92-002106
Kjell Bergh And Mary Bergh vs.
Department Of Revenue
Status: Closed
Recommended Order on Tuesday, September 28, 1993.
Recommended Order on Tuesday, September 28, 1993.
1STATE OF FLORIDA
4DIVISION OF ADMINISTRATIVE HEARINGS
8KJELL and MARY BERGH, )
13)
14Petitioners, )
16)
17vs. ) CASE NO. 92-2106
22)
23DEPARTMENT OF REVENUE, )
27)
28Respondent. )
30_________________________________)
31RECOMMENDED ORDER
33This matter was heard by William R. Dorsey, Jr., the Hearing Officer
45assigned by the Division of Administrative Hearings, on September 4, 1992, in
57Tallahassee, Florida. Subsequent to the final hearing and Mr. Dorsey's
67departure from the Division of Administrative Hearings, this matter was assigned
78to Don W. Davis on August 17, 1993, for preparation of a recommended order.
92APPEARANCES
93For Petitioners: Cynthia S. Tunnicliff
98Carlton, Fields, Ward, Emmanuel,
102Smith & Cutler P.A.
106Post Office Drawer 190
110Tallahassee, Florida 32302
113For Respondent: Mark T. Aliff, Esquire
119Assistant Attorney General
122Department of Legal Affairs
126Tax Section, Capitol Building
130Tallahassee, Florida 32399-1050
133STATEMENT OF THE ISSUES
137The issue is whether the Petitioners owe sales tax to the State of Florida
151for lease payments made to them by Borton Motors, Inc., on a lease of commercial
166property. The Petitioners argue that the transaction was structured to fall
177within an exemption to taxation because (a) they maintain they are not in the
191business of leasing real property and (b) Rule 12A
200Administrative Code, excludes from taxation lease payments where the lease
210payments are used to amortize a debt, and the corporation making the lease
223payment is equally liable on the debt secured by the real property as is the
238record owner of the property.
243PRELIMINARY STATEMENT
245At the hearing, the parties submitted a Stipulation of Facts which covers
257some, but not all, of the matters in issue. Attached to the Stipulation were a
272number of documents which pertain to the acquisition of the real estate by the
286Petitioners, and their lease of that property to Borton Motors, Inc. A
298deposition of Mr. Kjell Bergh was also admitted into evidence. A transcript of
311the hearing was filed on September 24, 1992. A motion of the parties for an
326extension of the time for filing proposed recommended orders until October 22,
3381992, was granted.
341FINDINGS OF FACT
3441. Kjell Bergh operates a Volvo dealership in Minnesota. He also has other
357business interest in the United States and abroad. In 1986, he received approval
370from Volvo to open a Volvo dealership in the area of Boca Raton, Florida. Boca
385Raton zoning makes it very difficult to locate automobile dealerships there.
396Mr. Bergh therefore located a suitable five acre site to build the Volvo
409dealership in nearby Delray Beach, Florida. The property was purchased in 1987
421solely to build the automobile dealership on it. At some point Mr. Bergh also
435received a Volkswagen franchise, and operates both the Volvo and the Volkswagen
447franchises on the Delray Beach property. Title to the land was taken
459individually in the names of Kjell and his wife Mary Bergh, as joint tenants, on
474the advice of their tax counsel. The purchase price for the land was
487approximately one million dollars.
4912. The automobile dealership is operated by Borton Motors Incorporated, a
502Florida corporation organized in 1986. It is owned 75 percent by the
514Petitioners, Kjell and Mary Bergh, and 25 percent by the vice president and
527general manager, Loren Sheffer, who has also invested money in the dealership.
539It is common in the automobile industry for local managers to have a personal
553stake in automobile dealerships they manage for absentee owners. The manager,
564however, has only a minority interest, and the automobile manufacturer, Volvo,
575holds Mr. Bergh responsible for the operation of the dealership.
5853. The Berghs financed the purchase of the land and the buildings used as
599the automobile dealership facilities through the Barnett Bank of Palm Beach
610County.
6114. On July 23, 1987, the Berghs executed a note and mortgage for
624$2,000,000 in favor of the Barnett Bank for the purchase of the property along
640with a construction loan agreement to build the dealership facility. The rate
652and mortgage were modified to increase the amount borrowed to $2,250,000 in May
667and June of 1988.
6715. The land was then leased to Borton Motors, Inc., the legal entity which
685operated the automobile dealerships. As a condition of obtaining the loan from
697Barnett Bank, the bank required that Borton Motors, Inc., guarantee the loan
709which the bank had made to Mr. and Mrs. Bergh, and also required the Berghs to
725assign the lease to Barnett Bank. The terms of the mortgage give Barnett Bank
739the right to collect rents and other payments from the property, and prohibits
752the termination or cancellation of the lease without Barnett's permission.
762Barnett Bank had the right to approve the lease provisions and to set the amount
777of the rent so that the debt service coverage ratio would be no less than 1.2
793times the amount borrowed.
