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EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
RRA ACTION PLAN
2025/26
2RRA ACTION PLAN 2024/25
CONTENTS
RRA ACTION PLAN ................................................................................................................................................... 1
2025/26 ................................................................................................................................................................... 1
LIST OF ABBREVIATIONS AND ACRONYMS............................................................................................................... 3
FOREWORD BY THE COMMISSIONER GENERAL ........................................................................................................ 5
I. INTRODUCTION .................................................................................................................................................... 7
I.1.CORPORATE STRATEGY STATEMENTS ...................................................................................................................................... 7
II.OVERVIEW OF RRA ACTION PLAN FOR 2025-2026 FY ......................................................................................... 11
II.1. RESULTS ORIENTATION: ............................................................................................................................................................11
II.2. ACTION PLAN PRIORITIES FOR 2025/26 ...............................................................................................................................12
II.3. KEY ACTIVITIES TO DELIVER STRATEGIC INITIATIVES IN 2025-2026 FY 12
ANNEX 1: DETAILED RRA ACTION PLAN 2025/26 ...................................................................................................................... 20
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LIST OF ABBREVIATIONS AND ACRONYMS
AD: Administration Division
AEOI: Automatic Exchange of Information
CG: Commissioner General
CSD: Customs Services Department
DTD: Domestic Taxes Department
DWH: Data Warehouse
EOIR: Exchange of Information on Request
FY: Fiscal Year
HRD: Human Resources Division
IAID: Internal Audit and Integrity Department
IFMIS: Integrated Financial Management Information System
I T DT: Information Technology and Digital Transformation Department
IPSAS: International Public Sector Accounting Standards
ISO: International Organization for Standardization
KPIs: Key Performance Indicators
L G T: Local Government Tax
LGTMS: Local Government Tax Management System
LSBAD: Legal Services and Board Affairs Department
M&E: Monitoring and Evaluation
4RRA ACTION PLAN 2024/25
MINECOFIN: Ministry of Finance and Economic Planning
MNEs: Multinational Enterprises
MTRS: Mid-Term Revenue Strategy
PAYE: Pay As You Earn
P I T: Personal Income Tax
QMS: Quality Management Standards
ReSW: Rwanda Electronic Single Window
RMRs: Risk Management Rules
RRA: Rwanda Revenue Authority
Rwf: Rwandan Francs
SIID: Strategic Innovation and Intelligence Division
SPIU: Single Project Implementation Unit
SRAD: Strategy and Risk Analysis Department
SD-WAN: Software-Dened Wide Area Network
SWOT: Strengths, Weaknesses, Opportunities, and Threats.
TA D AT: Tax Administration Diagnostic Assessment Tool
TIN: Tax Identication Number
TPSC: Taxpayer Services and Communication
UPI: Unique Property Identier
UX: User Experience
VA T: Value Added Tax
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FOREWORD BY THE COMMISSIONER GENERAL
Our revenue target for 2025/26 has been set at Rwf 3,733.02 billion for Central Government and Rwf 121.9 billion for
Local Government taxes and fees that we collect on behalf of districts and City of Kigali. Compared to the previous year
our revenue has been increased by 21.14 % which will require concerted efforts of RRA and key stakeholders to achieve
the set target.
As an organisation, we are cognisant of the challenges that persist including those posed by the aftermath of the covid-19
pandemic, inflation, and global political instabilities. We will continue to work hand-in-hand with our stakeholders and the
taxpaying community by providing them with high-quality services and the necessary support for business growth. We
remain fully committed to our mission of “efciently mobilizing revenue and facilitating trade through transparent and
innovative services to drive economic growth”
I am honoured to present the action plan of Rwanda Revenue Authority for - scal year
2025/26. This plan reflects our commitment to delivering high-quality services to taxpayers
while ensuring compliance with tax regulations. Our goal is to build upon the successes of
the previous years and maintain the momentum towards achieving the priorities outlined in
our new ve-year strategic plan for the period of 2024/25 to 2028/29.
This action plan marks the second year of implementation of the new strategy intended to
harness RRA operations and strengthen the institutional framework to keep it resilient and
able to sustainably nance government needs by efciently collecting revenues. This action
plan takes into consideration different policy and administrative measures as highlighted in
MTRS, assessments such as TADAT, and Auditor General and research outputs.
6RRA ACTION PLAN 2024/25
We continue to count on the support of our government, the taxpaying community and all stakeholders for their contribution
to the successful implementation of this action plan
NIWENSHUTI Ronald
Commissioner General
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I. INTRODUCTION
Rwanda Revenue Authority was established under Law No 15/97 of 8th November 1997 as a quasi-autonomous body
charged with the task of assessing, collecting, and accounting for tax, customs and other specied revenues.
I.1.CORPORATE STRATEGY STATEMENTS
RRA strategy statements as per the Strategic Plan 2024/25-2028/29 are dened as follows:
I.1.1. MISSION
To efciently mobilize revenue and facilitate trade through transparent and innovative services to drive economic growth.
I.1.2. VISION
To be a model revenue administration optimally nancing national needs.
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I.1.3. CORE VALUES
The RRA value statements below reflect what we stand for and how we will conduct ourselves in the execution of this
action plan. The core values have been enhanced to meet the RRA’s mission and vision as follows:
INNOVATION
• We actively
explore
and
embrace
emerging technologies
• We are adaptive and resilient
to changes
• We promote continuous
learning.
INTEGRITY
• We are honest, sincere and
exhibit high ethical standards
• We take responsibility for our
decisions and actions
• We demonstrate commitment
to achieving set results
• We are open, reliable and
transparent in dealings with
our customers.
• We treat our customers with
utmost respect.
