【特別關(guān)注】拜登政府能否協(xié)調(diào)GILTI和GloBE？（中英對照）

【特別關(guān)注】拜登政府能否協(xié)調(diào)GILTI和GloBE？（中英對照）
TPPERSON按：OECD在2021年7月1日《關(guān)于應(yīng)對數(shù)字經(jīng)濟(jì)帶來的稅收挑戰(zhàn)的雙支柱解決方案的聲明》之支柱二中提出“GloBE與GILTI的共存”：支柱二同意將在司法管轄權(quán)的基礎(chǔ)上適用最低稅率。在這種情況下，將考慮美國GILTI 制度與GloBE規(guī)則共存的條件，以確保公平的競爭環(huán)境。因此，思邁特財稅咨詢的TP團(tuán)隊特翻譯該篇《拜登政府能否協(xié)調(diào)GILTI和GloBE？》分享同學(xué)們。

Can GILTI and the GloBE be harmonized in a Biden administration?
拜登政府能否協(xié)調(diào)GILTI和GloBE？
來源：MNE Tax March 3, 2021
作者：By Daniel Bunn, Tax Foundation, Washington, DC
Countries participating in the OECD Inclusive Framework’s negotiations on cross-border tax rules hope to reach an agreement by mid-2021. After negotiations stalled somewhat in 2020, there is hope that US Treasury Secretary Janet Yellen’s commitment to reaching an agreement will allow progress to be made this year.
參與經(jīng)合組織（OECD） 包容性框架（IF）跨境稅收談判的國家希望在2021年年中達(dá)成協(xié)議。該談判在2020年陷入停滯之后，美國財政部長珍妮特·耶倫( Janet Yellen )對達(dá)成協(xié)議的承諾有望在今年取得進(jìn)展。
One piece in the negotiations is the proposal for a global minimum tax. As part of the 2017 tax reform, the US adopted a tax on global intangible low tax income (GILTI), a sort of minimum tax on the foreign earnings of US companies.
談判的一項內(nèi)容是全球最低稅率的提案。作為2017年稅改的一部分，美國對全球無形資產(chǎn)低稅收入（以下簡稱“GILTI”）征稅，這是對美國公司海外收入征收的一種最低稅。
GILTI has inspired policymakers in other countries to look for ways to reach an agreement on a global version of GILTI. A detailed outline for such a proposal, the global anti-base erosion (GloBE) rules, was released in October 2020.
GILTI激勵其他國家的政策制定者尋求就全球版的 GILTI 達(dá)成協(xié)議。2020年10月發(fā)布了這一提案的詳細(xì)大綱，即全球反稅基侵蝕（以下簡稱“GloBE”）規(guī)則。
The goal of the Inclusive Framework’s negotiations on GloBE is to reach an agreement that would minimize differences in taxing cross-border income. However, the US negotiating position in the recent past has been to ask that GILTI be an approved minimum tax regime rather than to amend US rules to conform to the GloBE.
IF關(guān)于 GloBE談判的目標(biāo)是達(dá)成一項協(xié)議，將跨境收入征稅的差異降至最低。然而，美國最近的談判立場是，要求GILTI成為一種獲批準(zhǔn)的最低稅收制度，而不是修改美國規(guī)則以符合GloBE的要求。
This is a critical point because GILTI and the GloBE have some differences. These include differences both in the tax rate and the tax base—two important features of any tax policy. Those differences could increase if the proposals that President Biden made during his campaign were to become part of US law.
這是一個關(guān)鍵點(diǎn)，因為GILTI和GloBE有所不同，這包括稅率和稅基的差異，這是任何稅收政策的兩個重要特征。如果拜登總統(tǒng)在競選期間提出的建議成為美國法律的一部分，這些分歧可能會增加。
Despite the differences, policymakers should recognize the complexities and economic costs of imposing broad minimum taxes on cross-border earnings.
盡管存在分歧，但決策者應(yīng)認(rèn)識到對跨境所得征收廣泛的最低稅的復(fù)雜性和經(jīng)濟(jì)成本。
GILTI and its problems
GILTI 及其問題
GILTI can be defined as a US businesses’ foreign income that is subject to US tax on an annual basis. It is a new class of foreign income introduced by the 2017 tax reform legislation.
GILTI可以被定義為美國公司每年須向美國納稅的海外收入。這是2017年稅改立法引入的一種新的外國收入類型。
The calculation for GILTI includes net tested income and a deduction for 10 percent of depreciable tangible assets. The tax on GILTI applies after a 50 percent deduction, leading to a 10.5 percent effective tax rate on GILTI (half the US corporate tax rate of 21 percent). The 10.5 percent rate arises in the absence of foreign taxes paid on earnings included in GILTI.
GILTI的計算包括測試凈收入和扣除10%的可折舊有形資產(chǎn)。GILTI的稅收是在扣除50%后征收的，導(dǎo)致GILTI的實際稅率為10.5%，相當(dāng)于美國公司稅率（21%）的一半。10.5%的稅率是在沒有為GILTI包含的所得支付外國稅款的情況下產(chǎn)生的。
The 10 percent deduction for depreciable tangible assets is a formulaic approach to a substance-based carveout. Because it is based on tangible assets, services companies with less physical capital involved in foreign markets will have a smaller deduction and be more likely to be caught by GILTI. Additionally, companies with very long-lived assets whose current depreciable value is minimal will also likely be caught by GILTI.
可折舊有形資產(chǎn)的10%扣除是一種基于實質(zhì)經(jīng)營活動的固定回報。由于它是以有形資產(chǎn)為基礎(chǔ)的，在外國市場上擁有較少實物資產(chǎn)的服務(wù)公司將得到較小的扣除，也更有可能被GILTI納入征管范圍。此外，擁有長期資產(chǎn)且當(dāng)前折舊價值很小的公司也可能被 GILTI納入征管范圍。
Many countries have rules that tax foreign earnings of multinationals. However, those rules regularly draw a line between active and passive earnings. The formulaic substance-based carveout in GILTI results in a much broader tax base than a tax on passive earnings. In fact, the US rules for Subpart F already tax passive earnings of US multinationals, suggesting that the GILTI tax base is much broader than passive earnings.
許多國家都有對跨國公司的海外收益征稅的規(guī)定。不過，這些規(guī)則通常會在積極所得和消極所得之間劃清界限。GILTI以實質(zhì)經(jīng)營活動的固定回報作為扣除比例導(dǎo)致了一個比對消極所得征稅更廣泛的稅基。事實上，美國針對Subpart F的規(guī)定已經(jīng)對美國跨國公司的消極所得征稅，這表明GILTI的稅基要比消極所得廣泛得多。
If a US company has paid foreign taxes on earnings covered by GILTI, the tax liability calculation gets complicated. Foreign tax credits applicable to GILTI are limited in two ways. First, they are limited to 80 percent of their value. Second, they are limited by standard US rules for foreign tax credits, which include requirements to allocate some domestic expenses to foreign earnings, reducing the value of applicable foreign tax credits.
如果一家美國公司已經(jīng)就GILTI覆蓋的收入繳納了外國稅款，那么納稅義務(wù)的計算就會變得復(fù)雜。適用于GILTI的外國稅收抵免有兩方面的限制。首先，它們的價值被限制在80%。其次，它們受到美國有關(guān)外國稅收抵免的標(biāo)準(zhǔn)規(guī)則的限制，其中包括要求將部分國內(nèi)費(fèi)用分配給外國收入，從而降低適用的外國稅額抵免的價值。
Both limits lead to extra US tax on foreign earnings that may have already been taxed (in some cases at relatively high rates). This means taxes on GILTI result in double taxation in some cases.
這兩種限制都會導(dǎo)致美國對可能已經(jīng)征稅的外國收入征收額外的稅款（在某些情況下稅率相對較高），這意味著對 GILTI 征稅在某些情況下會導(dǎo)致雙重征稅。
In theory, if a company has foreign tax credits to apply to GILTI, the effective tax rate could rise to 13.125 percent. However, expense allocation can cause effective rates on GILTI to be much higher than 13.125.
