During this hearing Senator Bob Packwood of Oregon. This event runs an hour and fifteen minutes. The committee will come to order please.
This is a hearing that we promised that we would do after the joint committee had finished its
study of expatriate taxes and this is an issue I find that has created much more heat than light one no one wants anyone to leave this country for the sole purpose of avoiding paying taxes I haven't run across any defender of that position yet to run across great disparity between the numbers of people who some people say leave him others who say others are big differences in numbers and big differences an estimate three I think you have a legitimate issue as to what happens when somebody leaves...
and it isn't for tax avoidance reasons
and there are an hiney number of people who leave for legitimate reasons or people who may have been American
citizens but they were
born abroad have hardly ever
lived here
. But people with dual citizenship but with this is common in most of the world is usually only in the Anglo-Saxon or common law countries of the. You don't have dual citizenship. What happens in that situation. So I hope this hearing will help us...
shed
some light on that and in addition on the widely
disparate to estimate between Treasury and the Joint Tax Committee
Max
.
I think that call it from the our chair term and. Chairman I would like to say that I think that Montana to like most Americans do not like paying taxes but like most Americans were willing to pay taxes so long as everyone else is paying his fair share. That's what this really comes down to yet today we find that a fairly small number of Americans are not paying their fair share. They're going to great lengths. Thousands of miles to other countries to avoid paying their fair share in a bit of Oracle sense burning the flag. Giving up what should be there. Most sacred possession their American citizenship to find a tax loophole. Last year alone the Treasury reports that at least ten wealthy individuals turned their backs on our country. And the poorest of them owed seven hundred thousand dollars in income tax. Forbes magazine found one attorney who claims that quote I talked to a new client interested in expatriating every week and quote. These are precisely the sort of greedy unpatriotic people the death called malefactors of great wealth. If we made sure these fellows paid their full share. We would collect one point nine billion dollars over ten years that's approximately two hundred billion dollars a year and at a time when the majority is cutting away at education at agriculture at Medicare. We should remember that two hundred million dollars could mean preserving college loans for thousands of American kids. Medicare reimbursements that keep some rural hospitals from closing and essential health services for old people and people seem to think this is a trivial or a back burner type of problem Joint Tax Committee report on the expatriate expatriation issue contains a joint committee staff and I quote all the anecdotal evidence that a small number of U.S. citizens may be expatriating to avoid continuing to pay US tax and the amount of potential tax liability involved in any individual case could be significant the joint committee staff found no evidence that the problem was either widespread or growing and quote. Well it doesn't sound so bad but take it from certified public accountant to regular and not sound so reassuring. Essentially they say that a number of extremely rich people are skipping town evading taxes and cut Medicare and student loans to make up the difference. There are not so many of them and the number. Is about the same every year so we can twiddle of that with existing law and see if it works. I do not think that is OK is like saying that yes well there is a fire in the house but it is not a very big fire and it only burns up a little bit of the house in a given hour. So we can take our time and experiment rather than calling the fire department. This is a simple issue. It should be easy to solve. Instead or more to hand has a very good solution. There is no reason for delay. Let us not allow more of these rich freeloaders to get away. Let us stop fooling around pass a good tough bill and with a head. Thank you thank you Mr Chairman thank you and book as the chairman I would bring us up to date on a question that a rather bad at it. But...
let's
come of
it
and right now it may well be that. And
that I've
got it have turned the the matter. Or not but I've gotten dollars involved and got a lot there to get it up. But I keep
at it not you Don Imus but an
overwhelming assessment from
the
legal community that we have no
problem. I have no problem here and
who is the
Layton professor of law at Northwestern University tools
are great
at Careful study
but. Patients
expatriation tax proposal
does not what he
promised that they had that the average American can expect as rights are infringed under current law. If wealthy Americans can expatriate
themselves
and avoid a paying their fair
share of capital gains tax
Fessor demographers on to say he personally opposed capital
gains tax but while it's law at the Harvard Law School
and Marie Slaughter
of law rights to you Mr Secretary with the same view she said I understand Senator Moynihan is offering amendment to the administration
proposal. That will allow individuals
seeking to renounce their citizenship to choose either. To take capital gains tax on gains in excess of six hundred thousand dollars or to continue to be treated as a U.S....
citizen for tax purposes.
I
conclude that with the addition of this amendment administration proposal is consistent with international
law
and with us a
commitment to
the protection and promotion of human rights. I
. And she goes I say as has been able to analyze by the Office of Legal Advisor and by various other experts in international
law consulted by your office the proposed tax violates the right to
emigrate
nor the right to expatriate
think that's
useful for the record and as. Jennifer I could I'd like to place. This in the record without objection. And the Bradley. To hear the testimony...
. If what I
have heard about what the House has proposed is true seems to me kind of circle and ended up at the same place we were before we did it because all of the tools of avoidance are still available as I understand it. I mean you know if I have to wait ten years. I can actually borrow against my sets for ten years so I have some reservations about what I've heard but of course we're here to learn and that's what I hope to do in the course of these discussions. I think that the point has to be made that there is been a very serious abuse and the abuse is very clear it's understood in every town meeting that I've had the last six months since this issue arose and that is there are some American tax by giving up on the grounds to provide instead of what we did a figure leave claiming we've accomplished that objective and now everyone has to pay the tax. You can't avoid it by giving up their U.S. citizenship and then find that the law is riddled with a whole step they can take in previous occasions are still available....
Mr
Chairman. Holding a very
high
standard to this. And trying to be very clear about what they are proposing. Senator Breaux. And Mr Secretary will take you first. Mr Chairman and members of the committee. I am pleased today to testify on the taxation of U.S. citizens and certain long term residents who expatriate by remount their US citizenship or abandoning their residency in March of this year the Senate Finance Committee report out a bill similar to the administration's proposal that would have effect of late dealt with the problems of tax avoidance through expatriation the entire...
