In order to provide for the effective implementation of the AEOI Standard, in Nigeria:
Federal Inland Revenue Service (FIRS) (the tax authority) has the responsibility to ensure the effective implementation of the due diligence and reporting obligations by Reporting Financial Institutions and for exchanging the information with Nigeria’s exchange partners, supported by the various financial regulators in Nigeria;
technical solutions necessary to receive and validate the information reported by Reporting Financial Institutions were put in place through an online portal; and
the Common Transmission System (CTS) is used for the exchange of the information, along with the associated file preparation and encryption requirements.
It should be noted that the review of Nigeria’s legal framework implementing the AEOI Standard concluded with the determination that Nigeria’s domestic legal framework is In Place But Needs Improvement and its international legal framework is In Place. This has been taken into account when reviewing the effectiveness of Nigeria’s implementation of the AEOI Standard in practice and where particular identified gaps in Nigeria’s legal frameworks directly impact its implementation in practice, these are mentioned below.
Findings and conclusions on the legal frameworks
The detailed findings and conclusions on the AEOI legal frameworks for Nigeria are below, organised per Core Requirement (CR) and then per sub-requirement (SR) as extracted from the AEOI Terms of Reference (see Annex B).
CR1 Domestic legal framework: Jurisdictions should have a domestic legislative framework in place that requires all Reporting Financial Institutions to conduct the due diligence and reporting procedures in the CRS, and that provides for the effective implementation of the CRS as set out therein.
Determination: In Place But Needs Improvement
Nigeria’s domestic legislative framework is in place and contains most of the key aspects of the CRS and its Commentary requiring Reporting Financial Institutions to conduct the due diligence and reporting procedures, but it needs improvement in relation to the framework to enforce the requirements (SR 1.4). More specifically, the rules in Nigeria’s legislative framework to prevent persons or intermediaries from adopting practices intended to circumvent the reporting and due diligence procedures are insufficient in scope and it does not have an explicit legal basis to enforce a sanction for non-compliance if the Reporting Financial Institution is a legal arrangement.
SR 1.1 Jurisdictions should define the scope of Reporting Financial Institutions consistently with the CRS.
Nigeria has defined the scope of Reporting Financial Institutions in its domestic legislative framework in accordance with the CRS and its Commentary.
Recommendations:
No recommendations made.
SR 1.2 Jurisdictions should define the scope of Financial Accounts and Reportable Accounts consistently with the CRS and incorporate the due diligence procedures to identify them.
Nigeria has defined the scope of the Financial Accounts that are required to be reported in its domestic legislative framework and incorporated the due diligence procedures that must be applied to identify them in accordance with the CRS and its Commentary.
Recommendations:
No recommendations made.
SR 1.3 Jurisdictions should incorporate the reporting requirements contained in Section I of the CRS into their domestic legislative framework.
Nigeria has incorporated the reporting requirements in its domestic legislative framework in accordance with the CRS and its Commentary.
Recommendations:
No recommendations made.
SR 1.4 Jurisdictions should have a legislative framework in place that allows for the enforcement of the requirements of the CRS in practice.
Nigeria has a legislative framework in place to enforce the requirements in a manner that is largely consistent with the CRS and its Commentary. However, a deficiency has been identified. More specifically, Nigeria’s legislative framework does not include rules to prevent all relevant persons or intermediaries from adopting practices intended to circumvent the reporting and due diligence procedures as required and it does not include an explicit legal basis to enforce a sanction where a Reporting Financial Institution is a legal arrangement. These deficiencies relate to key elements of the required enforcement framework and are therefore material to the proper functioning of the AEOI Standard.
Recommendations:
Nigeria should amend its domestic legislative framework to include rules to prevent all Financial Institutions, persons and intermediaries from adopting practices intended to circumvent the due diligence and reporting procedures, rather than just those on whom the AEOI Standard imposes an obligation.
Nigeria should amend its legislative framework to ensure that there is an explicit legal basis to enforce a sanction when there is non-compliance by a Reporting Financial Institution that is a legal arrangement.
CR2 International legal framework: Jurisdictions should have exchange relationships in effect with all Interested Appropriate Partners as committed to and that provide for the exchange of information in accordance with the Model CAA.
