MULTIPLICITY, OVERLAP AND VOLATILITY IN NIGERIAN TAX REFORMS: ARE THE 2025 TAX LAWS A TURNING POINT OR JUST ANOTHER CROWDED EDIFICE?

Abstract

Nigeria’s tax system has historically been characterised by a proliferation of taxes and levies, overlapping fiscal powers across the federation, and a high frequency of legislative change that together generate complexity, compliance frictions and policy uncertainty. In 2025, the Federal Government enacted a suite of interlocking Nigeria Tax Reform Acts—including the Nigeria Tax Act (NTA), the Nigeria Tax Administration Act (NTAA) and the Joint Revenue Board (Establishment) Act (JRBEA)—following the work of the Presidential Committee on Fiscal Policy and Tax Reforms. These laws seek to broaden the tax base, modernise administration and “tax the fruit, not the seed” by focusing on profits and consumption while easing burdens on low‑income earners and small businesses. This paper critically examines the reforms from the vantage point of multiplicity, overlapping and volatility of tax reforms in Nigeria’s staggering economy. Using doctrinal analysis of the 2025 Acts and a review of emerging academic and policy literature, it argues that although the new framework introduces important institutional innovations—such as the NTAA’s national Single Window and the JRBEA’s coordination mandate—it only partially addresses the deep‑rooted problems of multiple taxes, inter‑governmental overlap and reform instability. The paper concludes that achieving a growth‑supportive, equitable tax system will require a second‑generation agenda focused on comprehensive tax rationalisation, clearer assignment of tax powers, a medium‑term reform calendar, inclusive digitalisation and embedded stakeholder engagement.