PROJECT INFORMATION DOCUMENT (PID)

CONCEPT STAGE

Report No.: AB5505

Project Name / Revenue Administration Modernization Project
Region / EUROPE AND CENTRAL ASIA
Sector / Public administration- Finance (80%); Central government administration (20%)
Project ID / P120696
Borrower(s) / Government of Georgia
Implementing Agency / Revenue Service
Environment Category / [ ] A [X] B [ ] C [ ] FI [ ] TBD (to be determined)
Date PID Prepared / March 19, 2010
Estimated Date of Appraisal Authorization / July 14, 2010
Estimated Date of Board Approval / December 16, 2010
  1. Key development issues and rationale for Bank involvement

In recent years, Georgia has made significant effort to strengthen its revenue administration, with technical assistance from donors. While progress has been made to facilitate voluntary compliance and reduce compliance costs for taxpayers, tax compliance is still a costly and time-consuming exercise for taxpayers. The Doing Business / Paying Taxes Report 2010 analyzed that the average overall compliance time in Georgia is 387 hours, which gives the country a very low 154th rank. The overall compliance level is understood to remain relatively low. Major reforms required to align the operation of the revenue system with international good practice and reduce administrative and collection costs include:

·  Taxpayer segmentation is still at a preliminary stage. The Large Taxpayer Inspectorate (LTI) has not reached its potential and significant effort is required to transform this unit, providing high quality services to the largest enterprises.

·  There is no clear definition of small taxpayers, and the lack of simplified tax procedures results in excessively high compliance costs and ineffective approaches to enforce compliance in this taxpayer segment.

·  A more holistic approach to risk management and implementation of targeted compliance programs would improve the efficiency of revenue administration. While some risks need to be addressed through audit and enforcement, others can more effectively be dealt with through taxpayer services, including information campaigns and advisory visits.

·  The organizational structure of the Revenue Service needs to be reviewed to ensure that all the functions required to administer a self-assessment system are effectively handled at headquarters, including strategic planning and reform implementation. Headquarters should design policies and guidance for each function, including planning and monitoring of audit, but should not carry out line functions.

·  The organization of field offices should align with the implementation of taxpayer segmentation and the development of risk management across all key functions. This implies a re-allocation and augmentation of the audit resources, among other changes.

·  Significant reform is needed to improve business processes including monitoring of filing and payment compliance. The introduction of focused audit methods, such as targeted, issue-oriented audits, should help diversify and modernize the audit methods to revamp the current system of controls and inspections.

·  In customs, with the recent implementation of risk management, the strengthening of the post clearance audit function is critical for customs compliance management and to make the risk-based approach successful.

·  For traders applying for the Gold List, detailed audit/examination is needed to confirm that their processes and control systems are reliable and properly managed to prevent fraud.

·  Further consideration will have to be given to strengthen the transit monitoring capacity.

·  With the implementation of GATT valuation standards, a system to properly monitor invoice valuation needs to be put in place urgently to mitigate the risk of under-valuation. Development of a valuation database and data collection system for risk analysis is also required.

·  The ASYCUDA system does not address information exchange needs with EU countries, Georgia’s main trading partners. This issue needs to be reviewed.

·  New functional modules and interfaces for automated data exchange need to be developed. Existing TPS databases and software, as well as archiving and file tracking systems need to be improved, audit trail enabled, digital signature implemented and the coverage of e-filing expanded.

·  A review of the IT needs will help develop a framework for the future IT system for both tax and customs.

·  A comprehensive HR strategy including a well-designed training program is imperative to support the RS modernization objectives, including precise job descriptions and a modern performance management system.

·  Several office facilities, including those for customs and the LTI need to be upgraded to provide better taxpayer service and facilitate trade.

Rationale for Bank involvement:

Improving tax and customs administrations is a key priority of the Government. Several donors are involved in supporting the Government in this effort, including the USAID, the European Commission, the Bank, and the IMF. Based on EU Fiscal Blueprint diagnostics, the Government requested the Bank to develop a revenue administration modernization framework as the basis for a comprehensive tax administration reform with technical and financial support from the Bank in coordination with other donors. The Bank has considerable expertise in revenue administration reform globally.

Responding to the Government’s request, a Bank team visited Tbilisi between January 20-29 2010 to work with the MOF and the RS in identifying the key areas of assistance and developing a revenue administration reform strategy. The strategy document developed by the Bank team was discussed with the Finance Minister at the end of the visit. The Finance Minister appreciated the work and expressed the need for urgently preparing a Revenue Administration Modernization Project (RAMP). The project will complement and broaden the Government’s current tax administration reform program and donor support.

The following considerations have been incorporated into the project design: (i) clear evidence of sustained political commitment and support for the reform; (ii) clear vision of the organizations development needs; (iii) all elements of the reform are being addressed in an integrated and comprehensive way; and (iv) assistance is targeted to achieve development objectives as well as specific project goals.

  1. Proposed objective(s)

To establish effective and efficient revenue administration that will improve voluntary tax compliance and reduce compliance cost through modern and reliable taxpayer services, and targeted audit and enforcement activities.

  1. Preliminary description

The RAMP would consist of five components:

·  Organizational Management and Human Resource Development: This component would strengthen the organizational management by strengthening taxpayer segmentation and risk management principles. This will include strengthening the headquarters functions; modernizing the large taxpayer department; development of an effective and efficient regime for small businesses; and a pilot office for the medium-sized businesses. The HR framework would be significantly strengthened (including the preparation of precise job descriptions and a modern performance management system), and a short and medium term training strategy developed.

·  Tax and Customs Operations Reform: This component would strengthen tax registration systems, declaration filing and tax payment. Tax audit would also be strengthened by improving coverage, and targeting taxpayer segments. Other areas for strengthening include taxpayer services, collection and enforcement, appeals, and for customs, post-clearance audit, further improvement in the Gold list, risk management, and valuation database.

·  Information Technology Modernization: This component would help modernize the tax and customs IT systems including optimizing the database structure for more precise auditing, information matching, automated payment and filing, and improving the risk analysis system. For customs, the transition of the IT system from ASYCUDA to an IT system more compatible with EU requirement will be considered.

·  Facilities upgrade: Several sites have been identified for rehabilitation and refurbishment with the aim of improving the quality of taxpayer services and RS operations, including tax and customs facilities. They include the Telavi Regional Center, the Gori Tax Inspectorate, and the Vale Customs House, as well as infrastructure improvements for the Large Taxpayer Unit and developing a pilot office for medium-size taxpayers in Tbilisi.

·  Project Management and Change Management: This component involves establishing a project management unit with the requisite fiduciary and procurement capacity. A Project Steering Committee will be established to be responsible for overall oversight, management and evaluation of project progress. Thematic Working Groups will be established to implement the respective components.

  1. Safeguard policies that might apply

The project will trigger OP/BP 4.01 Environmental Assessment because one of its components will finance physical work for rehabilitation and refurbishment of several existing tax and customs facilities. Environmental risks associated with these works are expected to be moderate and will be mitigated through the development of and compliance with the Environmental Management Framework for the project and site-specific Environmental Management Plans.

  1. Tentative financing

Source: IBRD / ($m.)
Borrower / 0
International Bank for Reconstruction and Development / 15
Total / 15
  1. Contact point

Contact: Munawer Sultan Khwaja

Title: Sr Public Sector Spec.

Tel: (202) 458-5110

Fax:

Email: