BROWN GROUP, INC., Petitioner, v. ADMINISTRATIVE HEARING COMMISSION and Ray S. James, Director of Revenue, Respondents.
No. 64130.
Supreme Court of Missouri, En Banc.
April 26, 1983.
Rehearing Denied May 31, 1983.
In my view, the judgment should be reversed and the cause remanded for trial.
GUNN, Judge.
This appeal involves construction of the revenue laws; therefore, jurisdiction is vested in this Court pursuant to
Petitioner, a manufacturer and wholesaler of shoes, is the parent company of an affiliated group and is incorporated under the laws of New York. Its principal place of business is Clayton, Missouri.
For the years in question, petitioner elected to use the single factor formula for apportioning income and in so doing excluded certain royalties from the multiplicand of the formula.2 The royalties concerned
Upon audit of 1973, 1974 and 1975 tax returns, the Department of Revenue included the royalties in petitioner‘s base income, (i.e., the multiplicand of the formula) for all three years and disallowed petitioner‘s entry of a negative figure on line 1 of the Missouri tax return, increasing the amount to zero. On June 13, 1977, the Department issued final notices of income tax deficiency for fiscal years ending November 3, 1973, November 1, 1974, and November 1, 1975.
Petitioner unsuccessfully protested the additional assessments3 to the Director of Revenue (Director). Appeal to the Administrative Hearing Commission (Commission) resulted in affirmance of the Director‘s decision, and this appeal followed.
Petitioner first alleges that the Commission erred in holding that federal taxable income for purposes of line 1 on the Missouri income tax return may not be a negative number.
A taxpayer with a loss on its federal tax return is able to offset income from prior years4 pursuant to
Petitioner argues that in this case the loss would not be subject to multiple use because the entire loss was used to offset federal taxable income in 1972, a year when Missouri taxable income was not derived with reference to federal taxable income. See
While there is no salutary result for petitioner in this particular instance, “[a]n allowance for deductions from gross income does not turn on general equitable considerations. Deductions depend upon legislative grace and are allowable only to the extent authorized by statute.” M.F.A. Central Cooperative v. Bookwalter, 427 F.2d 1341, 1344 (8th Cir. 1970), cert. denied, 405 U.S. 1045 (1972), quoting from Greenspon v. Commissioner, 229 F.2d 947, 954 (8th Cir. 1956). Accord: Armco Steel Corp. v. State Tax Commission, 580 S.W.2d 242, 245 (Mo. banc 1979); Mobile Oil Corp. v. State Tax Commission, 513 S.W.2d 319, 322-23 (Mo. 1974). The definition of federal taxable income cannot fluctuate according to whether a taxpayer receives the full benefits of the federal net operating loss provisions. The fact that petitioner derived no Missouri benefit from the federal loss does not require this court to ignore the provisions of
Tebon v. Commissioner of Internal Revenue, 55 T.C. 410 (1970), considers this point. In Tebon, the tax court considered the question of whether in computing averagable income within the meaning of
In this case, the stance taken by petitioner is that because
When a taxpayer incurs a federal loss its sole recourse is to
Point II
The second point involves petitioner‘s allegation that the additional assessments of tax were void as not being personally made
Subdelegation is the transmission of authority from the heads of agencies to subordinates. 1 K. Davis, Administrative Law Treatise § 9.01 at 616 (1958). And various statutes may be read as authorizing the Director to delegate certain authority to his subordinates. For example,
2. The director of revenue for the purpose of ascertaining the correctness of any return, or for the purpose of making an estimate of taxable income of any person, shall have power to examine or to cause to have examined, by any agent or representative designated by him for that purpose, any books, papers, records, or memoranda bearing upon the matters required to be included in the return, . . . (Emphasis added.)
Furthermore,
2. With respect to all divisions in the department, the director shall:
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(2) Coordinate, consolidate and arrange the functions, procedures and facilities of the several divisions as is necessary to bring about economy and efficiency in the operation of the department of revenue and each division of the department. (Emphasis added.)
Finally,
These statutes may reasonably be construed as authorizing the delegation of certain authority with respect to tax returns to achieve efficiency and economy in the assessment and collection of Missouri income taxes. The characteristics of the Department necessitate that delegation of function and authority be a predominant feature of its operation and procedure. 2 Am. Jur. 2d Administrative Law § 221 (1962). The authority to subdelegate need not be expressed in the statute and may be implied if there is a reasonable basis for such implication. M. Forkosch, Administrative Law § 86 at 120 (1956).
