Services A-Z     Pricing

Counting the cost of the UK tax system

24 June 2025

It would not be particularly bold or adventurous to consider that a well-designed tax system should be founded on principles of fairness, certainty, convenience, and efficiency. It should be possible for taxpayers to understand the extent of their liabilities and for tax to be collected with minimal effort on the part of the administrator. Additionally, the revenue generated should justify the costs of collection.
 

The Committee of Public Accounts (CPA) recently published a report examining the costs associated with administering the UK tax system. It highlights significant increases in both the operational expenses of HM Revenue and Customs (HMRC) and the burden on taxpayers, particularly businesses.

Rising collection and compliance costs
 

HMRC raised £829 billion from tax in 2023-24, while the process of collecting tax came at a cost of £4.3 billion. The return on investment, which then goes to pay for public services, is still significant. However, despite increased investment, the report confirms that productivity has declined.

Tax administration costs for businesses during the same period are estimated at £15.4 billion. In April 2025, the Federation of Small Businesses issued a report raising concerns about the significant tax compliance burden for small businesses, and the impact on the mental health of business owners. The consequences for economic growth, due to a reduction in available funds for investment and job creation, is difficult to quantify.

Clear as mud?
 

The report confirms that in 2022 to 2024, there were 240 tax policy changes announced at an estimated net cost of £875 million to HMRC and £913 million to businesses. Understandably, changes are often introduced quickly to plug ‘loopholes.’ However, if they are introduced in a piece mealway that adds layers of complexity, a disproportionate burden falls on taxpayers, who then have to navigate an overly convoluted system.

It is often mentioned by advisers that the UK tax code is the longest (21,000+ pages) in the world. It is uncontroversial to suggest that the length and complexity increases the risk of costly mistakes. A significant number of tax investigations relate to inadvertent breaches of rules, which may not have arisen if they were easier to understand. If rules are unclear, opportunities for evasion or avoidance increase, as those minded to do so exploit the lack of clarity.

In what many tax advisers consider to be their Groundhog Day, the government announced the introduction of measures to ‘simplify’ the tax system in the Autumn Budget and Spring Statement. Time will tell whether 2025 will result in a meaningful improvement for businesses.

Trust deficit
 

The report confirms that trust in HMRC has fallen among businesses, agents, and individuals. In January 2025, the BBC reported that HMRC denied allegations it was providing a ‘deliberately poor’ phone service in order to force taxpayers to seek help online. The decline in trust could impact on taxpayers’ willingness to engage with HMRC at an early stage when a problem arises, leading to greater issues as a result.

Tech troubles
 

Work on updating HMRC’s outdated IT systems is reportedly ongoing, but has proven to be more complex than anticipated. The recently reported phishing attack, resulting in the loss of £47 million to taxpayer accounts, is clear evidence of the need for modern, robust, and secure systems.

The IMF recently reported on the use of artificial intelligence (AI) by tax authorities in other jurisdictions. In Singapore, virtual assistants answer tax questions in multiple languages. Korea makes use of an AI guide to help taxpayers file and pay taxes, while France uses AI to analyse incoming emails and drafts suggested responses for civil servants to sign off on. HMRC’s efforts in the form of the Making Tax Digital programme are not proving very popular, and has reportedly increased costs for businesses.

The related benefit from the more effective use of available tools would also mean that the time spent by HMRC staff on administrative tasks would decrease and, in an ideal world, they (with additional training) could help progress be made in regard to the significant backlog in complicated tax investigations and enquiries.

Conclusion
 

The CPA report underscores the need for HMRC to address rising costs, improve public trust, enhance compliance productivity, modernise IT systems, and leverage emerging technologies. By implementing these recommendations, HMRC can better serve taxpayers and ensure a more efficient and effective tax administration system, while also boosting public coffers. It is hoped that all of the above would be high up on the to-do list for the new Permanent Secretary and Chief Executive of HMRC.

This article was first published in the Solicitors Journal on 11/06/25.

