In Bureau of Internal Revenue v. Samuel B. Cagang, the Supreme Court clarified the scope of tax amnesty under Republic Act (RA) 9480, particularly its impact on withholding tax liabilities and the responsibility of corporate officers. The Court ruled that while CEDCO, Inc. could avail of the tax amnesty for income tax and VAT deficiencies, the amnesty did not extend to its withholding tax liabilities. Furthermore, the Court found that there was probable cause to charge Samuel Cagang, as the former treasurer of CEDCO, with violation of Section 255 of the National Internal Revenue Code (NIRC) for failure to remit withholding taxes, underscoring the responsibility of corporate officers in ensuring tax compliance.
CEDCO’s Tax Troubles: Can Amnesty Shield a Company and its Treasurer?
This case revolves around the tax liabilities of CEDCO, Inc. and the potential criminal liability of its officers, Samuel B. Cagang and Romulo M. Paredes. The Bureau of Internal Revenue (BIR) assessed CEDCO deficiency taxes for taxable years 2000 and 2001, including income tax, Value-Added Tax (VAT), expanded withholding tax, and withholding tax on compensation. CEDCO protested the assessment, but the BIR issued a Final Decision on Disputed Assessment (FDDA) denying the protest. Subsequently, CEDCO availed of the tax amnesty under RA 9480, intending to cover all national internal revenue taxes for the specified period. However, the BIR argued that CEDCO was disqualified from availing of the amnesty due to existing withholding tax liabilities and filed a complaint-affidavit against Cagang and Paredes for violation of Section 255 of the NIRC.
The Department of Justice (DOJ) initially dismissed the complaint for lack of probable cause but later reversed its decision and found probable cause for the filing of an information against Cagang and Paredes. This reversal prompted Cagang to file a petition for certiorari with the Court of Appeals (CA), which ruled in his favor, annulling the DOJ’s resolution. The CA held that CEDCO was qualified to avail of the tax amnesty and that Cagang could not be held liable. The BIR then elevated the case to the Supreme Court, questioning whether CEDCO was indeed entitled to the tax amnesty under RA 9480 and whether there was probable cause to charge Cagang with violating Section 255 of the NIRC.
The Supreme Court addressed the issues by examining the scope and limitations of RA 9480. The Court emphasized that a tax amnesty is an “absolute waiver by a sovereign of its right to collect taxes and power to impose penalties on persons or entities guilty of violating a tax law.” However, the Court also noted that tax amnesty laws must be construed strictly against the taxpayer and liberally in favor of the taxing authority. Here, Section 8 of RA 9480 explicitly excludes “withholding agents with respect to their withholding tax liabilities” from the coverage of the tax amnesty. This exclusion is further clarified in Section 5 of the Department of Finance’s Department Order No. 29-07, the Implementing Rules and Regulations (IRR) of RA 9480, which states that the tax amnesty shall not extend to withholding agents regarding their withholding tax liabilities.
The Court disagreed with the CA’s finding that CEDCO was not assessed as a withholding agent and that its tax deficiencies involved indirect taxes such as VAT and other excise taxes, not withholding taxes. A crucial piece of evidence was the FDDA, which explicitly stated that CEDCO had failed to comply with Section 57 of the NIRC, requiring the withholding of tax on income payable to natural or juridical persons. The FDDA also noted CEDCO’s failure to comply with Section 79 of the NIRC, requiring employers to deduct and withhold tax from wage payments. Because these explicit deficiencies pertained to withholding taxes, the Supreme Court found that CEDCO was disqualified from availing of the tax amnesty for these specific liabilities.
The Supreme Court then examined whether there was probable cause to charge Cagang with violating Section 255 of the NIRC. This section penalizes any person required to pay tax, make a return, keep a record, or supply correct information who willfully fails to do so. Furthermore, Section 253(d) of the NIRC specifies that in the case of corporations, the penalty shall be imposed on the partner, president, general manager, branch manager, treasurer, officer-in-charge, and the employees responsible for the violation.
