Aha! Now I see the purpose these serve, it's what your excess people do in a city where all the squares are being worked, but there is enough food to support more people than there are squares to be worked. If all the squares are being worked, you can reassign a citizen to become a scientist, then have an excess worker join the city and take over the square.
It seems to me though that creating taxmen or scientists in cities with lots of corruption doesn't help anything, since when you take a worker off of a square, his production and commerce are taken away from the waste / production, corruption / commerce categories in the same proportion that waste and corruption occur in.
I think I found this a bit confusing

because the documentation is a bit muddled in how it refers to "commerce" "gold" and "tax rate."

It refers to the bars where you adjust the proportions that go to the science budget and treasury as the "tax rate," but this is not really the correct term. Actually, adjusting the happy face slider changes the "consumption level" This is an important distinction, since what is left over after consumption is subtracted is not just tax revenue. What goes into the science budget and treasure chest would correspond in the real world to both tax revenue and the capital expenses, current expenses, and research and development in industry. :enlighten:
Another way of putting it is that the "commerce" number is a city's contribution to GDP, the happy face slider sets the consumption level, and the beaker slider sets the level of research and development spending of both the government and industry. From that the country's trade balance is added or subtracted, government and industry current expenses are subtracted, and what's left over represents the government's, industry's, and citizen's capital and current account surplus. So the tax rate really doesn't appear anywhere directly, and can't really be calculated from the numbers available, since the player makes spending decisions for both government and industry. I suppose you could do your own accounting though and determine how much of your spending is government spending (tax revenue plus government borrowing) and how much is industry spending. Then compute the tax rate by taking tax revenue divided by tax revenue plus consumption spending.
So to further clarify, the gold from "taxmen" is not really "tax", it is represents net fees collected, and the taxmen should really be thought of as "government workers" providing services that produce income for the government.
