17-001563 International Academy Of Merchandising And Design, Inc. vs. Department Of Revenue
 Status: Closed
Recommended Order on Friday, September 29, 2017.


View Dockets  
Summary: Petitioners proved that they qualified for an exemption from sales tax under section 212.0602.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8INTERNATIONAL ACADEMY OF DESIGN,

12INC.,

13Petitioner,

14vs. Case No . 17 - 1562

21DEPARTMENT OF REVENUE,

24Respondent.

25_______________________________/

26INTERNATIONAL ACADEMY OF

29MERCHANDISING AND DESIGN, INC.,

33Petitioner,

34vs. Case No. 17 - 1563

40DEPARTMENT OF REVENUE,

43Respondent.

44_______________________________/

45RECOMMENDED ORDER

47The final hearing in this matter was conducted before

56J. Bruce Culpepper, Administrative Law Judge of the Division of

66Administrative Hearings, pursuant to sections 120.569 , 120.57(1),

73and 120.80(14)(b) , Florida Statutes (2016), on June 27, 2017, by

83video teleconference with sites in Tallahassee and Tampa,

91Florida .

93APPEARANCES

94For Petitioner: Jo seph C. Moffa, Esquire

101James H. Sutton, Esquire

105James F. McAuley, Esquire

109Jonathan W. Taylor, Esquire

113Moffa, Sutton, and Donnini, P.A.

118One Financial Plaza, Suite 2202

123100 Southeast Third Avenue

127Fort Lauderdale, Florida 33394

131For Respondent: Ginette A lexandria Harrell, Esquire

138Stephen Masterson, Esquire

141Office of Attorney General

145The Capi tol , Plaza Level 01

151Tallahassee, Florida 32399

154STATEMENT OF THE ISSUE

158The issue in this case is whether Petitioners qualify for an

169exemption from paying sales tax on the lease of real property

180under section s 212.0602 and 212.08(7), Flori da Statutes (2013), 1/

191from July 1, 2010, through April 30, 2013 .

200PRELIMINARY STATEMENT

202P etitioner s International Academy of Design , Inc., and

211International Academy of Merchandising and Design, Inc.

218(collectively referred to as ÐPetitionersÑ), 2/ contest a N otice of

229Decision of Refund Denial issued by the Department of Revenue (the

240ÐDepartmentÑ) on February 3, 2017. 3/ Petitioners specifically

248challenge the DepartmentÓs decision to deny refunds for sales tax

258Petitioners paid on the lease of real property for the period of

270July 1, 2010, through April 30, 2013.

277Petitioner s assert that they are entitled to refunds because

287they qualified for the tax exemptions established in sections

296212.0602 and 212.08(7)(o).

299On March 3, 2017, Petitioner s timely requested a chapt er 120

311hearing. On March 15, 2017, the Department forwarded the matters

321to the Division of Administrative Hearings (ÐDOAHÑ) for assignment

330of an Administrative Law Judge.

335The final hearing was originally se t on May 19, 2017. At

347Petitioner s Ó (unopposed) r equest, the final hearing was

357rescheduled for June 27, 2017 , and held on that date .

368At the final hearing, Petitioner s presented the testimony of

378Bob Swain ( President of Petitioner International Academy of

387Merchandising and Design ), Kenneth Zilch (Petitione rsÓ Vice

396President of Tax) , and James Kane. Petitioner s Ó Exhibits 1

407through 11 were admitted into evidence. The Department presented

416the testimony of Heather Miller ( a Revenue Program Administrator )

427and Chris W h ittier ( a Tax Conferee ). The DepartmentÓs Exhibits 1

441through 3 were admitted into evidence.

447A one - volume Transcript of the final hearing was filed on

459July 10, 2017. At the close of the hearing, the parties were

471advised of a ten - day timeframe after receipt of the hearing

483transcript at DOAH to file post - hearing submittals. Following

493the unopposed request from Petitioners, the deadline for filing

502post - hearing submissions was extended beyond, which waiv ed the

51330 - day time period for filing the R ecommended O rder. 4/ Both

527parties timely filed Proposed R ecommended Orders which were duly

537considered in preparing this Recommended Order.

543FINDING S OF FACT

5471. The Department is the Florida agency charged with

556administering the stateÓs tax laws under chapter 212, Florida

565Statutes. See § 212.18(2), Fla. Stat. T he DepartmentÓs

574responsibilities specifically include the imposition and

580collection of FloridaÓs sales tax pursuant to chapter 212.

5892 . Petitioners are private colleges that provide post -

599secondary education in design and technology. From July 2010

608through April 2013, Petitioners specialized in courses and

616degrees in areas including audio and video production and

625recording, digital media production, fashion design, film,

632graphic design, and photography. Petitioners offered both

639BachelorÓs and Associate Ós d egrees. Petitioners were accredited

648by the Accrediting Council for Independent Co lleges and Schools.

6583 . Between July 2010 and April 2013, Petitioners enrolled

668over 500 students a year at each campus. Petitioners were

678licensed by the Florida Department o f Education as educational

688entities under chapter 1005 , Florida Statutes . 5/

6964 . Petitioner International Academy of Design was located

705in Orlando, Florida. Petitioner International Academy of

712Merchandising and Design was located in Tampa, Florida.

720Petit ioners leased their campus properties in both Orlando and

730Tampa. The lease payments Petitioners paid to their respective

739landlords included sales tax.

7435 . Through this administrative action, Petitioners seek a

752refund from the Department of the sales tax t hey paid b etween

765July 1, 2010, and April 30, 2013, on the property they leased .

778Petitioners assert that they qualified for a tax exemption.

787Petitioners contend that section 212.0602 entitle d them to an

797exemption because they were primarily engaged in tea ching

806activities or services described in section 212.031(1)(a)9 . ,

814i.e. , Ðqualified production services . Ñ In addition, Petitioners

823claim they were exempt under section 212.08(7)(o) because they

832were Ðstate tax - supported schools.Ñ

8386 . Petitioners each subm itted an Ð Application for Refund Î

850Sales and Use Tax Ñ to the Department on or around July 25, 2013.

864Petitioners sought a combined tax refund in the amount of

874$914, 097.13. Of this amount, Petitioner International School of

883Design applied for a refund of $ 159,785.20. Petitioner

893International School of Merchandising and Design applied for a

902refund of $754,311.93. 6 /

9087 . On May 13, 2016, the Department issued an Internal

919Technical Advisement (ÐITAÑ) stating that Petitioners were not

927qualified for the exempti ons provided in either section 212.0602

937or section 212.08(7)(o) . As articulated in the ITA, the

947Department agreed that Petitioners conducted classes at fixed

955locations in Florida, were licensed under chapter 1005, and

964enrolled at least 500 students at eac h institution. However, the

975Department determined that Petitioners had not demonstrated that

983they were Ðprimarily engagedÑ in teaching students to perform the

993activities or services described in section 212.031(1)(a)9. As

1001such, the Department deemed Peti tioners not eligi ble for a refund

1013of sales tax.

10168 . On May 31, 2016, the Department issued a Notice of

1028Intent to Make Refund Claim Changes notifying Petitioners that

1037the Department intended to deny PetitionersÓ refund requests.

1045Thereafter, on July 1, 2016 , the Department issued each

1054Petitioner a Notice of Proposed Refund Denial for the Refund

1064Claim.

10659 . On August 29, 2016, Petitioners filed an informal

1075protest with the Department challengin g the proposed refund

1084denials.

10851 0 . On February 3, 2017, the Depart ment issued a Notice of

1099Decision of Refund Denial officially denying both PetitionersÓ

1107requests for refunds of sales tax. The Department concluded that

1117Petitioners do not qualify for a sales tax exemption under either

1128section 212.0602 or section 212.08(7) (o) .

113511. Bob Swain is the current President of Petitioner

1144International Academy of Merchandising and Design (Tampa). 7/ He

1153has served in thi s capacity since January 2014.