• We are open and work with clarity
and consistency in dealing with
our customers
WE ARE ACCOUNTABLE
PROFESSIONALISM
• We exercise confidentiality and
privacy while dealing with our
stakeholders
• We are impartial and fair in our
engagement with customers
We work as a team.
CUSTOMER-CENTRICITY
We treat our customers with
fairness and equity,
We tailor our services to our
customers’ needs
We are considerate of customer
concerns, ideas and criticism
for continuous improvement.
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I.1.4. SWOT ANALYSIS
A SWOT analysis was conducted to determine organizational pains (weaknesses and threats) and enablers (strengths and
opportunities). This analysis helps to exploit opportunities and overcome weaknesses, while protecting the organization
from threats from the external environment through the development of contingency plans. Table 1 below presents a
summary of the SWOT analysis.
Table 1: SWOT analysis
Strengths Weaknesses
1. Strong intelligence gathering, and analysis of third-
party data is routinely used to identify compliance
risks and detect unregistered taxpayers;
2. Sound policies and processes to identify and treat
operational risks have been implemented;
3. Electronic ling and payment of tax is fully rolled
out and used;
4. Taxpayers can access information through several
channels at no cost via simplied record-keeping
and reporting arrangements;
5. Dispute resolution mechanisms are appropriately
tiered and used;
6. Internal audit provides assurance of the soundness
of RRA’s internal controls, risk management, and
governance frameworks;
1. Lack of tax gap analysis that hinders the ability of RRA
to prioritize its compliance and taxpayer assistance;
2. Inadequate tax compliance management leading to tax
evasion;
3. Failure to track and register all potential taxpayers in
the tax registry in a timely manner;
4. Inaccurate data in some RRA systems;
5. Delays in recovering tax arrears;
6. Some cases of poor customer care and service delivery;
7. Inadequate skills and competences in some technical
areas;
8. Lack of staff individual development plans;
9. Inability to attract and retain skilled and experienced
staff;
10. Inefciencies in our individual performance
management;
11. Inappropriate working environment in some RRA
ofces;
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7. RRA’s nancial and operational performance and
future plans are made public periodically;
8. Independent surveys based on robust statistical
sampling techniques are done every two years
to obtain customer feedback on RRA products,
services, and integrity.
12. Inadequate monitoring and evaluating mechanism of
corporate priorities;
13. Poor reading and research culture among RRA staff;
14. Lack of structured internal communication;
15. Lack of business process flow mapping for some RRA
processes.
Opportunities Threats
1. Sustained economic growth;
2. Stable monetary policy;
3. Strong political support to RRA;
4. Regional integration;
5. Industrial development and export promotion;
6. All-inclusive national ICT strategy;
7. Promulgation of new tax laws;
8. Information exchange among different agencies
and revenue authorities;
9. Growing electronic payment transactions;
10. Availability of external assessments such as
TADAT.
1. Structure of Rwandan Economy that is dominated by
shadow economic activities;
2. Existence of a cash-based economy encouraging non-
compliance for some taxpayers;
3. Low tax compliance culture by some taxpayers;
4. Political instabilities in some neighbouring countries;
5. Rwanda being landlocked which impacts trade and
customs operations;
6. Delays in enactment of tax laws;
7. Tax base erosion due to increasing tax-incentives and
exemptions;
8. Resistance to change involving new technologies;
9. Cyber security threats;
10. Inadequate budget to nance some RRA priorities.
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RRA ACTION PLAN 2024/25
II.OVERVIEW OF RRA ACTION PLAN FOR 2025-2026 FY
II.1. RESULTS ORIENTATION:
The 2025/26 RRA Action Plan is the second plan designed to implement the RRA Strategic Plan 2024/25-2028/29. Core
activities to be performed by RRA for the 2025-2026 FY are aligned with RRA’s four (4) strategic goals, ten (10) strategic
objectives, and twenty-seven (27) initiatives as indicated below:
Figure 1: Summary of RRA 2025/26 Action Plan
Strategic goals 4
Strategic Objectives 10
Initiatives 27
Activities 108
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II.2. ACTION PLAN PRIORITIES FOR 2025/26
In FY 2025/26, RRA will continue to focus on maximizing revenue collection to enable the Rwandan government to
nance its programs.
Revenue projections for FY 2025/26 are underpinned by several new initiatives to be implemented by RRA in accordance
with the RRA Strategic Plan 2024/25-2028/29.
II.3. KEY ACTIVITIES TO DELIVER STRATEGIC INITIATIVES IN 2025-2026 FY
1. Widen tax base
Under this strategic initiative, we will focus on the following key activities:
a) Enhance taxpayer registration mechanisms;
b) Strengthen mechanisms to maintain adequate and accurate taxpayer registry;
c) Conduct risk analyses to identify taxpayers liable for registration under VAT, CIT, PIT, PAYE, and trading licenses;
d) Assess tax gap for the year 2024/2025.
2. Sustain tax compliance
Under this strategic initiative we will focus on the following key activities:
a) Strengthen mechanisms to boost taxpayer compliance;
b) Implement measures to enhance on-time ling for Local Government;
c) Enforce usage of electronic payment mechanisms on all large and medium taxpayer;
d) Enhance mechanisms to minimize late payments;
e) Design and implement mechanisms to enhance accurate reporting rate for Central Government;
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f) Implement measures/tools to ensure accurate reporting of Property tax for Local Government
g) Strengthen excise tax management mechanisms;
h) Conduct compliance assessment of customs agents and warehouse operators;
i) Develop the Compliance Improvement Plan for 2026/2027;
j) Monitor the implementation of compliance actions in the Compliance Improvement Plan 2025/2026;
k) Conduct compliance risk analyses.
3. Enhance intelligence surveillance and investigation mechanisms
Under this strategic initiative, we will focus on the following key activities
a) Harness mechanisms for investigation and intelligence to minimize tax fraud;
b) Identify, prole and report tax fraud cases.
