MID-AMERICA TELEVISION COMPANY, and Oliver Advertising, Inc., Appellants, v. STATE TAX COMMISSION OF MISSOURI, and Dennis K. Hoffert, Chairman, and Stephen C. Snyder, Commissioner, Respondents.
No. 63297
Supreme Court of Missouri, En Banc.
May 31, 1983
Rehearing Denied June 30, 1983
652 S.W.2d 674
John Ashcroft, Atty. Gen., Richard L. Wieler, Asst. Atty. Gen., Jefferson City, for respondents.
ROBERT E. SEILER, Senior Judge.
We have jurisdiction of this appeal because it involves construction of the revenue laws.
In each instance the taxpayer is seeking to deduct on its Missouri income tax return the full amount of what would have been the taxpayer‘s federal income tax for the year in question had the taxpayer filed an individual, separate federal income tax return. In each instance the director of revenue disallowed the proposed deduction and instead allowed only a proportionate share of the group‘s federal tax, which, with minor variations, was ascertained by multiplying the total federal income tax paid by the group times a fraction consisting of the taxable income of the member as the numerator and the taxable income of the entire group as the denominator. The effect of this is to allow the member taxpayer to deduct a portion of the federal tax paid by the group based on the relationship of the member‘s taxable income to the taxable income of the entire group.
In their Missouri income tax returns, appellants claimed a deduction, respectively, for federal income tax in amounts equal to what the tax would have been had each filed a separate federal income tax return—MATV $63,531.00 and Oliver $50,491.00. These amounts were, in fact, paid by appellants respectively to the parent corporation pursuant to an agreement among the various members of the consolidated group and then by the parent company reimbursed to the loss companies within the group, thereby recognizing the savings to the group of federal tax brought about by the losses incurred by the loss companies. Stated another way, the payments collected from the members of the group in excess of the consolidated federal income tax liability were distributed to those companies whose negative tax liability created the excess.
The department of revenue filed notice of deficiency against appellants, showing additional tax of $2,506.62 and interest against MATV and $2,546.97 and interest against Oliver. The department took the position that appellants would be entitled to deduct only their proportionate share of the actual federal income tax liability of the group. Over appellants’ objections, the deficiency notices were sustained and following adverse decisions by the State Tax Commission and the circuit court of Jackson County, appellants appealed here. We affirm.
Although appellants elected to file a consolidated federal income tax return, they were required to file separate state income tax returns as more than 50 per cent of their income was derived from sources outside the state.
“A taxpayer shall be allowed a deduction for his federal income tax liability under Chapter 1 of the Internal Revenue Code for the same taxable year for which the Missouri return is being filed . . .”
Appellants, however, as said, did not actually file separate federal income tax returns, so we necessarily must look elsewhere to determine appellants’ federal tax deduction in arriving at Missouri taxable income.
“For each taxable year an affiliated group of corporations filing a federal consolidated income tax return does not file a Missouri consolidated income tax return, for purposes of computing the Missouri income tax, the federal taxable income of each member of the affiliated group shall be determined as if a separate federal income tax return had been filed by each such member.”
Under this statute, a member of a consolidated group determines its “federal taxable income” allocable to Missouri as if it had filed a separate federal return. Another statute,
“The Missouri taxable income of a corporation taxable under
§ 141.011 to143.996 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 insection 143.451 . The tax of a corporation shall be computed on its Missouri taxable income at the rates provided insection 143.071 .”
Appellants would read the foregoing statutes to allow a member of an affiliated group, filing a separate state return, to deduct on its state return the amount of federal income tax it (the member) would have paid to the federal government had it filed a separate federal income tax return. Appellants argue that inasmuch as
In Armco Steel Corporation v. State Tax Commission, 580 S.W.2d 242 (Mo. banc 1979), this court held that, under the prior law,
Appellants contend that the change made in the Missouri income tax laws effective January 1, 1973 requires a different result in this case; that the prior statute allowed a deduction for “taxes assessed“, but that under the new statutes,
We believe appellants misread the statutes. Since Missouri income tax is based upon federal taxable income, see
Once the starting point—federal taxable income—has been determined,
Study of the statutes in their aggregate discloses that the substantive change in the statutes in question from those in force before 1973 is unrelated to the amount of the federal income tax deduction and deals, instead, with the procedural difficulties encountered under the former statute as to the taxable year in which the federal income tax deduction will be allowed in cases where the federal income tax arises from a past taxable year. The new statute,
Appellants state that it is presumed that the legislature in enacting a new statute on the same subject as the old statute intended to effect some change in existing law, citing Kilbane v. Director of Revenue, 544 S.W.2d 9, 11 (Mo.1976). This is generally true, of course, but it also is true that the purpose of a change in the statute can be clarification. State ex rel. Laclede Gas Co. v. Public Service Commission, 535 S.W.2d 561, 567 (Mo.App.1976). Certainly it does not follow that because we do not agree with appellants that the new law permits a deduction for what their federal income tax liability would have been had they filed separate federal returns, this means that the legislature engaged in a useless act in enacting the new statutes which have been under discussion. On the contrary, as demonstrated above, numerous changes have been effected, but with respect to the matter of deduction the changes go to the timing of the deduction and not to the issue at hand. We are convinced that the change in the Missouri federal income tax deduction statute was not concerned with the amount of the deduction, but with the many procedural irregularities that arose under the prior statute.5