從理論上講，如果一家公司將外國稅收抵免適用于GILTI，那么實際稅率可能會升至13.125%。然而，費(fèi)用分配可能會導(dǎo)致GILTI的有效稅率遠(yuǎn)遠(yuǎn)高于13.125。
Regulations were implemented in 2020 to exclude some highly taxed foreign earnings from GILTI. The high-tax exclusion rules address part of the problem caused by the interplay between expense allocation and GILTI. Highly taxed foreign earnings are defined as those taxed above 18.9 percent (90 percent of the US corporate rate of 21 percent).
2020年實施的法規(guī)將一些高稅收的外國收入排除在GILTI之外。高稅收豁免規(guī)則解決了部分由費(fèi)用分配和GILTI相互作用引起的問題。高稅收的外國收入被定義為稅率超過18.9%(美國公司稅率21%的90%)。
GILTI also does not allow excess foreign tax credits to be carried forward. This means that GILTI liability will be volatile for many companies that have high foreign taxes in some profitable years and losses in other years. This contributes to the uncertainty that companies face in understanding the taxes they would owe on any given foreign investment.
GILTI也不允許結(jié)轉(zhuǎn)的超額外國稅收抵免。這意味著，對于許多在某些盈利年份繳納高額外國稅收、在其他年份虧損的公司來說，GILTI的負(fù)債將是不確定的。這加劇了企業(yè)在了解它們對任何外國投資應(yīng)繳納的稅款時所面臨的不確定性。
GILTI is also calculated on a worldwide, blended basis rather than by jurisdiction. This means companies can mix high-tax earnings with low-tax earnings when calculating GILTI.
GILTI也是在全球范圍內(nèi)混合計算的，而不是按司法管轄區(qū)計算。這意味著，在計算GILTI時，企業(yè)可以將高稅收收入與低稅收收入相結(jié)合。
Additionally, GILTI has some scheduled changes which will cause the effective rates on foreign earnings to rise after 2025.
此外，GILTI還計劃進(jìn)行一些調(diào)整，這將導(dǎo)致2025年后外國收入的實際稅率上升。
  
The GloBE and a different approach to minimum taxation
GloBE和一種不同的最低稅收方法
In contrast, the OECD Inclusive Framework proposal for the GloBE is designed with the goal of eliminating double taxation of cross-border earnings. While there are several parts of the policy that are subject to further discussion and agreement, GloBE is expected to be different from GILTI in several ways.
與此相反，經(jīng)合組織IF關(guān)于GloBE提案旨在消除對跨境收入的雙重征稅。雖然該政策有幾個部分有待進(jìn)一步討論和達(dá)成協(xié)議，但預(yù)計GloBE將在幾個方面與GILTI不同。
The GloBE’s income inclusion rule is designed to be a top-up tax on foreign earnings of companies. If a company is paying taxes at a 10 percent effective rate on its foreign earnings and the minimum rate is 12.5 percent, then the country where that company is headquartered could tax the 2.5 percentage-point difference between the minimum and the effective rate.
  GloBE的所得納入規(guī)則(IIR)旨在對公司的外國收入征收補(bǔ)足稅。如果一家公司對其外國收入按10%的實際稅率納稅，而最低稅率為12.5%，那么該公司總部所在國家或地區(qū)可以對最低稅率和實際稅率之間2.5個百分點(diǎn)的差額征稅。
The tax base for the GloBE is based on profits reported on a business’s financial statements. Because of the difference between financial profits and taxable profits, a variety of adjustments are proposed to make financial profits look more like taxable profits.
  GloBE的稅基是基于企業(yè)財務(wù)報表中的利潤。由于財務(wù)利潤和應(yīng)稅利潤之間的差異，建議進(jìn)行各種調(diào)整，使財務(wù)利潤看起來更像應(yīng)稅利潤。
The economic impact assessment of the GloBE utilized minimum tax rates between 7.5 percent and 17.5 percent. Without a political agreement, though, it is uncertain where exactly the GloBE minimum rate would fall.