In this case, petitioner urges an interpretation of the statutes that would prove so burdensome that the Director would be unable to perform required duties. In construing statutes it must be presumed that the legislature intended a logical and reasonable result with substantive effect. State ex inf. Ashcroft v. City of Fulton, 642 S.W.2d 617, 620-21 (Mo. banc 1982); State ex rel. Safety Ambulance Service, Inc. v. Kinder, 557 S.W.2d 242, 247 (Mo. banc 1977); Breeze v. Goldberg, 595 S.W.2d 381, 382 (Mo. App. 1980). Accordingly, the more reasonable interpretation of the statutes is that they permit the Director to delegate certain authority so that efficient administration of the Department of Revenue may be achieved. See
In this case, the Director has exercised his discretion by formulating policies regarding corporate income tax (e.g., taxable income may not be less than zero, royal-
Point III
Petitioner‘s third point involves the inclusion of royalties from a corporation of a foreign nation in the multiplicand of the single factor formula. The Director argues that when a taxpayer elects under
The royalty income in question arose from contracts between petitioner and Nippon Shoe Company, Limited, a Japanese corporation. The contracts permitted Nippon to use certain trade names, shoe designs and shoe patterns owned by petitioner with the amount of income to be paid petitioner for their use being a variable percentage of the gross domestic wholesale price charged to retailers by Nippon, depending on the number of pairs of shoes sold.
1. Missouri taxable income of a corporation shall include all income derived from sources within this state.
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(2) The taxpayer may elect to compute the portion of income from all sources in this state in the following manner:
(a) The income from all sources shall be determined as provided, excluding therefrom the figures for the operation of any bridge connecting this state with another state.
(b) The amount of sales which are transactions wholly in this state shall be added to one-half of the amount of sales which are transactions partly within this state and partly without this state, and the amount thus obtained shall be divided by the total sales or in cases where sales do not express the volume of business, the amount of business transacted wholly in this state shall be added to one-half of the amount of business transacted partly in this state and partly outside this state and the amount thus obtained shall be divided by the total amount of business transacted, and the net income shall be multiplied by the fraction thus obtained, to determine the proportion of income to be used to arrive at the amount of Missouri taxable income . . . (Emphasis added.)
This Court, in construing the predecessor of
More historical background on foreign paid royalties comes from A.P. Green Refractories Co. v. State Tax Commission, 621 S.W.2d 340 (Mo. App. 1981) which deals with the issue of whether royalties paid to a taxpayer by foreign corporations for the use of trademarks, trade names and manufacturing processes can be excluded from taxable base income in applying the single factor formula. In Green Refractories, the taxpayer argued that legislative policy was against imposing a tax on income from sources wholly outside Missouri. The Western District determined, however, that the Multistate Tax Compact [
Following A.P. Green Refractories, which placed heavy reliance on M.V. Marine Co. v. State Tax Commission, 606 S.W.2d 644, this Court decided Goldberg v. State Tax Commission, 639 S.W.2d 796 (Mo. banc 1982), which reexamined M.V. Marine. As a result, the Court determined that the flaw in M.V. Marine dictum7 rested “upon a fundamental misinterpretation of the purpose underlying the adoption of the Compact. The Compact was never intended by anyone to be a substantive taxation statute.” Goldberg v. State Tax Commission, 639 S.W.2d at 799. The result in Goldberg was a return to the “source of income” test of
Felicitious to the circumstances of these proceedings is A.P. Green Fire Brick Co. v. Missouri State Tax Commission, 277 S.W.2d 544 (Mo. 1955), for it finds that “source of income” is the place in which the trademarks, trade names and manufacturing processes are used and the income produced. Id. at 547. That means that the source of income from Nippon, Inc. royalties was wholly outside Missouri, as the trade names and manufacturing processes were used and the income produced in Japan and other foreign countries to which Nippon, Inc. exported shoes. Since the royalties were a source of income wholly without Missouri, they do not figure in the taxing formula.
The Director‘s response is that A.P. Green Fire Brick does not apply as the court was dealing with a statute that imposed an income tax upon corporate income “from all sources within this state,” inferring that no such limitation applies to the case sub judice. But the Director‘s offered distinction cannot overcome the language of
We hold fast to the basic precept that tax statutes are to be strictly construed in favor of the taxpayer and against the taxing authority. Staley v. Missouri Director of Revenue, 623 S.W.2d 246, 250 (Mo. banc 1981). The Director‘s argument that upon election by the taxpayer to use the single factor formula, all income from any source must be included in the base income is out of phase with that principle.
