利用数字公共基础设施促进支付交付与普惠：巴西个性化增值税现金返还计划的启示

Insights from a Personalized VATCashback Program in Brazil JANUARY 2026Public Disclosure Authorized © 2026 International Bank for Reconstruction and Development / The World Bank1818 H Street NWWashington DC 20433Telephone: 202-473-1000 This work is a product of the staff of The World Bank with external contributions. The findings, inter-pretations, and conclusions expressed in this work do not necessarily reflect the views of The World The World Bank does not guarantee the accuracy of the data included in this work. The boundaries,colors, denominations, and other information shown on any map in this work do not imply any judg- Rights and Permissions The material in this work is subject to copyright. Because the World Bank encourages disseminationof its knowledge, this work may be reproduced, in whole or in part, for noncommercial purposes aslong as full attribution to this work is given. Any queries on rights and licenses, including subsidiaryrights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Cover image: © Photo by Karola G/PexelCover design and layout: Duina Reyes Leveraging Digital PublicInfrastructure for Payment Insights from a Personalized JANUARY 2026 Table of Contents Abstract Acknowledgments Abbreviations and Key Terms 1. Introduction 2. Program Overview and Deep Dive into Building Blocks 2.1. Program Overview: A Quick Look at Devolve ICMS2.2. A Deep Dive into the Building Blocks of Devolve ICMS2.2.1. Digital Infrastructure in Devolve ICMS: From Targeting to Delivery 3.Main Findings and Trade-Offs 3.1. Laying the Groundwork: The G2Px Framework and Data Sources for the Analysis3.2. How Does Devolve ICMS Leverage Digital Public Infrastructure for Service Delivery?3.3. Product and Market Design: How Does Devolve ICMS Deliver Payments? 4.Conclusion AppendixesReferences Abstract This report examines the design and implementation of Devolve ICMS, a state-level personalized value added tax(VAT) cashback program in Rio Grande do Sul, Brazil, through the lens of the World Bank’s G2Px framework. Usingadministrative data, a representative beneficiary survey, and qualitative interviews, the report provides an in-depthassessment of the systems and infrastructure supporting the Devolve ICMS program, illustrating the key elements Acknowledgments This report was jointly prepared by the Receita Estadual (State Revenue Service) of Rio Grande do Sul in Brazil and theWorld Bank. It was authored by Tatiana Flores, Pedro Lara Arruda, Thiago Scot, Gabriel Lara Ibarra, Pierre Bachas, andAna Maria Rojas, from the World Bank; as well as Anderson Aparecido Mantovani, Evandro Costa Souza de Oliveira, andGiovanni Padilha da Silva, from the Receita Estadual. We also thank Josefina Silva for her research assistance and DesireeGonzalez for logistical support. We gratefully acknowledge funding and general guidance from the G2Px initiative team atthe World Bank—namely, Rebecca Jane Rouse, Ana Lucia Cárdenas Martínez, and Georgina Marin. The survey of benefi- Abbreviations and Key Terms 1.Introduction The rapid expansion ofdigital technologies is transforming how governments implement tax and transferpolicies.In most countries, until a few decades ago, taxpayers presented their tax declarations on paper, and theireconomic activity left little to no digital trail, making compliance efforts very costly. At the same time, social programs facedchallenges to identify beneficiaries and deliver transfers, often in cash, efficiently and securely (Cadwallade and Malaza2022). New technologies are quickly changing this landscape. Digital tools are making it easier for governments to identify The value added tax (VAT) is a central pillar ofdomestic revenue mobilization, especially in developingeconomies, where it represents a significant share of total tax collection (OECD 2024).Many VAT systems featureexemptions or reduced rates for essential goods, which are often intended to protect vulnerable populations. Despite theirpopularity, it is well documented that these policies are poorly targeted (as richer households consume more in absolute Given the downsides of VAT exemptions, personalized VAT systems, which provide direct cashback refunds tolow-income households, are gaining traction as an alternative.The personalized VAT approach promises to preservea broad tax base while enhancing equity, and it could also be more transparent and cost-effective than traditional exemptions(Barreix et al. 2022; Swistak and de la Feria 2024).1However, it requires strong state capacity and infrastructure to In this report, we leverage a close collaboration between the World Bank and the Secretariat of Finance ofRio Grande do Sul to study an innovative personalized VAT cashback program called Devolve ICMS.2Since2021, Devolve ICMS has provided targeted tax refunds to low-income households to offset the burden of consumptiontaxes. In this report, we provide an in-depth assessment of the s