11621 2 . At the final hearing, Mr. Swain described PetitionersÓ

1173student body as Ðcreativ e students.Ñ Mr. Swain testified that the

1184academic programs Petitioners taught between 2010 and 2013 were

1193fashioned to provide students with hands - on development and

1203training necessary for work in creative services and vocations.

1212Petitioners presented st udents a traditional educational roadmap

1220to help develop their individual artistic talent s.

12281 3 . Mr. Swain explained that the courses and degrees his

1240school offered were not focused on a particular industry (such as

1251film production). Instead, his school e ndeavored to foster

1260creativity and teach to the Ðcraft.Ñ With this objective,

1269Pe titioners equipped students with skill sets they might use

1279should they choose to pursue a career in motion picture production

1290or a similar entertainment medium. Mr. Swain exp lained that the

1301courses Petitioners taught, including subjects such as animation,

1309audio and video production, photography, film, and graphic

1317design , could all be performed in connection with motion picture

1327production services. Mr. Swain expressed that app roximately two -

1337thirds of PetitionersÓ students receiv ed training in film - related

1348skills .

13501 4 . Mr. Swain relayed that PetitionersÓ campuses included

1360lecture rooms, design studios, drafting labs, film production

1368studios, a green room for animation, photograp hy studios,

1377recording studies, sewing and pattern drafting labs, and computer

1386labs. Petitioners use these facilities to instruct students on

1395design, programming, sound and video editing, word processing,

1403and database management.

1406Course Descriptions :

14091 5 . From July 2010 through April 2013, Petitioner

1419International Academy of Design (Orlando) offered degree programs

1427in: Advertising Design (marketing) , Digital Media Production

1434(also referred to as Interactive Media) , Fashion Design and

1443Merchandising, Graphic Design , Game Design and Production ,

1450Information Technology , Interior Design , Internet Marketing ,

1456Retail Merchandise Management , and Web Design and Development.

1464Over that same period of time, Petitioner International Academy

1473of Merchandising and Design (T ampa) offered degrees in:

1482Advertising Design (marketing) , Animation , Audio Production ,

1488Building Information Modeling , Digital Media Production , Digital

1495Photography , Fashion Design , Fashion Merchandising , Game Design

1502and Production , Graphic Design (Visual Communication) , Interior

1509Design , Photography , and Post Production.

15141 6 . The coursework required to earn those degrees was

1525described as follows:

1528a. Advertising Design (Marketing) : PetitionersÓ

1534Advertising Design degree s and curricul a provided students wit h

1545training to design , create and implement graphic , typographic ,

1553photographic , and audio/video elements in the concepts of

1561marketing, business, and advertising. The primary coursework

1568included Advertising Concepts , Elements of Visual Advertising ,

1575Principl es of Marketing , Photography for Advertising , Audio/Video

1583for Advertising , Art Direction Project , Advertising Design

1590Capstone , Design Fundamentals , Introduction to Drawing , Digital

1597Illustration , Typography , Digital Imaging , Storyboarding ,

1602Creativity in Des ign , Graphic Design , Advertising Design

1610Internship or Capstone , and Advertising Design Portfolio.

1617b. Animation : The Animation degree curriculum offered

1625students training necessary to create 2D animation, 3D animation,

1634character development, game art, and special effects animation to

1643enter the field of computer animation. The primary coursework

1652included: Animation Fundamentals , 2D Animation , 3D Animation ,

1659Animation Physics , Studio Techniques , Advanced Modeling ,

1665Production Studio , Animation Capstone , Digi tal Imaging , Drawing

1673Techniques , Texture and Lighting , Animation Internship or

1680Capstone , and Animation Portfolio.

1684c. Audio Production : The Audio Production degree offered

1693students training in recording and mixing and mastering for

1702audio, film, and video productions. The primary coursework

1710included: Digital Audio Specifications , Digital Audio

1716Workstations , Introduction to Audio Production , Audio Recording

1723Techniques , Studio Design and Maintenance , Music Design and

1731Synthesis , Recording on Location , Mixing and Mastering , Surround

1739Sound Techniques , Studio Concentration , Music Composition and

1746Songwriting , Digital Composition , Foley for Film and Television ,

1754Session Recording and Mastering , and Audio Prod uction Internship

1763or Capstone.

1765d. Digital Media Producti on : The Digital Media Production

1775degree offered students training in the production of multimedia

1784presentations thr ough web design, print media, 3 D modeling

1794animation, digital audio, and video production. The primary

1802required coursework included: Design Fundamentals , Web Design ,

1809Drawing , Digital Illustration , Typography , Digital Imaging ,

1815Visual Composition , Interactive Media , Audio Production ,

1821Screenwriting , Video Production , Digital Imaging , Interactive

1827Design , Video Editing , Motion Graphics , Media Prod uction , Media

1836Distribution , Internship or Capstone , and Digital Media

1843P roduction Portfolio.

1846e. Digital Photography : The Digital Photography degree

1854offered students training in photographic skills and production

1862of photographs for use in digital format. The primary required

1872coursework included: Photography Foundation , Lighting Basics ,

1878Photoshop , Photojournalism , Portrait Photography , Digital Pre -

1885Press for Photographers , Still Life and Product Photography ,

1893Digital Presentation Techniques , and Photo graphy Portfolio

1900Presentation.

1901f. Fashion Design and Fashion Merchandising : The Fashion

1910Design and the Fashion Merchandising degrees provided students

1918with training to design, prepare, and manage original materials

1927and wardrobe, as well as the ability to market and promote their

1939products. The primary coursework included: Visual

1945Merchandising , Electronic Marketing , Introduction to Fashion ,

1951Fashion Sketching , Clothing Construction , Computer Graphics for

1958Fashion Design , Pattern Drafting , Draping , Fashion Design ,

1965Apparel Production , Pattern Techniques , Textile Design , and

1972Fashion Internship or Capstone.

1976g. Game Design and Production : The Game Production degree

1986provided students with training in the creation, development, and

1995production of interactive 2D and 3D co mputer games. The primary

2006coursework included: Digital Imaging , Drawing Techniques ,

2012Principles of Design , Modeling , Game Play Scripting , Texture and

2021Lighting , Storyboard and Storytelling , Web Game Development ,

2028Sound Design , Level Design , Game Production , Internship or

2036Capstone , and Game Portfolio.

2040h. Graphic Design (Visual Communication) : The Graphic

2048Design degree provided students with training to create and

2057produce editorial, digital, and web designs. The primary

2065coursework included: Design Fundamen tals , Web Design ,

2072Introduction to Drawing , Digital Illustration , Typography ,

2078Digital Imaging , Visual Composition , Interactive Media , Design

2085Process , Graphic Design , Advertising Design , Print Production

2092Internship or Capstone , and Graphic Design Portfolio.

2099i. Interior Design : The Interior Design degree offered

2108training in enhancing the function, quality, and safety of

2117interior spaces. The primary required coursework included:

2124Drafting , Sketching and Rendering , Textiles , Interior Design

2131Issues and Program ming , Resources and Materials , Digital Media

2140for Interior Design , Computer Aided Design , Spatial Environments ,

2148Interior Design , Lighting Design for Interiors , Interior Design

2156Project , and Interior Design Portfolio.

2161j. Professional Photography : The Profes sional Photography

2169degree offered students training in photographic skills through

2177technical competency in lighting, image capture and manipulation,

2185and media production. The primary required coursework included:

2193Design Fundamentals , Image Software , Foun dations of Photography ,

2201Integrated Media , Color Management , Environmental Lighting ,

2207Portraiture , Location Lighting , People Photography , Studio

2213Lighting , Video , Commercial Photography , Visual Journalism , Web

2220Design for Photographers , and Profess ional Photog raphy Portfolio.

