Chapter 1 - Nature and Principles of Taxation
Chapter 1 - Nature and Principles of Taxation
LEARNING OBJECTIVES:
TAXATION DEFINED
As a state power- it refers to the inherent power of a sovereign state acting through its legislature to impose a
proportionate burden upon persons, property rights, or transaction to raise revenue to support government
expenditure and as a tool for economic welfare.
As a process- it refers to the act of imposing a tax by a sovereign state to raise revenue for the use of the government.
PURPOSES OF TAXATION
Primary Purpose- to raise revenue/ funds for the expenses of the government (also called Revenue purpose).
Basically, the purpose of taxation is to provide funds or property with which the state promotes the general welfare
and protection of its citizens.
Secondary Purpose- as a tool for general social and economic welfare (also called
Regulatory/Sumptuary/Compensatory Purpose)
A. Regulation- in the case of taxes levied on exercises or privileges like those imposed on tobacco and alcoholic
products or amusement places like night clubs, cabarets, cockpits etc.
B. Promotion of General Welfare- in one decided case, the supreme court ruled that taxation may be used as to
implement police power in order to promote generate welfare of the people.
C. Reduction of Social Inequality- this is made possible through the progressive system of taxation where the objective
is to prevent the undue concentration of wealth in the hands of few individuals.
D. Encourage Economic Growth- the purpose is to grant incentives or exemptions to encourage investments and
hereby promote the country’s economic growth.
The government provides benefits to the people in the form of public services and the people to provide the funds that
finance the government. This mutuality of support between the people and the government is referred to us the BASIS
of TAXATION.
Roxas & Valencia (2020, p1-2) explains the ff. Inherent Powers of the State.
“The sovereign state is born and will exist continuously with essential powers necessary for its survival. These powers
are called “Inherent powers” because they exist as the central force in order that a government can command,
maintain peace and order, and survive, irrespective of any constitutional provision.”
Subject to inherent and constitutional limitations, the power of taxation is regarded as supreme, plenary,
unlimited, and comprehensive.1 As long as the legislature, in imposing a tax, does not violate applicable
constitutional limitations or restrictions, the courts have no concern with the wisdom or policy of the
exaction, the political or other collateral motives behind it, the amount to be raised, or the persons,
property, or other privileges to be taxed.2
“Police Power refers to the inherent power of the sovereign state to legislate for the protection of health, welfare and
morals of the community. It is exercised usually to guard against excesses or abuses of the individual liberty.”
“This process is restricted by the “due process clause” of the constitution which provides that no person shall be
deprived of life, liberty or power without due process of law.”
“Examples of Police Power are Preservation of natural resources, segregation of lepers from the public, imprisonment
of convicted criminals, and regulation of the various professions.”
“Eminent Domain refers to the power of the sovereign state to take private property for a public purpose. It is founded
upon the idea that the common necessities and interests of the community transcend individual rights in property.”
“Consequently, the state may expropriate private property when it is necessary to promote general welfare. Since
eminent domain is inherent in sovereignty, pertinent provisions in the constitution are not grants of the power, but
rather limitations upon its exercise.”
A) Purpose:
Taxation No limit.
Police Power Limited to the cost of regulation, issuance of the license, and/or
surveillance.
Eminent Domain No exaction but private property is taken for public use.
C. Benefits Received
F. Scope
Taxation covers three (3) separate areas or aspects of government activity, namely:
1. Levying or imposition of the tax. This involves the passage of tax laws which is generallya
legislative act. In the Philippines, the taxing power is exercised by Congress.
3. Collection and payment – the act of compliance with the tax law by the taxpayer.
Taxation is a mode of allocating government costs or burden to the people. In distributing the costs or burden, the
government regards the following general considerations in the exercise of its taxation power.
1. Benefit Received Theory- presupposes that the more benefit one receives from the government, the more taxes
he should pay.
2. Ability to Pay Theory- presupposes that taxation should also consider the taxpayer’s ability to pay. taxpayers
should be required to contribute based on their relative capacity to sacrifice for the support of the government.
In short, those who have more should be taxed more even if they benefit less from the government. Those who
have less shall contribute less even if they receive more of the benefits from the government.
Taxes are essential and indispensable to the continued subsistence of the government. Without taxes, the government
would be paralyzed for lack of motive power to activate or power it.