4. Enhance revenue controls
Under this strategic initiative, we will focus on the following key activities:
a) Enhance tax control mechanisms;
b) Develop business requirements for automation, enhancement, and integration of tax controls;
c) Implement revenue control measures;
d) Update the customs automated valuation database by creating tariff specication codes;
e) Engage stakeholders on the possibility of integration with RRA.
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5. Harness compliance and enforcement mechanisms for international taxation
Under this strategic initiative, we will focus on the following key activities:
a) Enhance mechanisms to minimize/deter tax base erosion and prot shifting on both individuals and MNEs;
b) Implement the Exchange of Information on Request (EOIR) standards;
c) Implement the Automatic Exchange of Information (AEOI) as per the Global Forum Standard.
6. Strengthen debt recovery function
Under this strategic initiative, we will focus on the following key activities:
a) Strengthen measures for debt recovery;
b) Carry out enforcement operations of customs arrears.
7. Enhance the efciency of tax audit function
Under this strategic initiative, we will focus on the following key activities:
a) Implement comprehensive audit plan for Central Government taxes;
b) Implement issue-oriented audit plan for Central Government taxes;
c) Implement comprehensive LGT audit plan;
d) Implement issue-oriented LGT audit plan;
e) Implement desk audit plan for Central and Decentralized taxes;
f) Conduct comprehensive and issue-oriented Post Clearance Audit.
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8. Enhance risk management
Under this strategic initiative we will focus on the following key activities:
a) Develop and automate risk management approaches;
b) Conduct risk analysis to inform comprehensive and issue audit for DTD and Customs;
c) Develop a VAT refund model to identify fraudulent refund cases;
d) Develop a Predictive Model to efciently select audit cases.
9. Strengthen mechanisms for service delivery and feedback
Under this strategic initiative, we will focus on the following key activities:
a) Enhance mechanisms to improve customer service and feedback management;
b) Analyze clearance time for goods, and recommend strategic improvements for trade facilitation.
10. Establish initiatives to enhance user experience
a) Conduct User Experience (UX) Research to gather deep insights to improve usability;
b) Implement initiatives to enhance customer user experience;
c) Update Tax Accounts with Unusual Balances;
d) Implement recommendations from Customer Satisfaction Survey 2024/2025;
e) Strengthen management, etiquette and accuracy of all feedback channels.
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11. Enhance stakeholder engagement and partnerships
Under this strategic initiative, we will focus on the following key activities:
a) Conduct taxpayer engagement programs;
b) Implement stakeholders’ engagement strategy.
12. Streamline personal data accessibility to taxpayers
Under this strategic initiative we will focus on the following key activities:
a) Update RRA Online Tax Handbook in accordance with current tax laws;
b) Produce practice notes and public rulings.
13. Improve business process management
Under this strategic initiative we will focus on the following key activities:
a) Monitor implementation of 2025/2026 procurement plan;
b) Automate key business systems;
c) Optimize and integrate business processes;
d) Develop requirements for enhancement of nancial management systems.
14. Enhance legal support services
Under this strategic initiative, we will focus on the following key activities;
a) Assess tax laws for adequacy/Relevance;
b) Establish measures to ensure that court decisions are timely implemented;
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c) Establish measures to reduce court cases engaging RRA;
d) Establish mechanisms to expedite response time for amicable and appeal cases.
15. Improve working environment
Under this strategic initiative, we will focus on the following key activities;
a) Implement RRA working environment standard/framework.
16. Strengthen institutional risk management
Under this strategic initiative, we will focus on the following key activities;
a) Implement risk management approaches;
b) Congure new Risk Management Rules;
c) Develop RRA KPIs Monitoring Dashboard.
17. Improve accountability and transparency
Under this strategic initiative, we will focus on the following key activities;
a) Implement accountability assurance mechanisms;
b) Implement Internal Audit Plan;
c) Conduct internal audits;
d) Coordinate activities of the ISO 9001:2015 surveillance audit;
e) Conduct QMS audit engagements;
f) Monitor execution of RRA 2025/26 budget;
g) Implement public nancial management initiatives and processes (IPSAS accrual).
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18. Streamline project management function
Under this strategic initiative, we will focus on the following key activities;
a) Develop and submit projects to donors for fund mobilization;
b) Ensure effective use of Microsoft Project;
c) Produce and submit project progress reports to donors.
19. Improve organizational change management
Under this strategic initiative, we will focus on the following key activities:
a) Monitor the implementation of Change Management initiatives.
20. Enhance data governance
21. Under this strategic initiative we will focus on the following key activities:
a) Implement RRA data governance framework;
b) Develop and implement AI-powered tax fraud detection Systems;
c) Enhance Data Science capacity.
22. Strengthen evidence-based strategic planning, M&E and decision-making
Under this strategic initiative, we will focus on the following key activities;
a) Conduct research studies/policy analyses/impact evaluations to inform decision - making;
b) Update tax expenditure models to provide inputs to MINECOFIN for the 2023/24 tax expenditure report;
c) Produce RRA Tax Statistics;
d) Conduct internal TADAT assessment.
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23. Enhance IT infrastructure and cyber security
Under this strategic initiative, we will focus on the following key activities:
a) Develop and implement ICT projects.;
24. Enhance and Enhance IT systems
Under this strategic initiative we will focus on the following key activities:
a) Adopt and adapt new technologies.
25. Modernize HR functions
Under this strategic initiative, we will focus on the following key activities:
a) Streamline HR functions.
26. Improve people wellness
Under this strategic initiative, we will focus on the following key activities:
a) Develop and implement employee wellness schemes.
