TL;DR
The Supreme Court affirmed that Philippine Airlines (PAL) remains exempt from excise taxes on its imported commissary supplies like alcohol and tobacco, intended for international flights. This exemption is rooted in PAL’s franchise under Presidential Decree No. 1590, a special law granting tax privileges. The Court clarified that subsequent general tax laws, such as Republic Act No. 9334 and Republic Act No. 9337 amending the National Internal Revenue Code (NIRC), did not expressly repeal or override PAL’s specific franchise exemptions. This ruling reinforces the legal principle in Philippine jurisprudence that special laws prevail over general laws unless explicitly repealed, ensuring PAL’s continued tax benefits under its existing franchise.
Franchise vs. Fiscal Mandate: When PAL’s Tax Shield Takes Flight
This case revolves around the clash between Philippine Airlines’ (PAL) legislated tax exemptions and the government’s efforts to broaden the tax base through amendments to the National Internal Revenue Code (NIRC). At the heart of the dispute is Section 13 of Presidential Decree No. 1590 (PD 1590), PAL’s franchise, which grants significant tax privileges, including exemptions from duties and charges on imported commissary and catering supplies. The Commissioner of Internal Revenue (CIR) and Commissioner of Customs (COC) argued that Republic Act No. 9334 (RA 9334), which amended Section 131 of the NIRC, effectively revoked PAL’s excise tax exemption on imported alcohol and tobacco products. This amendment declared that importations of such goods, even for duty-free shops, are subject to all applicable taxes notwithstanding any special or general law. PAL, on the other hand, contended that its franchise, a special law, remained unaffected by this general tax amendment and that it was still entitled to the tax exemptions.
The legal framework hinges on a fundamental principle of statutory construction: lex specialis derogat legi generali, meaning a special law prevails over a general law. PD 1590, enacted in 1978, specifically governs PAL’s franchise and tax obligations. Section 13 of PD 1590 is explicit in stating that the taxes paid by PAL under its franchise are âin lieu of all other taxes, duties, royalties, registration, license, and other fees and charges of any kindâŚincluding but not limited toâŚall taxesâŚduties, chargesâŚdue on all importations by the grantee ofâŚcommissary and catering suppliesâŚâ. This provision seemingly grants a broad tax exemption on importations essential for PAL’s operations, contingent on these supplies not being locally available in reasonable quantity, quality, or price and being used for its transport and non-transport operations.
The CIR and COC argued that the ânotwithstanding any special or general lawâ clause in RA 9334âs amendment of Section 131 NIRC, coupled with the removal of tax exemptions for certain imported goods, effectively repealed PALâs franchise exemption concerning excise taxes on alcohol and tobacco. However, the Supreme Court disagreed, consistently adhering to its previous rulings on similar cases involving PALâs tax exemptions. The Court emphasized that repeal by implication is disfavored and that for a later general law to repeal an earlier special law, the repeal must be express or through unavoidable implication, demonstrating a clear legislative intent to abrogate the special law. In this case, RA 9334 did not explicitly mention or repeal PD 1590. The general clause was deemed insufficient to override the specific tax exemptions granted in PAL’s franchise.
The Court reiterated that PAL’s franchise, PD 1590, remains the governing law for its tax obligations. It highlighted Section 22 of Republic Act No. 9337 (RA 9337), which further amended the NIRC. Section 22 specifically addressed franchises of domestic airlines, abolishing the franchise tax but explicitly stating that franchisees âshall otherwise remain exempt from any taxes, duties, royalties, registration, license, and other fees and charges, as may be provided by their respective franchise agreement.â
SEC. 22. Franchises of Domestic Airlines. – The provisions of P.D. No. 1590 on the franchise tax of Philippine Airlines, Inc., R.A. No. 7151 on the franchise tax of Cebu Air, Inc.âŚor any other franchise agreement or law pertaining to a domestic airline to the contrary notwithstanding:
(A) The franchise tax is abolished;(B) The franchisee shall be liable to the corporate income tax;
(C) The franchisee shall register for value-added tax under Section 236, and to account under Title IV of the National Internal Revenue Code of 1997, as amended, for value-added tax on its sale of goods, property or services and its lease of property; and
(D) The franchisee shall otherwise remain exempt from any taxes, duties, royalties, registration, license, and other fees and charges, as may be provided by their respective franchise agreement.