Taxes are the lifeblood of the government, and their prompt and certain availability are an imperious need. upon
taxation depends on the government’s ability to serve the people for whose benefit taxes are collected. (Banggawan,
2021)
Roxas & Valencia (2020, p 33) explains the Essential Characteristics of Taxes.
a.) Enforced Contribution- the imposition shall not be dependent upon the will of the taxpayer.
b.) Imposed by a Legislative Body- the congress makes tax laws.
c.) Proportionate in Character- the “ability to pay principle: is the basic rule in collecting taxes. Those who earn
more, contributes more than those who earn lesser.
d.) Payable in the form of money- Money is the preferred payment of taxes. If property is taken to satisfy a tax
liability, the property is sold through public auction to satisfy the tax obligation.
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e.) Imposed for the purpose of raising revenue- taxes are the primary source of government funds to finance its
expenditures and projects.
f.) Used for a public purpose- money is taken from the public so it can be returned to them in the form of
public benefits.
g.) Enforced on some persons, properties or rights- objects of taxation are either tangible or intangible
properties, including business transactions.
h.) Commonly required to be paid at regular intervals- the dates for paying of taxes are fixed by law to comply
with the principle of administrative feasibility.
i.) Imposed by the sovereign state within its jurisdiction- the enforcement of tax is subject to territorial
jurisdiction and international comity.
INHERENT LIMITATIONS
a.) Levied for Public Purpose- it is the first requisites of lawful taxation that the purpose for which it is laid shall
be a public purpose.
b.) Exemption of the Government from Taxes- property of the state and of its political subdivisions is devoted to
government uses and purposes is generally deemed to be exempt from taxation
c.) Non-Delegation of legislative power to tax- in the distribution of the powers of government into three
departments, namely, legislative, executive and judicial, the power of taxation is exclusively legislative.
Consequently, the taxing power as a rule may not be imposed.
CONSTITUTIONAL LIMITATION
Article III Section 1 of the Constitution provides that “No person shall be deprived of life, liberty, or property
without due process of law, nor shall any person de deny the equal protection of the laws.”
- The phrase “due process of law” mandates a fundamental right of protection that life , liberty or property
shall only be taken away from any person ( natural or juridical) if its exercise is not contrary to the
fundamental law of the land and it is done after compliance with the established procedure established by
law.
- Due process requires giving notice to the taxpayer, providing him hearing, so as to be given fair
opportunity to assert his substantial rights before a competent court before he shall be denied or deprived
of his property of non payment of tax.
- Essentially, due process requires that the law should be reasonable and not oppressive (substantive) and
it requires opportunity to be heard in proper court of litigation before judgment is rendered affecting
one’s person or property.
- The purpose of due process of law is to secure the individual from the abusive exercise of the taxing power
of the government. This prevents the latter to encroach against the life, liberty and property of individual
persons, and thus protect property from confiscation without proper trial.
- Equal protection of law means that all persons subject to legislation shall be treated alike under similar
circumstances and conditions both in the privileges conferred and liabilities imposes. The purpose of this
constitutional mandate is to protect persons belonging to the other same class against intentional and
arbitrary discrimination.
Article VI, Section 28, par.1 of the Constitution states that “The rule of taxation shall be uniform and
equitable. Congress shall evolve a progressive system of taxation .”
A tax is said to be uniform in application if it operates with the same force and effect in every place
where the subject may be found, not when it singles out one particular class for taxation or exemption.
-“ Equality in Taxation” is similar to progressive system of taxation, the tax laws and their implementation
must be fair, just, reasonable and proportionate to one’s ability to pay.
-The primary requisite of equity principle is that a progressive tax rate shall be applied equally to all
persons, firms, and corporations and transactions placed in similar classification and situation.
- The progressive system of taxation means that the tax laws shall give emphasis on direct rather than
indirect taxes or on the ability to pay principle of taxation. An example of this kind is the current individual
income tax system that imposes rates progressing upwards as the tax base (tax payers taxable income increases)
“Article III, Section 20, of the Constitution provides that “No person shall be imprisoned for debt or non-
payment of a poll tax.”
“The term “poll tax” means a tax imposed on a person as a resident within a territory of the taxing authority
without regard to his property, business or occupation. A good example of a poll tax is community tax.”
“It is to be noted that the prohibition of imprisonment applies only to the non-payment of poll tax.
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Consequently, imprisonment fro non payment of other taxes (not poll in nature) or imposition of
fine would not be contrary to the constitution.”