27. Enhance people development
Under this strategic initiative, we will focus on the following key activities;
a) Design and implement capacity development programs;
b) Develop a comprehensive individual capacity development programs based on job position;
c) Establish capacity developmental model;
d) Develop Talent Pipeline Model and maintain potential successors’ dash board;
e) Implement knowledge management strategy.
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28. Transform organizational culture
Under this strategic initiative, we will focus on the following key activities;
a) Design and roll out structured culture transformation programs;
b) Implement Gender Seal Programs.
ANNEX 1: DETAILED RRA ACTION PLAN 2025/26
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
PERSPECTIVE I REVENUE
Goal I Maximize revenue collection
Strategic objective 1.1 Enhance tax compliance
Amount of Central
Government revenue
collection (Tax, non-tax
& other revenues)
3,061.2 bn Annual:
3,728.31 bn
Q1: 895.94bn
Q2: 928.62bn
Q3: 937.48bn
Q4: 966.27bn
Collect Central
Government
revenue
July 2025 –
June 2026
DTD & CSD
Amount of Local
Government tax
revenue collection
66.2 bn Annual: 82.8bn
Q1: 13.3bn
Q2: 23.1bn
Q3: 30.9bn
Q4: 15.4bn
Collect Local
Government tax
revenue
July 2025 –
June 2026
DTD
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Amount of Local
Government fees
revenue collection
29.4 bn Annual: 39.1bn
Q1:6.3bn
Q2: 10.8bn
Q3: 14.7bn
Q4: 7.3bn
Collect Local
Government fees
July 2025 –
June 2026
DTD
Initiative 1 Widen tax base
Percentage (%) change
in active taxpayers
by TIN (Central
Government Taxes)
18% Annual: 22%
Q1:6%
Q2:12%
Q3:18%
Q4:22%
Enhance taxpayer
registration
mechanisms:
July 2025 - June
2026
DTD
1. Register
taxpayers
identied to
expand tax base
through various
channels and
mechanisms;
2. Establish
framework
and controls
to monitor
taxpayers
beneting from
tax incentives.
July 2025 - June
2026
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Percentage (%) change in active taxpayers (core Tax heads)
Income Tax (CIT&PIT) 18% Annual: 22%
Q1: 6%
Q2:12%
Q3:18%
Q4:22%
1. Pay As You Earn
(PAYE)
11% Annual:12%
Q1:4%
Q2:6%
Q3:8%
Q4:12%
2. Value Added Tax
(VAT)
20% Annual:22%
Q1: 6%
Q2:12%
Q3:18%
Q4:22%
3. Property Tax 0.25% Annual:1%
Q1:0.30%
Q2:0.50%
Q3:0.75%
Q4:1%
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
4. Rental Income Tax 1% Annual:2%
Q1:0.5%
Q2:1%
Q3:1.5%
Q4:2%
5. Trading license Tax 10% Annual:12%
Q1:2%
Q2:5%
Q3:8%
Q4:12%
TADAT score
(registration)
2022/2023
TADAT
score:
D (P1-1
Dimension
1&2)
Annual: A
Q4: A
Strengthen
mechanisms to
maintain adequate
and accurate
taxpayer registry
June 2026 DTD
Number of analysis
reports on taxpayers for
registration
11 Annual: 7
Q1:1
Q3:5
Q4:1
Conduct risk
analyses to identify
taxpayers liable
for registration
under VAT, CIT, PIT,
PAYE, and trading
licenses
July 2025-June
2026
SRAD
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of tax
gaps analyses produced
0Annual: 1
Q4:1
Estimate tax
gap for the year
2024/25 (CIT and
VAT)
June 2026 SRAD
Initiative 2 Sustain Tax Compliance
On-time ling Rate for Central Government Tax (core taxes): DTD
1. VAT 79% Annual: 81%
Q1:80%
Q2:80%
Q3:81%
Q4:81%
Strengthen
mechanisms to
boost taxpayer
compliance
July 2025 - June
2026
2. CIT & PIT 80% Annual: 83%
Q1: 83%
Q2: 83%
Q3: 83%
Q4: 83%
3. PAYE 79% Annual: 82%
Q1: 80%
Q2: 80%
Q3:82%
Q4:82%
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
4. EXCISE TAX 80% Annual: 83%
Q1: 81%
Q2:82%
Q3:83%
Q4:83%
On-me ling Rate for Local Government Tax:
1. Rental Income Tax
(by UPI)
75% Annual:78%
Q3: 78%
Implement
measures to
enhance on-time
ling for Local
Government
July - September
2025
DTD
2. Trading License Tax
(by Units)
50% Annual: 53%
Q1: 41%
Q2: 44%
Q3: 48%
Q4:53%
3. Property Tax (by UPI) 42% Annual: 45%
Q2: 45%
On-time payment Rate for Central Tax (by number of declarations)
1. VAT 95% Annual: 97%
Q1:95%
Q2:96%
Q3:97%
Q4:97%
1. Enforce usage
of electronic
payment
mechanisms
on all large and
medium taxpayer
July 2025 - June
2026
DTD
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
2. CIT &PIT 98% Annual: 99%
Q1:99%
Q2:99%
Q3:99%
Q4:99%
2. Enhance
mechanisms
to minimize
late payments
(general and
customized SMS,
Announcements)
3 PAYE Tax 98% Annual: 99%
Q1:98%
Q2:98%
Q3:99%
Q4:99%
4. EXCISE TAX 97% Annual: 98%
Q1:97%
Q2:98%
Q3:98%
Q4:98%
On-time payment Rate for Local Government Tax by amount:
1. Rental Income Tax 88% Annual: 89%
Q3: 89%
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
2. Trading License Tax 85% Annual: 86%
Q1:85.25%
Q2:85.5%
Q3:85.75%
Q4:86%
3. Property Tax 75% Annual:76%
Q2:76%
Accurate reporting rate
for Central Government
Tax (by amount)
84% Annual:87%
Q1:84%
Q2:85%
Q3: 86%
Q4:87%
Design and
implement
mechanisms to
enhance accurate
reporting rate for
central government
July –
September 2025
DTD
Accurate reporting rate
for Local Government
Tax (by number of
declarations reviewed)
60% Annual:65%
Q1:61%
Q2:63%
Q3:64%
Q4:65%
Implement
measures/tools to
ensure accurate
reporting of
Property tax for
Local Government.