This provision in RA 9337, enacted after RA 9334, further solidified the legislative intent to preserve the tax exemptions granted under existing franchise agreements, except for the franchise tax itself which was abolished. The Court interpreted this as a clear indication that PALâs other tax exemptions, including those on importations under PD 1590, were intended to continue. Regarding the condition in Section 13 of PD 1590 that the imported supplies must not be locally available, the Supreme Court deferred to the factual findings of the Court of Tax Appeals (CTA). The CTA, as a specialized court, had determined that PAL sufficiently proved its compliance with this condition for alcoholic beverages, although not for tobacco products in the initial CTA decision. The Supreme Court, respecting the CTA’s expertise in tax matters and absent any compelling reason to overturn its factual findings, upheld the CTAâs decision.
Ultimately, this case underscores the enduring strength of franchise-specific tax exemptions in Philippine law. It serves as a reminder that general tax laws, even with ânotwithstandingâ clauses, do not automatically override the specific privileges granted by prior special laws like legislative franchises. For businesses operating under franchises with tax incentives, this decision provides reassurance that these legislated benefits remain valid unless expressly and unequivocally repealed.
FAQs
| What was the central legal question in this case? | The core issue was whether Republic Act No. 9334, amending the NIRC, effectively revoked Philippine Airlines’ (PAL) tax exemption on imported commissary supplies, particularly alcohol and tobacco, as granted under its franchise, Presidential Decree No. 1590. |
| What was the Supreme Court’s ruling? | The Supreme Court ruled in favor of Philippine Airlines, affirming that RA 9334 did not revoke PAL’s tax exemption on imported commissary supplies under PD 1590. The Court upheld the principle that special laws (like PAL’s franchise) prevail over general laws (like the NIRC amendments) unless there is an express repeal. |
| What is the legal basis for PAL’s tax exemption? | The tax exemption is based on Section 13 of Presidential Decree No. 1590, PAL’s franchise, which grants tax exemptions on importations of commissary and catering supplies, provided they are for PAL’s use and not locally available. |
| Did Republic Act No. 9334 repeal PAL’s tax exemption? | No, the Supreme Court held that RA 9334, a general tax law, did not expressly repeal PD 1590, a special franchise law. General ânotwithstandingâ clauses are insufficient to override specific franchise exemptions without explicit mention of the franchise law intended to be repealed. |
| How does Republic Act No. 9337 relate to this case? | RA 9337, enacted after RA 9334, further amended the NIRC and, in Section 22, specifically addressed airline franchises. It abolished franchise taxes but explicitly maintained other tax exemptions provided in franchise agreements, reinforcing the continued validity of PAL’s exemptions under PD 1590. |
| What is the significance of the ‘lex specialis derogat legi generali’ principle in this case? | This principle, meaning a special law prevails over a general law, was crucial. The Court applied it to prioritize PAL’s franchise (special law) over the general amendments to the NIRC (general law), preserving PAL’s tax exemptions. |
| What are the practical implications of this ruling for Philippine Airlines? | This ruling allows Philippine Airlines to continue enjoying tax exemptions on eligible imported commissary supplies, reducing its operational costs and maintaining its financial advantages under its franchise. |
For inquiries regarding the application of this ruling to specific circumstances, please contact Atty. Gabriel Ablola through gaboogle.com or via email at connect@gaboogle.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: COMMISSIONER OF INTERNAL REVENUE AND COMMISSIONER OF CUSTOMS VS. PHILIPPINE AIRLINES, INC., G.R. Nos. 215705-07, February 22, 2017
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