2229k. Web Design and Development : The We b Design and

2240Development degree offered students training in the development

2248and programming of graphics, interactivity, and text for use on

2258the web. The primary required coursework included: Media Design

2267Concepts , Web Design Fundamentals , Programming for the Internet ,

2275Usability and Interface Design , Multimedia Design , Advanced

2282Scripting Techniques , Content Management Systems , Website

2288Advertising and Design , Interactive Mobile Application , Project

2295Ma nagement , Designing for Server - Side Technology , Advanced

2304Server - Side Technology , Database , Programming , Web

2311Commercialization , Web Administration , Internship or Capstone ,

2317and Web Design Project.

23211 7 . As the last course for their degrees, as well as a

2335gradu ation requirement, students were required to develop and

2344complete a Ð Portfolio. Ñ For their Portfolio, students produced

2354and created a collection of work applying the skills taught in

2365their degree programs. For example, Mr. Swain explained that the

2375Animat ion degree required students to develop an animation

2384program. Similarly, the Game Production degree required students

2392to create a computer game or software design. At the end of

2404their final semester, students presented their Portfolios to

2412PetitionersÓ fa culty and staff, as well as potential employers to

2423demo nstrate their capabilities.

2427PetitionersÓ Enrollment Statistics

24301 8 . International Academy of Design (Orlando) : From

2440July 2010 through April 2013, approximately 95 percent of the

2450students enrolled at the International Academy of Design studied

2459degrees in: Advertising Design (marketing) , Digital Media

2466Production , Fashion Design , Game Design and Production , Graphic

2474Design , Interior Design , and Web Design and Development,

2482specifically:

2483a. 2010 School Ye ar : Total enrollment of 1,710 students.

2495Of these students, 634 were enrolled in Fashion Design and

2505Merchandising; 304 in Game Design; 225 in Digital Media

2514Production; 262 in Interior Design; 99 in Advertising Design

2523(marketing); and 185 in Graphic Design (Visual Communication).

2531b. 2011 School Year : Total enrollment of 1,328 students.

2542Of these students, 522 were enrolled in Fashion Design and

2552Merchandising; 226 in Game Design; 169 in Digital Media

2561Production; 170 in Interior Design; 62 in Advertising De sign

2571(marketing); and 179 in Graphic Design (Visual Communication).

2579c. 2012 School Year : Total enrollment of 980 students. Of

2590these students, 365 were enrolled in Fashion Design and

2599Merchandising; 139 in Game Design; 94 in Digital Media

2608Production; 75 i n Interior Design; 25 in Advertising Design

2618(marketing); 203 in Graphic Design (Visual Communication); and

2626nine in Web Design and Development.

2632d. 2013 School Year : Total enrollment of 626 students.

2642Of these students, nine were enrolled in Animation; 2 39 in

2653Fashion Design and Merchandising; 79 in Game Design; 64 in

2663Digital Media Produ ction; 20 in Interior Design; ten in

2673Advertising Design (marketing); 129 in Graphic Design (Visual

2681Communication); and seven in Web Design and Development.

26891 9 . Internation al Academy of Merchandising and Design

2699(Tampa) : From July 2010 through April 2013, approximately

270890 percent of the students enrolled at Petitioner International

2717Academy of Merchandising and Design studied degrees in:

2725Advertising Design (marketing), Anim ation, Audio Production,

2732Building Information Modeling, Digital Media Production, Digital

2739Photography, Fashion Design, Fashion Merchandising, Game Design

2746and Production, Graphic Design (Visual Communication), Interior

2753Design, Photography, and Post Producti on, specifically:

2760a. 2010 School Year : Total enrollment of 2,565 students.

2771Of these students, 35 were enrolled in Advertising Design; 216 in

2782Animation; 597 in Audio Production; 25 in Digital Media

2791Production; 535 in Fashion Design; 52 in Game Design; 30 2 in

2803Interior Design; 313 in Photography; and 250 in Graphic Design

2813(Visual Communication).

2815b. 2011 School Year : Total enrollment of 1,742 students.

2826Of these students, 26 were enrolled in Advertising Design; 112 in

2837Animation; 472 in Audio Production; 11 in Digital Media

2846Production; 287 in Fashion Design; 52 in Game Design; 180 in

2857Interior Design;196 in Photography; 60 in Video Production, and

2867200 in Graphic Design (Visual Communication).

2873c. 2012 School Year : Total enrollment of 1,265 students.

2884Of thes e students, 15 were enrolled in Advertising Design; 54 in

2896Anima tion; 329 in Audio Production; five in Digital Media

2906Production; 209 in Fashion Design; 34 in Game Design; 136 in

2917Interior Design; 181 in Photography; 26 in Video Production, and

2927184 in Graphic Design (Visual Communication).

2933d. 2013 School Year : Total enrollment of 819 students. Of

2944these students, four were enrolled in Advertising Design; 30 in

2954Anima tion; 244 in Audio Production; two in Digital Media

2964Production; 139 in Fashion Design; 21 in G ame Design; 103 in

2976Interi or Design; 86 in Photography; nine in Video Production, and

2987124 in Graphic Design (Visual Communication).

299320 . Petitioners also applied to the Department for a refund

3004of sales tax under section 212.08(7)(o). Section 212.08(7)(o),

3012directs that Ðleases to state tax - supported schools, colleges, or

3023universitiesÑ are specifically exempt from the tax imposed under

3032chapter 212. Petitioners assert that between July 1, 2010, and

3042April 30, 2013, they participated in several financial aid

3051pr ograms which they administered for the benefit of their

3061students. Two of these programs included the Florida Bright

3070Futures Program (ÐBright FuturesÑ) and the federal Workforce

3078Investment Act.

30802 1. Bright Futures is a financial aid program awarded to

3091stud ents who meet specific academic requirements upon high school

3101graduation and continue to maintain specific grades and earned

3110hours while in college. Mr. Swain testified that Bright Futures

3120pa id tuition directly to Petitioners on behalf of the qualifying

3131s tudents.

313322 . The Workforce Investment Act was a federal program

3143administered by the Florida Department of Economic Opportunity

3151and managed by local workforce investment boards. ( See Workforce

3161Investment Act of 1998 , P.L. 105 - 220, 20 U.S.C. § 9201, which was

3175repealed in 2014. )

317923 . Because they received scholarship money from these

3188financial aid programs, Petitioners claim that they were Ðstate

3197tax - supported schools.Ñ Between July 1, 2010, and April 30,

32082013, Petitioner International Academy of Design (Or lando)

3216received approximately $95,000 in scholarship funds from Bright

3225Futures. Petitioner International Academy of Merchandising and

3232Design (Tampa) received a pproximately $177,000 over the same

3242period. Petitioners did not present evidence of any funds t hey

3253received from the Workforce Investment Act bet ween July 2010 and

3264April 2013.

326624 . Chris Whittier, a Tax Specialist for the Department,

3276was assigned to review PetitionersÓ refund applications.

3283Mr. Whittier subsequently issued the DepartmentÓs Notice o f

3292Decision of Refund D enial, dated February 3, 2017.

330125 . At the final hearing, Mr. Whittier explained that in

3312considering PetitionersÓ refund requests, the Department reviewed

3319PetitionersÓ respective course catalogues, curricula, and

3325academic objectives. 8 / Regarding Petitioners Ó request for a tax

3336exemption under section 212.0602, Mr. Whittier conveyed that

3344Petitioners offered multiple degree programs in a broad range of

3354industries. The Department acknowledged that these degrees could

3362prove useful for stu dents who desired careers in movie

3372production. However, the Department ascertained that the job

3380skills Petitioners taught could be applied to a number of

3390activities or businesses , not just Ðqualified production

3397services . Ñ Therefore, the Department determ ined that Petitioners

3407were not Ðprimarily engagedÑ in teaching students skills or

3416trades Ðperformed directly in connection with the production of a

3426qualified motion pictureÑ as delineated in section

3433212.031(1)(a) 9 .

343626 . Mr. Whittier further expressed that to qualify for an

3447exemption under section 212.0602, Petitioners must show that the

3456job training they provided was directly connected to the actual

3466production of a Ðqualified motion picture.Ñ In other words, for

3476Petitioners to establish that they taught th e Ðactivi ties or

3487services described in s. 212.031(1)(a)9 . ,Ñ PetitionersÓ students

3496must receive su bstantive instruction on a bona fide motion picture

3507production.