對 GloBE的經(jīng)濟(jì)影響評估采用的最低稅率在7.5%至17.5%之間。然而，在沒有達(dá)成政治協(xié)議的情況下，全球范圍內(nèi)的最低稅率究竟會降至何處還不確定。
The GloBE proposal has a broad, formulaic carveout for economic substance that includes depreciable tangible assets (similar to GILTI) and payroll costs. This would likely be a broader tax base than would result from rules that define and tax passive foreign income, but the tax base for the GloBE would be narrower than GILTI.
GloBE 提案對實質(zhì)經(jīng)營活動固定回報的扣除制定了一個公式，其范圍廣泛，包括可折舊有形資產(chǎn)（類似于 GILTI）和工資成本等。這可能是一個比定義外國消極所得征稅的規(guī)則所產(chǎn)生的稅基更廣泛，但GloBE的稅基將比GILTI更窄。
The OECD Inclusive Framework proposal would also allow carryover of excess foreign taxes to ensure that the taxes applied under GloBE recognize profitability and taxation over time. This is intended to help minimize tax burden volatility for companies subject to GloBE.
OECD 包容性框架的提案還將允許結(jié)轉(zhuǎn)多余的外國稅收，以確保 GloBE適用的稅收方案承認(rèn)盈利能力和長期征稅。這是為了幫助受 GloBE約束的公司減少稅務(wù)負(fù)擔(dān)的波動。
The GloBE is expected to apply on a jurisdictional basis rather than allow for worldwide blending of foreign earnings. This could be subject to change as negotiations progress, but jurisdictional calculations for GloBE seem likely.
GloBE預(yù)計將根據(jù)司法管轄區(qū)內(nèi)適用，而不是允許在全球范圍內(nèi)混合外國收入。隨著談判的進(jìn)展，這可能會發(fā)生變化，但GloBE的司法管轄區(qū)的計算似乎是有可能的。
  
The Biden and Yellen approach on GILTI
拜登和耶倫在GILTI上的態(tài)度
Treasury Secretary Janet Yellen has commented that the US administration’s goal is to have an effective minimum tax agreed to at the global level.
財政部長珍妮特·耶倫發(fā)表評論稱，美國政府的目標(biāo)是在全球?qū)用孢_(dá)成一個有效的最低稅率。
It is unclear how this view will work out in the ongoing negotiations over the GloBE because GILTI and the GloBE have significant differences. Two policy proposals from President Biden’s campaign regarding GILTI would increase those differences, while another would create some alignment.
由于GILTI和GloBE存在顯著差異，因此目前尚不清楚這種觀點(diǎn)將如何在正在進(jìn)行的 GloBE 談判中發(fā)揮作用。拜登總統(tǒng)競選活動中關(guān)于 GILTI 的兩項政策提案將擴(kuò)大這些分歧，而另一項提案將形成某種一致性。
First, the Biden campaign recommended raising the GILTI rate to 21 percent, a rate that is much higher than what has been expected for the GloBE.
首先，拜登的競選團(tuán)隊建議將GILTI的稅率提高到21%，這一稅率遠(yuǎn)遠(yuǎn)高于此前對GloBE的預(yù)期。
Even beyond the Biden campaign’s approach, the rate on GILTI is set to rise after 2025 under current law (16.4 percent), and Biden’s separate proposal to raise the US corporate tax rate to 28 percent would have a knock-on effect for the high-tax exclusion.
即使超出了拜登競選團(tuán)隊的做法，根據(jù)現(xiàn)行法律，GILTI的稅率也將在2025年后提高(16.4%)，而拜登單獨(dú)提出的將美國公司稅率提高到28%的建議將對高稅收豁免產(chǎn)生連鎖反應(yīng)。
Second, the Biden campaign and some congressional Democrats have recommended removing GILTI’s formulaic substance carveout, broadening the GILTI tax base even beyond the current breadth.
其次，拜登的競選團(tuán)隊和一些國會民主黨人建議取消GILTI實質(zhì)經(jīng)營活動固定回報的扣除，將GILTI的稅基擴(kuò)大到甚至超過目前的范圍。
These proposals are couched in the argument that the substance carveout in GILTI paired with the lower rate will cause offshoring. This argument is flawed for several reasons, including the very low likelihood that a company would increase its foreign tangible assets simply to minimize its exposure to tax on GILTI.
