The Organisation for Economic Cooperation and Development, the leading research body for economic coordination funded by 34 countries, recently unveiled its Base Erosion and Profit Shifting (‘BEPS’) plan aimed at reducing international tax avoidance.
Background
It is estimated that between $100-240bn in tax revenue is lost due to multinational companies with complex corporate structures utilising aggressive tax planning strategies such as the ‘Double Irish with a Dutch Sandwich’ (the ‘Sandwich’) – this particular technique involves a combination of Irish and Dutch subsidiaries with prorits shifting from one Irish company to a Dutch company before moving profits to a second Irish company headquartered in a tax haven. As well as Starbucks, users of this method include major tech companies such as Adobe Systems, Amazon, Apple, Facebook, Google, IBM, Microsoft, Oracle and Yahoo!.
Particularly focusing on multinational tech giants, what has reduced tax revenues is the fact that tax legislation has not kept up to date with the globalisation of business. As stated by Pascal Saint-Amands, the director of the OECD’s Centre for Tax Policy and Administration, in an interview with the BBC:
“We have moved from a world where we were so good at eliminating double taxation with tax treaties and transfer pricing rules that we have facilitated double non-taxation. You have rules – they are bilateral, but businesses are global. And of course they can play on the differences between the sovereignties…” [1]
This is echoed by BEPS which claims that international tax avoidance is due to ‘domestic laws and rules which are not co-ordinated across borders, international standards which have not always kept pace with the changing global business environment and an endemic and worrying lack of date and information.’
As a result of international taxation not keeping up with globalisation, large multinational companies were able to take advantage. For example, in 2012, Starbucks was discovered to have only paid £8.6m in corporation tax in the UK over 14 years despite generating £3bn in UK sales[2]. It was also reported that, in 2011, Amazon incurred a ‘tax expense’ of £1.8m after sales totalling £3.35bn and that Google paid £6m in corporation tax on a turnover of £395m[3].
Although aggressive tax planning is legal, Saint-Amans says that these companies were ‘pushing the boundaries of what was legal’. Hence, with the recession still fresh in public minds, international resentment resulted in the G20 (the 20 major economies) requesting the OECD to develop a plan to curtail tax avoidance in 2013.
The Future
BEPS will need to be approved by G20 finance ministers on 8th October before a vote on adoption in November. Although the level of change that the plan will institute is unclear, the Dutch Sandwich will be abolished and will go some way to unlocking the $2.1tn that the Fortune 500 currently has stored in tax havens. This was confirmed by Saint-Amands: “The problem we had is that you could easily shift risk or capital without any risk… You could have a cash box in a tax haven where there is nobody. This is over.” Moreover, perhaps in anticipation of BEPS, Ireland’s 2015 budget announced that the Double Irish will be fully eradicated by 2020. The Sandwich is therefore off the menu.
Due to the two stages of approval before adoption of BEPS, lobbyists will make their voice heard. This will be especially acute in the US where Congressional Republicans have criticised the OECD for providing other countries the potential to increase taxes on American companies. Moreover, lobby groups that represent Amazon, Apple, eBay, Google Facebook, IBM, Intel, Microsoft, Netflix, Uber and Yahoo! have already argued that the OECD’s plans are flawed. With the world’s largest tech companies criticising them, the OECD will be sure to feel the pressure in October and November.
Because of the risks of multiple taxation and reduction in cross-border investment, it is important to ensure that international taxation will be balanced. It is currently unclear who will have the right to tax these multinationals, but it is near certain that, due to the amount of money involved, there will be increased international tax disputes between regulators and businesses. There are also concerns regarding how new rules can be reconciled with national legislation. For example, although the UK’s recently introduced diverted profit tax (also known as the ‘Google tax’) does seem to be somewhat in line with BEPS, Saint-Amans said that the UK’s measures would have to be ‘coordinated’ with the OECD’s proposals – what this really means is uncertain.
Conclusion
There is some expectation that BEPS will be a significant departure from the loopholes afforded by out of touch policy. H. David Rosenbloom expects that it will be ‘the most important development in international tax in quite a few decades.’[4] However, due to the importance of foreign investment, will governments be genuinely committed to reducing international tax avoidance? Tax Research UK’s Richard Murphy is pessimistic and claims that ‘[a]nyone who thinks that this will solve the problem with international tax is living in cloud cuckoo land.’[5]
With so much opposition to the plan, it is fair to say that international businesses are worried. Calls for increased tax transparency have certainly increased within the past few years, but BEPS’s effectiveness will not be revealed until multinationals’ tax expenses can be reviewed.
[1] http://www.bbc.co.uk/news/business-32730305
[2] http://www.thetimes.co.uk/tto/money/tax/article3570128.ece
[3] http://www.bbc.co.uk/news/magazine-20560359
[4] http://www.bloomberg.com/news/articles/2015-10-05/google-to-apple-could-see-tax-loopholes-curbed-in-oecd-proposal
[5] http://www.bbc.co.uk/news/business-34445078