J.) Tax collection shall generally be treated as general funds of the government
“Article VI, Section 29, par. 3 of the Constitution states that “All money collected of any tax levied for a special purpose
shall be treated as a special fund and paid out for such purpose only, if the purpose for which a special fund was
created has been fulfilled or abandoned, the balance, if any, shall be transferred to the general funds of the
government.”
“Thus collection of fee with the nature of taxes intended for the promotion of sugar industry shall be treated as a
special fund, such fund shall be used for its intended purpose and none of its part shall be used for exclusive benefit of
any private person. Once the purpose is achieved, the unspent amount shall be transferred to the general fund
of the government.”
1. Fiscal Adequacy – which means that the sources of revenue should be sufficient to meetthe
demands of public expenditures.
2. Equality or Theoretical Justice – which means that the tax imposed should be
proportionate to the taxpayer’s ability to pay; and
3. Administrative Feasibility – which means that the tax laws should be capable ofconvenient,
just, and effective administration
CLASSIFICATION OF TAXES
1. Tax laws are prospective, generally, but can have retrospective application.
The constitutional prohibition against the passage of laws having retrospective application
(also called ex post facto legislation) is limited to penal or criminal statutes.
Tax laws are not penal in character. Being civil in nature, the constitutional prohibition
against ex post facto legislation does not apply to tax laws. 20 They can therefore be given
retrospective application if expressly declared by the tax law.
However, tax laws, like other statutes, are to be construed as having only a prospective
operation unless the purpose and intention of the legislature to give retrospective effect is
expressly declared or is necessarily implied from the language used.21
Our internal revenue laws are not political in nature and as such were
continued in force during the period of enemy occupation and in effect
were actually enforced by theoccupation government.27
6. Tax laws are special laws and prevail over general laws.29
4. Tax exemption. Exemption from taxation is the freedom from the burden of paying
tax.
5. Tax avoidance (Tax Minimization). Tax avoidance occurs when the means
used to minimize taxes are legaland not prohibited by law.
6. Tax evasion ( Tax Dodging). Tax evasion connotes fraud through the use
of pretenses and forbiddendevices to lessen or defeat taxes.30
“The principle of “Prospectivity of Tax Laws” states that a tax bill must only be applicable
and operative after becoming a law. Thus, the effectivity of the tax law commences upon its
approval and its scope would only cover the present and future transactions.”
“The retroactive application of tax laws shall not be applied unless there is a clear intent of the
legislature that such law shall also be imposed on past transactions.”
2. Imprescriptibility of Taxes
“The rule on “tax imprescriptibility” states that unless otherwise provided by the tax law itself,
taxes in general are not cancellable.”
“Although the tax code provides for the limitation in the assessment and collection of taxes
imposed, such prescriptive period will only be applicable to those taxes that were returnable.
The prescriptive period shall start from the time the taxpayer files the tax return and
declares his tax liability.”
“The court held that there is no time limit on the right of the BIR Commissioner to assess taxes
on unreasonable accumulated earnings of the corporation.”
3. Double Taxation
- It occurs when the same taxpayer is taxed twice by the same tax jurisdiction for the same
thing. (Banggawan, 2021)
ELEMENTS OF DOUBLE TAXATION
Note: Nothing in our law expressly prohibits double taxation. In fact, indirect double taxation
is prevalent in practice. However, double direct taxation is discouraged because it is
oppressive and burdensome to taxpayers. It is also believed to counter the rule of equal
protection and uniformity in constitution.
2. Tax Credit
1. Tax Amnesty
- It is a general pardon granted by the government for erring taxpayers to give them a
chance to reform and enable them to have a fresh start to be a part of society with a clean
slate. It is an absolute forgiveness or waiver by the government on its right to collect and
its retrospective in application.
- Amnesty covers both civil and criminal liabilities
- Amnesty operates retrospectively by forgiving past violations
- Amnesty is also conditional upon the taxpayer paying the government a portion of tax
2. Tax Condonation
-Is forgiveness of the tax obligation of a certain taxpayer under certain justifiable grounds.
This is also referred to as tax remission. Because they deprive the government of
revenues, tax exemption, tax refund, tax amnesty, and tax condonation, are construed
against the taxpayer, and in favor of the government.
-covers only civil liabilities
- Applies prospectively to any unpaid balance of the tax hence, the portion already paid by
the taxpayer will not be refunded.
-Requires no payment
Banggawan, Rex (2021). Income Taxation: Laws, Principles and Applications. Baguio City
Tabag, Enrico and Garcia, Earl James (2021). Income Taxation. Quezon City Philippines
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