Commonwealth of Massachusetts Supreme Judicial Court
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Supreme Judicial Court for the Commonwealth DAR: DAR-26638 Filed:3/21/2019 2:57 PM Commonwealth of Massachusetts Supreme Judicial Court No. DAR-26638 Appeals Court Case No. 2019-P-0162 CITRIX SYSTEMS, INC., Plaintiff-Appellant, v. COMMISSIONER OF REVENUE, Defendant-Appellee. On Appeal from a Decision of the Appellate Tax Board Application for Leave to Obtain Direct Appellate Review Matthew D. Schnall (BBO #564990) Mark C. Fleming (BBO #639358) Greg Schmidt (BBO #692106) WILMER CUTLER PICKERING HALE AND DORR LLP 60 State Street Boston, MA 02109 (617) 526-6000 [email protected] [email protected] [email protected] Attorneys for Plaintiff-Appellant March 21, 2019 CORPORATE DISCLOSURE STATEMENT In accordance with S.J.C. Rule 1:21, the Appellant, Citrix Systems, Inc. (“Citrix”), states that it has no parent corporation and that there is no publicly- held corporation that owns 10 percent or more of the stock of Citrix. 2 TABLE OF CONTENTS Page Corporate Disclosure Statement ..................................................................... 2 Table of Authorities ........................................................................................ 5 I. Introduction and Request for Direct Appellate Review ....................... 9 II. Statement of Prior Proceedings .......................................................... 14 A. The Distinction Between Sales of Tangible Personal Property and Sales of Services under the Massachusetts Sales Tax .................................................................................. 14 B. Citrix’s Application of the Property/Services Distinction in Filing its Sales Tax Returns ................................................. 16 III. Statement of Relevant Facts ............................................................... 18 A. Description of the Online Offerings ......................................... 18 B. Citrix’s Sales of Subscriptions to the Online Offerings .......... 21 C. Citrix’s Activities in Providing the Online Offerings .............. 23 IV. Issues of Law Raised by this Appeal .................................................. 24 V. Reasons for Granting Direct Appellate Review ................................. 24 A. The Correct Sales Tax Classification of “Software-as-a- Service” is Important and Warrants Direct Appellate Review ...................................................................................... 25 B. The Commissioner and Taxpayers Need Definitive Guidance to Properly Apply Sales Tax Rules to a Significant and Growing Industry ............................................ 28 VI. Conclusion .......................................................................................... 33 Addendum ..................................................................................................... 35 Certificate of Service .................................................................................. 129 3 Certification under Mass. R. App. P. 16(k) ................................................ 130 4 TABLE OF AUTHORITIES Cases Auto-Owners Insurance Co. v. Department of Treasury, 313 Mich.App. 56 (2015) ................................................................................. 28 Browning-Ferris Industries, Inc. v. State Tax Commission, 375 Mass. 326 (1978) ................................................................................................. 11 City of Boston v. Mac-Gray Co., 371 Mass. 825 (1977) .............................. 30 Commissioner of Revenue v. Houghton Mifflin Co., 396 Mass. 666 (1986) ........................................................................................................ 32 Houghton Mifflin Co. v. State Tax Commission, 373 Mass. 772 (1977) .................................................................................................. 29, 33 New York Times Co. v. Commissioner of Revenue, 22 Mass. App. Tax Bd. Rep. 177, 1997 WL 402605 (1997) .................................. 11, 29, 30, 31 General Laws G.L. c. 62C, § 35A ........................................................................................ 17 G.L. c. 64H .......................................................................................... 9, 10, 26 G.L. c. 64H, § 1 ..................................................................................... passim G.L. c. 64H, § 2 ................................................................................ 15, 25, 32 G.L. c. 64H, § 3 ............................................................................................ 15 G.L. c. 64H, § 6(r) ........................................................................................ 16 G.L. c. 64H, § 6(s) ........................................................................................ 16 G.L. c. 64H, § 8 ............................................................................................ 26 Session Laws St. 1990, c. 121, § 111 .................................................................................. 15 St. 1990, c. 121, §§ 42, 43 ............................................................................ 15 St. 1991, c. 4, § 2. ......................................................................................... 15 St. 1991, c. 4, § 5 .......................................................................................... 15 5 St. 2005, c. 163, §§ 31-34 ...................................................................... passim Code of Massachusetts Regulations 830 C.M.R. 64H.1.2 ...................................................................................... 14 830 C.M.R. 64H.1.3 (1987) .......................................................................... 12 830 C.M.R. 64H.1.3 (2006) .................................................................... 11, 14 830 C.M.R. 64H.06 (1981) ........................................................................... 12 830 C.M.R. 64H.25.1 .................................................................................... 14 Court Rules Mass. R. App. P. 11(a) .................................................................................. 24 Temporary Regulations Emergency Regulation No. 3 (Apr. 28, 1966) ........................................ 10, 30 Emergency Regulation No. 10 (July 7, 1966) .............................................. 10 Emergency Regulation No. 12 (July 7, 1966) .............................................. 10 Administrative Rulings DOR Directive 01-3 (May 8, 2001) .............................................................. 12 Letter Ruling 81-41 (May 27, 1981) ............................................................. 14 Letter Ruling 85-61 (Aug. 13, 1985) ............................................................ 14 Letter Ruling 08-5 (Mar. 24, 2008) .............................................................. 10 Letter Ruling 08-6 (Mar. 26, 2008) .............................................................. 10 Letter Ruling 10-1 (Feb. 22, 2010) ............................................................... 10 Letter Ruling 11-2 (Mar. 4, 2011) ................................................................ 10 Letter Ruling 11-3 (Mar. 24, 2011) .............................................................. 10 Letter Ruling 11-4 (Apr. 12, 2011) ............................................................... 10 6 Letter Ruling 12-1 (Jan. 12, 2012) ................................................................ 10 Letter Ruling 12-4 (May 7, 2012) ................................................................. 10 Letter Ruling 12-5 (May 7, 2012) ................................................................. 10 Letter Ruling 12-6 (May 21, 2012) ......................................................... 10, 27 Letter Ruling 12-8 (Nov. 8, 2013) ................................................................ 10 Letter Ruling 12-10 (Sept. 25, 2012) ...................................................... 17, 27 Letter Ruling 12-11 (Sept. 25, 2012) ............................................................ 10 Letter Ruling 12-13 (Nov. 9, 2012) .............................................................. 10 Letter Ruling 13-2 (Mar. 11, 2013) .............................................................. 10 Letter Ruling 13-5 (June 4, 2013) ................................................................. 10 Letter Ruling 14-1 (Feb. 10, 2014) ............................................................... 10 Letter Ruling 14-4 (May 29, 2014) ............................................................... 10 Letter Ruling 16-1 (Jan. 8, 2016) .................................................................. 10 Letter Ruling 17-1 (Mar. 23, 2017) .............................................................. 10 Other Authorities Chamberlain, Andrew & Patrick Fleenor, “Tax Pyramiding: The Economic Consequences Of Gross Receipts Taxes,” 43 State Tax Notes 457 (Feb. 19, 2007) ......................................................................... 16 Donovan, Joseph, Massachusetts Sales & Use Tax Manual Revised (upd. 1995) ................................................................................................ 30 Gamage, David & Darien Shanske, “Tax Cannibalization and Fiscal Federalism in the United States,” 111 Nw. U. L. Rev. 295 (2017) .......... 16 Hellerstein, Walter & John A. Swain, State Taxation (3d ed. 2001, upd. Dec. 2018) ............................................................................... 9, 10, 27 Kranz, Carolyn Iafrate & Iris Kitamura, “Taxing