July 2025 - June
2026
DTD
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of mechanisms
to monitor excise taxes
6Annual:5
Q1:1
Q2:1
Q4:3
Strengthen excise
tax management
mechanisms
July 2025 - June
2026
DTD
Number of compliance
monitoring initiatives
reports produced
3 Annual:6
Q1:2
Q2:1
Q3:1
Q4: 2
Conduct
compliance
assessment of
customs agents
and warehouse
operators
July 2025 –
June 2026
CSD
Number of compliance
risk analysis reports
produced
115 Annual: 96
Q1: 24
Q2:24
Q3:24
Q4:24
Conduct
compliance risk
analysis
July 2024 - June
2025
SRAD
Number of Compliance
Improvement Plans
produced
1Annual: 1
Q4:1
Develop
Compliance
Improvement Plan
for 2026-2027.
April-June 2026
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of monitoring
reports on the FY
2025/26 Compliance
Improvement Plan
10 Annual:10
Q1:1
Q2:3
Q3:3
Q4:3
Monitor the
implementation of
compliance actions
in the Compliance
Improvement Plan
2025-2026
July 2025 - June
2026
Number of New
Beneciaries Recruited
Under the Gold Card
Scheme and AEO
Program
265 Annual: 10
Q4: 10
Conduct
recruitment of
5 Gold Card
Scheme and 5 AEO
applicants
April-June 2026
Strategic objective I.2 Minimize revenue leakages
Initiative 1 Enhance intelligence surveillance and Investigation mechanisms
Number of
approaches for tax
fraud prevention
4Annual:6
Q1:1
Q2:1
Q2:2
Q4:2
Harness
mechanisms for
investigation and
intelligence to
minimize tax fraud
July 2025 - June
2026
SIID
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Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of fraud
cases whose sources
and schemes have
been identied
64 Annual:66
Q1:16
Q2:17
Q3:17
Q4:16
Identify, prole and
report tax fraud
cases
July 2025 – June
2026
SIID
Initiative 2 Enhance revenue controls
Level of adoption of
electronic invoicing
system by active
taxpayers
40% Annual: 50%
Q1: 42%
Q2:45%
Q3:47%
Q4:50%
Enhance tax control
mechanisms
July 2025 - June
2026
DTD
Number of Business
requirements developed
for revenue control
4Annual:10
Q1:8
Q2: 2
Develop business
Requirements for
the Automation,
Enhancement, and
Integration of Tax
Control Processes.
July – December
2025
DTD
Number of Revenue
Controls measures
implemented
3Annual:4
Q1:1
Q4:3
Implement revenue
control measures
July 2025 –
June 2026
CSD
31
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of new tariff
specication codes
created
10,000 Annual: 14,000
Q1:3500
Q2:3500
Q3:3500
Q4:3500
Create tariff
specication
codes to update
the customs
automated
valuation database
July 2024 - June
2025
CSD
Number of
engagements for
systems integration
conducted
4 Annual: 6
Q2:4
Q4:2
Engage
stakeholders on
the possibility of
integration with
RRA
October 2025 –
June 2026
DTD
Initiative 3 Harness compliance and enforcement mechanisms for international taxation
Number of initiatives to
curb tax base erosion
4 Annual:4
Q2:3
Q4:1
Enhance
mechanisms to
minimize/deter tax
base erosion and
prot shifting on
both individuals
and MNEs
October 2025
-June 2026
DTD
32 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Level of implementation
of Exchange of
Information on Request
(EOIR) Standards
91% Annual:100%
Q1:93.25%
Q2:95.25%
Q3:97.25%
Q4:100%
Implement the
Exchange of
Information on
Request (EOIR)
standards
July 2025 - June
2026
LSBAD
Level of implementation
of Automatic Exchange
of Information (AEOI)
Standards
60% Annual:80%
Q1:65%
Q2:70%
Q3:75%
Q4:80%
Implement
the Automatic
Exchange of
Information (AEOI)
as per the Global
Forum Standard
July 2024 -
June 2025
LSBAD
Initiative 4 Strengthen debt recovery function
Percentage of
collectible core tax
arrears at scal year-
end relative to total core
tax revenue collections
for the scal year
4% Annual: 2%
Q1:3%
Q2:2.8%
Q3:2.5%
Q4:2.0%
Strengthen
measures for debt
recovery
July 2025 -
June 2026
DTD
33
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Arrears recovery rate
(Central Government
taxes)
34% Annual: 40%
Q1:10%
Q2:20%
Q3:30%
Q4:40%
Arrears recovery rate
(Decentralized taxes)
36% Annual:40%
Q1:37%
Q2:38%
Q3:39%
Q4:40%
Percentage of core tax
arrears relative to total
tax revenue collections
21% Annual:19%
Q1:20.5%
Q2:20%
Q3:19.5%
Q4:19%%
Percentage of core tax
arrears more than 12
months old relative to
all core tax arrears
69% Annual: 65%
Q1: 68%
Q2: 67%
Q3: 66%
Q4: 65%
34 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Arrears Recovery
Ratio (ARR)
88% Annual: 89%
Q 1 : 8 8 . 2 %
Q2: 88.4%
Q3: 88.7%
Q4: 89%
Carry out
enforcement
operations of
customs arrears
July 2025 –
June 2026
CSD
Initiative 5 Enhance the efciency of tax audit function
Number of audit tools
modernized
3Annual: 4
Q1:3
Q4:1
Improve the
effectiveness and
performance of tax
audit
July 2025 -June
2026
DTD
Number of
comprehensive audit
cases completed
(Central Government
Taxes)
150 Annual: 150
Q1:31
Q2:44
Q3:33
Q4:42
Implement
comprehensive
audit plan for
Central Government
taxes
July 2025 -June
2026
DTD
Number of issue -
oriented audit cases
Completed (Central
Government taxes)
500 Annual: 530
Q1:120
Q2:140
Q3:130
Q4:140
Implement issue-
oriented audit
plan for Central
Government taxes.