350827 . Mr. Whittier remarked that Petitioners never submitted

3517an example of any motion picture tha t either they or their

3529students developed or produced. Further, Petitioners did not

3537provide evidence that any of their former students have found

3547employment in the motion picture industry. Consequently,

3554Petitioners did not establish that they qualified f or the tax

3565exemption authorized under section 212.0602, and are not entitled

3574to a refund of the sales tax they paid on the property they

3587leased.

358828 . Regarding Petitioners Ó request for a tax exemption

3598under section 212.08(7)(o) as Ðstate tax - supported scho ols,Ñ the

3610Department argues that Petitioners did not meet the minimum

3619requirements for the exemption. Initially, the Department

3626asserts that simply receiving money through Bright Futures or the

3636Workforce Investment Act is not enough to characterize a priv ate

3647college as a Ðstate tax - supported school.Ñ Funds from these

3658scholarship programs are awarded to students to assist with their

3668college tuition. The Florida Legislature did not appropriate tax

3677mon ey to ÐsupportÑ Petitioners.

368229 . In addition, the funds from Bright Futures and the

3693Workforce Investment Act are not Ðstate taxÑ funds. Bright

3702Futures is funded by proceeds from the Florida - run lottery

3713program. The Workforce Invest ment Act is a federal program.

372330 . Further, by its terms, exemptions under se ction

3733212.08(7) (o) do not inure to any transaction that is otherwise

3744taxable under chapter 212, unless the entity Ð has obtained a

3755sales tax exemption certificate from the department or the entity

3765obtains or provides other documentation as required by the

3774d epartment.Ñ Petitioners have never applied for, nor have they

3784been provided, a sales tax exemption certificate from the

3793Depa rtment. Therefore, Petitioners are not eligible for the

3802exemption in section 212.08(7) (o) .

380831 . Based on the evidence and testimon y presented during

3819the final hearing, Petitioners proved, by a preponderance of the

3829evidence, that they qualify for an exemption under section

3838212.0602. Accordingly, the Department should take the necessary

3846steps to refund the amount of sales tax Petition ers paid on the

3859lease of real property from July 1, 2010, through April 30, 2013.

3871CONCLUSIONS OF LAW

38743 2. The Division of Administrative Hearings has jurisdiction

3883over the parties and the subject matter of this proceeding. See

3894§§ 72.011(1)(a), 120.569, 12 0.57(1), and 120.80(14)(b), Fla. Stat.

3903(2016).

390433 . Petitioners contest the DepartmentÓs denial of their

3913request s for a refund of sales tax Petitioners paid on the lease

3926of real property for the period of July 1, 2010, through April 30,

39392013. Petitioners claim they are entitled to refunds by

3948qualifying for the tax exemptions under: 1) section 212.0602

3957because they are primarily engaged in teaching Ðactivities and

3966services described in s. 212.031(1)(a)9 . ,Ñ and 2) section

3976212.08(7)(o) because they are Ðstat e tax - supported schools.Ñ

398634 . Exemptions to the tax statutes are special favors

3996granted by the Legislature and are to be strictly construed

4006against the taxpayer. DepÓ t of Rev . v. Daystar Farms, Inc. , 803

4019So. 2d 892, 895 (Fla. 2 d DCA 2002); and State ex r el. Szabo Food

4035Servs . , Inc. v. Dickinson , 286 So. 2d 529, 530 - 531 (Fla. 1973).

404935 . In this proceeding, the Department bears the initial

4059burden of showing 1) that an assessment has been made against the

4071taxpayer, and 2) the factual and legal grounds upon w hich the

4083assessment was made. See § 1 20.80(14)(b)2., Fla. Stat.; and

4093IPC Sports, Inc. v. State, DepÓt of Rev . , 829 So. 2d 330, 332

4107(Fla. 3d DCA 2002).

411136 . Once the Department establishes the factual and legal

4121grounds for the assessment, the burden shift s to Petitioners to

4132demonstrate, by a preponderance of the evidence, that the

4141assessment is incorrect. IPC , 829 So. 2d at 332; and

4151§ 120.57(1)(j) , Fla. Stat . Accordingly, Petitioners carry the

4160ultimate burden of proving that they are entitled to receive a

4171tax refund.

41733 7 . The preponderance of the evidence standard is

4183applicable to this case. See § 120.57(1)(j), Fla. Stat.; DepÓ t

4194of Banking & Fin., Div. of Sec. & Investor Prot. v. Osborne Stern

4207& Co. , 670 So. 2d 932 (Fla. 1996). Preponderance of the evi dence

4220is defined as Ðthe greater weight of the evidence,Ñ or evidence

4232that Ðmore likely than notÑ tends to prove a certain proposition.

4243S. Fla. Water Mgmt. v. RLI Live Oak, LLC , 13 9 So. 3d 869, 872

4258(Fla. 2014).

426038 . The expressed purpose of section 212.06 02 is to

4271Ðfacilitate investment in education and job training.Ñ Section

4279212.0602 further states, in pertinent part:

4285[T]here is also exempt from the taxes levied

4293under this chapter, subject to the provisions

4300of this section, the . . . lease of real

4310propert y by any entity, institution, or

4317organization that is primarily engaged in

4323teaching students to perform any of the

4330activities or services described in

4335s. 212.031 (1)(a)9., that conducts classes at

4342a fixed location located in this state, that

4350is licensed under chapter 1005, and that has

4358at least 500 enrolled students. Any entity,

4365institution, or organization meeting the

4370requirements of this section shall be

4376deemed to qualify for the exemptions in

4383ss. 212.031 (1)(a)9. and 212 .08(5)(f) and

4390(12) . . . . Nothing in this section shall

4400preclude an entity described in this section

4407from qualifying for any other exemption

4413provided for in this chapter.

441839 . Accordingly, pursuant to s ection 212.0602, Petitioners

4427were exempt from payi ng sales tax on their lease of real property

4440from July 2010 to April 2013, if they:

44481) were p rimarily engaged in teaching students to perform

4458any of the activities or services described in

4466s. 212.031(1)(a)9 . ;

44692) operated at a fixed lo cation in the stat e of Florida;

44823) were licensed under chapter 1005; and

44894) had at least 500 enrolled students.

449640 . The Department does not dispute that Petitioners

4505established the last three prongs of the requirements in

4514section 212.0602. Petitioners operated in a fixed location in

4523Florida. Petitioners were licensed by the state of Florida under

4533chapter 1005. And, Petitioners enrolled at least 500 students

4542from July 1, 2010, through April 30, 2013, at each Florida

4553location. Therefore, the central dispute in this administrative

4561proceeding is whether Petitioners were Ð primarily engaged in

4570teaching students to perform any of the activities or services

4580described in s. 212.031(1)(a)9.Ñ

458441 . Section 212.031(1)(a)9. states:

4589Property used as an integral part of the

4597perfor mance of qualified production services.

4603As used in this subparagraph, the term

4610Ðqualified production servicesÑ means any

4615activity or service performed directly

4620in connection with the production of a

4627qualified motion picture, as defined in

4633s. 212.06 (1)(b), [ 9/ ] and includes:

4641a. Photography, sound and recording,

4646casting, location managing and scouting,

4651shooting, cr eation of special and optical

4658effects, animation, adaptation (language,

4662media, electronic, or otherwise),

4666technological modifications, computer

4669graphics, set and stage support (such as

4676electricians, lighting designers and

4680operators, greensmen, prop manager s and

4686assistants, and grips), wardrobe (design,

4691preparation, and management), hair and makeup

4697(design, production, and application),

4701performing (such as acting, dancing, and

4707playing), designing and executing stunts,

4712coaching, consulting, writing, scoring,

4716composing, choreographing, script

4719supervising, directing, producing,

4722transmitting dailies, dubbing, mixing,

4726editing, cutting, looping, printing,

4730processing, duplicating, storing, and

4734distributing;

4735b. The design, planning, engineering,

4740construction, alter ation, repair, and

4745maintenance of real or personal property

4751including stages, sets, props, models,

4756paintings, and facilities principally

4760required for the performance of those

4766services listed in sub - subparagraph a.; and

4774c. Property management services dir ectly

4780related to property used in connection with

4787the services described in sub - subparagraphs

4794a. and b.

