Limiting the increase percentage would be one way to account for this. The rise in prices of real estate would be limited by the taxation amount - we wouldn't see the current level of property price inflation if it weren't for 13.
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The value of the property for tax purposes can be litigated though. Currently not a lot of people do that, since 2% falls within their estimates of acceptable increase in valuation, but if the jump was significant enough, you'd see a lot more contesting and litigation, which would increase collection costs.