International Law Section Volume XVIII, No. , Fall
MIL Editorial Staff hosted by Wayne State University Law School What Can the U.S. Supreme Court and Professor Julia Y. Qin, Faculty Editor Professor John E. Mogk, Faculty Editor the European Court of Justice Learn from Aziza N. Yuldasheva, Senior Editor Kristen L. Hater, Student Editor Tricia L. Roelofs, Student Editor Each Other’s Tax Jurisprudence? Betina Schlossberg, Student Editor Maggie K. Smith, Student Editor Reuven S. Avi-Yonah, Irwin I. Cohn Professor of Law and Director of the International Tax LLM Program, the University of Michigan Law School In the last twenty years, but with • a business relief increasing frequency in the last fi ve, the (a tax deduc- In This Issue European Court of Justice (ECJ) has tion for trans- interpreted the Treaty of Rome aggres- fers of funds to What Can the U.S. Supreme Court and the sively to strike down numerous Member a pension re- European Court of Justice Learn from Each Other’s Tax Jurisprudence? State income tax rules on the ground serve) granted Reuven S. Avi-Yonah ...... 1 that they were discriminatory. For ex- to residents but Reasonable Care Standard for Importers ample, the ECJ has ruled that Finland refused to non- Andrew P. Doornaert ...... 4 cannot grant tax credits for corporate tax residents. Reuven S. Avi-Yonah Buyers Beware, Sellers Beware, or Competitors paid to Finnish shareholders, but refuse Beware? A Comparative View of False Advertising them to foreign shareholders. In another When we compare this line of cases Laws in the United States and China to the U.S. Supreme Court’s treatment Cristina Walters ...... 6 case, the ECJ struck down Germany’s of state taxes under the U.S. Constitu- Providers of Immigration Legal Services and Other rules that restricted the deductibility of Services for Immigrants in Michigan ...... 11 interest to foreign lenders, even though tion (most often under the Commerce Announcing the State Bar's Newly-Launched the rules also applied to tax-exempt do- Clause, but sometimes under the Equal Practice Management Resource Center mestic lenders. Other examples of provi- Protection and Due Process Clauses), Th omas W. Cranmer, President, State Bar of Michigan 12 sions struck down by the ECJ are: the diff erence is striking. In general, the ILS Membership Survey ...... 13 • a dividend tax credit granted to Supreme Court has granted wide leeway Treasurer's Report ...... 16 resident companies but refused to the to the states to adopt any tax system they Minutes of Regular Council Meeting ...... 17 branch of a company having its seat wish, only striking down the most egre- Event Calendar ...... 19 in another Member State; gious cases of discrimination against out Leadership Roster ...... 23 of state residents. Th us, for example, the • a refund of overpaid income tax SBM Offi cers Elected ...... 26 Court has refused to intervene against granted to permanent residents but rampant state tax competition to at- SBM Membership Benefi ts Expanded to Include refused to taxpayers moving to an- PMRC Lending Library and ABA Book Discounts 26 tract business into the state. It has twice other Member State during the tax Letter from the Chair ...... 27 upheld a method of calculating how year; much of a multinational enterprise’s • personal reliefs granted to residents Disclaimer: Th e opinions expressed herein are solely income can be taxed by a state that is those of the authors and do not necessarily refl ect those but refused to non-residents even widely seen as both incompatible with of the International Law Section or the Editors. where they could not benefi t from the methods used by the Federal gov- Th e Michigan International Lawyer is published three times per such reliefs in their Member State of ernment and other countries, and as year by the International Law Section, State Bar of Michi gan, 306 Townsend Street, Lansing, Michigan 48933-2083. residence; potentially producing double taxation. Copyright 2006 International Law Section, State Bar of Mich i gan. © All rights Reserved. 1 ichigan International Lawyer
Submission Guidelines And it has allowed states to impose higher adopted its lenient attitude to state taxa- income taxes on importers than on export- tion before there were federal taxes (the The Michigan International Lawyer, which ers through the use of so-called “single fac- federal corporate tax only began in 1909, is published three times per year by the Interna- tor sales formulas”, under which a business and the federal income tax in 1913, long tional Law Section of the State Bar of Michigan, is pays tax to the state only if it makes sales after the states began taxing income). Michigan's premiere international law journal. Our mission is to enhance and contribute to the public's to residents of the state, but not if it makes Instead, the answer lies in diff erent con- knowledge of world law and trade by publishing sales outside the state. ceptions of federalism. articles on contem po rary inter na tion al law topics On the face of it, this contrast is sur- In the US, the country began as a and issues of general interest. The Michigan International Lawyer invites prising. After all, the ECJ is dealing with loose confederation of sovereign states. unsolicited