Senate then approve that bill the administration supports these efforts because we believe that U.S. persons should pay their fair share of U.S. tax recent media interest as well as the attention devoted by the Congress and its staffs demonstrate a keen interest in this problem. We believe that the public confidence in our tax system is the road it but a perception that some wealthy individuals are able to escape paying taxes through devices that are not generally available to all taxpayers are existing laws generally subject individuals to income tax when assets are sold or subject the states to a state tax when the individual dies certain wealthy people have found that they can completely avoid paying U.S. tax on their gains by remounting their US citizenship. Consequently the experience of the last twenty nine years has shown current law is not working in February of this year the administration offered a proposal to deal with this issue. Under the administration's proposal but a U.S. citizen relinquish his U.S. citizenship property held by that person would be treated as sold at fair market value immediately before such expatriation. However no tax would be imposed on gains up to six hundred thousand dollars U.S. real estate. Or interest in certain retirement plans. Senator Moynihan version of the expatriate proposal seven hundred is similar in many ways to the administration's proposal. Except that it patriots who post adequate security to delay paying U.S. taxes on gains from a den of five assets until thens are realized the House Ways and Means Committee proposal H.R. eight hundred twelve takes a different approach to the taxation of expatriates one based on existing law H.R. eight hundred twelve imposes income tax on certain expatriates generally on their US source of income for a period of ten years we have examined and compared S S seven hundred and H.R. eight hundred twelve based on this evaluation we support S. seven hundred because it does not interfere with an individual's right to renounce US citizenship and it appropriately ensures that the expatriate will pay tax on all gains earned while subject to U.S. tax jurisdictions in contrast we have proposed H.R. eight hundred twelve first H.R. eight hundred twelve retains the current law that allows individuals to pay no tax on games accrued while subject to US tax if they have sufficient resources to wait for ten years to recognize those games in contrast S. seven hundred does not reward patient expatriates. The second reason that we support S. seven hundred is that it taxes gains from all sources as does our regular income tax. However under current section eight seventy seven games from foreign assets that accrued during US citizenship are not subject to U.S. tax after expatriation H.R. eight hundred twelve generally retains the structural flaw of current law with modest modifications in addition we believe that as long as a class of assets is exempt from taxation after expatriation and. And there is a waiting period for exemption from US tax tax advisors will constantly discover new methods to avoid taxes. The third reason that we support seven hundred is that it does not create a favored class of...
US citizens we agree with H.R. eight hundred twelve promise but the tax motivation requirement of current law is very difficult to administer However H.R. eight hundred twelve provides special exceptions for certain US citizens by exempting them from tax. Unless tax avoidance can be proven these special preferences apply to US citizens who one were born with the ship to have a family member that was born in another country or three have lived outside...
the United States for ten years the creation of classes of US citizens with special tax benefits raises issues of fairness US citizens of foreign birth and their children should certainly not be discriminated against but nor should they be provided with special benefits the fourth reason that we support at seven hundred is that it is more administer a bill like current law...
H.R. eight hundred twelve continues to very difficult to administer a requirement that the I.R.S. monitoring expatriates activities for ten years after departure. In contrast information should be available to enforce the provisions of S. seven hundred more effectively since the tax is generally fixed at the time of expatriation and a tax return is due within ninety days of expats of expatriation. Finally we support S. seven hundred because it respects international law. There are two ways in which expatriation proposals may affect international law international human rights obligations and tax...
treaties some expressed initial concerns about whether the administration's expatriation proposal would violate international. Guarding human rights. It is not clear that those concerns are unfounded a multitude of experts indicate that the expatriation proposals that have been in or deuce do not violate international human rights. Today I would like to add in addition to the two letters that Senator Moynihan mentioned in...
his opening remarks the
letter of a
prominent international human rights organization the Minnesota advocates for human rights. Now I would like to turn to tax H.R. eighteen
twelve will unnecessarily cause the United States to violate its international obligations. Because it is intended to override U.S. tax treaties for a ten year period although U.S. domestic...
overrides of
tax treaties these overrides violate U.S. obligations under international law legislative override of tax treaties may occasionally be required by compelling circumstances expatriation tax avoidance is not one of those cases we strongly urge Congress...
not to override tax treaties when alternative means of achieving our tax policy objectives can be accomplished without violating our international obligations. Now I would like to turn to revenue estimates for the various proposals. Over five years we estimate that as seven hundred or raise one point six eight billion dollars in H.R. eighteen...
twelve four hundred fifty million dollars. Other relevant figures are in my written statement These estimates are based on the premise that tax avoidance through expatriation is a...
growing problem. Therefore we use the most recent information on expatriation to project future expatriation if a proposal deters expatriation. The United States will collect both a state and gift taxes and income taxes from the individuals who would have expatriated....
In Congress in contrast those who expatriate under current law generally
pay a very modest levels of U.S. tax as nonresident taxpayers because they are based on the specific financial situations of a relatively small number of taxpayers. They are subject to more uncertainty than many other revenue estimates. Therefore it is reasonable that two groups could come to different conclusions about the precise magnitude of the revenues attributable to each bill but one might normally expect more agreement on the relative magnitude of the estimates for the various proposals in our view of the administration's proposal should raise the most revenue as seven hundred should rank second and H.R. eight hundred twelve should be expected to raise the smallest amount of revenue to explain this ranking of the revenue generating potential of the three proposals consider the effect of each of these proposals on the extremely wealthy US citizen holding a diverse portfolio of appreciatedets who is planning to expatriate to avoid income in a state tax under current law the administration's proposal will substantially remove the individual's tax incentives to expatriate because...
if
you
have to pay tax on unrealized gains and
generally we assume
that seven hundred will also deter this type of wealthy individual from
expatriate.
Taxpayers to defer the payment of tax on their gain
when the asset is eventually sold taxes due on the entire gain. On a. Value basis an expatriate
would generally pay tax on a crude capital gains under arrest seven hundred. It is at least as great as the administration's proposal in contrast H.R. eight hundred twelve is unlikely to deter many individuals from expatriating...