Determination: In Place
Nigeria’s international legal framework to exchange the information is in place, is consistent with the Model CAA and its Commentary and provides for exchange with all of Nigeria’s Interested Appropriate Partners (i.e. all jurisdictions that are interested in receiving information from Nigeria and that meet the required standard in relation to confidentiality and data safeguards) (SRs 2.1 – 2.3).
SR 2.1 Jurisdictions should have exchange agreements in effect with all Interested Appropriate Partners that permit the automatic exchange of CRS information.
Nigeria has exchange agreements that permit the automatic exchange of CRS information in effect with all its Interested Appropriate Partners.
Recommendations:
No recommendations made.
SR 2.2 Such an exchange agreement should be put in place without undue delay, following the receipt of an expression of interest from an Interested Appropriate Partner.
Nigeria put in place its exchange agreements without undue delay.
Recommendations:
No recommendations made.
SR 2.3 Jurisdictions should ensure that the exchange agreements in effect provide for the exchange of information in accordance with the requirements of the Model CAA.
Nigeria’s exchange agreements provide for the exchange of information in accordance with the requirements of the Model CAA.
Recommendations:
No recommendations made.
Assessed jurisdiction’s comments on the assessment of its legal frameworks
Nigeria has observed that under SR.1.4., this Report states that Nigeria’s Legislative framework is in place to enforce the requirements in a manner that is Largely consistent with the CRS and its commentary. However, the Report also highlighted a deficiency – that the Anti-avoidance Rule under Regulation 12 of Nigeria Income Tax (Common Reporting Standard) Regulations 2019 does not prevent ALL relevant persons, including intermediaries from adopting practices intended to circumvent the reporting and due diligence procedures as required.
Nigeria notes the Recommendation to amend its CRS legal framework to address this deficiency, and will take the required steps to update the text of Regulation 12 to meet the Agreed standard.
However, Nigeria hereby places on record that the text of the Nigeria CRS Regulations 2019, including the Anti-avoidance rule, was modelled after the OECD Global Forum CRS Rules that was made available to Nigeria’s Legal drafting team in 2018. We are now aware that the Global Forum learning from experience from reviews of CRS legal framework of over 100 jurisdictions, has in recent times issued a new version of CRS Rules, which amongst other things provides an updated text for the Anti-avoidance rule, with a view to ensuring that all persons in scope, are covered.
Nigeria will be guided by text of the latest version of the Global Forum Model CRS Rules, in our efforts to update the Nigeria Income Tax (Common Reporting Standard) Regulations 2019.
Findings and conclusions in relation to effectiveness in practice
The following table contains the detailed findings for Nigeria, organised per Core Requirement (CR) and then per sub-requirement (SR) as extracted from the AEOI Terms of Reference.
CR1 Effectiveness in practice: Jurisdictions should ensure that in practice Reporting Financial Institutions correctly implement the due diligence and reporting procedures, which includes a requirement for jurisdictions to have in place an administrative framework to ensure the effective implementation of the CRS.
Rating: On Track
Nigeria’s implementation of the AEOI Standard is on track with respect to ensuring that Reporting Financial Institutions are correctly conducting the due diligence and reporting procedures and are therefore reporting complete and accurate information. This includes ensuring effectiveness in a domestic context, such as through having an effective administrative compliance framework and related procedures (SR 1.5), and collaborating with exchange partners to ensure effectiveness (SR 1.6). Nigeria is encouraged to continue its implementation process accordingly, to ensure its ongoing effectiveness.
SR 1.5 Jurisdictions should ensure that in practice Reporting Financial Institutions identify the Financial Accounts they maintain, identify the Reportable Accounts among those Financial Accounts, as well as their Account Holders, and where relevant Controlling Persons, by correctly conducting the due diligence procedures and collect and report the required information with respect to each Reportable Account. This includes having in place:
i. be based on a strategy that facilitates compliance by Reporting Financial Institutions and which is informed by a risk assessment in respect of the effective implementation of the CRS that takes into account relevant information sources (including third party sources);
ii. include procedures to ensure that Financial Institutions correctly apply the definitions of Reporting Financial Institutions and Non-Reporting Financial Institutions;
iii. include procedures to periodically verify Reporting Financial Institutions’ compliance, conducted by authorities that have adequate powers with respect to the reviewed Reporting Financial Institutions, with procedures to access the records they maintain; and
effective procedures to ensure that Financial Institutions, persons or intermediaries do not circumvent the due diligence and reporting procedures;
effective enforcement mechanisms to address non-compliance by Reporting Financial Institutions;
strong measures to ensure that valid self-certifications are always obtained for New Accounts;
effective procedures to ensure that each, or each type of, jurisdiction-specific Non-Reporting Financial Institution and Excluded Account continue to present a low risk of being used to evade tax; and
effective procedures to follow up with a Reporting Financial Institution when undocumented accounts are reported in order to establish the reasons why such information is being reported.
