This paper contributes to the debate on domestic revenue mobilization and state-building in the Global South by exploring the concept of fiscal states and the common assumption that such states are present in sub-Saharan Africa. We systematically review the diverse understandings of the fiscal state across relevant literatures to revisit its conceptualization. On that basis, we define the fiscal state as a state whose public revenue base is dominated by tax revenue and loans, and where the relationship between taxation and external and domestic borrowing is balanced and thereby sustainable and characterized by interdependence. We distinguish the fiscal state conceptually from the tax, debt, and rentier states and present a typology of these ideal state types, discussing illustrative empirical examples of different states in sub-Saharan Africa. These illustrate that not all sub-Saharan states can be categorized as fiscal states. This is important because when African states are regarded as fiscal states, assumptions are made about their economic structures; yet, to the extent that these are absent, fiscal policy reforms are unlikely to carry long-term positive effects.

This study is published within the UNU-WIDER project Fiscal states-the origins and developmental implications, which is part of the Domestic Revenue Mobilization programme. The programme is financed through specific contributions by the Norwegian Agency for Development Cooperation (Norad).

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As taxation has become a prominent issue on the international development policy agenda, a growing body of research has focused on taxpayer perceptions and experiences of taxation. A strand of this research emphasises the importance of the historical, political and social context of taxation. We position ourselves in line with this research as we pay attention to the emic definitions of taxation in Africa across contexts, languages, and time periods. We explore how the conception of taxation in different contexts is closely interrelated with the language used to describe it, with language being a product of histories of colonialism, conflict, and extraction by social, traditional and political actors. We argue that studies of taxation, particularly survey-based research, need to be complemented, if not informed, by a deeper understanding of the diversity of tax landscapes and of the meanings ascribed to taxation in a given context. This will strengthen content and interpretive validity of taxpayer perception data as well as provide important nuances to the understanding of the dynamics of taxpayers’ experiences of contemporary states and systems of taxation.

A demand-supply framework has been developed and applied to Tanzania to explore the link between democratisation, economic liberalisation and the use of tax exemptions to fund political parties' electoral campaigns. In Tanzania, the demand for this type of money has increased since one-party rule was abolished in 1992. This led to reduced state subsidies to parties, while growing inter-and intra-party competition for political power through the ballot box increased the campaign costs of the last three elections. Political liberalisation also raised the cost of keeping together increasingly fragmented political elites. The increased supply of political funding for the ruling party is driven by mutual interest between the funding demands of political elites, the interests of companies and emerging capitalists for tax exemptions and other rents to succeed in business. This demand-supply framework helps to explain an increased use of tax exemptions for private companies and individuals around election years in Tanzania. The framework is also relevant to the analysis of political financing through tax exemptions elsewhere on the African continent.