7976. In connection with the loan by Barnett Bank, on July 27, 1987, Borton
811Motors, Inc., gave to Barnett Bank "its continuing and unconditional guarantee
822of the payment in full when due of any and all indebtedness of Debtor [Kjell and
838Mary Bergh] to Bank to the same extent as if Guarantor [Borton Motors, Inc.]
852were the principal debtor of the indebtedness" (Exhibit 1D).
8617. From the inception of the transaction, it was intended that the entity
874operating the automobile dealership, Borton Motors, Inc., would finance the
884purchase of the real estate on which the automobile dealership would be located,
897and the construction of necessary improvements. This was accomplished through
907the rental payments Borton Motors, Inc., would make to the Berghs, who had
920actually taken title to the land. Through its guarantee, Borton Motors, Inc.,
932was as liable to Barnett Bank as were the Berghs, from the inception of the
947loan. The Berghs hoped to receive a return on monies they invested in the
961automobile dealership, whether for real estate, improvements to the real estate,
972inventory in the form of cars, or parts, or for payments made for labor to its
988sales force and service technicians. It is misleading to state that the Berghs
1001intended to receive a return on the real estate investment they made. The
1014return on the real estate is not the result of a separate investment made by the
1030Berghs, it is instead a part of the overall operation of the dealership. The
1044Berghs are not investors in real property who happened to lease property to a
1058tenant who happens to operate a automobile dealership on that property. The
1070Berghs do take a federal income tax deduction for interest paid on the note to
1085Barnett Bank and report the rent received from Borton Motors, Inc., as income on
1099their federal income tax returns.
11048. Petitioners have acquired other debt on behalf of the corporation and
1116do not receive any money from the corporation over and above the amount of the
1131mortgage and other indebitness.
11359. The Barnett Bank of Palm Beach County eventually sold its loan to the
1149Berghs to Volvo Finance North American, Inc., in late April 1992. This sale has
1163no effect on the taxation of the transaction of issue.
117310. On February 8, 1991, the Department of Revenue sent to the Petitioners
1186a form requesting them to file a "application for Sales and Use Tax
1199Registration" and asking them to report the rental income they had received from
1212Borton Motors, Inc., on the dealership property for the period February 1986
1224through February 1991. The Berghs filed the application and supplied the rental
1236figures to the Department, but maintained no tax was due because the "amount
1249paid reflects the actual debt service."
125511. The Department sent the Berghs a Notice of Assessment on February 28,
12681991, stating that they owed $71,043.29 in tax, penalties and interest,
1280representing a sales tax at the rate of 6 percent upon the lease payments they
1295had received from Borton Motors, plus penalties and interest. The Department
1306also gave them notice of a right to protest the assessment.
131712. The Berghs did protest the assessment to the Department's Bureau of
1329Hearings and Appeals, which sustained the assessment, but agreed to reduce the
1341penalty involved. The Berghs paid $7,043.50 plus interest of $2,327.98 which
1354represents the amount of payments from Borton Motors, Inc., in excess of the
1367debt service due to Barnett Bank.
1373CONCLUSIONS OF LAW
137613. The Division of Administrative Hearings has jurisdiction over the
1386parties and subject matter of this proceeding, pursuant to Section 120.57(1),
1397Florida Statutes.
139914. Section 212.031(1)(a), Florida Statutes, states:
1405It is declared to be the legislative intent
1413that every person is exercising a taxable
1420privilege who engages in the business of
1427renting, leasing, letting or granting a
1433license for the use of any real property . . ..
144415. The term "business" is defined to mean any activity engaged in by any
1458person or caused to be engaged in by him with the object of public or private
1474gain whether direct or indirect. Section 212.02(2), Florida Statutes.
148316. A person is not necessarily engaged in the business of renting real
1496property when the rental is to a related corporation. Lord Chumley's of Stuart,
1509Inc. v. Department of Revenue, 401 So.2d 817 (Fla. 4th DCA 1981). In Lord
1523Chumley's payments to the taxpayer by the corporation for debt service, taxes,
1535insurance and other operating expenses did not equate to rent. Similarly,
1546Petitioners are not in the business of renting real property.
155617. Further, Section 212.031(1)(a), Florida Statutes, is interpreted by
1565Respondent in Rule 12A-1.070(19)(c), Florida Administrative Code, which
1573provides:
1574The total consideration furnished by one
1580corporation to a related corporation for the
1587occupation of real property or the use or
1595entitlement to the use of real property owned
1603by the related corporation is subject to tax,
1611even though the amount of the consideration
1618is equal to the amount of the consideration
1626legally necessary to amortize a debt owned by
1634the related corporation and secured by the real
1642property occupied, or used, and even though
1649the consideration is ultimately used to pay
1656that debt. However, such consideration is not
1663rent but the payment of a debt if the
1672corporation furnishing the consideration is
1677as equally liable on the debt secured by the
1686real property as the related corporation, any
1693amount furnished to the related corporation
1699over the amount legally necessary to amortize
1706that debt is subject to tax unless
1713specifically exempted by statute.
1717(emphasis supplied).