Findings:
In order to ensure that Reporting Financial Institutions correctly conduct the due diligence and reporting procedures, Nigeria implemented all of the requirements in accordance with expectations. The key findings were as follows:
Nigeria implemented an overarching strategy to ensure compliance with the AEOI Standard developed after conducting a risk assessment that took into account a range of relevant information sources, including the information reported by Reporting Financial Institutions and publicly available information, such as websites of the Reporting Financial Institutions, tax compliance performance and feedback from exchange partners. The FIRS also receives information from the AML authorities regarding their monitoring activities and sanctions imposed on Financial Institutions for non-compliance with AML/KYC obligations upon request. Nigeria’s compliance strategy facilitates compliance and incorporates a credible approach to verification and enforcement. Nigeria intends to keep its compliance strategy and risk assessment under review to ensure its effectiveness on an ongoing basis.
Nigeria maintains a list of regulated Reporting Financial Institutions based on publicly available information, such as websites of Financial Institutions and information from regulatory bodies. Nigeria also follows-up with Reporting Financial Institutions that are identified as possibly incorrectly not reporting to ensure they report as required. With respect to non-regulated Entities that may be Financial Institutions for the purposes of the AEOI Standard, Nigeria checks whether Financial Institutions manage the assets of other Entities during its annual compliance activities and follows up as necessary. Nigeria also plans to request from Reporting Financial Institutions details of their Account Holders that are classified as Financial Institutions and is considering the use of its tax database to further identify such relevant Entities. Nigeria intends to continue to review its Financial Institution population on a routine basis.
The institution (FIRS) responsible for implementing Nigeria’s compliance strategy has the necessary powers and resources to discharge its functions. With respect to resourcing, Nigeria has assigned the equivalent of eight full time staff and two supervisors to monitor and ensure compliance by Reporting Financial Institutions, which have access to IT systems and tools to conduct risk assessments (e.g. SQL, Power BI and Spreadsheets (Excel)). Overall, they appear to have effectively implemented an operational plan to verify compliance with the requirements, incorporating some appropriate compliance activities.
The FIRS has carried out desk-based reviews of the information reported by Reporting Financial Institutions, using several risk factors, which informed the selection of Reporting Financial Institutions for onsite monitoring visits, designed to understand their processes in place to implement and comply with the AEOI Standard. This includes understanding the frameworks and procedures in place, as well as some limited spot checks to verify correct reporting. It made such visits to 55 Reporting Financial Institutions in 2021. As a result, some Reporting Financial Institutions that failed to conduct to carry out the required due diligence (including failing to obtain valid self-certifications) or failed to keep the required records were identified. These monitoring visits were primarily used to help improve the Reporting Financial Institutions’ understanding of the requirements.
Building on the onsite monitoring visits, Nigeria conducted onsite audits of 37 Reporting Financial Institutions in 2023 to verify compliance including through the inspection of records held by the Reporting Financial Institutions and to enforce the requirements where appropriate.
It appears that Nigeria has the ability to effectively enforce the requirements, including through the application of dissuasive penalties and sanctions for non-compliance, although it has not yet done so as its compliance activities and level of financial institution compliance were impacted by the COVID-19 pandemic. Consequently, Nigeria opted not to sanction Reporting Financial Institutions for non-compliance for 2020, 2021 and 2022 but to intensify CRS education and awareness programmes. Nigeria has not yet applied its penalties and sanctions for non-compliance.
While Nigeria does not have a defined policy in place, it appears ready to take effective action to address circumvention of the requirements if such circumvention is detected. However, it will be somewhat constrained by the scope of its legal power to address circumvention. It also appears that action is being taken to ensure self-certifications are obtained as required and to follow up on undocumented accounts.
It is noted that Nigeria does not have a jurisdiction-specific list of Non-Reporting Financial Institutions or Excluded Accounts for ongoing monitoring.
Table 3 provides a summary of the specific activities undertaken, or that are planned to be undertaken, in relation to each of the key parts of the framework described above.
Table.3. Activities undertaken