. The wealthy individuals tax would almost always being lower if the taxpayer expatriates because only certain types of income will continue to be taxed and no taxes due after the ten year waiting period. In contrast he would be taxed on all income if he remained a US citizen in the last few months extraordinary attention has been focused on tax avoidance through expatriation we stand firm in our view that Americans who avoid their tax responsibilities by expatriating should not be rewarded. Instead they should be asked to pay the same tax on income they accrued while subject to U.S. tax boss but those who...
remain will pay sooner or later
. We believe that Congress should enact and explore a tree ation tax avoidance provision that is based on S. seven hundred. Mr Chairman. This concludes my remarks and I would be pleased to answer any questions that the committee may have. Will take Mr Keyes first and then we'll question you both again thank you Mr Chairman it is my pleasure to present the testimony of the joint committee at this hearing on the tax treatment of individuals who relinquish their U.S....
citizenship or residency. I will provide a summary of the findings of the Joint Committee study on this matter describe the pending proposals and discuss the revenue estimates with respect to these proposals in the course of analyzing the expatriation proposals the joint committee staff reach the following findings and conclusions and its June one thousand nine hundred ninety five report since one nine hundred eighty an average of seven hundred eighty one U.S. citizens expatriate each year although there are some anecdotal evidence that a small number of U.S. citizens may be expatriating for tax avoidance purposes. The joint committee staff found no evidence that the problem is either widespread or growing the study had dental fide certain problems with the present walk speech ration provisions specifically there are legal methods to avoid some or all taxation under the current law provisions. The administration proposal to impose a new tax regime of much broader scope than president raises a number of issues including the following First the administration proposal would impose taxes on all expatriates without regard to taxpayer motivation ministration proposal would impose a tax on U.S. citizens or residents who are expatriating for purely non tax reasons have long term dual citizenship with another country to which they are returning or have tenuous ties to the United States as in the case of individuals who did not even realize that he or she was a U.S. citizen second a number of practical problems are raised by the administration proposal to tax on realized gain upon expatriation these issues may be summarized as one dentist find the owner of interest in property or identity problems to raising sufficient funds from interest in property to pay tax or liquidity problems and three valuing the interest in property valuation problems these problems are often related something that makes it difficult to determine who owns an interest in property often makes that interest very illiquid which in turn may make valuing interest more difficult these problems are especially difficult in the case of interest held through trusts because expatriating beneficiaries would be subject to a tax liability determined by reference to the unrealized Rishi ation in the value of the trust assets. Notwithstanding the fact that the beneficiary has no access to theets of the trust this particular aspect of the proposal raises potential constitutional issues at least under certain circumstances. Moreover under certain circumstances the tax might inappropriately interfere with the right to express a treat which is recognized by U.S. and international law and Korea sold in substantial double and triple taxation possibilities thirty administration proposal may retroactively impose tax on former US citizens who lost their US citizenship. Years ago. It is unclear whether the US would have any legal basis for attempting to collect tax in such a case since the individual has lost all rights and responsibilities of U.S. citizenship many years earlier. Finally an act where the administration proposal may create an incentive to expatriate which does not exist under current...
for
individuals who either have
recently
inherited wealth who expect to inherit wealth in the near future. I will not repeat the description of the administration proposal Mr Samuel has already done that the Senate amendment dates are a thirty one modified the administration proposal in several ways first apply the expatriation tax only to US citizens who relinquish their US citizenship not to long term residents who terminate their US residency. Second it modify the date when an expatriate ing citizen is treated as relinquishing US citizenship such that most expatriating citizens are treated as relinquishing their citizenship at the time a certificate of Austin nationality is applied for rather than when this certificate is issued as under the administration bill. The result of this change in the effective date was to exempt at least one hundred eighty three individuals from the potential effects of the legislation as compared to the effective date of the administration proposal. Senator Moynihan introduced seven hundred April sixth one thousand nine hundred five. Congressman Givens has introduced an identical bill these bills make several changes to the administration proposal as incorporated in the Senate amendment H.R. eight thirty one as follows. First the modified bills would apply a tax on expatriation to long term residents who terminate their residency in a manner similar to the provision in the administration proposal second a nonresident alien individual who becomes a citizen or resident of the US would be required to utilize a fair market value basis rather than historical cost basis in determining any subsequentn or loss on the disposition of any property held on the day the individual became a US citizen or resident the fair market value basis would apply for all purposes of computing gain or loss on actual or deemed dispositions not just for. Purposes of the tax on expatriation third the modified bills would allow an expatriating individual to irrevocably elect an asset byet basis to continue to be taxed as a US citizen with respect to such assets fourth tax on expatriation would not apply to an individual who relinquishes US citizenship before attaining age eighteen and a half if the individual lived in the United States for less than five taxable years before the date of relinquishment the Ways and Means Committee bill H.R. eight hundred twelve would expand and substantially strengthen in several ways the present wopper visions that subject US citizens who lose their citizenship for tax avoidance purposes to special tax rules for ten years after such loss of citizenship. First the bill would extend the expatriation tax provisions to point out only to US citizens who lose their citizenship but also to our interim residents who terminate their residency second to Bill generally would subject individuals to the expatriation tax regimes without inquiry as to their motive for losing their US citizenship or residency. But would allow certain categories of citizens to show an absence of tax avoidance motives if they request a ruling from the secretary of the Treasury as to whether the loss of citizenship had a principal purpose of tax avoidance third to Bill expand the categories of incoming again subject to expatriation tax and would eliminate the ability to gauge in certain transactions that under current law circumvent the ten year reach of Section eight seventy seven. Further the bill would provide relief from total double taxation in circumstances where another country imposes tax on items that would be subject to U.S. tax under the expatriating tax provisions. The final issue I'll address is the issue of revenue estimating Mr Chairman....
Our
principal guiding or the one principle guiding
joint
committee staff revenue estimates with respect to the expatriating proposals is that actual expatriates tend to have relatively unique profiles a second principle is that an individual who desires to sever direct economic ties to the US would be able to circumvent all of the expatriating proposals expatriation. Pulls at Vance to date the final principle is that there will be no enforcement of present laws Section eight seventy seven in the current budget baseline. There are significant disparities between the revenue estimates of the proposals by the joint committee and the Treasury Department we have been able to identify several differences between the joint committee and Treasury Department analysis they are followers first we believe that our assessment of the scope of the expatriation problem is somewhat smaller than that which has been assumed by the Treasury Department. Second our early analysis of the expatriation proposal assume that expanded trading individuals incurred no U.S. tax liability following the act of expatriation as a result of our study we have concluded that expatriating individuals in certain circumstances continue to incur U.S. tax liabilities. We believe that the Treasury Department may assume that expatriating and individuals incur little or no U.S. tax following the act of expatriation. Third the joint committee did not account for state tax affects of any of the proposals because of the lack of reliable data on expatriate wealth the inaccuracy inherent in applying general mortality tables to a small group of expatriates and the complexity of forecasting the outcomes of estate settlements. It is the understanding the joint committee staff that the estimates made by the Treasury Department do incorporate changes in a state and give tax receipts. Finally we believe that the analysis of the treasury department of H.R. eight hundred twelve does not adequately take into account the various items of income which would be subject to tax under twelve. That would not be reached by either the administration proposal or other pending proposals the categories of income which would be taxed only under eight hundred twelve include all the income from U.S. property for the ten year period after expatriation which the expatriate owned at the time of the expatriation and all future acquired U.S. property for the same ten year period. Mr ation proposal and the modified bills. Both impose taxes...