July 2025 -June
2026
DTD
35
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of desk audits
completed (Central
Government Taxes)
300 Annual: 3,200
Q1:800
Q2:800
Q3:800
Q4:800
Implement desk
audit plan for
Central and
Decentralised taxes
July 2025 -June
2026
DTD
Number of
comprehensive audit
cases completed for
LGT
116 Annual:132
Q1:26
Q2:36
Q3:34
Q4:36
Implement
comprehensive LGT
audit plan
July 2025 -June
2026
DTD
Number of desk audits
completed (LGT)
79,361 Annual:13,600
Q1:3,400
Q2:3,400
Q3:3,400
Q4:3,400
Implement desk
audit plan for
Central and
Decentralized taxes
July 2025 -June
2026
DTD
Number of
comprehensive and
issue- oriented audit
conducted for customs
384 Annual: 404
Q1: 101
Q2: 101
Q3: 101
Q4: 101
Conduct
comprehensive and
issue-oriented Post
Clearance Audit
July 2025-June
2026
CSD
36 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 6 Enhance risk management
Number of risk rules
developed, updated and
congured
2Annual: 6
Q2: 2
Q3:4
Develop and
automate risk
management
approaches
October 2025-
June 2026
SRAD
Number of risk-based
audit cases for DTD and
customs tax audit plan
proled
1,470 Annual:1,470
Q4: 1,470
Conduct risk
analysis to inform
comprehensive and
issue audit for DTD
and Customs.
April-June 2026 SRAD
Number of risk models
developed
0Annual: 2
Q2: 2
Develop a VAT
refund model to
identify fraudulent
refund cases
December 2025 SRAD
Develop a predictive
model to efciently
select audit Cases
December 2025
37
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
PERSPECTIVE II CUSTOMER
Goal II Increase customer satisfaction
Strategic objective 2.1 Improve customer service
Initiative 1 Strengthen mechanisms for service delivery and feedback
Number of Initiatives
Implemented to
enhance Service
Delivery
5Annual: 9
Q1:2
Q2:3
Q3:1
Q4:3
Enhance
mechanisms
to improve
customer service
and feedback
management
July 2025 –
June 2026 2025
TPSC
Number of analysis
reports produced on
time release of goods in
customs
0Annual: 4
Q1:1
Q2:1
Q3:1
Q4:1
Analyze clearance
time for goods,
and recommend
strategic
improvements for
trade facilitation
July 2025 –
June 2026
SRAD
38 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 2 Establish initiatives to enhance user experience
Number of user
experience research
analyses conducted
4Annual: 6
Q1: 1
Q2: 1
Q3: 2
Q4: 2
Conduct User
Experience (UX)
Researches to
gather deep
insights to improve
usability
July 2025 - June
2026
TPSC & SRAD
Number of usability
tests conducted
2Annual: 4
Q1: 1
Q2: 1
Q3: 1
Q4: 1
Implement
initiatives to
enhance customer
user experience
July 2025 - June
2026
TPSC
Number of tax accounts
updated and/or
reconciled
1,300 Annual: 2,000
Q1: 500
Q2: 500
Q3: 500
Q4: 500
Update Tax
Accounts with
Unusual Balances
July 2025 –
June 2026
DTD
Implementation
rate of Customer
Satisfaction Survey
recommendations
0% Annual: 50%
Q1:10%
Q2: 30%
Q3:40%
Q4: 50%
Implement
recommendations
from customer
Satisfaction Survey
2024/2025
July 2025 - June
2026
39
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Performance rate of
RRA Call Center
75% Annual: 75%
Q1: 75%
Q2: 75%
Q3: 75%
Q4: 75%
Monitor Call Center
operations
July 2025 - June
2026
TPSC
Initiative 3 Streamline personal data accessibility to taxpayers
Percentage of content
updated in the RRA Tax
Handbook
0% Annual: 75%
Q1:10%
Q2:30%
Q3:60%
Q4:75%
Update RRA Online
Tax Handbook in
accordance with
current tax laws
June 2026 TPSC
Number of practice
notes and public rulings
produced
5Annual: 6
Q1:1
Q2:2
Q3:2
Q4:1
Produce practice
notes and public
rulings
July 2025 –
June 2026
LSBAD
40 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Objective 2.2 Increase taxpayers’ engagement and awareness
Initiative 1 Enhance stakeholder engagement and partnerships
Number of Taxpayer
engagement programs
Implemented
160 Annual: 193
Q1: 20
Q2: 60
Q3: 120
Q4: 193
Conduct taxpayer
engagement
programs
July 2025 - June
2026
TPSC
Level of implementation
of stakeholders’
engagement strategy
70% Annual: 75%
Q1:75%
Q2:75%
Q3:75%
Q4:75%
Implement
stakeholders’
engagement
strategy
July 2025 –
June 2026
41
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
PERSPECTIVE III INTERNAL PROCESSES
Goal III Improve the quality and efciency of operations and services
Strategic objective 3.1 Improve organizational efciency
Initiative 1 Improve business process management
Level of implementation
of procurement plan
95% Annual: 98%
Q1:40%
Q2:60%
Q3:85%
Q4:98%
Monitor
implementation
of 2025/2026
procurement plan
July 2025 - June
2026
AD
Number of automated
businesses
systems
8Annual: 10
Q1: 1
Q2: 2
Q3: 1
Q4: 6
Automate key
business systems
July 2025 - June
2026
ITDT
Number of systems
enhanced/
integrated
6Annual: 10
Q1: 2
Q2: 1
Q3: 1
Q4: 6
Optimize and
integrate business
processes
July 2025 - June
2026
ITDT
42 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of business
processes integrated
6Annual:5
Q1:3
Q2:1
Q3:1
Integrate business
processes
July 2025 -
March 2026
ITDT
Number of business
requirements developed
0Annual: 7
Q1:3
Q2:2
Q3:2
Develop business
requirements for
enhancement
of nancial
management
systems
July 2025 –
March 2026
FINANCE
Number of Feasibility
study reports produced
0Annual: 1
Q1:1
Conduct a
feasibility study
on migration
of tax revenue
management
accounting features
into E-tax/IFMIS
Jul-Sept 2025 FINANCE
Initiative 2 Enhance legal support services
Number of tax laws
assessed
3Annual:2
Q4:2
Assess tax laws
for adequacy/
relevance.
