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Joint Committee on the Secondary Legislation of the European Communities díospóireacht -
Wednesday, 24 Mar 1976

Harmonisation of Systems of Company Taxation and of Withholding Taxes on Dividends.

Now we come to a very complicated and difficult Report, one we have had a great deal of discussion about in sub-committee and elsewhere. It is particularly appropriate that we should have this proposal before us at this stage, because the Corporation Profits Tax Bill, which is very relevant, is being discussed in the Seanad at this very moment. Most Members are familiar with what is in this Report. Very briefly, I think I could summarise our view by saying we are very anxious to draw attention to the danger that this Directive might in some way interfere with our State aids to industrial development and we are suggesting that our tax regime, in so far as industrial development aids are concerned, should be completely exempted from the Directive.

Paragraphs 1 to 3, inclusive, agreed to.

Do any Members wish to make any comments on the rest of the Report?

I would make one comment on one aspect which I think the Joint Committee in their view have crystallised. The objective of harmonisation is desirable, but there is a particular problem which the Joint Committee in this Report have highlighted. It relates to the tax reliefs which successive Governments in this country have been offering to manufacturing industries especially the tax relief on export sales. There are two aspects of this, the first being that companies are exempt from taxation but the extension of that is that under present legislation dividends are equally tax free. The suggestion in this draft Directive which the Joint Committee has pointed out is that the issue of dividends might be treated as an entirely different issue and might be at risk. The basis of the tax reliefs which this country achieved and negotiated successfully under the terms of Articles 92 to 94 of the EEC Treaty and Protocol 30 to the Treaty of Accession recognised that in this country it would be necessary to take into account the objectives of economic expansion in relation to the standard of living of the population. In other words, established the fact that Ireland as a country is much weaker economically than other countries within the EEC.

Successive Governments have made this commitment to companies established here. The extension of this relief operation to 1990 for individual companies extends the period up to 15 years. Whilst it may be all right to retain the incentives in so far as company taxation relief is concerned it is equally important to make certain—and this is the kernel of the matter—that we retain the incentive to extend that to dividends. The effect of a change in policy forcing this country to adopt a situation under which companies might continue to get tax relief, but under which dividends would be taxable will be, firstly, to renege on the commitment of successive Governments to date to manufacturing industries and, secondly, to act as a disincentive. Because, while tax incentive is important, the dividend incentive is also part of the framework. I agree with the conclusions reached in this regard by the Joint Committee. It seems that they have decided, so far as Ireland is concerned, they are prepared to leave well enough alone or what they consider well enough from 1st January, 1975, for a period of three years after which the position would be reviewed. This Committee should express in the strongest possible terms and at the highest level that it is vital in the interests of the future development of this country that the Irish aid at present being given in the present form be allowed to continue without disincentives being built in. This is the kernel of the matter and I am glad the committee have stressed it to the extent they have done.

Paragraphs 4 and 5 agreed to.

Any other comments?

Is there no way we can——

Senator Yeats was in ahead of you.

This matter has been on the agenda of the Budget Committee of the European Parliament for some time. On a number of occasions it was not reached and last week it was barely reached. On one occasion when the discussion started I took the opportunity of having a long discussion with a number of the staff of the Commission on this matter. One aspect in particular which we discussed was the matter of withholding tax. This is a problem which affects the British as well as us. This Committee have done a very useful job as far as the British are concerned because when they came to Brussels they had no idea of the problems involved. They denied vehemently that there were any problems although they had been briefed by their own counsellors.

Do you think we might get a decoration?

I think we should.

Had they not realised the problems?

They denied stoutly the points I made from the documentation of this Committee. When we got the man from the Commission along he confirmed that the Committee was perfectly right, that he had been, indeed, pushing this point at the Commission. I think the British more recently have come around on this topic. The problem with withholding tax is that most of the continental countries have one already and all this does is harmonise the rates. In addition, continental countries have an excellent scheme from the point of view of taxpayers that no one knows who owns shares. In general they are not registered and this being so, they are not liable to pay tax, which, of course, is the basis for this Directive. This does not affect us or the British.

The Commission official we were talking to—he could not give any undertaking—gave his personal view that the Commission might be willing to agree to an amendment to this, on the basis that each Government can exempt its own nationals. In other words, the Irish Government can say that tax will not be withheld under this Directive from Irish firms. Equally, the British Government can do the same. He said the Commission might be willing to agree to a sort of a joint arrangement between the Irish and British Governments whereby English shareholders in Irish companies would be exempt, and vice versa. So that at least so far as Ireland and Britain are concerned there would be a joint agreement in regard to withholding tax. He felt that, perhaps, if it was proposed, that the Commission might agree to this. Perhaps there is something to be said for incorporating in this Report a recommendation to this effect. It might be easier to put the point across at the European Parliament and the Commission and, indeed by our own Council Member. It does seem a proposal that might solve most of our problems because there are not that many continental shareholders in Irish companies.