Appellants cite Cities Service Gas Co. v. McDonald, 204 Kan. 705, 466 P.2d 277 (1970), which was also relied upon by the taxpayer in Armco, supra, as being directly in point, saying that the change in Missouri statutes requires the same favorable result for the taxpayer here, “in that a separate return basis is called for“. We disagree. The Kansas court relied on the provisions of the Kansas statute, KGS 79-3202(8), G.S. 1949, which provided the word “paid” with respect to the deduction for federal income taxes paid during the year meant “‘paid or incurred’ or ‘paid or accrued’ and shall be construed in accordance with the method of accounting used as a basis for computing net income under this act.” The Kansas court held that the taxpayer “actually incurred and paid federal income tax” under the accounting procedure followed by it and the parent company—that it was the same as if the subsidiary had filed an individual return. To the Kansas court, payment by the subsidiary to the parent company of the amount of federal income tax as shown on its separate federal return filed with the parent constituted a tax liability “incurred and paid” by the subsidiary and also, therefore, a deduction from net income in its Kansas income tax return. Missouri statutes contain no such definition of the word “paid” with respect to the federal income tax deduction and, as earlier pointed out, the Missouri statutes allow a deduction only for federal income tax liability under Chapter 1 of the Internal Revenue Code. There is no provision in the Missouri law allowing a deduction to a subsidiary included in a consolidated federal return for what the subsidiary would have paid the federal government had it filed a separate federal return.
Appellants further contend respondent‘s method for determining the allowable federal income tax deduction and
Uniformity of taxation does not require that all subjects of taxation be taxed, and it does not mean universality; it only requires that taxes be uniform as to each class upon which they fall. Virden v. Schaffner, 496 S.W.2d 846, 848 (Mo.1973); State ex rel. Jones v. Nolte, 350 Mo. 271, 165 S.W.2d 632, 636 (banc 1942). The requirements of
The power of the state to classify for the purpose of taxation is broad. For income tax purposes, the taxpayer may be classified upon the reasonable basis of legal organization or the amount or source of income. Ludlow-Saylor Wire Company v. Wollbrinck, 275 Mo. 339, 205 S.W. 196, 199-200 (banc 1918). In this connection it is helpful to be aware of the basic reason for allowing corporations to file consolidated returns. Speaking of the federal statutes, one court has said:
“The basic purpose behind allowing corporations to file consolidated returns is to permit affiliated corporations, which may be separately incorporated for various business reasons, to be treated as a single entity for income tax purposes as if they were, in fact, one corporation.” American Standard, Inc. v. United States, 602 F.2d 256, 261 (Ct.Cl.1979)
See, also, Federal Income Taxation of Corporations and Shareholders, Bittker and Eustice (4th Ed.1979), § 15.20:
“The basic principle of the consolidated return is that the group is taxed upon its consolidated taxable income, representing principally the results of its dealings with the outside world after the elimination of intercompany profit and loss.”
And, at § 15.23:
“The basic concept underlying these provisions is that the consolidated group constitutes, in substance, a single, taxable enterprise, despite the existence of technically distinct entities . . .”
Recognition thus has been given to the fact that a group of separate entities under law should be taxed as one when their relationship is such that they can be said to be pursuing a single business purpose. It is not unreasonable that the legislature might decide that an affiliated group of corporations could, under certain circumstances, be taxed somewhat equally with one large corporation performing the same business operations within the same taxing jurisdiction.
The same basic premise can be stated for the allowance of consolidated returns in Missouri. Under certain circumstance, the state is willing to treat an affiliated group pursuing a single business purpose similarly to a single business enterprise. When viewed in this light, the requirement of
This is especially true since the state is only allowed to tax corporations on income derived from sources within this state. The state has little reason to treat an affiliated group as a single taxpaying entity when less than 50 per cent of the group‘s income is derived from sources within the state, since the income earned by the members of the group outside the state is beyond the state‘s power to tax. Where less than 50 per cent of a group‘s income is derived from sources within this state, the constitutional provisions invoked do not preclude the state from imposing the requirements of
Finally, we note that appellants chose to do business as members of an affiliated group which does not do more than 50 per cent of its business in Missouri. Having put themselves in that position, they are not so situated as to question the burden, if such it proves to be in fact, of not being able to be included in a consolidated Missouri income tax return. St. Louis Public Service Company v. City of St. Louis, 302 S.W.2d 875, 879-881 (Mo. banc 1957); DeMay v. Liberty Foundry Co., 327 Mo. 495, 37 S.W.2d 640, 644 (1931). The choice to become part of an affiliated group is legitimate, of course, and there are instances where there is a tax advantage in filing a consolidated federal income tax return to lessen the group‘s tax liability and permit the funnelling of the savings directly back into the group of subsidiaries for immediate business use. In choosing to operate as a group, however, appellants voluntarily removed themselves from the class with which they now seek to be identified.6 Additionally, as said earlier, the issue before the tax authorities and on this appeal is the amount of a deduction, not the amount of a tax.7 The amount of the tax is set by
As stated earlier, the director of revenue limited the deduction in question to a proportionate share of the actual federal tax liability of the group. In so doing the director in general used the same formula as set forth in
In addition to the other attacks made on the decision of the director referred to earlier herein, appellant Banquet Foods, in No. 63706, contends what the director did amounts to the adoption of a rule or regulation without first complying with the requirements of the Administrative Procedure Act, Chapter 536, RSMo 1978.
