Solving Double taxation cases in the EU: arbitration as a solution? Juan López Rodríguez DG TAXUD Directorate D - Direct taxation, Tax Coordination, Economic

Solving Double taxation cases in the EU: arbitration as a solution?

Juan López RodríguezDG TAXUD

Directorate D - Direct taxation, Tax Coordination, Economic Analysis and Evaluation 1

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Communication from the Commission to the European Parliament, the Council and the

European Economic and Social Committee – Double Taxation in the Single Market – COM

(2011) 712

Our sources of information:

Company tax study Public consultation on factual cases of double taxation in 2010 Fiscalis seminar with Tax Administrations from the Member States 2012 External study with a consultant in 2013 Working Party IV with delegates from Member States 2013 Meeting with stakeholders in 2013 Platform for tax good governance 2013 – 2014 input from Business Europe

and MEDEF

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The current scenario

Tax systems in the EU do not contribute to simplify the present legal framework

Double taxation is a major impediment and a real challenge for the internal market

In the current state of EU law and in the absence of an EU initiative, Member States are not obliged to prevent double taxation

The ECJ ruled that, in so far as EU law does not lay down any general criteria for the attribution of areas of competence between the Member States in relation to the elimination of double taxation within the Community, they are not obliged to prevent the resulting juridical double taxation (ruling 16.7.2009, case C128/08, Damseaux)

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The problem to be addressed, according to the results of the public consultations:

Double taxation is one of the issues of most concern for EU citizens and business

There are diverging interpretations of the rules intended to eliminate double taxation

It is a source of legal uncertainty

Unrelieved double taxation increases the overall tax burden and can have a negative impact on capital investment. This suggests that it may discourage investment and jeopardize the competitiveness of EU enterprises

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Preliminary view:

Only 6% of the corporate taxpayers that participated in the public consultation indicated that they had never encountered a dispute concerning double taxation in cross-border situations

The scale of tax involved is significant: by average, more than 20% of the cases are above 1 million € for corporate taxpayers and more than 35% of the cases are above 100.000€ for individuals (public consultation)

Most cases reported in public consultation are transfer pricing cases (34%) out of our current project. Arbitration Convention

Member States do not see much of a problem

Stakeholders: business and tax practitioners there is a problem inconceivable in the single market requiring action

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The problem to be addressed double taxation suffered by economic agents and not adequately relieved by the existing legal instruments:

1. There is no DTC applicable between the relevant Member States. The resulting double taxation is not always solved by unilateral relief measures

2. In cases where there is a DTC between the relevant Member States it may not provide that the MS in which the taxpayer resides is unconditionally obliged to prevent the resulting juridical double taxation

3. DTCs do not completely solve the problem of double taxation in an EU context, i.e.; triangular cases

4. Even when a DTC can solve the problem, the solution may be quite burdensome in terms of time and money which may constitute a problem in itself

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1. There is no DTC applicable between the relevant Member States. The resulting double taxation is not always solved by unilateral relief measures

No DTC CY-HR, CY-LV, CY-LU,CY-NL, DK-ES, DK-FR, HR-LU and HR-PT

No DTC and unilateral measure do not relieve double taxation in certain cases DK-FR and NL-CY

• 1&2. Problems with the tax credit method, either in DTC or in domestic law:

Source and resident States attribute income to different tax periods

Tax credit calculated on the basis of net income

Insufficient tax liability to deduct tax credit without carry forward (losses)

Formal requirements – foreign tax certificate

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4. The most typical cases resulting in double taxation (according to public consultation and questionnaire):

Double tax residenceConflicts on the entity classificationDisputes over the existence of a permanent establishmentConflicts in the attribution of profits to permanent establishmentsConflicts on the qualification of the income and, as a result:

On the source State right to charge a withholding tax according to the double taxation convention

On the resident State obligation to apply a method to eliminate double taxationThe lack of coordination to charge exit taxes (value of the assets)Capital gainsPensionsStock optionsIncome from employment: the conditions for source taxation

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4. The most typical cases resulting in double taxation •

Public consultation:

In 85,4% of the cases companies have sought remedies to eliminate double taxation, so that 14,6% of them did not seek a remedy; in the case of individuals, 69% seek a remedy (public consultation). Reasons:

– Insufficient resources to launch an action (6%)

– Too time consuming (9%)

– No expectation of successful result (19%)

– Not enough information on the possibilities of remedy (9%)

The costs of the procedures: 38% of the cases amounted between € 10.000 and € 100.000; in 38% of the cases amounted between € 1.000 and € 10.000

External contractor: remedy only in 41% of the cases

• 4. The most typical cases resulting in double taxation

• Most typical remedies to solve double taxation (public consultation):

Appeal to local authorities 16% of cases

Domestic court appeal 13% of cases

MAP provided for in DTC 60% of cases

Other 8%

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•4. The most typical cases resulting in double taxation (questionnaire to Member States) MAP to solve divergent views on the application of a DTC

40% of cases initiated 3 years before had not finished with an agreed solution

over 20 months to agree to a solution

10 DTC include arbitration (BE-FR, BE-EL, BE-UK, DE-IT, DE-LU, DE-NL, DE-UK, EL-UK, IT-NL, NL-UK), but only 6 DTC with mandatory arbitration (BE-UK, DE-LU, DE-NL, DE-UK and NL-UK)

No arbitration has been reported

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•4. The most typical cases resulting in double taxation (questionnaire to Member States)

Total Finished Duration of finished MAPs

Number of MAP initiated in 2009

Average of 12,41 Average of 6,53 (52,61%)

Average of 20,8 months


Average of 9,53 Average of 6 (62,95%)








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•4. The most typical cases resulting in double taxation (questionnaire to Member States)

Could you indicate the typical cases object of MAPs where an agreement was not possible?

Double tax residence Cases where fraud was involved Qualification questions No sufficient documentation

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• Possible solutions – tax policy options:•

Providing for an EU arbitration procedure to solve conflicting cases deriving from the interpretation and application of DTCs

• Improving the dispute resolution mechanisms provided in the DTCs

Currently, most DTC include a dispute resolution mechanism based on mutual agreement, as provided in the past by the OECD Model Tax Convention on Income and on Capital (article 25), but without any arbitration mechanism

According to the older versions of the OECD Model, the competent authorities were not obliged to close the procedure with an agreed common position

The OECD introduced in the 2008 edition of the Model Tax Convention a new version of Article 25 (adding a paragraph 5) which proposes an arbitration procedure for solving unresolved issues, if the competent authorities are unable to reach an agreement after two years from the presentation of the case, if the concerned person so requests

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Proposing EU Legislation – directive – providing for an arbitration procedure to solve conflicting cases deriving from the interpretation and application of DTCs

A directive could complement or eventually replace the Arbitration Convention aiming at extending its procedure to juridical double taxation arising on any type of income

This directive would establish a mutual agreement procedure between competent authorities from the Member States

If no agreement is reached after a reasonable period – for example two years – the dispute would be referred to a panel, whose decision should lead to a binding final decision

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Proposing EU Legislation – directive – providing for the obligation by the Resident State to eliminate international double taxation

Where there is no applicable DTC or the DTC does not provide for the residence Member State to eliminate double taxation

The directive would impose on the Member State of residence the obligation to eliminate double taxation in all circumstances in the case of EU cross-border activities

This Directive would provide two options:

An ordinary credit method

The exemption with progression method

This option would include a tie-breaker rule similar to article 4 of the OECD Model Tax Convention in cases of double tax residence

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Proposing EU Legislation distributing taxing rights between the source State and the resident State and providing for a tax credit in the latter State where taxing rights are shared

This option would be applicable only in absence of a DTC between Member States

A directive would allocate the taxation rights between Member States combined with an obligation for the State of residence to eliminate double taxation in the cases where taxation rights would be shared

The allocation of taxation rights could be based on the criteria proposed by the OECD Model Convention, despite the taxing rights limitations deriving from the existing EU Directives harmonizing partly corporate taxation

The elimination of double taxation by the State of residence will be made through either the credit method or the exemption method

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Thanks for your attention

Documents

Solving Double taxation cases in the EU: arbitration as a solution? Juan López Rodríguez DG TAXUD Directorate D - Direct taxation, Tax Coordination, Economic