47974 2. Based on the competent substantial evidence in the

4807record, Petition er s proved that , between July 2010 and April

48182013, they were Ðprimarily engaged Ñ in teaching their students to

4829perform Ðany of the activities or services described in section

4839212.031(1)(a)9.Ñ T he resolution of this matter center s on

4849statutory interpretation.

485143 . The interpretation of section 212.0602 begins with the

4861question of whe ther the language is clear and unambiguous. ÐWhen

4872construing a statute, the court must first look to the plain

4883meaning of the words used by the Legislature.Ñ BrandyÓs Prods.

4893v. DepÓt of Bus. & ProfÓ l Reg., Div. of Alcoholic Beverages &

4906Tobacco , 188 So. 3 d 130 (Fla. 1st DCA 2016) (citing Verizon Bus.

4919Purchasing, LLC v. Dep Ó t of Rev . , 164 So. 3d 806, 809 (Fla. 1st

4935DCA 2015)). ÐWhen a statute is clear, a court may not look

4947behind the statute's plain language or resort to rules of

4957statutory construction to de termine legislative intent.Ñ DepÓ t

4966of High. Saf. & Motor Veh. v. Peacock , 185 So. 3d 632, 633 (Fla.

49801st DCA 2016). See also Holly v. Auld , 45 0 So. 2d 217, 219 (Fla.

49951984) (Ð [W]hen the language of the statute is clear and

5006unambiguous and conveys a clear an d definite meaning, there is no

5018occasion for resorting to the rules of statutory interpretation

5027and construction; the statute must be given its plain and obvious

5038meaning.Ñ ). The undersigned concludes that the language in

5047section 212. 0602 is clear and unam biguous.

50554 4 . Section 212.0602 does not define the term Ðprimarily

5066engaged.Ñ Where the Legislature has not specifically defined the

5075words used in a statute, Ðthe language should be given its plain

5087and ordinary meaning.Ñ Greenfield v. Daniels , 51 So. 3d 4 21, 426

5099(Fla. 2010) (citing Sch. Bd. of Palm Beach Cnty. v. Survivors

5110Charter Schs., Inc. , 3 So. 3d 1220, 1233 (Fla. 2009) (quoting Fla.

5122Birth - Relate d Neurological Injury Comp. AssÓ n v. Fla. Div. of

5135Admin. Hrgs. , 686 S o. 2d 1349, 1354 (Fla. 1997)).

51454 5 . The words ÐprimarilyÑ and ÐengagedÑ have plain and

5156ordinary meanings. ÐPrimarilyÑ is defined as Ð for the most

5166part.Ñ ÐEngagedÑ is de fined as Ð involved in activity.Ñ M erriam -

5179W ebster D ictionary , at http://www.merriam - webster.com . See

5189Seagrave v. State , 802 S o. 2d 281, 286 (Fla. 2001) (ÐWhen

5201necessary, the plain and ordinary meaning of words [in a statute]

5212can be ascertained by reference to a dictionary.Ñ); see also

5222Raymond James Fin. Servs. v. Phillips , 110 So. 3d 908, 910

5233(Fla. 2 d DCA 2011) (ÐIt is appropriat e to refer to dictionary

5246definitions when construing statutes or rules.Ñ). Therefore,

5253using the plain and ordinary meaning of the term Ðprimarily

5263engaged,Ñ to qualify for the tax exemption under section

5273212.0602, Petitioners , Ðfor the most part,Ñ must be Ðinvolved inÑ

5284teaching students to perform Ðany of the activities or services

5294describ ed in section 212.031(1)(a)9.Ñ

529946 . The undersigned finds that, based on the evidence in

5310the record, Petitioners proved that they taught their students to

5320perform Ðactivit ies or services described in section

5328212.031(1)(a)9.Ñ The list of activities or services described in

5337section 212.031(1)(a)9. includes: photography, sound and

5343recording, (film) shooting, creation of special and optical

5351effects, animation, adaptation (lan guage, media, electronic, or

5359otherwise), technological modifications, computer graphics, set

5365and stage support, lighting designers and operators, wardrobe

5373(design, preparation, and management), hair and makeup (design,

5381production, and application), perform ing (acting, dancing, and

5389playing), (film) consulting, writing, scoring, composing, script

5396supervising, directing, producing, dubbing, mixing, editing,

5402cutting, looping, printing, processing, duplicating, storing, and

5409distributing, as well as the design, p lanning, engineering,

5418construction, alteration, repair, and maintenance of real or

5426personal property including stages, sets, props, models,

5433paintings, and facilities principally required for the

5440performance of those services.

544447 . The documentary evidence (primarily PetitionersÓ course

5452catalogues), as well as witness testimony (principally Mr. Swain)

5461establishes that, between July 1, 2010, and April 30, 2013,

5471Petitioners offered the following academic instruction:

5477a. Petitioner International Academy of Des ign (Orlando) :

5486Petitioner International Academy of Design offered degree

5493programs in Digital Media Production, Fashion Design, Graphic

5501Design, Game Design and Production, Interior Design, Internet

5509Marketing, Retail Merchandise Management, and Web Design a nd

5518Development. Further, this Petitioner offered classes in Audio

5526Production, Clothing Construction, Computer Aided Design,

5532Computer Graphics for Fashion Design, Design Fundamentals,

5539Drafting, Draping, Drawing, Digital Illustration, Digital

5545Imaging, Digit al Media for Interior Design, Fashion Design,

5554Fashion Sketching, Game Play Scripting, Interactive Design,

5561Interactive Media, Interior Design Issues and Programming,

5568Lighting Design for Interiors Media Distribution, Media

5575Production, Modeling, Motion Graphi cs, Pattern Drafting,

5582Principles of Design, Resources and Materials, Screenwriting,

5589Sketching and Rendering, Spatial Environments, Storyboard and

5596Storytelling, Textiles, Texture and Lighting, Typography, Video

5603Editing, Video Production, Visual Composition, and Web Design .

5612b. Petitioner International Academy of Merchandising and

5619Design (Tampa) : Petitioner International Academy of

5626Merchandising and Design offered degree programs in Animation,

5634Audio Production, Digital Media Production, Digital Production,

5641F ashion Design and Marketing, Game Production, Graphic Design,

5650Interior Design, Post Production, Photography, Retail Merchandise

5657Management, and Web Design and Development. This Petitioner

5665offered classes in Advanced Modeling, Animation Physics, Apparel

5673Pr oduction, Audio Production, Audio Recording Techniques,

5680Clothing Construction, Computer Graphics for Fashion Design,

5687Design Process, Digital Composition, Digital Illustration,

5693Digital Imaging, Draping, Drawing Techniques, Environmental

5699Lighting, Fashion De sign, Fashion Sketching, Foley for Film and

5709Television, Game Play Scripting, Interactive Design, Interactive

5716Media, Interior Design, Lighting Basics, Lighting Design for

5724Interiors, Location Lighting, Mixing and Mastering, Modeling,

5731Motion Graphics, Music C omposition and Songwriting, Music Design

5740and Synthesis, Pattern Drafting, Pattern Techniques, People

5747Photography, Photography Foundation, Principles of Design,

5753Portraiture, Production Studio, Recording on Location,

5759Screenwriting, Session Recording and Mast ering, Sound Design,

5767Storyboard and Storytelling, Studio Concentration, Studio Design

5774and Maintenance, Studio Lighting, Studio Techniques, Surround

5781Sound Techniques, Textile Design, Texture and Lighting,

5788Typography, Visual Composition, Video, Video Editing , Video

5795Production, and Web Game Development.

