improve the competitiveness of Russian oil and oil products and related companies. The shale oil revolution in the United States is continuing to reshape the global oil market. At present, the oil market is still in a state of oversupply. Peak oil demand is gradually becoming a consensus. The oil market is increasingly developing towards the buyer’s market. Oil producers who used to sit on a few dollars show their ability to compete for the market. Russia is rich in petroleum resources and has lower exploration and development costs than most resource countries. After abolishing export tariffs, the cost advantage of Russian crude oil and oil products in the international market will be more obvious, which is conducive to enhancing Russia’s influence in the oil market. In addition, after the tax reform, although the mining tax is more extensive than the export tax, it will lead to an increase in the tax burden of companies engaged in upstream business. However, Russia has changed mineral resources tax to profit tax before, which has helped oil companies reduce part of the tax burden, and the export revenue of crude oil will increase significantly after the abolition of export tax. The overall operating environment of upstream companies will be better. For Russian downstream refineries, after the abolition of oil export tax, these enterprises will participate more in the world oil market, promote the modernization and upgrading of domestic refineries, and improve the overall level of domestic refining industry and enterprise competitiveness.
Third, it has solved the tax losses of Russian oil exports caused by the low tariffs of Eurasian Economic Union. The Eurasian Economic Union consists of six former Soviet Union countries, including Russia, Belarus and Kazakhstan. It is a supranational alliance planned to deepen economic and political cooperation and integration. On January 1, 2019, the tax exemption threshold for products within the alliance has been reduced to 500 euros, and will be further reduced until it is cancelled. The tax losses caused by Russia’s exports of crude oil and oil products to the member countries of the alliance are close to 10 billion US dollars annually. The tax reform has enabled Russia to abide by low or even zero tariffs within the coalition, and to avoid tax losses through source taxation.
Of course, this reform also has a negative impact on Russia. On the one hand, the tax reform has introduced many new calculation formulas and tax measures, making the Russian oil industry tax system more complex. On the other hand, Russia’s new oil tax system has obvious “egoism” color, which may affect Russia’s relations with some trading partners, especially with Belarus, Kazakhstan and other countries. The probability of local disagreements around oil import and export will increase.