unrealized gain at the time of expatriation the joint committee staff estimated that the Mitt administration proposal would. Her target expatriates with substantial unrealized gains or would extract significant tax payments...
in the event expatriation occurred
taxpayers with low unrealized gains when her present law would be in no hurry to make an expatriate decision might find expand attractive given their current low gain status expatriates who have low unrealized gains could find it advantageous to expatriate sooner under the administration proposal or any other proposal that would impose a toll charge an unrealized gains at the time of departure the modified bills. Senator Moynihan spill allow an asset by asset election under this election taxpayers would able be able to treat high gain assets throwing off little current income as taxable. By the US following expatriation while they would treat low gain assets throwing off substantial income as subject only to U.S. tax on unrealized gains at the time of the expatriation In other words they would pick the winners and not the losers. Under the administration proposal a former U.S. citizen would be subject to estate tax provisions for expatriates only of tax avoidance was a principal purpose for the individual's loss of citizenship under the Ways and Means Bill or more wealthy citizens generally would be subject to the estate tax provisions for expatriates without regard to their motive for expatriating accordingly a wealthy expatriate who transfers all of its or her assets to a foreign corporation before us and who dies within ten years of expatriation generally and not state tax under the administration proposal but generally would be subject to the estate tax into the Ways and Means Bill. Mr Chairman that completes my oral statement and I'll be happy Sept any questions. Thank you for the last administration is any apparent...
out
of them
stances no matter what is the connection with the book I put it up you do the same form of tax there's no variance in the tax because of
the reasons that you might not be or choose not to be an American citizen. Mr Chairman. The administration's proposal follows
a
basic tenant of our tax and that
is US citizens are taxed on your worldwide income no matter where they reside. They can reside outside the United States for their entire lives in...
as tax those citizens on their worldwide income. Not that I understand so we think that if someone leaves this country based on our experience of twenty nine years with current law it is impossible if they have significant wealth determine what their motivation is that's been our experience there is no dispute. I think the current law doesn't work so we concluded that the way to deal with this problem and an equitable and fair manner to all those taxpayers who are remaining here as citizens is to say to an expatriate that if you have a certain level of wealth then you should be taxed on your unrealized gains that you accumulated while you were a US citizen. To make sure we're on the same wavelength you go to dual citizenship Greek us to and the citizen has lived overseas...
in Greece or in Europe all of their life made their money basically overseas made in shipping or whatever if they read announced their U.S. citizenship keep their Greek citizenship. They should be taxed on the value of their assets at the time Mr Chairman we...
believe that
is an appropriate policy of those individuals who have retained their US
citizenship have over the years had the benefit of US citizenship. I remember I lived. Rod for two years after all school I valued my passport I met a lot of U.S. expatriates who spent significant time abroad. They all valued their passports they thought it was a very important thing it was kind of goes to their identity. So I don't think the fact that someone who has lived outside the United States for. Their entire lives if they've kept their US passport they're keeping it for I think a reason and we think based on current law where they are subject to tax on their worldwide income that's been made the United States is a little unusual but in the fact that we tax citizens on their worldwide income no matter where they live but that has been our laws since the beginning and we think that the benefits of having a U.S. citizenship are such that when a citizen renounces then in fairness as I said before to everyone who has been here. Staying year. Paying their taxes that those expatriates would pay only on the unrealized gain the day accumulated why they were we don't we're not asking why current law does and Mike H.R. eight hundred twelve to tax us income that arises after someone expatriate So we think that you should look in order to create up and it's a parity between people who stay here and people who leave a situation where those who leave and it's very difficult this current law is shown us to determine why people believe it almost appears as if we've never tried to enforce current law am I right or not I think when you look back over the last twenty nine years there have been cases where the...
Internal Revenue Service have attempted to enforce current law and I think the experience and I think there's any real dispute about this is that it has not. But if they were tapped in this particular circumstance...
and not of that sort of
based on all the time in the last couple of months on this issue and looking back over time it seems to me that the Internal Revenue Service that's really allocated the resources and when they are expatriates it's going after them but it's. It difficult to find them it's very difficult to keep track of them after they left. And I'm sure you have not but there is a cottage industry of tax dodgers who have advised expatriates there's a happy thing on how to do it on your car and so on I don't think that the on of us has any way not kind of expend the appropriate resources. Given the formulas and loopholes in the concept. Your point but said here direction. You said proximity to PAX...
Piers.
Expatriate two point two billion
taxes over five years a joint committee doesn't I don't know if they dispute you just can't seem to find it you do have information they don't have you know we've provided them with all the information. Remember I'm talking about these estimates we're talking about estimating how...
many taxpayers. This is an estimate of how many taxpayers get from it which
is
pretty specific
estimate twenty four we said we thought
approximately
twenty four. Actually we're trying to be conservative we think based on anecdotal evidence the amount might be higher and actually it seems to me that given all of all the debate. They are you know whatever the group is whatever the number. They seem to be generating a lot of heat and on this issue so with that there must be something there because there certainly there are certainly a lot of heat on Mr Keyes do you want to respond just on that figure you didn't seem to have the same figures not estimates but numbers. Well Mr Chairman we...
in the course
of our study
among other things asked the State Department for example to read
very view the list of the Forbes four hundred richest people for the past ten years and to tell us how many of the people on that list expatriated because there were statements that. Twenty four billionaires were leaving the country they were only able to identify four people and I believe the State Department. Did a very good faith effort of going back and reviewing all of their files on the people that had expand trade in the past ten years we're talking about a relatively small group because the number per years around eight hundred people. So there are there clearly are some people doing it but the the number. I believe is relatively modest...