manuscripts in all areas of international fully sovereign countries, and taxation is Th e issue of state sovereignty loomed interest. Manu scripts should be available in hard one of the primary attributes of sovereignty. large in the formation of the Constitu- copy and electronic format. Manuscripts submit- ted for consideration cannot be returned unless Moreover, the authority of the ECJ to strike tion and thereafter through the civil accompanied by a $5 check or money order made down Member State direct taxes is unclear. war, and the concept of state rights still payable to Wayne State University Law School for Th e Treaty of Rome generally reserves com- resonates strongly today. As a result, shipping and handling. All submissions may be forwarded to the editor petence in direct taxation to the Member In the US federalism means that the at the following address: States, and all EU-wide changes in direct federal government should respect the Professor Julia Ya Qin, Editor taxation have to be approved unanimously sovereignty of the states as much as Michigan International Lawyer by all 25 Member States. Nevertheless, the is compatible with the need to have a Wayne State University Law School 471 W. Palmer ECJ has since the 1980s interpreted the unifi ed country. Taxes are essential to Detroit, Michigan 48202 “four freedoms” embodied in the Treaty of sovereignty, and therefore the Supreme (313) 577-3940 Rome (free movement of goods, services, Court has always maintained a deferen- [email protected] persons and capital) to give it the authority tial attitude to state choices in matters of to strike down direct tax measures that it taxation, even if it resulted in some level views as incompatible with the freedoms. of discrimination against out of staters. Th e Supreme Court, on the other hand, Th e Court intervenes only when the tax has clear authority under the Supremacy is blatantly discriminatory, such as New Michigan Clause to strike down state laws that are Hampshire’s attempt to adopt an income International Lawyer incompatible with the Constitution. As tax only for non-residents who commute Justice Oliver Wendell Holmes observed, into the state. Publication Deadline Dates the U.S. will not be hurt if the power to In the EU, on the other hand, there Fall Issue review federal laws were taken away from is no unifi ed central government, but Articles due July 15 the Court, but it could not survive if the there is a background of bitter wars be- Winter Issue Court lost its power over state legislation. tween sovereign states. As a result, there Articles due November 15 Moreover, the states are not fully sovereign, is a wish among some for the creation of Summer Issue and (unlike Member States that are repre- a “United States of Europe.” Th at goal Articles due March 15 sented in the EU Council), are not even has so far proven elusive, but the focus directly represented in Congress, so that the of the federalists has been to advance it Court could strike down their laws without by enhancing the economic union that (in most cases) expecting an outcry from the underlay the formation of the EU. Th us, other branches of the federal government. the ECJ has taken the lead in trying to What is the explanation for the con- create a meaningful single market. It, trast? Part of the reason is that Member State and the EU Commission (which brings taxes in the EU are more important than many of the tax cases before the ECJ), state taxes in the US, because most taxes in see discrimination in direct tax matters If you know of any upcoming the US are paid to the federal government, as a major obstacle to the achievement of event, please let us know. whereas all taxes in the EU are paid to this goal. Ultimately, many observers feel Contact: Member States. Th us, even high tax states that the ECJ is trying to force Member Professor Julia Ya Qin, Editor like New York or California have income States to abandon the unanimity rule for Michigan International Lawyer tax rates in the low double digits, whereas direct tax matters and even to achieve Wayne State University Law School Member State tax rates can reach 40% (for direct tax harmonization, such as the 471 W. Palmer corporations) and 60% (for individuals). harmonization already used for indirect Detroit, MI 48202 However, this cannot be the whole taxes (consumption taxes, such as VAT, (313) 577-3940 [email protected] answer, because the US Supreme Court are harmonized in the EU by the Sixth 2 VOLUME XVIII, NO. 3, FALL 2006