580048 . All of the above areas of study and courses can be

5813directly associated with one or more of the Ðactivities or

5823services described in s. 212.031(1)(a)9.Ñ The evidence further

5831shows that from July 2010 to Ap ril 2013, between 60 to 95 percent

5845of the students enrolled at Petitioner International Academy of

5854Design (Orlando) received instruction in one or more of the above

5865courses. Over that same time period, Petitioner International

5873Academy of Merchandising and Design (Tampa) taught approximately

588160 to 90 percent of the students enrolled in its facility in one

5894or more of these degrees or courses.

590149 . Therefore, Petitioners met their burden of proving

5910that they were Ðprimarily engaged in teaching students to pe rform

5921any of the activities or services described in section

5930212.031(1)(a)9.Ñ Accordingly, Petitioners are exempt under

5936section 212.0602 from paying taxes on the lease of real property

5947from July 1, 2010, through April 30, 2013.

595550 . The Department argues that Petitioners are not entitled

5965to the tax exemption under section 212.0602 because they did not

5976teach students to perform Ðqualified production services.Ñ In

5984other words, t he Department interprets the phrase Ðactivities or

5994services described in s. 212. 031(1)(a)9 . Ñ as stated in section

6006212.0602 to include only job training that is taught Ðdirectly in

6017connection with the production o f a qualified motion picture.Ñ

602751 . The Legislature did indeed restrict the tax exemption

6037in section 212.031(1)(a)9 . to only Ðactivities or services

6046performed directly in connection with the production of a

6055qualified motion picture.Ñ However, in interpreting the phrase

6063Ðactivities or servicesÑ in section 212.0602, the Department is

6072not permitted to expand on the words the Legi slature specifically

6083used in that statute. Ð[C]ourts are not at liberty to add words

6095to statutes that were not placed there by the Legislature.Ñ

6105Caceres v. SedanoÓ s Supermarkets , 138 So. 3d 1224, 1225 (Fla. 1st

6117DCA 2014); see also L.G. v. State , 939 So. 2d 1141, 1143 ( Fla.

61311st DCA 2006) (ÐWhere the L egislature has used a term in one part

6145of the statute and excluded it in another, it is improper to

6157imply the term in a provision where it has been otherwise

6168excluded.Ñ)

616952 . If the Legislature intended to tie the tax exemption in

6181section 212.0602 to the actual production of a motion picture,

6191the drafters would have said so. They did not. Section 212.0602

6202does not restrict the Ðactivities or servicesÑ included in that

6212section only to those actually Ðperformed directly in connection

6221with the production of a qualified motion picture.Ñ Neither does

6231section 212.0602 state that its exemption is limited to

6240activities or services Ðas defined inÑ section 212.031(1)(a)9 . or

6250Ðdefined as Òqualified production services.Ó Ñ Furthermore,

6257section 212.0602 does not require students to have actually found

6267jobs in the motion picture industry in order for the school to

6279receive the exemption. Instead, the Legislature specifically

6286used the broad phrase Ðany of the activities or s ervices

6297described in s. 212.031(1)(a)9.Ñ (emphasis added). 10/

630453 . The Department argues that PetitionersÓ curricula from

63132010 through 2013 was not focused primarily on Ðqualified

6322production services.Ñ The evidence does show that Petitioners

6330offered cour sework that exposed their students to more expansive

6340career opportunities than just the movie business. However, this

6349fact should not disqualify Petitioners from receiving the section

6358212.0602 tax exemption. The expressed intent of section 212.0602

6367is to Ðfacilitate investment in education and job trainingÑ that

6377could be used to perform Ðany of the activities or servicesÑ the

6389Legislature listed in section 212.031(1)(a)9. The evidence in

6397the record establishes that the Ðjob trainingÑ Petitioners taught

6406to the majority of their students was applicable and usable to

6417perform the activities and services described in 212.031(1)(a)9.

642554 . Consequently, the DepartmentÓs application of the

6433narrow definition of Ðactivities or servicesÑ from section

6441212.031(1)(a)9 . is contrary to the clear and unambiguous meaning

6451of the language the Legislature expressly used in section

6460212.0602. The tax exemption set forth in section 212.0602 must

6470not be restricted only to entities that teach activities or

6480services Ðperformed direc tly in connection with the production of

6490a qualified motion picture.Ñ If Petitioners were Ðprimarily

6498engagedÑ in teaching any of the activities itemized in section

6508212.031(1)(a)9 . , then the Legislature intended for them to

6517receive the section 212.0602 tax exemption. 11/

652455 . Notwithstanding the plain and ordinary meaning of

6533section 212.0602, the undersigned recognizes that Florida courts

6541defer to agency interpretation of their own statutes. However,

6550because the language in section 212.0602 is unambiguous and

6559conveys a clear and definite meaning, the court must apply that

6570meaning even if it conflicts with the interpretation of the

6580administrative agency charged with enforcing it. See Muratti -

6589Stuart v. DepÓt of Bus. & ProfÓ l Reg., Constr. Indus. Licensing

6601Bd . , 174 So. 3d 538, 540 (Fla. 4th DCA 2 015) (ÐAn agencyÓ s

6616interpretation of a statute is entitled to gr eat deference unless

6627the agencyÓ s interpretation conflicts with the plain and ordinary

6637meaning of the statute.Ñ); and Verizon Bus. Purchasing , 164 So.

66473d a t 812 (ÐJudicial deference does not requ ire that courts adopt

6660an agencyÓ s interpretati on of a statute when the agencyÓ s

6672interpretation cannot be reconciled with the plain language of

6681the statute.Ñ)

668356 . The undersigned concludes that section 212.0602 means

6692what its text most clearly conveys, that the Ðactivities or

6702servicesÑ that qualify a college for a tax exemption are those

6713Ðdescribed inÑ (not Ðdefined inÑ) section 212.031(1)(a). Those

6721Ðactivities or servicesÑ referenced in section 212.0602 are not

6730limi ted to only those that are performed directly in connection

6741with the actual production of a motion picture.

674957 . Regarding Petitioners Ó request s for tax exemption s under

6761section 212.08(7)(o), notwithstanding the above conclusion,

6767PetitionersÓ argument that they were Ðstate tax - supported schoolsÑ

6777is not persuasive. Section 212.08 states, in pertinent part:

6786Sales, rental, use, consumption,

6790distribution, and sto rage tax; specified

6796exemptions. Ï The sale at retail, the rental,

6804the use, the consumption, the distr ibution,

6811and the storage to be used or consumed in

6820this state of the following are hereby

6827specifically exempt from the tax imposed by

6834this chapter.

6836* * *

6839(7) MISCELLANEOUS EXEMPTIONS. Ï Exemptions

6844provided to any entity by this chapter do not

6853inu re to any transaction that is otherwise

6861taxable under this chapter when payment is

6868made by a representative or employee of the

6876entity . . . . In addition, exemptions

6884provided to any entity by this subsection do

6892not inure to any transaction that is

6899otherwi se taxable under this chapter unless

6906the entity has obtained a sales tax exemption

6914certificate from the department or the entity

6921obtains or provides other documentation as

6927required by the department. Eligible

6932purchases or leases made with such a

6939certifica te must be in strict compliance with

6947this subsection and departmental rules, and

6953any person who makes an exempt purchase with

6961a certificate that is not in strict

6968compliance with this subsection and the rules

6975is liable for and shall pay the tax. The

6984depart ment may adopt rules to administer this

6992subsection.

6993* * *

6996(o) Schools, colleges, and universities.

7001Ï Also exempt from the tax imposed by this

7010chapter are sales or leases to state tax -

7019supported schools, colleges, or universities.