About the author

Waqar is a Partner in the Dispute Resolution department, focusing on the resolution of complex tax matters. He acts for high net worth individuals and corporate clients across all sectors in respect of HMRC disputes and investigations across the full range of taxes. This typically includes VAT disputes, employment tax matters (including 'IR35'/off-payroll working), customs/excise duty issues, tax fraud investigations, and more recently, National Minimum Wage enquiries.

 

Latest blogs & news

2025 in review: Under construction - Tax investigations

In Rachel Reeve’s Budget on 26 November 2025, the Chancellor set out plans, among other things a to tackle fraud within the Construction Industry Scheme (“CIS”) and announced a technical consultation “aimed at simplifying and improving the administration of the scheme”.

HMRC’s strengthened reward scheme for whistleblowers of tax avoidance and evasion

The Chancellor has announced the terms of the financial incentive for those who report serious tax avoidance or evasion, the Strengthened Reward Scheme. Between 2023 and 2024, there is estimated to be a tax gap of £46.8 billion between the amount of tax recovered by HMRC and the amount of tax due to HMRC. With a minimum threshold of £1.5 million in unpaid tax, the scheme aims to address the tax gap by specifically targeting large-scale tax evasion by companies, wealthy individuals, and offshore or avoidance schemes.

Under construction: Tax investigations

In Rachel Reeve’s Budget on 26 November 2025, the Chancellor set out plans, among other things a to tackle fraud within the Construction Industry Scheme (“CIS”) and announced a technical consultation “aimed at simplifying and improving the administration of the scheme”.

No more deemed fulfilment: The Supreme Court decision in King Crude Carriers SA v Ridgebury November LLC

The recent Supreme Court judgment in King Crude Carriers SA and others v Ridgebury November LLC marks a significant development in English contract law.

The decision arose from an appeal against an arbitration award and addresses the fundamental question of whether the so called “deemed fulfilment” principle established by the 1881 Scottish Appeal case of Mackay v Dick exists in English Law.

2025 in Review: Civil Fraud

In 2025, two High Court rulings, Apollo XI Ltd v Nexedge Markets Ltd and J&J Snack Foods Corp & ICEE Corp v Ralph Peters & Sons Ltd highlighted the strict nature of the duty of full and frank disclosure in without notice applications.

In both cases, the court discharged freezing injunctions after finding that the applicants had failed to meet the requisite standard of candour and fair presentation. These decisions serve as a clear reminder that when seeking urgent relief without notifying the other party, applicants must present all material facts - including those that may undermine their case, and ensure the court receives a balanced and accurate account.              

“But you gave it to me” – Is there a way to ungive a gift?

We sometimes receive enquiries from people asking whether it is possible to challenge a gift which has been made previously.

Of course, giving someone a ‘lifetime gift’ (i.e. where money or assets are given away during a person’s lifetime) can be an efficient estate planning mechanism but, may be subject to challenge if the donor lacked the capacity to make an informed choice or, has been unduly influenced into making a gift.

We usually see this within the scope of a gift of money or a property, but similar principals apply to collectables and other chattels.

Victims of Fraud Series Part 4: Tracing issues in crypto assets cases

Claims involving digital assets (including crypto assets) have become relatively common in the English Courts over the last five years and, as a result, the main areas of disagreement between the parties to those disputes are starting to emerge. A major theme is the methodology that should be applied to the tracing and following of digital assets.

It was all a sham

Assets are typically placed in a trust for legitimate purposes, such as safeguarding wealth for future generations. However, arguments that a trust is in fact a “sham” created to hide the true ownership of assets often arise in the context of divorce litigation, bankruptcy/insolvency where a creditor seeks to argue that a trust is a pretence seeking to shield assets from creditors, or in estate disputes, where beneficiaries look to bring assets of the deceased back into an estate.

Victims of Fraud Series Part 3: “What can I do if the fraudster has disappeared?” - Persons Unknown Injunctions

Where the identity of a person or group of people responsible for a fraud is not known, the courts have recognised that it may be appropriate in certain circumstances to allow a claimant to issue proceedings and obtain an injunction (both interim and final) against such individuals. These injunctions are referred to as “persons unknown injunctions” and they have become increasingly prominent in recent years.