171918. The rule has been extended beyond related corporations to related
1730entities through Respondent's published Technical Assistance Advisement (TAA)
1738No. 90A-019, Tax FALR 90:84.
174319. Accordingly, the rule provides a two-prong test for determining
1753whether a proposed lease arrangement is a financing arrangement not subject to
1765sales tax: The lessee and the lessor must be related and they must be equally
1780liable on the debt.
178420. Respondent does not contest that Petitioners and the corporation in
1795this instance are equally liable on the debt. Instead, Respondent argues for the
1808first time in posthearing submissions that the two parties are not "related"
1820inasmuch as they are not identical.
182621. Notably, the rule does not define the term "related" and Respondent
1838offered no evidence of any policy definition or basis for any policy choice of
1852definition from which to determine the reasonableness of such policy. Absent
1863evidence to the contrary, an interpretation of the words in a rule or statute
1877rests upon the plain and ordinary meaning of those words. Gar
1888Inc. v. State Department of Environmental Regulation, 468 So.2d 413 (Fla 1st DCA
19011985), and Florida Department of Revenue v. DeMari, 338 So.2d 838 (Fla. 1976).
191422. The term "related" is defined as "standing in relation"; "connected";
"1925allied"; and "akin". Black's Law Dictionary, p. 1258 (6th edition 1990).
1937Borton Motors, Inc. and Petitioners are clearly "related".
194623. Respondent's proposed interpretation of the term "related" appears to
1956constitute "an agency statement defined as a rule" under Section 120.52(16),
1967Florida Statutes. Accordingly, Respondent should have demonstrated that such
1976definition did not exceed the scope of delegated authority. Section
1986120.57(1)(b)(15), Florida Statutes.
1989RECOMMENDATION
1990Based on the foregoing, it is recommended that a final order be entered
2003withdrawing the assessment of tax.
2008DONE AND ENTERED this 28th day of September, 1993, in Tallahassee, Leon
2020County, Florida.
2022___________________________________
2023DON W. DAVIS
2026Hearing Officer
2028Division of Administrative Hearings
2032The DeSoto Building
20351230 Apalachee Parkway
2038Tallahassee, Fl 32399-1550
2041(904) 488-9675
2043Filed with the Clerk of the
2049Division of Administrative Hearings
2053this 28th day of September, 1993.
2059APPENDIX TO RECOMMENDED ORDER, CASE NO. 92-2106
2066The following constitutes my rulings pursuant to Section 120.59, Florida
2076Statutes, on proposed findings of fact submitted by the parties.
2086Petitioner's Proposed Findings:
20891.-19. Adopted, though not verbatim.
2094Respondent's Proposed Findings:
20971. Accepted, excepted for last sentence which is rejected as
2107unsupported by weight of the evidence.
21132.-6. Adopted.
21157. Subordinate to hearing officer findings on this point.
21248.-10. Accepted, but not verbatim.
2129COPIES FURNISHED:
2131Cynthia S. Tunnicliff
2134Carlton, Fields, Ward, Emmanuel,
2138Smith & Cutler P.A.
2142Post Office Drawer 190
2146Tallahassee, Florida 32302
2149Mark T. Aliff, Esquire
2153Assistant Attorney General
2156Department of Legal Affairs
2160Tax Section, Capitol Building
2164Tallahassee, Florida 32399-1050
2167Linda Lettera
2169General Counsel
2171Department of Revenue
2174204 Carlton Building
2177Tallahassee, Florida 32399-0100
2180Larry Fuchs
2182Executive Director
2184Department of Revenue
2187104 Carlton Building
2190Tallahassee, Florida 32399-0100
2193NOTICE OF RIGHT TO SUBMIT EXCEPTIONS
2199All parties have the right to submit written exceptions to this Recommended
2211Order. All agencies allow each party at least 10 days in which to submit
2225written exceptions. Some agencies allow a larger period within which to submit
2237written exceptions. You should contact the agency that will issue the final
2249order in this case concerning agency rules on the deadline for filing exceptions
2262to this Recommended Order. Any exceptions to this Recommended Order should be
2274filed with the agency that will issue the final order in this case.
2287=================================================================
2288AGENCY FINAL ORDER
2291=================================================================
2292STATE OF FLORIDA
2295DIVISION OF ADMINISTRATIVE HEARINGS
2299KJELL and MARY BERGH, )
2304)
2305Petitioner, )
2307)
2308vs. ) CASE NO. 92-2106
2313) DOR 93-23-FOF
2316DEPARTMENT OF REVENUE, )
2320)
2321Respondent. )
2323_________________________________)
2324FINAL ORDER
2326This cause came before the Department of Revenue for the purpose of issuing
2339a final order. The hearing officer assigned to conduct the final hearing left
2352the Division of Administrative Hearings prior to the issuance of the Recommended
2364Order and the case was reassigned to another hearing officer who entered a
2377Recommended Order on September 28, 1993. The Department filed Exceptions to the
2389Recommended Order with a Memorandum of Law and Proposed Substituted Order on
2401October 29, 1993, in accordance with an agreed upon extension of time. The
2414Petitioners filed their Response to the Exceptions and Proposed Substituted
2424Order November 11, 1993. Copies of these documents are attached to this Final
2437Order.