Directive, adopted by unanimous con- is obligated to allow losses incurred by Th e reason the Court adopted this sent when the EU was much smaller). Marks & Spencer’s foreign subsidiar- approach is clear: Commerce Clause Given this divergence of political con- ies to offset income earned by the UK decisions can be changed by Congress text, can the ECJ and the Supreme Court parent, because under UK rules it can through simple legislation, since the learn something from each other’s tax use losses by domestic subsidiaries to Constitution gives Congress the power jurisprudence? I believe the answer is yes, offset income of the parent. The big to regulate commerce among the states, and that this book illustrates some of the difference, of course, is that the do- but Congress is powerless to overcome lessons each can learn from the other. mestic subsidiaries are subject to tax at decisions under the Due Process Clause. For the U.S. Supreme Court, I the same rate as the parent, while the Th e Court thus expected Congress to believe the EU experience shows that foreign subsidiaries can be in Estonia, intervene and set rules under which it is sometimes too lenient in state tax where there is no corporate tax, or states can force remote vendors to collect matters. In particular, permitting states in Ireland, where the tax rate is only sales taxes. to compete for the location of invest- 12.5%. The ECJ ruled on December Fourteen years have passed, and ment by multinationals by granting tax 13, 2005, that the UK must allow the Congress has not acted. Th e reason is incentives has proven to be very costly loss offsets even though it cannot tax simple: Th e states are not represented in for the states, while not bringing any the foreign subsidiaries. Congress, so Congress cares more about benefi t to the U.S. as a whole (since the It is widely believed that the ECJ the remote sales industry with its power- multinational typically has decided to ruled the way it did in order to force the ful lobby than about state tax revenues. invest somewhere in the U.S. already). political branches of the EU to move In the meantime, the Internet has sprung Such tax competition creates a “race to toward corporate tax rate harmonization, into existence, remote sales now top the bottom”, in which states only grant as the Commission has advocated (to no $100 billion per year, and state sales tax incentives to prevent the multinational avail) for many years. But here the ECJ revenues are rapidly shrinking. from going elsewhere, not because they can learn a lesson from the U.S. Supreme Th e lesson for the ECJ is thus not believe the benefi ts of the investment Court: deciding cases in order to force ac- to decide cases in the expectation that truly justify the cost in foregone tax tion by the legislature can be dangerous. the political branches will act. Many revenue. In Europe, such incentives are Th is rule can be illustrated by the Member States are vehemently opposed banned by the State Aid provisions of Quill case, decided by the Supreme Court to direct tax harmonization. Th e UK, the Treaty of Rome, which are strictly in 1991. Th e case involved a question for example, is more likely to react to interpreted by the Commission and the that had confronted the Court before: losing Marks and Spencer by abolishing ECJ to prohibit all tax incentives that are under what circumstances can a state its domestic loss off set rules than by giv- targeted at particular taxpayers. force retailers that sell into the state by ing up on the unanimity requirement in Unfortunately, the Supreme Court remote means, such as catalogues or direct taxes. Th us, the lesson for the ECJ has recently declined to address this very (nowadays) via the Internet, to collect the is that it should be more careful about issue. In 1998, the City of Toledo granted sales tax due on the purchases? Th e tax dismantling Member States income DaimlerChrysler $280 million in tax in- is clearly due, but relying on the buyers taxes, because such decisions can have centives to expand its factory there, rather to pay it voluntarily is hopeless, so col- unexpected consequences. than move it to Michigan or elsewhere lection by the remote vendor is the only More broadly, I believe comparing in the U.S.. Th e Sixth Circuit Court practical way to enforce the tax. the US and EU experiences shows that of Appeals in Cuno v. DaimlerChrysler In 1967, the Court held that the there is more than one way of construct- held that such targeted tax incentives vendor cannot be made to collect the tax ing a single market without tax distor- violate the Commerce Clause of the US unless it had a physical presence (like a tions, and that some level of distortion Constitution. However, the Supreme warehouse) in the state, relying on both can be accepted. Th us, the U.S. Supreme Court has reversed on the ground that the Due Process and Commerce Clauses Court can aff ord to be a bit more harsh the plaintiff s lacked standing to raise the of the Constitution. Most observers without trampling down on state sover- issue. It is likely that this question will expected when the Court accepted the eignty on tax matters, and the ECJ can arise again with better plaintiff s, and if Quill case that it will overturn that deci- aff ord to be more lenient without creat- so, the Supreme Court should learn from sion, given the phenomenal growth of ing unacceptable barriers to trade and the ECJ and affi rm on the merits. the remote sales industry between 1967 investment within the EU. à What about the ECJ learning and 1991. Instead, the Court held that from the Supreme Court? Here as the physical presence test still applies, well, a recent decision illustrates a but only under the Commerce Clause, From Comparative Fiscal Federalism learning opportunity. In Marks and not the Due Process clause. (Reuven S. Avi-Yonah, Michael Lang, James Spencer, the issue was whether the UK R. Hines Jr. eds., 2006)
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