Database of labour market practices
This database gathers practices in the field of employment submitted by European countries for the purposes of mutual learning. These practices have proven to be successful in the country concerned, according to its national administration. The European Commission does not have a position on the policies or measures mentioned in the database.
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Original Title: | Märgukirja Projekt |
Country: | Estonia |
Responsible body: | Tax and Customs Board (TCB) |
Name(s) of other organisations involved (partners / sub-contractors): | Labour Inspectorate |
Start Year of implementation: | 2003 |
End Year of implementation: | Ongoing |
EU policy relevance: | The promotion of job creation is a European Employment Guideline under the Europe 2020 Strategy. In this context the move from informal or undeclared work to regular employment was highlighted. The European Employment Package adopted in April 2012 carries this combat against undeclared work forward by presenting policies to promote a job creation favourable environment. The measures are put in place to reach the Europe 2020 target of 75% of employment level of the 20-64 year olds. |
National labour market context: | Economic growth from 2000 to 2007 resulted in employment rates above the EU-15 average. After entering in an economic recession in 2008 and with the following world economic and social crisis Estonia’s unemployment rate escalated from 4.1% in 2007 to 19.8% in June 2010 – one of the highest levels in the EU. Even though the GDP grew thereafter, the unemployment rate remained in 2011 at 13% and lately decreased in early 2013 to 10.1%. It is mainly low-skilled workers that are affected by unemployment. Employment levels in particular in non-tradable sectors such as real-estate and construction decreased which led policymakers to re-train and allocate workers to more productive sectors while mitigating fiscal and social costs. |
Policy area: | Job creation, Labour market functioning and segmentation, Labour market participation, Social security systems |
Specific policy or labour market problem being addressed: | Although the share of undeclared wages is fluctuating the problem of undeclared wages is however persistent in the Estonian labour market. According to the Estonian Institute for Economic Research in 2011, 8% of employees received at least partly undeclared wages, which is estimated to be translated into a 100 billion Euro tax loss for the state budget. The rapid economic growth from 2000 to 2007 led to a decrease of “envelope wages” which are wages that employees receive on top of their regular income. Since 2007 “envelope wages” continue to decrease however not in a linear way and fluctuations can be observed. The Estonian state still loses out of estimated 1.7-2.9% of its total state budget due to undeclared wages. The problem affects mainly the construction sector and other non-tradable sectors such as catering and accommodation. |
Aims and objectives of the policy or measure: | Alongside random on-site inspections and control activities the TCB followed another objective namely the prevention of infringement of tax laws and increase of law-abiding behaviour among taxpayers. Thus, instead of burdening employers with tax audits and offence procedures at the first instance, they are given the opportunity to revise their business activities and change them in accordance with the law. This is done via notice letters sent to enterprises that are at risk of tax evasion or where pay of employees seems significantly lower than average wages of the market. Other objectives of preventive methods of control include:
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Main activities / actions underpinning the policy or measure: | The main activity of the letter project consisted of sending notices to selected companies to remind them to adjust their tax behaviour without inspection and possible punishment for tax fraud. A pilot project had been first developed in 2003 and further waves were implemented in 2004 and 2005 and the latest action in 2011. However the letter project was embedded in a number of measures taken by the TCB. Other measures are:
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Geographical scope of policy or measure: | National |
Target groups: | Large enterprises (250 employees or more), Small and medium-sized enterprises (1 - 249 employees) |
Outputs and outcomes of the policy or measure: | At each wave more than 1000 notices had been sent to companies asking to revise their accounting and tax related information and give feedback to the tax authority on the results of their business activities. This preventive measure led six months after the notice that had been sent out by the TCB to an adjustment of tax behaviour of about half of the companies addressed. The measure is seen as extremely cost effective and very successful in awareness raising.
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