2438STATEMENT OF THE ISSUES
2442The Department adopts and incorporates in this Final Order the Statement of
2454the Issues in the Recommended Order. The Department's exceptions to the
2465Statement of the Issues in the Recommended Order are not material and are
2478therefore withdrawn.
2480FINDINGS OF FACT
2483The Department adopts and incorporates in this Final Order the Findings of
2495Fact in the Recommended Order except to note that the Finding of Fact number 5
2510suggests that the land was leased after July 23, 1987, the date the mortgage and
2525note was executed. This is not based on substantial competent evidence. The
2537lease and mortgage documents attached to the stipulation show the lease was
2549entered into two weeks earlier, on July 9, 1993. The remaining Exceptions to
2562the Findings of Fact in the Recommended Order filed are not material and are
2576therefore withdrawn.
2578CONCLUSIONS OF LAW
2581The Department of Revenue adopts and incorporates in this Final Order
2592paragraphs 13 and 14 of the Conclusions of Law in the Recommended Order. The
2606remaining Conclusions of Law in the Recommended Order are rejected because they
2618misapprehend the law and rely on or recite incomplete portions of the statutes
2631or rules.
2633This Final Order will expand and elaborate on the Conclusions of Law in the
2647Exceptions and Proposed Substituted Order filed by the Department with the
2658following:
265915. The Petitioners' central argument is that they do not owe tax because
2672they are not engaged in the business of leasing property. They base this
2685argument on the idea that "engaging in business" within the meaning of Chapter
2698212, F.S., requires a profit motive, and that because they are related to the
2712extent of 75 percent stock ownership of their tenant corporation, there is no
2725such motive. The question of whether or not the Berghs are related to their
2739corporation is irrelevant to the question of whether or not their rent payments
2752are subject to sales tax. Furthermore, though similarly irrelevant, it is
2763misleading to think of the Petitioners as being in the automobile dealership
2775business. Borton Motors, Inc. is in the automobile dealership business. The
2786Petitioners' business activity is as lessor/landlord to Borton Motors, Inc.
279616. The Recommended Order and Petitioners' Response to the Department's
2806Exceptions and Proposed Substituted Order focus on the first sentence in section
2818212.02(2), F.S., which defines the term "business" for purposes of the section
2830212.031, F.S., tax on the rental of real property. In this sentence, "business"
2843is defined to mean ". . . any activity . . . with the object of private or
2861public gain, benefit, or advantage, either direct or indirect." Clearly, a
2872profit flowing directly from the lease is not required under this definition.
288417. The direct benefits and advantages flowing to the Berghs from the
2896lease are obvious. Most prominent is that their debt service obligations in the
2909property are being met with the overwhelming gain, benefit or advantage being
2921the strengthening of their equity position in the property with each lease
2933payment made by the corporation/tenant. This alone is sufficient benefit to
2944satisfy the definition of the term "business" in sections 212.02(2), and
2955212.031(1)(a), F.S. Some other direct benefits, such as limitations tort and
2966creditor liability, present and future income tax benefits, and insurance cost
2977reductions, are not in the record and need not be discussed.
298818. However, there are other reasons to conclude that the statutory
2999definition of the term "business" is satisfied by the Petitioners' leasing
3010activity. Petitioners, in their Response to the Exceptions and Proposed
3020Substituted Order, cite to Green v. Panama City Housing Authority, 110 So.2d
3032490, 491 (Fla. 1st DCA, 1959), for authority that the section 212.02, F.S., term
"3046business" requires a "customary profit motive." While this concept was used to
3058determine whether the tax was levied against the landlord as opposed to the
3071tenant, it was distinguished in Green v. Surf Club, Inc., 136 So.2d 354 (Fla.
30853rd DCA, 1962) holding that the benefits of membership in a not-for-profit
3097social club were sufficient to satisfy the statutory term "business" for sales
3109tax purposes.
311119. Petitioners' reliance on the case Florida Revenue Commission v. Maas
3122Bros., Inc., 226 So.2d 849 (Fla. 1st DCA, 1969), is misplaced. References in
3135Maas Bros. to the concept of a profit motive cited in Green v. Panama City
3150Housing Authority, supra, relate to a tax on rentals in commercial buildings
3162enacted in a special session by Chapter 68-27 which expired June 30, 1969.
317520. These earlier cases were decided before the section 212.031 tax on
3187real property leases (as distinguished from the section 212.03 transient rental
3198tax enacted with the original sales tax in 1949) was enacted by the 1969
3212Legislature in Section 6 of Chapter 69-222, Laws of Florida. With the 1969
3225imposition of the tax on the privilege of engaging in the business of renting
3239real property, Section 2 of Chapter 69-222, Laws of Florida was enacted amending
3252the definition of the term "business" in section 212.02(9), F.S., 1967, to
3264include all rentals of or licenses in real property.