in terms of
actual
numbers
of people that are more to have Senator Baucus
issue
arises
as to how many persons might be bald with these effects and they
they met they
cannot be inconsiderable because they have to have a monthly journal. It's called. The International Journal of rodent control I'm asked why it's not as good as interactive as in bureaucrat and and they will tell you if they have their meetings at the London Hilton on X. or with a green card gets you into the U.S. Well you need a red card to get out and you know the meeting at the fourth Annual Pass or tax exile for inside London Hilton on twenty twenty eight twenty nine April nineteenth ninety five and we have anybody there so that you can be docked farce and square center of the Senate I want to hand I think that this is I recall these from the...
from that
advertisement that the condition is
that the press
and government officials are barred from the meeting because secrets were supposed to be divulged that were only for the You're quite right you're quite right it so states the. There there are other there's now a book...
I don't think. If useful to a driver tries his name but it's the tax exile report. That's a pretty good and if tells you how you know how to avoid oh yes or a tax exile report where so you were saying that was the London maybe not the Monte Carlo meaning there's at the Belmont that money grows this summer. Carlo that advertises...
for stay here because if you're a US citizen and it's not that hard you know you can become a U.S.
citizen the same. And this is I want to get into the
matters that are beyond the immediate.
Purview of the Committee on Finance but one of the mouse personal here says Lady offers US citizen marriage
generous dowry
box one month eight seven I won't go any further I mean
yes it's OK
for us to suggest that
. Let's just say I'm yours not
anybody who had a dual
citizenship a long time. OK knew why he or she held that you might need the Marines one day you might need a U.S. embassy to get into one day as I understand it sir the. Since nine hundred thirteen if I can ask Mr Samuels' most cases. I'm sure will agree. It has been American law that U.S. citizens all taxes on their income. Wherever they may live. That's been our rule since the beginning of the income tax....
We now
find a certain number trying to
avoid this and people making a fashion out of helping them do and we think they are not. And the if I understand the proposal from the law and I know what we think and I'm just asking you what I know you will say you have a new brain but getting into the question of motivation. Why did you do this it is no great business space government. I mean if people want to do it their right to do it. Under international law under our law but you lost all your taxes. Just pay your taxes and leave your own personal concern to yourself and that right is a. Yes And that's and...
you have read the made up that attacks us to your returns in the ways that only well to do joint tax just too but. On your revenue estimates as seven hundred through the year two thousand and five ten years would bring in five billion dollars. The House bill if I get a docstring but. Me A but you have to pay compensation for I mean you brought you know a year to a well then you get one plane. One billion dollars you pay for something for that and but for us we have a five to one ratio in terms of revenuened in favor of the Senate bill and I think that should be dispositive. Thank you Mr Chairman. Senator Bradley the caucus I'm so upset about psychology like you want to give me that's it's fascinating. That's what you get...
where he was directed at the plight of a. Mr of German Thank you Mr Keyes. What's wrong with that. Mr. Mr secretary's analysis that you know of Americans you know income your tax worldwide and of American renounce his citizenship. Why should he or she still pay taxes on your unrealized gains but what's wrong with that particularly if you live in the point of view of the average ordinary American citizen you know if you've got a small business or a housewife or she's probably got a job to try to make ends meet. You know the car payment or gets payment to save all money for your kid to go to. And maybe a bit left over for vacation or why should an American who realises his or her show. So since you have to quit the world ones we're talking about here have to pay taxes. SENATOR BAUCUS I think there are a couple different issues that you need to think about in assessing what is the right policy move here...
people that are now search citizenship are giving up a valuable right in our study suggested that people don't do it lightly because holding US citizenship is used as a significant value so it's not something that's done cavalierly number one number two. The people up to the point they were now for citizenship there's no doubt but that they're liable for all the taxes on their worldwide income. I think the question is what kind of. Surcharge or additional tax do you want to impose at the event of expatriation the administration takes an approach of basically treating people as having sold everything they own at that point having to pay tax even though they haven't our our tax system doesn't tax I was taught and realized I was taught the basic principle says it's a more handsome Bradleys bill. It just know you it's a basic point of...
basic fairness from the point of view of the area of the middle income Americans and then the point I'm trying to make Senator Baucus is the administration proposal would impose a tax liability that other people do not have people are not...
taxed
on unrealized appreciation as a general proposition under our tax system so it would impose a tax reasons. Americans are taxed. If you know on free shared began appreciated assets. No no they're not...
until they realize that gain I'm sorry but if they realize that gain if they hold it until death they're not taxed at all so the administration
proposal would impose a tax that is not imposed on other citizens. Now it's a policy decision as to what additional tax you want to impose on someone at the point they expand trade twelve takes an approach of saying they want to tax them for ten years after they. Expatriate the ministration proposal takes an approach of treating them as if they sold all their assets but it's imposing a tax that is not imposed on citizens generally and the can see looking at the proposal you have to get into some of the problems. How you treat interest in trusts is extremely complicated it has the potential of double and triple taxing people because they could be taxed on the value of the trust assets and then taxed again when they actually receive distributions so mean the study examined a number of problems with those approaches and found that there were some serious concerns and suggested that it may be a better approach to discouraging expatriation is to impose a ten year tax or sure you're responsible to Secretary to that this is basic sorry Senator Baucus I think I would mention I think...
it's a very important point is that there's been a lot of discussion about this issue and just I'm as as the
discussion has progressed past some of the issues that Mr Keyes has raised have been dealt with and I would particularly say Senator Moynihan spill which is I think the bill before us says that if a person expatriates a U.S. citizen expatriates the person has the choice...
of either hang the tax on unrealized gain at the time of expatriation or making an election to continue to be subject to tax on all of the income from those assets without regard to the time if you can't kind of beat the system by waiting ten years. And in that case the person does not have the problems that Mr Keyes raised and that provision was put in specifically by Senator Moynihan to deal with that issue. So I think that the bill that's before the committee deals with that issue and that you know we did evolve and I think the some of these issues. Of deserve serious consideration and have...