Accordingly, the Administrative Hearing Commission‘s decision is reversed with respect to the propriety of including the foreign royalties in petitioner‘s net income base under the single factor formula for the 1973-75 tax years.8
Point IV
The final issue raised by petitioner alleges that the Administrative Hearing Commission erred in holding that the statute of limitations applicable to petitioner‘s fiscal year beginning in 1972 and ending November 3, 1973, is four years under
The final sentence of
Notwithstanding the first four sentences of this section, a taxpayer who has a fiscal period which includes parts of each of the years 1972 and 1973 may determine his tax and taxable income pursuant to the provisions of sections 143.011 to 143.996 if he files an election to that effect with the director of revenue on or before the due date (including extensions of time) of his return for the taxable period. (Emphasis added.)
Petitioner construes this language to require application of the three year statute of limitations provided for in
That portion of
The judgment is reversed with respect to the inclusion of royalties in petitioner‘s net income base and is affirmed in all other respects.
RENDLEN, C.J., HIGGINS, BLACKMAR and DONNELLY, JJ., and HOUSER, Senior Judge, concur.
WELLIVER, J., concurs in part and dissents in part in separate opinion filed.
BILLINGS, J., not sitting.
WELLIVER, Judge, concurring in part and dissenting in part.
I concur in the holdings of Points II, III, and IV of the principal opinion. I respectfully dissent, however, from Point I. The principal opinion ignores the clear and unambiguous language of
The Missouri taxable income of a corporation taxable under sections 143.011 to 143.996 shall be so much of its federal taxable income for the taxable year, with the modifications specified in subsections 2 and 3 of this section, as is derived from sources within Missouri as provided in section 143.451.
On November 5, 1968, the constitution was amended to provide as follows:
In enacting any law imposing a tax on or measured by income, the general assembly may define income by reference to provisions of the laws of the United States as they may be or become effective at any time or from time to time. . . . The general assembly may in so defining income make exceptions, additions, or modifications to any provisions of the laws of the United States so referred to . . . .
Notes
(1) The numerator of the fraction is the total of:
(a) the amount of sales which are transactions wholly in this state, and
(b) one-half the amount of sales which are transactions partly within this state and partly without this state.
(2) The denominator of the fraction is total sales.
The fraction thus obtained is multiplied times net income to determine the proportion of income to be used to arrive at the amount of Missouri taxable income. See
If the amount of a taxpayer‘s federal taxable income reported on his federal income tax return for any taxable year is changed or corrected . . . the taxpayer shall report such change or correction in “federal taxable income within ninety days after the final determination of such change, correction, or renegotiation, or as otherwise required by the director of revenue. . . . Any taxpayer filing an amended federal income tax return shall also file within ninety days thereafter an amended return under sections 143.011 to 143.996, and shall give such information as the director of revenue may require. . . .
143.611. Examination of return.—1. As soon as practical after the return is filed, the director of revenue shall examine it to determine the correct amount of tax. If the director of revenue finds that the amount of tax shown on the return is less than the correct amount, he shall notify the taxpayer of the amount of the deficiency proposed to be assessed. If the director of revenue finds that the tax paid is more than the correct amount, he shall credit the overpayment against any taxes due under sections 143.011 to 143.996 from the taxpayer and refund the difference. No deficiency shall be proposed and no refund shall be made pursuant to this or any section of sections 143.011 to 143.996 unless the amount exceeds one dollar. (Emphasis added.)
Petitioner cites several recent United States Supreme Court cases discussing the “unitary business” principle. See Asarco, Inc. v. Idaho State Tax Comm‘n, 458 U.S. 307, 102 S. Ct. 3103, 73 L. Ed. 2d 787 (1982); F.W. Woolworth Co. v. Taxation & Revenue Dept. of New Mexico, 458 U.S. 354, 102 S. Ct. 3128, 73 L. Ed. 2d 819 (1982); Exxon Corp. v. Department of Revenue, 447 U.S. 207, 100 S. Ct. 2109, 65 L. Ed. 2d 66 (1980); Mobil Oil Corp. v. Commissioner of Taxes, 445 U.S. 425, 100 S. Ct. 1223, 63 L. Ed. 2d 510 (1980). Each of these cases involved taxation of income received by a parent from its subsidiary. In this case, the royalty income received by petitioner was from an unrelated foreign corporation so that the “unitary business” principle is not dispositive. See Note, Supreme Court Decisions in Taxation: 1981 Term, 36 Tax Lawyer 421, 460-68 (1983) (discussion of due process and the unitary business principle of state taxation).