327321. The section 212.02(2), F.S., definition of "business" contains no
3283exception for occasional, isolated, or single leases of real property as it does
3296for the occasional or isolated sales of tangible personal property or services.
3308Section 212.02(2), in pertinent part reads: " . . . Except for the sales of any
3323aircraft, boat, mobile home, or motor vehicle, the term "business shall not be
3336construed in this chapter to include occasional or isolated sales or
3347transactions involving tangible personal property or services by a person who
3358does not hold himself out as engaged in business, but includes . . . all rentals
3374of or licenses in real property."
338022. Petitioners next rely on the misapprehension that because they own 75
3392percent of the stock in their tenant corporation, the lease of their real
3405property to that corporation is not subject to tax and cite Lord Chumley's of
3419Stuart, Inc. v. Department of Revenue, 401 So.2d 817 (Fla. 4th DCA, 1981) for
3433support. Lord Chumley's is not controlling here because it involved a
3444circumstance where there was no written lease or rent payments. See also,
3456Department of Revenue v. Ryder Systems, Inc., 406 So.2d 1299 (Fla. 1st DCA,
34691981) distinguishing Zero Foods Storage, etc. v. DOR, 330 So.2d 765 (Fla. 1st
3482DCA, 1976), where the tax was held due on a finding that rent was paid between a
3499corporation and its wholly owned subsidiary. Here, there is a lease, a distinct
3512landlord, tenant, and lease payments.
351723. The Findings of Fact reveal clearly that the ownership and leasing
3529arrangement between Petitioners and Borton Motors, Inc. was a business decision
3540made for the financing and tax benefits which flow from such arrangements. See
3553paragraphs 1-7 of the Recommended Order. It is inconsistent to recognize and
3565provide for this corporate ownership and operation of business property while
3576denying the required separateness of the entity and its operations for tax
3588purposes.
358924. In Seaboard Coastline RR Co. v. Askew, Case No. 72-15 (Fla. Cir. Ct.,
36032nd Cir., Leon Co., 1972), the Court affirmed sales tax liability on a lease
3617between a corporation and its wholly owned subsidiary and held:
3627Plaintiff suggests that the sales and use tax
3635should not be exacted when, as here, (in part)
3644the lease is between a corporation and a
3652wholly-owned subsidiary. A corporation which
3657operates through a wholly-owned subsidiary
3662does so because it desires the benefits of the
3671separate identity of the two corporations in
3678transacting its business. While gaining the
3684benefit of doing business as two corporate
3691corporations, it must assume the economic
3697disadvantages of the separate legal identity
3703of the two corporations, including the taxes
3710upon transactions between the two.
371525. Individuals create corporations to conduct their business for many
3725reasons. Often, full fee ownership of property does not offer the advantages
3737associated with only the right to use the property. As an example, individuals
3750may wish to shield their assets from claims of creditors or potential tort
3763victims, or minimize their insurance costs by holding title to real property and
3776leasing it to a separate entity they own for the operation of a business in
3791which they have an interest. Additionally, federal income tax advantages may be
3803gained by either or both parties to such a transaction. These benefits flow
3816from state recognition of the separate identities of the individuals and
3827entities.
382826. Section 212.031, F.S., imposes a 6 percent sales tax on renting,
3840leasing, letting, or granting a license for the use of any real property. . . ."
3856The statute contains exemptions for dwelling units, agricultural property, some
3866airport and movie production property and so on. However, there is no exemption
3879in the statutes based on the relationship between the landlord and tenant or
3892based on how the real property is financed.
390027. Rule 12A-1.070(19), F.A.C., addresses the imposition of the tax
3910between related corporations, not between individuals and a corporation as here.
3921Nevertheless, Petitioners seek to apply an exception or exemption in subsection
3932(19)(c) of the rule (involving rent between related corporations) which is
3943underlined below:
3945(19)(a) The lease or rental of real property
3953or a license fee arrangement to use or occupy
3962real property between related corporations is
3968subject to tax.
3971(b) The total consideration, whether direct
3977or indirect, payments or credits, or other
3984consideration in kind, furnished by one
3990corporation to another is subject to tax
3997despite the fact that one of the corporations
4005may be a parent corporation and the other a
4014wholly-owned subsidiary.
4016(c) The total consideration furnished by one
4023corporation to a related corporation for the
4030occupation of real property or the use or
4038entitlement to the use of real property owned
4046by the related corporation is subject to tax,
4054even though the amount of the consideration
4061is equal to the amount of the consideration
4069legally necessary to amortize a debt owned by
4077the related corporation and secured by the
4084real property occupied, or used, and even
4091though the consideration is ultimately used to
4098pay that debt. However, such consideration is
4105not rent but the payment of a debt if the
4115corporation furnishing the consideration is as
4121equally liable on the debt secured by the real
4130property as the related corporation; any
4136amount furnished to the related corporation
4142over the amount legally necessary to amortize
4149that debt is subject to tax unless specifically
4157exempted by statute.
