The European Court of Justice has just handed down its decision in the Belgian “excess profits” case (C-337/19 P Commission v Belgium and Magnetrol), the key take-home points of which are: the ECJ found that Belgium operated an “aid scheme”, the case sets a useful precedent for the Commission, and the case is far from over.
By way of background, at the centre of the case is a Belgian tax provision which allowed for the downward adjustment of the taxable profits of Belgian resident entities, apparently introduced in order to prevent or undo double taxation. The downward adjustment, in short, sought to ensure that cross-border (read: multinational) entities were treated in a similar manner to domestic standalone entities which have various expenses that cross-border entities do not (meaning that cross-border entities generate an “excess profit” not enjoyed by standalone entities). The downward adjustment sought to remove the excess profits from the tax base.
Such a downward adjustment was provided to 55 entities by way of 66 advance tax rulings from 2004 to 2014. The Commission claimed that this amounted to an “aid scheme”, defined as:
“any act on the basis of which, without further implementing measures being required, individual aid awards may be made to undertakings defined within the act in a general and abstract manner and any act on the basis of which aid which is not linked to a specific project may be awarded to one or several undertakings for an indefinite period of time and/or for an indefinite amount” (Article 1(d) of Reg 2015/1589)
In order for an aid scheme to arise, three conditions must be met accordingly. First, there must be an “act”. Second, the individual aid must be granted without “further implementing measures”. Third, the undertakings to which the aid is granted must be defined in the act in a “general and abstract manner”.
The first question to be decided then was whether the systematic approach of the Belgian tax authority meant that there was an act. The Commission reviewed only a sample of the 66 tax rulings given to 55 entities and the General Court found that this could not demonstrate that there was a consistent administrative practice. The Advocate General in her opinion in December 2020 disagreed with the General Court. AG Kokott found that a sample could be used as long as it is representative, and the AG was happy that the sample here was representative because there were 22 examined, they related to multinationals, and they were spread out over different years (2005, 2007, 2010 and 2013). The European Court of Justice agreed with AG Kokott (at paragraphs 94-99 of the ECJ’s judgment, and 140-144).
The second question was whether there were further implementing measures. In other words, did the Belgian Tax authority exercise legal discretion when granting the rulings? The General Court held that there were further implementing measures. AG Kokott disagreed because the consistent administrative practice demonstrated that there was no decision-making autonomy and thus no legal discretion in the hands of the Belgian tax officials. (Essentially, because the General Court was wrong on the first question, it was also wrong on the second). The European Court of Justice agreed with AG Kokott (at paragraphs 111-113).
The third question was whether the beneficiaries of the aid scheme were defined in an abstract and general manner. The General Court said no, and AG Kokott again disagreed. The General Court, per AG Kokott, had misdirected itself by looking at whether the legislation defined the beneficiaries in such a way, rather than looking at whether the consistent administrative practice and legislation defined the beneficiaries. For the General Court, further implementing measures were necessary and therefore there could be no identification of the relevant beneficiaries from the legislation alone. Again, this error from the General Court stemmed from the earlier erroneous answer in response to the first question. The European Court of Justice agreed with AG Kokott (at paragraphs 120-124).
The choice to litigate the case on the basis of the “aid scheme” argument may have been driven by the statutory context, in that the Belgian rules provided for a downward adjustment and separately entitled taxpayers to seek a tax ruling as to whether either would be granted.
From a litigation perspective however, the advantage of arguing that Belgium had adopted an aid scheme was that the Commission could take this single case against Belgium, rather than litigating the dozens of individual instances in which tax rulings were granted. A positive finding by the European Court of Justice on the aid scheme issue sets an important precedent for the Commission. It can use this line of attack against the transfer pricing legislation of other Member States for example, which provides for downward adjustments of taxable profits following the provision of a tax ruling to a taxpayer.
Though the Commission won in this instance however, it does not mean that the case is over. Rather, it has been remitted back to the General Court now to make a determination on the other central issue, namely whether this aid scheme in turn provided State aid to the recipients (in addition to some peripheral issues around legitimate expectations for instance) – so, not exactly a walk in the park for any of the parties involved.
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