這些提議是在這樣一種論點(diǎn)中提出的：GILTI的實質(zhì)經(jīng)營活動固定回報扣除加上較低的稅率將導(dǎo)致離岸外包。這種說法存在缺陷，原因有幾個，包括公司增加其外國有形資產(chǎn)的可能性非常低，只是為了盡量減少其對 GILTI 的稅收風(fēng)險。
The one area where the Biden campaign’s approach on GILTI and GloBE is in line is on jurisdictional calculations.
拜登競選團(tuán)隊對GILTI和GloBE采取一致做法的一個領(lǐng)域是司法管轄區(qū)的計算。
Jurisdictional calculations will likely mean serious compliance challenges because business units are not commonly arranged based on country borders. Foreign business units may include subsidiaries and earnings in multiple jurisdictions.
司法管轄區(qū)的計算可能意味著嚴(yán)重的合規(guī)挑戰(zhàn)，因為業(yè)務(wù)部門通常不是基于國家邊界安排的。外國業(yè)務(wù)部門可能包括在多個司法管轄區(qū)的子公司和收益。
To comply with jurisdictional blending requirements, companies would need to significantly adjust their bookkeeping to align with the burden of jurisdictional calculations for taxation.
為了滿足司法管轄區(qū)混合的要求，公司需要大幅調(diào)整其賬簿，以適應(yīng)司法管轄區(qū)計算的稅收負(fù)擔(dān)。
Misalignment on the rate and the substance carveout and alignment on jurisdictional calculations still leaves several other open questions on how the two policies might converge or remain distinct.
在稅率、實質(zhì)經(jīng)營活動固定回報扣除和司法管轄區(qū)計算上的不一致，仍然留下了其他幾個懸而未決的問題，即兩項政策如何趨同或保持不同。
The remaining differences relate to foreign tax credits. On the issues of expense allocation, carryovers of foreign tax credits, and the 20 percent haircut on foreign tax credits, GILTI is not aligned with GloBE. Each of these foreign tax credit problems with GILTI can lead to double taxation, and, if nothing else, GILTI should be reformed in ways that follow the GloBE’s aspiration to avoid double taxation.
其余的差異與外國稅收抵免有關(guān)。在費(fèi)用分配、外國稅收抵免的結(jié)轉(zhuǎn)以及外國稅收抵免20%的扣減等問題上，GILTI與GloBE并不一致。GILTI 的這些外國稅收抵免問題中的每一個都可能導(dǎo)致雙重征稅。如果不出意外，GILTI應(yīng)該按照GloBE避免雙重征稅的愿望進(jìn)行改革。
  
Harmonization or divergence?
協(xié)調(diào)或分歧?
GILTI has underlying problems that directly contribute to double taxation. On those issues, lessons from the GloBE should inform policymakers.
GILTI存在直接導(dǎo)致雙重征稅的潛在問題。在這些問題上，GloBE的經(jīng)驗教訓(xùn)應(yīng)該為政策制定者提供參考。
In areas where the Biden campaign recommended changes to GILTI, the proposals would make GILTI even more distinct from the GloBE. The one thing the two approaches share is the jurisdictional approach to taxation, and that, by itself, is likely to be a heavy compliance burden on businesses.
在拜登競選團(tuán)隊建議修改GILTI的領(lǐng)域，這些提案將使GILTI與GloBE更加不同。這兩種方法的共同之處在于對司法管轄區(qū)進(jìn)行征稅，而這本身就可能給企業(yè)帶來沉重的合規(guī)負(fù)擔(dān)。
If GILTI and the GloBE are to be harmonized, there is clearly lots of work to do. Policymakers in the US and other OECD Inclusive Framework countries should focus on minimizing compliance burdens and the economic costs that will be associated with a broad-based minimum tax on cross-border earnings.
如果GILTI和GloBE要實現(xiàn)協(xié)調(diào)，顯然還有很多工作要做。美國和其他OECD包容性框架成員國的政策制定者應(yīng)把重點(diǎn)放在盡量減少合規(guī)負(fù)擔(dān)，以及對跨境收入實行廣泛的最低稅率所帶來的經(jīng)濟(jì)成本。
  

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