However, the real issue here is over whether the various taxpayers are entitled to deduct from their Missouri taxable income what their federal income tax would have been had they filed individual, separate federal income tax returns—is this deduction statutorily authorized? No claim is being made that if the director is correct in disallowing the deductions claimed by the appellants, they nonetheless also object to the deductions which were allowed. We need not go into the aspect of whether the director was correct in arriving at the proportionate deductions as he did if we are satisfied, as we are, that the appellants were not entitled to deduct whatever their respective federal income tax payments would have been had they filed separate federal returns. That question can await a case where it is directly presented.
The judgment is affirmed and the cause is remanded for entry of judgment together
RENDLEN, C.J., HIGGINS, GUNN and DONNELLY, JJ., and DOWD, Special Judge, concur.
WELLIVER, J., dissents in separate opinion filed.
BILLINGS and BLACKMAR, JJ., not participating because not members of the Court when cause was submitted.
WELLIVER, Judge, dissenting.
I respectfully dissent.
Suppose that A and B are identical corporations. Each does the same amount of business in Missouri. A is a member of a group of corporations that files a consolidated federal income tax return, and B is not. B files a separate Missouri return, and A does the same because it does not meet the statutory criteria for filing a consolidated Missouri return.
I fail to see any rational basis for this distinction. The statute requires corporations that cannot, or do not, file a consolidated Missouri return to use a separate federal income tax return, whether actual or hypothetical, as the basis for computing Missouri taxable income so that all such corporations are treated equally.
The principal opinion‘s argument regarding classification is unpersuasive. We do not deal here with a distinction between those corporations that may file consolidated returns in Missouri and those that may not. All corporations may file separately in Missouri, even if they are entitled to file consolidated state returns. See
The judgment of the circuit court should be reversed.
ROBERT E. SEILER
SENIOR JUDGE
Notes
The case put overlooks, however, that it is a deduction we are concerned with here and, under the case put, B corporation qualifies for the deduction; A does not. A has no federal income tax liability in the sense that B has. The fact that an affiliated group may elect not to file a Missouri consolidated income tax return under
On the other hand, if we apply the rationale used in the dissent to the hypothetical there set forth, corporation A would be placed in a much better position than corporation B. This is what appellants seek in the case at bar. A, a subsidiary of a parent corporation, would be permitted to deduct on its Missouri return an amount never paid by it in federal income tax, while B, an independent corporation, could deduct only the amount which it actually paid to the federal government. We see no indication that the legislature intended that any corporation could deduct taxes neither owed nor paid by it to the federal government.
(a) General rule.—Pursuant to regulations prescribed . . . the earnings and profits of each member of an affiliated group required to be included in a consolidated return for such group filed for a taxable year shall be determined by allocating the tax liability of the group for such year among the members of the group in accord with whatever of the following methods the group shall elect in its first consolidated return filed for such a taxable year:
(1) The tax liability shall be apportioned among the members of the group in accordance with the ratio which that portion of the consolidated taxable income attributable to each member of the group having taxable income bears to the consolidated taxable income.
(2) The tax liability of the group shall be allocated to the several members of the group on the basis of the percentage of the total tax which the tax of such member if computed on a separate return would bear to the total amount of the taxes for all members of the group so computed.
(3) The tax liability of the group (excluding the tax increases arising from the consolidation) shall be allocated on the basis of the contribution of each member of the group to the consolidated taxable income of the group. Any tax increases arising from the consolidation shall be distributed to the several members in direct proportion to the reduction in tax liability resulting to such members from the filing of the consolidated return as measured by the difference between their tax liabilities determined on a separate return basis and their tax liabilities based on their contributions to the consolidated taxable income.
(4) The tax liability of the group shall be allocated in accord with any other method selected by the group with the approval of the Secretary.
(b) Failure to elect.—If no election is made in such first return, the tax liability shall be allocated among the several members of the group pursuant to the method prescribed in subsection (a)(1).