been
addressed about that stickies as the bill dealt with those issues. It's not seven hundred as seven hundred not the billiard right and center of a lot of history. I think the problem...
with that seven hundred is is the time I looted to have the potential for double and triple taxation because that
individual that
expand to a country that also taxes that income will probably not try to not does that that person has an election. Now if somebody makes the election continue to be taxed on these assets...
and
they are a citizen of another country that
also taxes the same income. They're going to zero income tax in both countries and under the tax treaties that we have it's unlikely that the that the country to which they expand trade will give them a foreign tax credits of US banks and X. twelve thousand seven hundred now deal with the tax treaty problem by allowing this secretary to renegotiate where...
possible
and we're really Goetia is not possible that the tax treaty prevails. As Mr Samuels is suggesting with respect eight hundred twelve renegotiate renegotiation of all the tax treaties is a...
form of
I should ask my question was another part of that which says in those cases where in renegotiation it's not possible that the so I understand seven...
of the treaty would prevail. No that's incorrect the treaty doesn't it. They can't deem the treaty to prevail. There's substantial potential for double taxation under...
arrest
seven hundred just is the basic point to make all due respect I think you're avoiding the basic point which is
on
the average Americans perspective. This doesn't seem fair it doesn't seem right the average American that a wealthy American citizen can avoid paying tax as a person can today by expatriating that's basically it's pure and simple. It's not that complicated it's pretty simple and up to people all due respect you talk a lot like a tax attorney trying to minimize taxes of fire and that's that's fine that's interesting but from the point of view just plain ordinary simple tax burnous I think most Americans would think that anybody expatriates basically. Paid taxes. Thank you yes before Senator Bradley center morning and has an interjection now that this problem this dread...
problem of double taxation. All you need is the manual
you look
up. I'm thirty eight very You may not want to live in the Cape Verde Islands but you your spouse and your children under eighteen can all obtain citizenship and passports there if you make a single thirty five thousand dollar donation to a foundation established by the Cape Verde government in St Bernard five hundred thousand Bob Bradley said Senator Moynihan actually I think Mr Samuels answered that particular point because as he pointed out all countries other than the United States in the Philippines tax on the basis of residency not citizenship. So having citizenship in the Cape Verde islands would not cause you to not be subject to tax where you are a resident and that's that's the way it deals with that hospital in the next paragraph. THE PRESIDENT Thank you very much Mr Chairman I don't know about you know about Cape May and...
that's really cape I want to know about a moment. Let me get a sense of what the seven hundred proposed and what the House bill proposes I understand
Mr Samuels. There is a six hundred thousand dollar exemption on any income on any assets that would be taxes correct. Now under as seven hundred dollars. There is an exemption for six hundred thousand dollars if you were doing for a person and then if it's a it's a married couple it's a million to a million so that if you were someone who held the passport to new came here from Greece or Italy or wherever many years ago you lived here you worked hard all your life for some reason you want to go home you want. Die in your own country and for some reason you don't want to have an American you want to you want to be an Italian or Greek car or whatever you can do that if you haven't more than a million to for you and your wife right. That is correct and without incurring any taxable event at all correct. That is correct and now Mr Keyes as I understand what the administration. You're proposing in the house with the House has proposed. Which when someone renounce their citizenship. They still...
incur a tax liability for ten years
. That's correct Senator Bradley on income
from U.S. source assets for a ten year bond
that's
correct. If
my citizenship
and decided and I got a big payment by a casino there are a couple hundred grand if you wouldn't pay any tax under any of these proposals it's
that
income is that correct. That's correct. So I am
successfully avoiding tax on any foreign source income that I would not be able to avoid the U.S. Citizenship and have been a US citizen.
That's true under all the proposals Yes OK Now let me ask you in terms of let's say that I
inherited several
I'm getting on. I have to start thinking about my own the state. Planning
. I'm fifty. And I'm truly
a billionaire. I read your letter the House bill. I go to Ireland or wherever and I wait ten years. And I sell those assets. I pick up. Still those assets the American tax that is correct if I am the other here in and sold them in Year seven. I would incur a couple gains tax in America under a tree. You know I don't think it's strange closing it up and drop it at the station. I can't...
pronounce it. That's a different study and you would have no tax and heritage because you
obtain a basis equal to its fair market value. You know
let's assume that it's not let's forget it
ever since I have the rights
and I think. Apple gains tax. After ten. And
it's nice that you have
access to the United
States times
it's
so I don't
know that is not taxed
You
can't sell it and pay no
Under this proposal I could accomplish all my objectives which is to save ALL billion dollars from taxation in America by renouncing my citizenship borrowing against this giant...
asset living
well in Monarch or wherever
for ten years and then.
Flinging my nose at the American
taxpayer and saying I'm not
paying tax. I can do that
kind of
under your proposal that it's the House bill and I know under the House bill can I do that
under those facts that's correct fact it works OK but I can do
that.
Seems to me that's what we're trying to correct.
Here and
it's clear out of the House bill we not only.
Don't correct it but we give them a
roadmap that they
can go to to avoid paying the tax and put a stamp of approval on it by the U.S. government. Then suddenly like that's a wise
thing to do. Senator Bradley one one other clarification and in your example and it's important because a state tax is a major consideration here...
the House bill if the
individual does what you've described
dies during that ten year period. It is very likely he would be
subject to the US estate tax whereas under the administration
proposal even probably not be that subject to state tax the state tax is fifty five percent versus the twenty eight percent in kind of what you're protecting all these trusts you to go to put the assets in trust so you don't pay any estate tax Mr Keyes certainly...
someone who was smart enough to set this thing
up would have avoided any estate tax years ago by letting a whole a series of be under lock and trust. Generation skipping trusts all actually and it's just another way to dodge the issue here. The issue is when you renounce. The United States citizenship is that a...
taxable event. Or should you be able to you know
flip your nose at the rest of the country and walk away laughing while the rest of us end up paying tax that's the issue of it. Thank you very
much thank the witnesses
all of this is really horribly horribly complicated as far as when
certain things apply when they don't what appliance what
doesn't. The only question I would like to get to ask or I
think you ought to make you want to make changes in the current law. The question I have is is is retroactivity effect of all of this. I think...
decide to do something we should move forward and do it. I don't like
making tax changes retro actively a less people or on notice that we
were going to make some major changes so that could be just a general questions I have
is. All we are on the bills
perspective in nature are they set at a reasonable time than people knew or should have known that Congress was contemplating changes in this area because they're all kind of tax policies that are on the books that are questionable in value but they're legal and they're correct and they're right there the law of...
the United States and people
. Comply with those laws and they rely on those laws for certain decisions whether the policy is really good or not Congress can come back and change that policy and that's what we're in volved and now I think some changes are necessary the question I have to both of you on the two bills that we're talking about are are they are they retroactive on the prospect of all their prospected from a date certain that is...
fair across the board are we talking in terms of when sort of ship is renowned
as those definitions consistent with immigration policy and the laws of the country and not like some general comment on that from both the on...