Cagang argued that he could not be held liable because he was not the treasurer of CEDCO but held positions such as Corporate Secretary and Director of Finance, which are not included in the enumeration of corporate officers under Section 253(d) of the NIRC. The Court was not convinced, citing evidence that Cagang had been appointed as the “New Corporate Secretary/Treasurer effective April 1, 1999” per Board Resolution No. 73. While a later certification indicated that Glory M. Dela Cruz became treasurer, the General Information Sheet filed with the Securities and Exchange Commission for the fiscal year 2003 still listed Cagang as the treasurer. Based on these facts, the Court concluded that there was probable cause to charge Cagang with violating Section 255 of the NIRC because he had been the treasurer of CEDCO, albeit for a limited period. It is important to note that probable cause does not require absolute certainty or sufficient evidence to procure a conviction but simply a reasonable belief that the person charged was guilty of the crime.
In reaching its decision, the Court also acknowledged the prior resolution by the Court of Tax Appeals (CTA) in Criminal Cases Nos. 0-350 to 0-353, where the tax court granted Cagang and Paredes’ demurrer to evidence and dismissed the charges against them for willful refusal to pay income tax and VAT. This CTA resolution had become final and executory. As a result, the Supreme Court affirmed that CEDCO’s outstanding deficiency taxes for income tax and VAT were deemed fully settled due to its successful availment of the tax amnesty program under RA 9480.
This ruling underscores the limited scope of tax amnesty and the importance of carefully assessing eligibility based on the specific nature of tax liabilities. The Supreme Court’s decision serves as a reminder that corporate officers can be held liable for failure to comply with tax obligations, particularly withholding tax liabilities, reinforcing the need for diligent tax management and compliance within corporate structures. While the tax amnesty provided relief for certain tax deficiencies, it did not absolve CEDCO of its withholding tax obligations or Cagang of his potential liability as a former treasurer.
FAQs
What was the key issue in this case? | The key issue was whether CEDCO was entitled to avail of the tax amnesty under RA 9480 for all its tax liabilities, including withholding taxes, and whether Samuel Cagang, as a former treasurer, could be held liable for violating Section 255 of the NIRC. |
What is a tax amnesty? | A tax amnesty is an absolute waiver by the government of its right to collect taxes and impose penalties on those who violated tax laws, offering tax evaders a chance to rectify their records and start anew. |
What does RA 9480 cover? | RA 9480 generally covers all national internal revenue taxes for taxable years 2005 and prior, including income tax, VAT, estate tax, excise tax, donor’s tax, documentary stamp tax, capital gains tax, and other percentage taxes. |
Who is excluded from RA 9480? | The law excludes withholding agents concerning their withholding tax liabilities, those with pending cases before the Presidential Commission on Good Government, and those with pending criminal cases for tax evasion, among others. |
Can a company avail of tax amnesty for withholding taxes? | No, RA 9480 explicitly excludes withholding agents from availing of the tax amnesty for their withholding tax liabilities. |
What is Section 255 of the NIRC? | Section 255 of the NIRC penalizes any person required to pay tax, make a return, keep a record, or supply correct information who willfully fails to do so, including failure to withhold or remit taxes withheld. |
Who can be held liable for violating the NIRC in a corporation? | Section 253(d) of the NIRC specifies that the partner, president, general manager, branch manager, treasurer, officer-in-charge, and the employees responsible for the violation can be held liable. |
What is probable cause? | Probable cause refers to the existence of such facts and circumstances as would excite the belief in a reasonable mind, acting on the facts within the knowledge of the prosecutor, that the person charged was guilty of the crime. |
What was the effect of the CTA resolution in this case? | The CTA resolution granting Cagang and Paredes’ demurrer to evidence resulted in the dismissal of charges against them for willful refusal to pay income tax and VAT, and CEDCO’s deficiency taxes for these were deemed settled. |
The Supreme Court’s decision underscores the importance of understanding the specific limitations and requirements of tax amnesty programs. While tax amnesty can provide significant relief, it is crucial to assess eligibility accurately and ensure compliance with all applicable regulations. This case also highlights the potential liabilities of corporate officers for tax-related offenses, emphasizing the need for robust internal controls and diligent tax management practices.
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Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: BUREAU OF INTERNAL REVENUE, VS. SAMUEL B. CAGANG, G.R. No. 230104, March 16, 2022