The Current State of Sales Tax on Digital Products

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The Current State of Sales Tax on Digital Products REPORT 08.07.19 The Current State of Sales Tax on Digital Products Joyce Beebe, Ph.D., Fellow, Center for Public Finance Recent technological advancements have of motion. This category includes movies, transformed how people conduct their music videos, news shows, entertainment daily activities. These changes are not programs, and recorded live events. The only affecting how people live and work, SSTGB documents specify that video greeting but they are also redefining how people cards and video games are not included. entertain and learn. Today, it is common Digital audio works are the products resulting to remotely access files stored in Dropbox, from the recording of musical, spoken, or read e-books downloaded on Kindle, watch other kinds of sounds. These include songs, TV shows streamed from Netflix or Hulu, music, audiobooks, speeches, ringtones, and and listen to music through Spotify. These other sound recordings. Audio greeting cards technological developments are making sent by e-mail are not part of this category. state tax authorities assess the taxability of digital products. This report reviews the Digital books are works that are generally current landscape of state sales tax on recognized in the usual sense as “books.” digital products, court cases, administrative This category includes novel-length works of actions, congressional proposals, and fiction and nonfiction, as well as short stories. However, it does not include chat rooms, potential future developments in the There is no universally taxation of digital products. blogs, periodicals, magazines, newspapers, or other news or information products. recognized definition of digital products. The WHAT ARE DIGITAL PRODUCTS? WHAT ABOUT SOFTWARE? most commonly cited Before discussing the taxation of digital definition comes from products, it is first important to understand The SSUTA considers computer software as two publications by the a separate category from digital products,5 what constitutes one. At present, there Streamlined Sales Tax is no universally recognized definition of which is partly why certain states treat digital products. The most commonly cited transactions involving software differently Governing Board. definition comes from two publications by from those involving digital products. In the Streamlined Sales Tax Governing Board addition, the SSUTA specifically designates (SSTGB),1 a multistate effort to simplify sales “prewritten computer software” as a type and use tax collection and administration.2 of “tangible personal property.” Prewritten According to the Streamline Sales and Use Tax computer software, in contrast to custom Agreement (SSUTA)3 and the SSTGB’s rules software, is generally canned or off- and procedures, “specified digital products” the-shelf computer software that is not include digital audiovisual works, digital audio developed for a specific buyer. By identifying works, and digital books. prewritten computer software as tangible personal property, the SSUTA categorizes it Digital audiovisual works are series of related as a type of personal property that “can be images that, when shown in succession with seen, weighed, measured, felt, or touched, accompanying sounds, impart an impression BAKER INSTITUTE REPORT // 08.07.19 or that is in any other manner perceptible capabilities.14 Examples of the SaaS delivery to the senses.”6 This designation has model include web-based email services, significant tax implications. calendars, and digital photo applications. States generally impose sales tax on Taxation of SaaS is the most commonly transactions involving tangible personal addressed service model by individual property, whereas custom software is states due to its popularity and ease of use. viewed as a service and only 10 states tax it.7 However, the tax treatments vary between However, the SSUTA allows member states states. For example, Texas views SaaS as to exempt prewritten computer software taxable data processing service but allows delivered electronically from sales tax.8 As a 20% of revenue to be exempted from tax; result, 45 states and Washington, D.C., tax the New York views SaaS transactions as sales transfer of prewritten software if it is loaded on of prewritten software that are therefore a CD (which makes it “tangible”).9 However, taxable as sales of tangible personal property; 12 states exempt electronically delivered and Wisconsin does not consider SaaS as a software from sales tax, leaving 33 states and taxable data processing service.15 Washington, D.C., that tax prewritten software Infrastructure as a Service (IaaS) providers 10 that is delivered electronically. offer customers computing resources so they Although classifying canned software as can run software applications and operating tangible personal property, or taxing software systems. IaaS providers enable customers to purchases when something tangible changes outsource the equipment needed to support hands, seem like simple rules, the story does the cloud infrastructure. While consumers not stop here. The recent proliferation of Although cloud do not manage or control the underlying cloud computing imposes new challenges on infrastructure, they do have control over the computing services the taxability of software. operating systems, storage, and applications. continue to expand, They may also have limited control of select networking components (e.g., firewalls).16 states have been slow CLOUD COMPUTING AND SALES TAX in addressing how Examples of the IaaS model include web hosting and remote storage services. sales taxes apply to In simple terms, cloud accessibility can roughly be thought of as the internet.11 As A recent Iowa Department of Revenue the different service long as users have access to a computer ruling provides an example of IaaS. Iowa delivery models. with an internet connection, they can use recently passed rules to impose taxes cloud-based software. A cloud service on digital goods and certain services, 17 provider, such as Amazon Web Services, effective January 2019. Amazon requested Google Cloud, or Microsoft Azure, essentially clarification regarding whether its Amazon hosts software applications on remote Elastic Compute Cloud Service (EC2) is servers where they store and process data.12 subject to tax under the new rules. The There are three distinct service delivery ruling indicated that Amazon’s EC2 supplies models for cloud computing; however, as storage space and processing power on technology and business models evolve, a network that allows customers to run cloud service providers could integrate software, applications, and operating elements from all three models.13 Although systems. Thus, the EC2 is classified as IaaS 18 cloud computing services continue to and is not taxable. expand, states have been slow in addressing In New York, IaaS is also a nontaxable how sales taxes apply to the different service. However, some practitioners service delivery models, as described below. describe this as counterintuitive because New York classifies SaaS (remotely Software as a Service (SaaS) providers accessed software) as tangible personal offer customers the ability to use property that is taxable, but views software applications running on a cloud IaaS (remotely accessed hardware that infrastructure. Customers generally do not resembles something tangible) as a manage or control the underlying cloud nontaxable service.19 infrastructure, including the network, servers, operating systems, storage, or application 2 THE CURRENT STATE OF SALES TAX ON DIGITAL PRODUCTS Platform as a Service (PaaS) providers Similar to the lag in taxing cloud offer customers hardware and software to computing, state tax laws are behind launch their own applications on the cloud when it comes to taxing digital products. infrastructure. Consumers do not manage or Furthermore, many digital products do not control the underlying cloud infrastructure, fit into current tax rules because the rules but they do have control over the deployed existed long before the digital economy. applications and possibly the configuration States are aware of this issue but have settings for the application-hosting reacted differently, which contributes to the environment.20 For example, developers can lack of uniformity across the U.S. Some states Many digital products use a PaaS platform to create applications have not provided any guidance on taxing do not fit into current and games using programming languages, digital products, others have attempted to tax rules because the tools, and computing power supplied by a root digital product taxability in the existing rules existed long cloud service provider. The taxability of PaaS tax codes or reinterpret current laws to before the digital is less clear than for SaaS or IaaS. apply to digital products, and still others have amended their tax laws to cover these economy. States are products. Among these approaches, states aware of this issue THE CURRENT LANDSCAPE OF STATE that explicitly adopt legislation to tax certain but have reacted TAX ON DIGITAL PRODUCTS products and services have been subject to differently, which less resistance and fewer legal challenges by If the SSUTA were the sole agreement merchants or consumers.28 contributes to the lack adopted nationwide, taxing digital products Despite the complex tax treatment of of uniformity across would be more straightforward. However, digital products, it is undeniable that the the SSUTA currently has only 24 member the U.S. digital economy continues to encompass
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