Senator Breaux
if I can just summarize I'll try to summarize briefly. Our understanding of the two bills first.
Both bills applied to
expatriation basically after February fifth
and that was February sixth was that this year was the date the administration announced the changes to current law and the reason we strongly urge that date be maintained is that we think that I had we announced a proposal that I had a date that was to be effective at some time later for example when Congress finally acted you would have seen a rush of people who have been reading that guide book because it doesn't really take that long to accomplish everything and therefore we would have we would have seen an unfortunate. Expansion activities so we think that we need but it's really that right. Now I guess it's not carried out on their S S. Expatriate which is basically you go to a U.S. embassy here consulate and if you want your sets and not just picked a compass if you know something that for example someone just said I'm not longer a U.S. citizen. It's impossible in our view. To prove when somebody actually expatriates. And with US government office and indicated that they are we now and saying. So but it is bent in S. seven hundred in H.R. eight hundred twelve as I understand it the event is when some act is taken which does not necessarily have to be the act of going into a council and so we have to determine when so if somebody...
joins. So if somebody takes an allegiance to a foreign government
we go it is a bit like the term that happened
was that really what we have to
find when they did that that they wanted to expand. And that is a difference to people's standards. But it comes to the after after February sixth. And they had expanded treated within. And they had they had taken the position that they were an expatriate for at some point in the previous year than. H.R. eight hundred twelve would apply to that person from the date the person came into the U.S. embassy. So that they would but they would...
not be taxed under H.R. eight hundred
twelve for
the period between. The time they took their action and the time they came in and one of the consequences of that is. Is that someone right now who's thinks that they expatriated say last year they can just wait around and decide when they want to come into the council and in between all of they wouldn't be subject eight hundred twelve would only talk it only starts as I understand it when the person. Comes into a council but our embassy the other issue. Retroactivity is that under H.R. eight hundred twelve the Treasury is given the authority to write regulations for acts that occur within five years prior to expatriation and this regulatory authority was given to try to catch people who were planning tax avoidance techniques before they expatriate. And under the regulatory authority week we can understand we're supposed to write regulations that would tax someone on a transaction that took place five years. Within five years of expatriation and at least the way we read H.R. eight hundred twelve. That means we would we would be able to write regulations that would tax someone on transactions that took place back to nine hundred ninety one and we have concerns about that because that tax year could be closed by now wrote a book. Can you comment on the same question oh my time is expired but just to have both the all common Off course you know Mr bro. There's a couple important pieces of U.S. law that you need to sort of put on the table first a person gives up their U.S. citizenship under current law by taking a number of potential acts for example becoming naturalized in another country...
formally declaring allegiance to another country serving in a foreign army serving in certain types of foreign government employment. If you do...
intent to renounce your citizenship. You lose it as
of that point in time whether or not you ever get a certificate of loss of nationality from the State Department so your U.S. citizenship terminates for all purposes at that point one of the problems that with the administration proposal in terms of retroactivity is that a person could have taken one of those acts in one thousand nine hundred sixty seven and if they go and seek a...
significant loss in nationality next
week they would be subject to worldwide income tax. The way back to one nine hundred fifty seven as a result of coming in asking for this difficult...
nationality so there's that
that's one of the issues raised in the study is there's a sick potential for significant retroactivity under those circumstances in terms of how the two bills work. The ministration proposal originally worked off of when a ceiling was issued and that would have been the key date so if the certificate of lost nationality was issued after February sixth one thousand nine hundred five you would be subject to the new proposal the morning handbill works off of the...
date of the center morning until morning and Bradley excuse me Senator Moynihan and
Senator Bradley's bill and Congressman Givens bill and Graham and Senator Graham uses the date that the certificate of loss to nationality was applied for and as I said in my statement. The difference between the administration bill and the Bill of Senator Moynihan Bradley and Graham is that it would example one hundred eighty three people that would otherwise be caught by the administration bill so there is there is that difference in there but but the issue of retroactivity relates to this fact that somebody could have ceased being a U.S. citizen many years ago but not have asked for a certificate of loss a nationality under both the administration bill and ceremony and Bradley and Graham's bill that person would be brought into the worldwide income tax system retroactively Senator Breaux Can I just add to that we think that that scenario. There's one fairly highly unlikely but even if it. Let's assume for discussion purposes of the took place we think that. The Internal Revenue Service the Treasury could be given authority administratively to deal with those cases that's happened in the past...
where of the Supreme Court's decisions on citizenship and we would go forward to working with the committee to have appropriate my anguish or statutory language so that there would be authority to deal with those cases. So we think that that is a situation that can readily be dealt with if in fact it occurs which we think is highly unlikely that another dress. I think we should all remember that we aren't talking about whether or not we should pass a bill to expatriate because we have voted on this twice in the Senate and I believe everybody here has voted in in support of it or we're talking about is not whether or not with our tax but how we're going to do it and to do it in the right way....
My
first question would be to both of you because versions of this bill have been introduced by Senate and House Democrats that would exclude from taxation up to six hundred thousand dollars of income on expatriates deemed sale of assets at expatriation day. Now my question is to both of you why should Congress grant any exam to these persons the nine their citizenship and how much revenue might be generated if no exception. Granted. Senator Grassley I think the amount of additional revenue that would be raised from not granting those exemptions would be relatively modest only because the number of total people that are expatriating each year generally is a relatively small number of men might pick it would pick up some money but it would not be a significant revenue...
impact because the majority of the revenue in all of these proposals is for the wealthy
individuals that are committing that are either
contemplating are engaging in acts of expatriation or why should we grant the six hundred thousand dollar exemption.