416028. Section 212.031 imposes the tax on the total rent charged for the use
4174of real property. Rule 12A-1.070(19) elaborates on this by indicating that
4185leases between related corporations are taxable, even when the amount of the
4197rental payment equals the amount necessary to amortize a mortgage debt on the
4210leased property. However, the rule goes further and transforms otherwise
4220taxable lease payments into nontaxable debt payments when the related
4230corporations are "as equally liable" on the property's mortgage debt.
424029. As stated, section 212.031, F.S., contains no provision exempting an
4251entity from the tax based on ownership or based on the ultimate disposition of
4265the rental payments. While the statute lists numerous exceptions where the tax
4277does not apply, there are none which depend upon the relationship between the
4290parties to the lease and the methods they may use to secure financing.
430330. Nevertheless, Rule 12A-1.070(19)(c), F.A.C., contains an exception
4311exempting rent payments between equally liable related corporations. Since this
4321exception was duly promulgated, the Department must respect it until it is
4333repealed (the repeal has been stayed pending the outcome of Regal Kitchens, Inc.
4346v. Fla. Dept. of Revenue, Case No. 93-00994, 1st District Court of Appeal,
4359Tallahassee, Florida, a case where lease payments between a partnership and its
4371corporation were determined to be taxable). However, it cannot expand the
4382exception in the rule beyond its express terms since it functions as an
4395exception or exemption from tax. See State ex rel. Szabo Foods v. Dickinson,
4408286 So.2d 529 (Fla., 1974).
441331. Rule 12A-1.070(19)(c), F.A.C., by its express terms applies to rent
4424paid between related corporations, not consideration paid, as here, between
4434individuals and a corporation. Since the law requires that all exceptions or
4446exemptions in taxation be narrowly construed and not expanded beyond their
4457express terms (Szabo, supra), the Department cannot, by its rule alone, expand
4469the exception to include lease payments between individuals and a corporation
4480such as Petitioners'. The expansive reading of the rule Petitioners seek will
4492have to come from the statutes, or not at all.
450232. There is no basis in the statutes for converting rent payments made
4515pursuant to an enforceable lease between related entities or persons to
4526nontaxable debt payments because of joint liability to third parties. Section
4537212.021(2), F.S. provides that:
4541It is hereby declared to be the specific
4549legislative intent to tax each and every . . .
4559rental levied and set forth in this chapter,
4567except as to such . . . rental as shall be
4578specifically exempted therefrom by this
4583chapter.
4584Section 212.08(13) provides that: No
4589transactions shall be exempt from the tax
4596imposed by this chapter except those expressly
4603exempted herein.
4605Section 212.031(1)(c) levies the tax: on
4611the total rent or license fee charged for such
4620real property. . . .
4625Section 212.031(1)(d) provides that: When
4630the rental . . . is paid by way of
4640property . . . or other thing of value, the
4650tax shall be at the rate of 6 percent of the
4661value of the . . . other thing of value. (e.s.)
467233. It is basic that payment of a debt is a thing of value and a form of
4690consideration that will support the section 212.031 tax on commercial rentals.
4701See Seaboard, supra. Since the rent here is used to retire Petitioners'
4713mortgage debt, it is the Department's position that the rental payment is
4725taxable. See section 212.031(1)(d), F.S.
473034. In circumstances such as here, where the rental proceeds are used to
4743pay a landlord's mortgage, the landlord enjoys both the reduction of its
4755mortgage debt as well as the additional benefit of having its equity in the
4769property increased. In this regard, the illicit portion of Rule 12A-1.070
4780(19)(c), contravenes or conflicts with section 212.031(1)(d). The reduction of
4790Petitioners' liability on the note and the increase in its equity in the
4803property is unquestionably the payment of an "other thing of value" under the
4816express provisions of section 212.031(1)(d), and is fully subject to tax under
4828the statute. As was held by the Court in Seaboard, supra, by the terms of
4843section 212.031(1)(d), F.S., the legislature intended "to tax the full benefits
4854flowing to the landlord for the use of the leased premises."
486535. Admittedly, in a circumstance where the tenant owed the landlord money
4877for an obligation unrelated to the use of the landlord's real property, a
4890payment to the landlord by the tenant in excess of the market or reasonably
4904imputed contract rent could be logically and legally held to be payment of a
4918debt, but only the amount found to be in excess of the value of the right to use
4936the land. Strangely, the current exception in the Rule, and Petitioner's
4947attempt to extend it, functions to invert this actuality by providing that only
4960the payment in excess of amortization (principal plus debt service) is rent, the
4973part of the payment least related to the value of the use of the land (where
4989recent full financing is obtained), the very value from which rent is typically
5002derived.
500336. It should be noted that even co-owners who are co-makers on a note
5017secured with a mortgage on the jointly owned property could form a bona fide
5031landlord/tenant relationship with rental or lease payments subject to tax under
5042the statute. It may be in the furtherance of the business interests of either
5056owner to secure the exclusive use of the jointly owned property for a period of
5071time. In such a circumstance, the entity seeking the exclusive use of the
5084property could secure that exclusive use by entering into an enforceable lease
5096with rental payments based on the value of the other's interest in the property.