702458 . Petitioners assert that they were Ðstate tax - supported

7035schoolsÑ because they received funds from Bright Futures and the

7045Workforce Investment Act . However, Petitioners did not

7053sufficiently prove that their institutions are ÐsupportedÑ by the

7062state tax funds that were awarded to their students through these

7073two scholarship programs. Neither did Petitioners establish that

7081the operation of their private colleges was based on the financial

7092assistance they received from the state of Florida. No evidence

7102was presented tha t the Florida Legislature appropriated state tax

7112funds to support PetitionersÓ private institutions. 12/

711959 . Instead, the evidence shows that the scholarships were

7129awarded for the use of PetitionersÓ students. In other words, the

7140funds Petitioners receiv ed from Bright Futures did not ÐsupportÑ

7150Petitioners. The money channeled to Petitioners through Bright

7158Futures scholarships ÐsupportedÑ the students who w ere enrolled

7167with Petitioners.

716960 . Further, section 212.08(7) specifically states that,

7177Ð exemptions provided to any entity by this subsection do not inure

7189to any transaction that is otherwise taxable . . . unless the

7201entity has obtained a sales tax exemption certificate from the

7211department or the entity obtains or provides other documentation

7220as require d by the department.Ñ Petitioners did not present any

7231evidence that they have obtained the requisite certificate (or

7240other documentation) from the Department to qualify for an

7249e xemption under section 212.08.

725461 . In sum, based on the competent substantial evidence in

7265the record, Petitioners demonstrated that they taught their

7273students to perform Ðactivities or services described in

7281s. 212.031(1)(a)9.Ñ Therefore, Petitioners met their burden of

7289proving, by a preponderance of the evidence, that they qualif ied

7300for the tax exemption authorized under section 212.0602.

7308Accordingly, Petitioners are entitled to refunds from the

7316Department for the sales tax they paid on their leases of real

7328property durin g the period of July 1, 2010, through April 30,

73402013.

7341RECOMM ENDATION

7343Based on the foregoing Findings of Fact and Conclusions of

7353Law, it is RECOMMENDED that the Department of Revenue enter a

7364final order refunding Petitioner International School of Design

7372(Orlando) $159,785.20 and refunding Petitioner International

7379S chool of Merchandising and Design (Tampa) $754,311.93 .

7389DONE AND ENTERED this 29 th day of September , 2017, in

7400Tallahassee, Leon County, Florida.

7404S

7405J. BRUCE CULPEPPER

7408Administrative Law Judge

7411Division of Administrative Hea rings

7416The DeSoto Building

74191230 Apalachee Parkway

7422Tallahassee, Florida 32399 - 3060

7427(850) 488 - 9675

7431Fax Filing (850) 921 - 6847

7437www.doah.state.fl.us

7438Filed with the Clerk of the

7444Division of Administrative Hearings

7448this 2 9 th day of September , 2017 .

7457ENDNOTE S

74591 / The undersigned applie s the 2013 Florida Statutes (the

7470statutes in effect during the last tax year of PetitionersÓ

7480refund request) to this matter unless otherwise stated. The

7489undersigned notes that section 212.0602 has not been amended

7498since 2010. Sec tion 212.031 remained unchanged from 2010 through

75082017. ( The 2 017 amendment did not affect section

7518212.031(1)(a)9. ) Section 212.08 has been amended every year

7527since 2010. However, the language in section 212.08(7)(o) has

7536not changed.

75382/ Petitioners ar e separate legal entities. Both Petitioners are

7548wholly - owned and operated by Career Education Corporation , which

7558is the parent company of both institutions. Career Education

7567Corporation submitted the tax refund requests on behalf of both

7577Petitioners.

75783/ Because they involve identical issues of law and fact, DOAH

7589Case Nos. 17 - 1562 and 17 - 1563 were consolidated pursuant to an

7603Order entered sua sponte on March 22, 2017.

76114/ See Fla. Admin. Code R. 28 - 106.216.

76205/ Petitioner International Academy of Desig n (Orlando) is an

7630inactive, for - profit Florida corporation. Petitioner

7637International Academy of Merchandising and Design (Tampa) is an

7646active F lorida for - profit corporation.

76536/ The Lessors of the property Petitioners leased provided an

7663Assignment of Rig hts to Petitioners for the full amount of sales

7675tax in the refund claim.

76807/ In March 2014, Petitioner International Academy of

7688Merchandising and Design changed its name to Sanford - Brown

7698College - Tampa.

77018/ Mr. WhittierÓs testimony is directly supported by the

7710testimony of Heather Miller, a Revenue Program Administrator for

7719the Department. In 2006, Ms. Miller reviewed this same issue

7729regarding PetitionersÓ eligibility for a sales tax exemption under

7738section 212.0602. Ms. Miller prepared a Technical Ass istance

7747Advisement in which she pronounced that:

7753[Q]ualified production services are activities

7758or services performed directly in connection

7764with the production of a qualified motion

7771picture. While the programs and curriculum

7777that [Petitioners] mention m ay be useful to

7785someone wishing to seek employment in motion

7792picture production, they are not focused

7798specifically on teaching students to perform

7804the activities or services directly in

7810connection with the production of motion

7816pictures. Instead, [Petition ers offer]

7821multiple degree programs with a broad

7827curriculum that would be advantageous to

7833students wishing to perform work in a number

7841of different posit ions for different

7847industries.

7848Therefore, Ms. Miller opined that Petitioners were not primarily

7857engage d in teaching students to perform activities or services

7867directly connected to motion picture production.

78739/ The term Ðqualified motion pictureÑ is defined in section

7883212.06(1)(b) to mean, Ðall or any part of a series of related

7895images, either on film, t ape, or other embodiment, including, but

7906not limited to, all items comprising part of the original work

7917and film - related products derived therefrom as well as duplicates

7928and prints thereof and all sound recordings created to accompany

7938a motion picture, whi ch is produced, adapted, or altered for

7949exploitation in, on, or through any medium or device and at any

7961location, primarily for entertainment, commercial, industrial, or

7968educational purposes.Ñ

797010/ Legislative intent is t he polestar that guides a courtÓ s

7982statutory construction analysis. ÐTo discern legislative intent,

7989a court must look first and foremost at the actual language used

8001in the statute.Ñ Larimore v. State , 2 So. 3d 101, 106 (Fla.

80132008). Ð The Legislature must be understood to mean what it has

8025plainly expressed and this excludes construction . The

8033Legislative intent being plainly expressed, so that the act read

8043by itself or in connection with other statutes pertaining to the

8054same subject is clear, certain and unambiguous, the courts have

8064only th e simple and obvious duty to enforce the law according to

8077its terms .Ñ DMB Inv. v. Islamorada , 42 Fla. L. Weekly 1615

8089(Dist. Ct. App. 2017)(quoting Van Pelt v. Hilliard , 78 So. 693,

8100694 - 95 (Fla. 1918).

810511/ The undersignedÓs conclusion is supported by the fact that

8115the Legislature created two separa te and distinct tax exemptions

8125i n sections 212.0602 and 212.031. The expressed legislative

8134intent behind section 212.0602 is to provide a tax exemption for

8145educational institutions to encourage training for certain jobs

8153and skills. Section 212.031, on the other hand, authorizes a tax

8164exemption for landowners who rent or lease their real property

8174for use in a Ðqualified production service . Ñ The two statutes

8186address the same industry (the motion picture busi ness), but the

8197tax exemptions do not relate to the same activity. This broad

8208interpretation give s Ðfull effectÑ to section 212.0602, as well

8218as section 212.031(1)(a)9 . and is not inconsistent. See

8227Larimore , 2 S o . 3d at 106.

823512/ This conclusion is suppo rted by a document Petitioners

8245presented at the final hearing entitled Funding for Florida

8254School Districts Statistical Report for 2014 - 15. The first page

8265of the document states that the report Ðis a description of the

8277state program for financing public s chools in Florida.Ñ (emphasis

8287added). Both Petitioners we re incorporated as private, for -

8297profit educational institutions.

8300COPIES FURNISHED:

8302Joseph C. Moffa, Esquire

8306Moffa, Sutton, and Donnini, P.A.