April - June 2026 LSBAD
43
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Court Judgment
Execution Rate
90% Annual: 90%
Q1:90%
Q2:90%
Q3:90%
Q4:90%
Establish measures
to ensure that court
decisions are timely
implemented
July 2025 - June
2026
LSBAD
% of court cases ruled
in favor of RRA
80% Annual: 80%
Q1:80%
Q2:80%
Q3:80%
Q4:80%
Establish measures
to reduce court
cases engaging
RRA
July 2025 - June
2026
LSBAD
% of amicable cases
handled in 90 days
91% Annual:91%
Q1: 91%
Q2: 91%
Q3: 91%
Q4: 91%
Establish
mechanisms to
expedite response
time for amicable
cases
Sept- Dec 2025 LSBAD
% of appeal cases
handled in 30 days
91% Annual:91%
Q1: 91%
Q2: 91%
Q3: 91%
Q4: 91%
Establish
mechanisms to
expedite response
time for appeal
cases
July 2025 –
June 2026
44 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 3 Improve working environment
Level of adherence to
working environment
standard/framework
0% Annual: 5%
Q1:2%
Q2:2%
Q3:4%
Q4:5%
Implement
RRA working
environment
standard/
framework
July- September
2025
AD
Initiative 4 Strengthen institutional risk management
Level of implementation
of risk mitigation
strategies
75% Annual: 80%
Q1:80%
Q2:80%
Q3:80%
Q4:80%
Implement risk
management
approaches
July 2025 - June
2026
SRAD
Number of New Risk
Management Rules
Congured in the DWH
6Annual :6
Q2: 3
Q3: 3
Congure new Risk
Management Rules
December 2025-
March 2026
SRAD
Number of RMRs
Automated in the RMRs
Dashboard
25 Annual :60
Q1: 15
Q2: 15
Q3: 15
Q4: 15
Develop RRA
KPIs monitoring
dashboard
July 2025 – June
2026
SRAD
45
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 5 Improve accountability and transparency
Number of integrity
investigations
completed
30 Annual: 30
Q1:6
Q2:8
Q3:8
Q4:8
Implement
accountability
assurance
mechanisms
July 2025 - June
2026
IAID
Number of integrity
awareness campaigns
conducted
12 Annual: 12
Q1:3
Q2:3
Q3:3
Q4:3
Conduct integrity
awareness
campaigns
July 2025 - June
2026
Number of life style
audits completed
4Annual: 4
Q1:1
Q2:1
Q3:1
Q4:1
Conduct life style
audits
July 2025 - June
2026
Internal audit coverage
ratio
29% Annual: 32%
Q1:29%
Q2:30%
Q3:31%
Q4:32%
Implement internal
audit plan
July 2025-June
2026
IAID
46 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of internal audit
cases completed
20 Annual: 20
Q1:5
Q2:5
Q3:5
Q4:5
Conduct internal
audits
July 2024 - June
2025
IAID
Number of business
requirements produced
0Annual: 1
Q2: 1
Prepare business
requirements
for audit
recommendations
management
system
December 2025 IAID
Level of adherence to
Quality management
standards
100% Annual: 100%
Q2: 100%
Coordinate
activities of the
ISO 9001:2015
surveillance audit
July 2025 - June
2026
IAID
Number of QMS audits
conducted
10 Annual: 10
Q1: 2
Q2: 3
Q3: 3
Q4: 2
Conduct QMS audit
engagements
July 2025 - June
2026
IAID
47
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
% of Implementation
Internal, External and
audit recommendations
75% Annual: 75%
Q1: 15%
Q2: 40%
Q3: 60%
Q4: 75%
Implement
accountability
assurance
mechanisms
July 2025 - June
2026
All
departments
Level of annual RRA
budget execution
96% Annual:97%
Q1: 18%
Q2: 37%
Q3:67%
Q4: 97%
Monitor execution
of RRA 2025/26
budget
July 2025 - June
2026
FINANCE
Level of compliance
with IPSAS Accrual
25% Annual: 100%
Q2:50%
Q3:75%
Q3:100%
Implement
public nancial
management
initiatives and
processes (IPSAS
accrual)
October 2025 -
June 2026
FINANCE
48 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 6 Streamline project management function
Key intervention: Improve efciency and effectiveness of project management cycle
Number of project
proposals developed
6Annual: 6
Q1:6
Develop and
submit projects
to donors for fund
mobilization
Jul - Sept - 2025 SPIU
Percentage of projects
implemented using
Microsoft Project
New
activity
Annual: 100%
Q1:20%
Q2:100%
Ensure effective
use of Microsoft
Project
July 2025 –
December
SPIU
Number of project’s
progress reports
produced
4Annual: 4
Q1:1
Q2:1
Q3:1
Q4:1
Produce and
submit project
progress reports to
donors
July 2025 –
June 2026
SPIU
Initiative 7 Improve organizational change management
Level of implementation
of Change Management
initiatives
0Annual: 50%
Q2: 20%
Q3: 30%
Q4: 50%
Monitor the
implementation
of Change
Management
initiatives
October 2025 -
June 2026
CG’s ofce
49
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Strategic objective 3.2 Build a data-savvy organization