5110The fact that the payment could also be used to help retire the joint obligation
5125would not affect the status of the payment as rent.
513537. Section 212.031, F.S., provides no basis for concluding that liability
5146to a third party alters the character of a lease payment or otherwise is
5160relevant to the question of whether the payment is consideration for the use of
5174land. The leasing of property is a separate transaction and the determination
5186of whether the lease payments are subject to tax does not depend upon subsequent
5200transactions. See Ryder Truck Rental, Inc. v. Bryant, 170 So.2d 822 (Fla.
52121964), where unlike here, tax pyramiding was at issue. Even in situations like
5225Ryder, where there are multiple impositions of the tax on a sequence of
5238transactions involving the same property, the Court recognized that each
5248separate transaction can support the imposition of the tax. Here, multiple
5259impositions of the tax is not present and should be no impediment to the
5273recognition of the rental payment as a transaction separate from subsequent debt
5285payments or other dispositions of the rental proceeds.
529338. As stated previously, related entity leases are often created to limit
5305tort liability, affect insurance coverage/costs, shield creditor claims, or
5314affect federal income tax liability (rental payments are an allowable business
5325expense deduction under Section 162 of the Internal Revenue Code). These
5336effects exist because of state creation and recognition of corporations as
5347separate entities and the rights and protections afforded them by state law.
5359Notably, while paragraph 7 of the recommended order discusses Petitioners'
5369federal income tax treatment of the rental payments received from Borton Motors,
5381Inc., there is nothing in the record indicating the extent, if any, of the
5395business expense deduction Borton Motors may have taken for income tax purposes
5407on the advise of tax counsel. See Recommended Order paragraphs 1 and 7. It is
5422not known what effect, if any, a statement that payments such as those herein
5436are not rent would have on income tax liability in a circumstance where the
5450deduction was taken.
545339. The express terms of the Rule treats rental payments as nontaxable
5465debt payments if the related corporations are "as equally liable" on the leased
5478property's mortgage debt. It is the Department's position that the required
5489narrow construction of the phrase "as equally liable" dictates that the
5500exception or exemption in the Rule be limited to related corporations which are
5513co-makers on the note secured by the mortgage debt. Co-makers can be "as
5526equally liable" on the mortgage debt, whereas a maker and a guarantor, even a
5540payment guarantor under section 673.416(1), F.S., cannot. As between the
5550principal and guarantor, the liabilities are separate, the guarantor is
5560subordinate to the principal, and the guarantor's liability is contingent, or at
5572least scheduled to be unrealized.
557740. As a result, a guarantor or other surety cannot be "as equally liable"
5591on a note as the maker under Rule 12A-1.070(19)(c). Therefore, since Borton
5603Motors, Inc., is not a co-maker on the mortgage debt, the rental payments fall
5617outside the express terms of the exception or exemption contained in Rule 12A-
56301.070(1)(c) which require the related corporations to be "as equally liable" on
5642the mortgage debt.
564541. It should be emphasized that this issue is complex and that it is
5659understandable that a misinterpretation such as presented with the exception or
5670exemption for equally liable related corporations in Rule 12A-1.070(19(c),
5679F.A.C., might find its way into the regulations and other interpretations of the
5692law issued by the Department of Revenue. In this regard, since the enactment of
5706this provision in 1989, the Department has issued several informal technical
5717assistance advisements under section 213.22, F.S., and at least two, as
5728acknowledged in the Recommended Order, have applied the exception in the rule to
5741leases involving partnerships and natural persons, as well as others to
5752financing arrangements involving guarantors. However, in anticipation that such
5761informal advisements may prove erroneous, section 213.22, F.S., specifically
5770provides that these informal advisements "have no precedential value except to
5781the taxpayer who requests the advisement and then only for the specific
5793transaction addressed..." It is clearly erroneous to use these informal
5803Technical Assistance Advisements as precedent as was done in paragraph 18 of the
5816Recommended Order.
5818CONCLUSION
5819Based on the foregoing, Petitioners' rental payments are fully taxable.
5829The exemption or exception for equally liable related corporations contained in
5840Rule 12A-1.070(19((c), F.A.C., when held to its express terms as is required of
5853all tax exceptions or exemptions, does not apply to petitioners or their
5865transactions since Petitioners are individuals and not corporations and Borton
5875Motors is not equally liable as a co-maker on the note securing the realty.
5889Furthermore, since a statutory basis for the exemption or exception is
5900lacking, the statute cannot be used to expand the Rule to include transactions
5913between corporations and individuals or transactions involving guarantors.
5921Therefore, on review of the record in this matter, it is ORDERED:
5933That the determination of the Recommended Order, that a Final Order be
5945entered withdrawing the assessment of tax should be, and hereby is, rejected.
5957The assessment is thus sustained in full.
5964DONE AND ENTERED in Tallahassee, Leon County, Florida, this 23rd day of
5976December, 1993.