8311One Financial Plaza, Suite 2202

8316100 Southeast Third Av enue

8321Fort Lauderdale, Florida 33394

8325(eServed)

8326Gerald J. Donnini, II, Esquire

8331Moffa, Sutton, and Donnini, P.A.

8336One Financial Plaza, Suite 2202

8341100 Southeast Third Avenue

8345Fort Lauderdale, Florida 33394

8349(eServed)

8350Jonathan W. Taylor, Esquire

8354Moffa, Sutton, and Donnini, P.A.

8359One Financial Plaza, Suite 2202

8364100 Southeast Third Avenue

8368Fort Lauderdale, Florida 33394

8372(eServed)

8373James H. Sutton, Esquire

8377Moffa, Sutton, and Donnini, P.A.

8382One Financial Plaza, Suite 2202

8387100 Southeast Third Avenue

8391Fort Lauderdale, Fl orida 33394

8396James F. McAuley, Esquire

8400Moffa, Sutton, & Donnini, P.A.

8405One Financial Plaza, Suite 2202

8410100 Southeast Third Avenue

8414Fort Lauderdale, Florida 33394

8418(eServed)

8419Ginette Alexandria Harrell, Esquire

8423Office of Attorney General

8427The Capitol , Plaza L evel 01

8433Tallahassee, Florida 32399

8436(eServed)

8437Stephen Masterson, Esquire

8440Office of Attorney General

8444The Capitol , Plaza Level 01

8449Tallahassee, Florida 32399

8452(eServed)

8453Mark S. Hamilton, General Counsel

8458Department of Revenue

8461Post Office Box 6668

8465Tallahassee , Florida 32314 - 6 668

8471(eServed)

8472Leon M . Biegalski, Executive Director

8478Department of Revenue

8481Post Office Box 6668

8485Tallahassee, Florida 32314 - 6668

8490(eServed)

8491NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

8497All parties have the right to submit written exceptions within

850715 days from the date of this Recommended Order. Any exceptions

8518to this Recommended Order should be filed with the agency that

8529will issue the Final Order in this case.

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Date
Proceedings
PDF:
Date: 02/23/2018
Proceedings: Response to Department of Revenue's Exceptions filed.
PDF:
Date: 02/23/2018
Proceedings: Respondent's Exceptions to the Recommended Order filed.
PDF:
Date: 02/23/2018
Proceedings: Agency Final Order filed.
PDF:
Date: 12/28/2017
Proceedings: Agency Final Order
PDF:
Date: 09/29/2017
Proceedings: Recommended Order
PDF:
Date: 09/29/2017
Proceedings: Recommended Order (hearing held June 27, 2017). CASE CLOSED.
PDF:
Date: 09/29/2017
Proceedings: Recommended Order cover letter identifying the hearing record referred to the Agency.
PDF:
Date: 08/10/2017
Proceedings: Petitioner's Proposed Recommended Order filed.
PDF:
Date: 08/10/2017
Proceedings: Respondent's Proposed Recommended Order filed.
PDF:
Date: 07/10/2017
Proceedings: Notice of Filing Transcript.
Date: 07/10/2017
Proceedings: Transcript of Proceedings (not available for viewing) filed.
Date: 06/27/2017
Proceedings: CASE STATUS: Hearing Held.
PDF:
Date: 06/27/2017
Proceedings: Notice of Appearance (James McAuley) filed.
PDF:
Date: 06/21/2017
Proceedings: Department of Revenue's Notice of Filing Proposed Exhibits filed.
Date: 06/21/2017
Proceedings: Respondent's Proposed Exhibits filed (exhibits not available for viewing).
Date: 06/20/2017
Proceedings: Petitioner's Proposed Exhibits filed (exhibits not available for viewing).
PDF:
Date: 06/19/2017
Proceedings: Petitioners' Notice of Filing Proposed Exhibits filed.
PDF:
Date: 06/16/2017
Proceedings: Joint Pre-hearing Stipulation filed.
PDF:
Date: 05/15/2017
Proceedings: Petitioners' Responses to Respondent's First Requests for Admission with Interlocking and Non-interlocking Discovery filed.
PDF:
Date: 05/15/2017
Proceedings: Petitioners' Notice of Service of Answers to First Set of Interrogatories filed.
PDF:
Date: 05/03/2017
Proceedings: Petitioners' Motion for Extension of Time to Respond to Discovery filed.
PDF:
Date: 05/01/2017
Proceedings: Amended Notice of Hearing by Video Teleconference (hearing set for June 27, 2017; 9:30 a.m.; Tampa and Tallahassee, FL; amended as to hearing location and start time).
PDF:
Date: 05/01/2017
Proceedings: Notice of Transfer.
PDF:
Date: 04/28/2017
Proceedings: (Petitioner's) Unopposed Motion to Change Hearing Location filed.
PDF:
Date: 04/24/2017
Proceedings: Notice of Service of Respondent's Answers and Objections to Petitioner's First Set of Interrogatories filed.
PDF:
Date: 04/18/2017
Proceedings: Respondent's Response to Second Request for Admission filed.
PDF:
Date: 04/18/2017
Proceedings: Respondent's Response to Petitioner's Second Request for Production of Documents filed.
PDF:
Date: 04/18/2017
Proceedings: Respondent's Response to Petitioner's First Request for Production of Documents filed.
PDF:
Date: 04/18/2017
Proceedings: Respondent's Response to First Requests for Admission filed.
PDF:
Date: 04/14/2017
Proceedings: Petitioners' Second Request for Admission to Respondent filed.
PDF:
Date: 04/14/2017
Proceedings: Petitioners' Second Request for Production to Respondent filed.
PDF:
Date: 04/06/2017
Proceedings: Order Granting Continuance and Re-scheduling Hearing by Video Teleconference (hearing set for June 27, 2017; 9:00 a.m.; Lauderdale Lakes and Tallahassee, FL).
PDF:
Date: 04/05/2017
Proceedings: Unopposed Motion to Continue Final Hearing filed.
PDF:
Date: 04/05/2017
Proceedings: Respondent's Notice of Service of First Set of Interrogatories filed.
PDF:
Date: 04/03/2017
Proceedings: Respondent's First Requests for Admission with Interlocking and Non-interlocking Discovery filed.
PDF:
Date: 03/27/2017
Proceedings: Petitioner's Notice of Service of Interrogatories to Respondent filed.
PDF:
Date: 03/27/2017
Proceedings: Petitioners' First Requests for Admission to Respondent filed.
PDF:
Date: 03/27/2017
Proceedings: Petitioners' First Request for Production to Respondent filed.
PDF:
Date: 03/24/2017
Proceedings: Notice of Appearance (Jonathan Taylor) filed.
PDF:
Date: 03/22/2017
Proceedings: Notice of Hearing by Video Teleconference (hearing set for May 19, 2017; 9:00 a.m.; Lauderdale Lakes and Tallahassee, FL).
PDF:
Date: 03/22/2017
Proceedings: Order of Pre-hearing Instructions.
PDF:
Date: 03/22/2017
Proceedings: Order of Consolidation (DOAH Case Nos. 17-1562, 17-1563).
PDF:
Date: 03/21/2017
Proceedings: Joint Response to Initial Order filed.
PDF:
Date: 03/16/2017
Proceedings: Notice of Appearance (Ginette Harrell) filed.
PDF:
Date: 03/16/2017
Proceedings: Initial Order.
PDF:
Date: 03/15/2017
Proceedings: Notice of Decision of Refund Denial filed.
PDF:
Date: 03/15/2017
Proceedings: Petition for Chapter 120 Hearing filed.
PDF:
Date: 03/15/2017
Proceedings: Agency referral filed.

Case Information

Judge:
JOHN G. VAN LANINGHAM
Date Filed:
03/15/2017
Date Assignment:
05/03/2017
Last Docket Entry:
02/23/2018
Location:
Tampa, Florida
District:
Middle
Agency:
ADOPTED IN PART OR MODIFIED
 

Counsels

Related Florida Statute(s) (11):