Landmark High Court ruling confirms availability of civil remedies for criminally sanctioned Companies Act breaches

Kingsley Napley is pleased to have acted for the successful claimants in proceedings before the High Court. The decision addresses a long-standing uncertainty in company law: if a provision of the Companies Act 2006 (“CA 06”) carries a criminal penalty for breach, does that mean no civil remedy is available? The court’s ruling sheds light on how such provisions should be understood and what consequences companies and directors may face when compliance falls short.

Victims of Fraud Series Part 2: Using information orders to identify a fraudster and trace assets

One of the most alarming aspects of falling victim to fraud is knowing where to start. It is very common for a victim to know almost nothing about what has happened, except for the fact that they have been scammed and the assets have gone. However, there are options available even if you don’t know the identity of the fraudster and the assets have, apparently, disappeared.

Travelex liquidation: Court appoints additional conflict liquidators

In a judgment handed down today, the Court agreed to appoint two additional conflict liquidators from Grant Thornton in the Travelex liquidation following an application made by Kingsley Napley’s client Rawbank S.A. (“Rawbank”).

Rawbank is the largest bank in the Democratic Republic of the Congo (“DRC”) and is an unsecured creditor of Travelex Bank Notes Ltd (“Travelex”) (part of the Travelex group of companies) for over £48m.

Victims of Fraud Series Part 1: Why Acting Fast Matters

In cases of fraud, the first 24 to 48 hours can determine whether stolen assets are recoverable or not. Fraudsters are often sophisticated, moving funds through multiple accounts, jurisdictions, or even converting them into cryptocurrency within hours.  It is important to have a plan so that you understand the immediate steps you would take in the event of fraud, as delay can mean that your assets are dissipated and recovery becomes difficult.

Removal of trustees – factors a court will consider

We are seeing an increase in enquiries from both beneficiaries of trusts seeking the removal of trustees, and from trustees facing allegations that they have not complied with their duties. Sometimes it is clear that a matter has not been dealt with appropriately by a trustee, but on other occasions this stems from a general breakdown of the relationship between the parties.

The International Data Insights Report: Trends in international arbitration

Two recent publications, the Law Society’s International Data Insights Report 2025 and Queen Mary University’s (“QMU”) International Arbitration Survey, analyse statistics concerning international arbitration and reaffirm London’s leading role in global dispute resolution.

Practical tips for trustees dealing with breach of trust allegations

Being a trustee carries significant responsibilities and often involves managing high value assets and making complex decisions in the best interests of all the beneficiaries. While trustees generally strive to act with care and integrity, allegations of breach of trust can arise. Whilst such allegations can be stressful and complex, how trustees manage the trust and how they respond to allegations is crucial to maintaining trust, protecting the trust’s assets, and avoiding potential contentious proceedings.

The tips below should generally be adopted through the life of the trust and may avoid disputes arising in the first place.

Civil Fraud Case Update: Q3 2025

This quarterly civil fraud update provides a summary of reported decisions handed down in the courts of England and Wales in the period of July - September 2025.

UAE agrees to share crypto information with international tax authorities

The United Arab Emirates (“UAE”) has joined in global efforts to improve transparency and compliance in the crypto sector by signing the Multilateral Competent Authority Agreement (MCAA) under the Crypto-Asset Reporting Framework (CARF). The framework is expected to be rolled out in UAE in 2027, with the first automatic exchanges of information with other tax authorities such as HMRC taking place in 2028.

HMRC Covid scheme amnesty: action by 31 December 2025

The COVID pandemic was a difficult time for businesses,  and many legitimately relied on financial support provided through government schemes to help them to survive and retain employees. However, it is estimated by HMRC that circa £10billion was also lost as a result of incorrect applications and outright fraud.

‘No win, no fee’ - are clients being hoodwinked?

At a time when a national broadcaster feels obliged to unpick (for the lawyer in us: alleged) misleading information from the leader of the free world, I almost choked on my breakfast when reading that we should also be concerned that some of us lawyers may be misleading the public too: 'No win, no fee' under fire: SRA vows to stop law firms hoodwinking consumers | Law Gazette Why now is a mystery; the term has been a feature of daytime TV advertising for decades!

Skip to content Home About Us Insights Services Contact Accessibility