The Supreme Court has ruled that a holding company managing dividends from shares, even if it places those dividends in interest-yielding markets, is not automatically considered to be ‘doing business’ as a bank or other financial institution for local business tax (LBT) purposes. The Court emphasized that the key is whether these activities are the company’s primary purpose or merely incidental to its role as a holding company. This decision clarifies the scope of local government taxing powers and protects holding companies from being unfairly taxed as financial institutions.

Taxing Passive Income? Davao’s Fight for Local Business Tax on Holding Company Dividends

This case revolves around the City of Davao’s attempt to collect local business taxes (LBT) from ARC Investors, Inc. (ARCII), a holding company, based on dividends and interests it earned in 2010. The city assessed ARCII P4,381,431.90, arguing that these earnings qualified ARCII as a financial institution subject to LBT under Section 143(f) of the Local Government Code (LGC). ARCII contested the assessment, arguing that it was not a bank or financial institution and that its receipt of dividends and interests was merely incidental to its ownership of shares in San Miguel Corporation (SMC) and money market placements. The legal question at the heart of the matter is whether ARCII, by virtue of its investment activities and the income derived therefrom, could be considered a “bank or other financial institution” as defined under the LGC, making it liable for LBT.

The Local Government Code grants local government units the power to impose LBT on the privilege of doing business within their jurisdictions. Section 143(f) of the LGC allows municipalities to tax banks and other financial institutions based on their gross receipts derived from various sources, including interest and dividends. The definition of “banks and other financial institutions” is found in Section 131(e) of the LGC, which includes “non-bank financial intermediaries, lending investors, finance and investment companies, pawnshops, money shops, insurance companies, stock markets, stock brokers and dealers in securities and foreign exchange.” The Supreme Court has consistently held that the term ‘doing business’ implies a trade or commercial activity regularly engaged in as a means of livelihood or with a view to profit.

However, to be classified as a non-bank financial intermediary (NBFI) and thus subject to LBT, an entity must meet specific criteria. These requisites, as identified by the Supreme Court, include authorization from the Bangko Sentral ng Pilipinas (BSP) to perform quasi-banking functions, the entity’s principal functions must include lending, investing, or placement of funds, and the entity must perform these functions on a regular and recurring basis, not just occasionally. In this case, the Court found that ARCII did not meet these requirements. ARCII was not authorized by the BSP to perform quasi-banking activities, and its primary purpose, as defined in its Articles of Incorporation (AOI), did not principally relate to NBFI activities.

Furthermore, the Court emphasized that ARCII’s functions were not performed on a regular and recurring basis. ARCII’s activities were connected to its role as one of the Coconut Industry Investment Fund (CIIF) holding companies, established to own and hold SMC shares of stock. In the landmark case of COCOFED v. Republic of the Philippines, the Supreme Court characterized the SMC preferred shares held by CIIF holding companies and their derivative dividends as assets owned by the National Government, to be used solely for the benefit of coconut farmers and the development of the coconut industry. This underlying purpose, the Court noted, distinguished ARCII’s activities from those of a typical financial institution, where the management of dividends, even through interest-yielding placements, did not, by itself, constitute “doing business” as an NBFI.

The Supreme Court, citing its ruling in City of Davao v. Randy Allied Ventures, Inc., drew a clear distinction between a holding company and a financial intermediary. It emphasized that a holding company invests in the equity securities of other companies to control their policies, whereas a financial intermediary actively deals with public funds and is regulated by the BSP. Investment activities by holding companies are considered incidental to their primary purpose, unlike financial intermediaries whose core business involves the active management and lending of funds. The critical distinction lies in the regularity of function for the purpose of earning a profit, which was lacking in ARCII’s case.

The court also gave weight to a Bureau of Local Government Finance Opinion, which stated that unless a tax is imposed on banks and other financial institutions, any tax on interest, dividends, and gains from the sale of shares of non-bank and non-financial institutions assumes the nature of income tax. This is because, unlike banks and financial institutions, non-bank and non-financial institutions receive interest, dividends, and gains from the sale of shares as passive investment income, not as part of their ordinary course of business. The Court found that the City of Davao had acted beyond its taxing authority in assessing ARCII for LBT, given that ARCII’s activities did not qualify it as an NBFI engaged in doing business within the meaning of the LGC.

FAQs

What was the key issue in this case?	The key issue was whether ARC Investors, Inc. (ARCII), a holding company, could be considered a non-bank financial intermediary (NBFI) subject to local business tax (LBT) based on dividends and interests it earned.
What is a holding company?	A holding company is a company that owns a controlling interest in other companies. Its primary purpose is to control the policies of those companies rather than directly engaging in operating activities.
What is a non-bank financial intermediary (NBFI)?	An NBFI is an entity authorized to perform quasi-banking functions, whose principal functions include lending, investing, or placement of funds on a regular and recurring basis. These entities are regulated by the Bangko Sentral ng Pilipinas (BSP).
What is the Local Government Code (LGC)?	The LGC is a law that grants local government units the power to impose local business taxes on the privilege of doing business within their territorial jurisdictions.
What did the Court rule about ARCII’s tax liability?	The Supreme Court ruled that ARCII was not liable for LBT because its investment activities were merely incidental to its role as a holding company and did not qualify it as an NBFI.
What is the significance of the COCOFED case?	The COCOFED case established that the SMC preferred shares held by CIIF holding companies and their derivative dividends are assets owned by the National Government and should be used solely for the benefit of coconut farmers and the development of the coconut industry.
What is the difference between a holding company and a financial intermediary?	A holding company invests in other companies to control their policies, while a financial intermediary actively deals with public funds and is regulated by the BSP due to its quasi-banking functions.
What was the basis of the City of Davao’s assessment?	The City of Davao assessed ARCII based on Section 143(f) of the LGC, which allows municipalities to tax banks and other financial institutions on their gross receipts, including interest and dividends.

This ruling clarifies the distinction between holding companies and financial institutions for local tax purposes. It reinforces the principle that incidental investment activities by holding companies do not automatically subject them to LBT as financial intermediaries. This decision provides valuable guidance for local government units and holding companies alike.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

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: City of Davao vs. ARC Investors, Inc., G.R. No. 249668, July 13, 2022