Initiative 1 Enhance data governance
% of implementation
of data governance
framework
42% Annual: 66%
Q1: 45%
Q2: 50%
Q3: 60%
Q4: 66%
Implement RRA
data governance
framework
July 2025-June
2026
SRAD
Level of implantation of
data science strategy
0% Annual: 10%
Q1: 2%
Q2: 5%
Q3: 8%
Q4:10%
Develop and
implement AI-
powered tax fraud
detection systems
July 2025-June
2026
SRAD
Enhance Data
Science capacity
July 2025-June
2026
Initiative 2 Strengthen evidence-based strategic planning, M&E and decision-making
Number of research/
policy analyses/ impact
evaluation reports on
tax issues produced
16 Annual: 17
Q2:6
Q3:4
Q4:7
Conduct research
studies/policy
analyses/impact
evaluation to
inform decision
making
July 2025-June
2026
SRAD
50 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of tax
expenditures developed
1Annual: 1
Q3:1
Update tax
expenditure models
to provide inputs
to MINECOFIN for
the 2023/24 tax
expenditure report.
Jan-Mar 2026 SRAD
Number of progress
Reports Produced
15 Annual: 21
Q1:3
Q2:7
Q3:5
Q4:6
Strengthen
organizational
capacity (data
infrastructure,
in strategic
planning and M&E
processes)
July 2025-June
2026
SRAD
Number of RRA Plans
produced
1Annual: 1
Q3:1
Prepare and publish
the RRA Action Plan
for FY 2026/27
January – June
2026
Prepare the RRA
revised budget for
FY 2025/26
December 2025
-March 2026
Finance and
SRAD
Number of Tax
Statistics Produced
1Annual: 1
Q2:1
Produce RRA Tax
Statistics
October -
December 2025
SRAD
51
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Number of TADAT
assessments
conducted
2022
TADAT as-
sessments
Annual: 1
Q2:1
Conduct internal
TADAT assessment
December 2025 SRAD
Strategic objective 3.3 Accelerate Digital Transformation
Initiative 1 Enhance IT infrastructure and cyber security
Key intervention: Develop and implement ICT Projects
Level of
implementation of ISO
27001:2022 and ISO
20000 certication
requirements
0 Annual:34%
Q1: 16%
Q2: 20%
Q3: 32%
Q4: 34%
Develop and
implement ICT
projects
July 2024 -June
2025
ITDT
Initiatives 2: Develop and Enhance IT systems
Number of new
technologies
implemented
1Annual: 2
Q4:2
Adopt and adapt
New Technologies:
1.Implement of SD-
WAN technologies
April – June
2026
ITDT
2. Re-design ETAX
toward
microservices
architecture
April – June
2026
ITDT
52 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
PERSPECTIVE IV RIGHT PEOPLE
Goal IV Build a professional, performance-driven and ethical workforce
Strategic Objective 4.1 Embed agile HRD management
Initiative 1 Modernize HR function
Number of initiatives
for modernizing HR
services
1 Annual: 4
Q1:1
Q2:1
Q3:2
Streamline HR
Functions
July 2025 –
April 2026
HRD & ITDT
Key intervention: Enhance performance management process
Strategic Objective 4:2 Improve the employee experience and development
Initiative 1 Improve people wellness
Number of wellness
schemes developed and
implemented
4 Annual: 4
Q4:4
Develop and
implement
employee wellness
scheme
June 2026 HRD
53
EBM 2.1 USER GUIDE
RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Initiative 2 Enhance people development
Key intervention: Design and implement staff development programs
Implementation Rate of
Capacity Development
Programs
80% Annual: 85%
Q1:20%
Q2:40%
Q3:65%
Q4:85%
Design and
implement capacity
development
programs
July 2025 -
June 2026
HRD
Develop a
comprehensive
individual capacity
development
programs based on
job position.
July 2025 - June
2026
Number of staff
beneting from talent
management initiatives
100 Annual: 120
Q1 :30
Q2 :30
Q3 :30
Q4 :30
1. Establish capacity
developmental
model;
2. Develop Talent
Pipeline Model
and maintain
potential
successors’ dash
board.
July 2025 - June
2026
HRD
54 RRA ACTION PLAN 2024/25
Performance indicators Baselines Target 2025/26 Activities Timelines Responsible
Unit/ Ofce
Level of implementation
of Knowledge
Management Strategy
80% Annual: 95%
Q1:82%
Q2:85%
Q3:90%
Q4:95%
Implement
knowledge
management
strategy
July 2025 -
June 2026
HRD
Strategic Objective 4.3 Enhance people engagement
Initiative 1 Transform organizational culture
Number of culture
transformation
programs implemented
0
Annual:3
Q1 :1
Q2 :1
Q4 :1
Design and roll out
structured culture
transformation
programs
July 2025 -
June 2026
HRD
Number of Gender Seal
programs implemented
1Annual :4
Q1: 1
Q2: 1
Q3: 1
Q4: 1
Implement Gender
Seal Programs
July 2025 - June
2026
HRD
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