On the other question of the various tax reliefs that we allow, this is a problem for us that does not relate to other countries in the same way. One assumes that the Commission has no intention of ending these and that they would agree to allow them to continue. Quite obviously, we cannot tolerate a situation where what has been allowed us as a derogation under Articles 92 to 94 of the EEC Treaty would now become a situation where, at the whim of the Commission, this could not be allowed to continue. By a simple amendment incorporated in our Report it would be possible to correct this. Something in the nature of: " this Directive shall not apply in any instance where its provisions conflict with the derogation which has been agreed to under the provisions of Articles 92 to 94 of the EEC Treaty." It is clear that there is no connection at all between the kind of provisions laid down in this Directive and the derogations under Articles 92 to 94 of the EEC Treaty. They are two totally separate matters which should not be confused in this way. The Commission have, I think by accident, brought these derogations into the scope of this Directive. It is clear that they ought not to be there. I think one might be able to deal with it by suggesting that anywhere there is a conflict the derogations under the Treaty will apply. I do not know whether they would agree with this, but it seems reasonable that they probably would. Anyway our Government certainly insist very strongly on this.

Before I deal with that point, I have a strong view about this proposal but Deputy Collins is going to say something.

I agree with what was said in relation to withholding tax of 25 per cent. We have not this problem of bearer securities in Ireland, so is there any way we could derogate from this particular provision?

It should be related purely to bearer securities.

We are allowed to derogate for residents, but seeing that all our shares can, so to speak, be identified, we should be allowed to complete the derogation.

I think so.

I do not quite go along with the suggestion made by Senator Yeats. We will have more foreign investors from Europe. Traditionally, our investment has come from the public of Great Britain. We are living in a different era now. We are a member of the Community. I do not see any reason for withholding tax in our context because we just have not got these shares. We have not got these tax avoidance situations which are so rampant on the Continent.

I agree with Deputy Esmonde in that regard but I cannot go along with Senator Yeats's suggestion. It is our duty as a Committee to point out the implications of the two aspects of the Directive for our economy. We should just content ourselves with stating the position. As far as we see the situation, neither our industrial tax incentives nor this withholding tax should apply in our case. It is up to the Executive, the Government, and the Revenue Commissioners to follow that through. If we state the principle here in this Committee, we can leave it to the experts in the Departments to take up our——

Would you not consider making a direct recommendation to the Houses of the Oireachtas asking the Government to seek a complete derogation in respect of the withholding tax?

We are doing that, Deputy, but, perhaps, you would like it put more succinctly.

I agree with what you have here but, perhaps, a direct appeal to the Oireachtas to take up the matter would make it stronger.

On page 6: ". . . the Joint Committee recommends that the strongest pressure be brought to bear at Council level to exclude entirely the Irish system of tax reliefs from the terms of the proposed Directive." Is that acceptable to you, Deputy?

Then, in page 7 we say: " In the Joint Committee's opinion this provision should be resisted." You might like to strengthen that.

Put the same sentence there.

As it is not applicable in Irish circumstances.

On page 7, at the end of paragraph 6 instead of the existing sentence we would substitute the following: " Accordingly, the Joint Committee recommends that the strongest pressure be brought to bear at Council level to exclude Ireland from"——

To allow Ireland a complete derogation from the withholding tax.

——" to seek a general derogation for Ireland from the provisions of the Directive in so far as they relate to withholding taxes."

It would possibly be detrimental to our further development and expansion.

I do not like that word " derogation ". There is a certain unpopularity attached to it. Could we not use another word?

The Commission mentions derogation in the case of our own citizens.

That is the technical word used.

The Directive allows for a derogation in respect of Irish company dividends paid to Irish residents. " Derogation " is the correct word.

It is the word they use.

Some occasion might arise when we might want to apply this withholding tax in our circumstances. Then we would no longer require a derogation. The proper mechanism is to seek a derogation.

That is right. Paragraph 6 amended by the deletion of the final sentence of the paragraph and the substitution of the following:

"Accordingly, the Joint Committee recommends that the strongest pressure be brought to bear at Council level to seek a general derogation for Ireland from the provisions of the proposed Directive in so far as they relate to withholding taxes."

Paragraph 6, as amended, agreed to.

Paragraph 7 agreed to.

Is the Report, as amended, agreed to?

Draft Report, as amended, agreed to.

Ordered: To report accordingly.

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