5978_________________________
5979STATE OF FLORIDA
5982DEPARTMENT OF REVENUE
5985EXECUTIVE DIRECTOR
5987CERTIFICATE OF FILING
5990I HEREBY CERTIFY that the foregoing FINAL ORDER has been filed in the official
6004records of the Department of Revenue this 25 day of December, 1993.
6016COPIES FURNISHED TO:
6019Don W. Davis, Hearing Officer
6024State of Florida
6027Division of Administrative Hearings
6031The DeSoto Building, 1230 Apalachee Parkway
6037Tallahassee, Florida 32399-1550
6040Cynthia S. Tunnicliff, Esquire
6044Carlton, Fields, Ward, Emmanuel, Smith & Cutler P.A.
6052Post Office Drawer 190
6056Tallahassee, Florida 32302
6059Mark T. Aliff, Esquire
6063Assistant Attorney General
6066Department of Legal Affairs
6070Tax Section, Capitol Building
6074Tallahassee, Florida 32399-1050
6077Attachments:
6078Hearing Officer's Recommended Order
6082Department's Exceptions
6084Department's Proposed Substituted Order
6088Petitioners' Response to Exceptions and Proposed Substituted
6095NOTICE OF RIGHTS
6098Any party to this Final Order has the right to seek judicial review of the
6113Final Order as provided in Section 120.68, F.S., by the filing of a Notice of
6128Appeal as provided in Rule 9.110, Florida Rules of Appellate Procedure, with the
6141Clerk of the Department in the Office of General Counsel, Post Office Box 6668,
6155Tallahassee, Florida 32314-6668, and by filing a copy of the Notice of Appeal,
6168accompanied by the applicable filing fees, with the appropriate District Court
6179of Appeal. The Notice of Appeal must be filed within 30 days from the date this
6195Final Order is filed with the Clerk of the Department.
- Date
- Proceedings
- Date: 12/23/1993
- Proceedings: Final Order filed.
- PDF:
- Date: 09/28/1993
- Proceedings: Recommended Order sent out. CASE CLOSED. Hearing held September 4, 1993.
- Date: 09/10/1993
- Proceedings: Petitioner's Supplemental Argument and Proposed Conclusions of Law filed.
- Date: 09/10/1993
- Proceedings: Petitioner's Supplemental Argument and Proposed Conclusions of Law filed.
- Date: 08/27/1993
- Proceedings: Order sent out. (Re: additional filing of motions)
- Date: 08/27/1993
- Proceedings: (Petitioners) Response to Notice of Conflict and Reassignment of Hearing Officer filed.
- Date: 08/27/1993
- Proceedings: (Respondent) Response to Reassignment Order filed.
- Date: 08/17/1993
- Proceedings: Notice of conflict and reassignment of Hearing Officer sent out.
- Date: 08/16/1993
- Proceedings: Notice of Unavailability of Hearing Officer and Order of Assignment of New Hearing Officer sent out.
- Date: 10/22/1992
- Proceedings: Respondent's Proposed Recommended Order filed.
- Date: 10/22/1992
- Proceedings: Proposed Recommended Order filed. (From Cynthia S. Tunnicliff)
- Date: 10/15/1992
- Proceedings: Order Granting Motion For Extension Of Time To File Proposed Order sent out. (parties shall have until 10-22-92, to file their proposed recommended orders)
- Date: 10/13/1992
- Proceedings: (Respondent) Motion for Extension of Time to File Proposed Order filed.
- Date: 09/24/1992
- Proceedings: Transcript filed.
- Date: 08/20/1992
- Proceedings: Notice of Taking Deposition filed. (From Cynthia S. Tunnicliff)
- Date: 05/18/1992
- Proceedings: Notice of Hearing sent out. (hearing set for 9/4/92; 10:00am; Tallahassee)
- Date: 05/15/1992
- Proceedings: (Respondent) Answer to Petition and Response to Hearing Officer filed.
- Date: 04/23/1992
- Proceedings: Order of Abeyance sent out. (Parties to file status report by 5-15-92)
- Date: 04/17/1992
- Proceedings: Joint Response to Initial Order filed.
- Date: 04/17/1992
- Proceedings: (Respondent) Motion for Extension of Time to Serve a Response to Petition filed.
- Date: 04/09/1992
- Proceedings: Initial Order issued.
- Date: 04/03/1992
- Proceedings: Agency referral letter; Petition for Formal Administrative Hearing filed.
- Date: 03/31/1992
- Proceedings: Letter to Cynthia S. Tunnicliff, Esq. from Marguerite H. Lockard returning petition because it must first be filed with the agency filed.
- Date: 03/30/1992
- Proceedings: Petition for Formal Administrative Hearing filed.
Case Information
- Judge:
- DON W. DAVIS
- Date Filed:
- 04/03/1992
- Date Assignment:
- 08/23/1993
- Last Docket Entry:
- 12/23/1993
- Location:
- Tallahassee, Florida
- District:
- Northern
- Agency:
- ADOPTED IN PART OR MODIFIED