I think that was a
proposal that was included the ministration bill so they'd probably be in a better position to answer that or Secretary some other Grassley I would like to. Confirm in our view that. Eliminating the six hundred thousand exemption would really have no material effect on the...
revenue estimates there aren't that many taxpayers involved then it's a relatively
small so we're in agreement
then we would not do it to raise revenue. The
reason is it's. It's basically two for administrative convenience. And we're like a small business exemption. We don't think that we should deal with tax payers with a very small amount of assets one those general those tax payers generally. Would not have a tax avoidance purpose because the amounts involved are not significant and to I think more importantly. We don't think that it would really be kind of administratively efficient to have to deal with that group it's the amount you know I think last year was roughly you know eight hundred nine hundred people or expatriated and they're not the ones that I think are causing the problem. There's any kind of comment I would make before going to my next question would be the extent to which most Americans would not consider six hundred thousand dollars to be an insignificant amount of what I would say I would agree with that and we actually picked that number because it's the estate tax exempt big. We're talking about people not people who are living in the United States if you're trying to make a case against farmers getting an increase in their example. But Senator Grassley we picked that number we picked that number because it was essentially the estate tax exemption. OK then I guess Mr Keyes you would be the one that should give a point of view for the Congress on this year...
Treasury has given us their
estimates on the proposals
tax provide. The numbers that we have to go by how do you estimate are your estimates differ from those of tracery and we've been over the problems with how many people this a fax but we haven't really. Pointed out the difference in revenue estimates are there differences. Senator Grassley there are some rather significant differences we have to make that the administration proposal would raise six hundred million operate in the area but it turns out it's a picture of it and what was the provision previously considered by the Senate Finance Committee would I think that...
Senator Moynihan Bradley and Graham's bill would raise two hundred million or so that there are there are some differences
in my testimony and I thinks that Mr Samuels also common in his testimony there are differences in assumptions about the extent of the current problem of current law and also about the way in which people will react to these various proposals and...
our analysis is that twelve will be a more
significant deterrent than some of the other proposals but I think both we and the
Treasury Department would acknowledge that we are estimating in an area that is extremely difficult because at least at
least based upon your estimate you've concluded then that the House bill raises more revenue than any of the other Bale's That's correct Mr Grassley....
You mentioned Mr Keyes that the
administration's proposal actually gives an incentive to expatriate for some individuals but
you describe how the insanity would work and therefore how the proposal would fail you mentioned those with low gain assets would be
better off expatriate sooner
than later. Mr Grassley I think the original example that Senator Bradley was positing of somebody who inherits significant wealth or who is in on the verge of inheriting signify. And well...
those people if they
expatriated under the
administration proposal would have no tax liability whereas under eight hundred
twelve they would be taxed on their U.S. source income for ten years
and so if you are inheriting for example a significant ownership interest in a U.S. corporation that you want to continue owning under eight hundred twelve you would be subject to tax on this stream of dividend income. That would come from that and indeed if you later on sold those assets all of the appreciation would be subject to tax and that's just one example of how there's a difference. The two bills do differ in a variety of respects. Senator Senator Grassley Can I just add on not as ice mentioned in my oral testimony and it's more fully described in my written testimony. We understand that reasonable people can...
differ about the level of revenue estimates and we've explained why we think
there are differences were. I think we have some difficulty is in the ranking of the estimates we think that we rank the the estimates quite differently than the joint committee. We don't see how either the administration's proposal or Senator Moynihan and Senator Bradley's proposal but I wouldn't raise mass revenue as an H.R. eight hundred twelve H.R. eight hundred twelve has the same problems of current law they allow people to expatriate free of tax by just waiting ten years that doesn't tax expatriates on their foreign source income and that there are a variety of ways of we think still available to plan around the law on this question of someone who just inherited a vast amount of wealth and whether they would be more inclined to expatriate under one or the other bill we think that the incentive to expatriate under all three is about the same. And attached to my testimony is a lot or from three professors at Harvard Law School which who wrote us to give us their views on this issue and they concluded that they didn't think that there was any incentive to get it. It's expected. That under certain. And it's really. Sixty six pages. So you were all set you had waited the ten years. So we think that the ranking is where we are and I think the joint committee had differences in terms of the magnitude. We can understand why or why we would come to different versions but it's the ranking where we have that and we've we've tried to address our reasons for our ranking in our in our testimony. Thank you Mr Chairman I guess it touches on the point that you made Mr Samaras which seems to me rather difficult to think that somebody who's an expatriate who is going to go does this gives up their initial chip to save money isn't going to take advantage and hold out for ten years...
if you're talking about wealthy wealthy people. I mean they're not dumb and it would seem to me
that this eight hundred twelve
over rate their revenue incredibly as it relates to the six hundred thousand dollars you get there are a lot of people in this country who still have a strong attachment to love this country. But they're older...
I mean years of work here
when you go back to whether it's Greece or Italy a chapter some or resident aliens and they are not wealthy people. By any means they
sell their home.
If you give them up
to six hundred thousand dollars and they can go on back to we're not trying to stop migration. We're not trying to stop people from meeting that which is in their heart to live with their families their brothers and sisters. Maybe but I think we are all of us seek the goal of seeing that people don't try to beat this system well wealthy people who have made billions of dollars or hundreds of million dollars You know now come up with to schemes that Senator Moynihan this alluded to in this little book about you know. Come on over here pay thirty five thousand dollars in trust and you can run out on it I might also add that it seems to me that under the present law Section eight seventy seven is something called in ten and we probably have not been as vigorous in going after of those who are using these ruses...
and finding against them because it's quite clear that with their intent is to date the payment of taxes they have not for well purposes escape liability and so there is always the question of can we do a better job I would have to say that it seems to me that the provisions advanced by my friend and colleague Senator Moynihan and Senator Bradley and I think you know at least strikes a balance. I don't want to open the door because let me tell you if these guys want to they will not sell those assets over ten billion dollars and they do have the states that they placed in. Trust. So I think if you look at those revenue estimates there will be a lot different if you if you look at the morning hand Bradley Bill as. As opposed to eight hundred twelve. I do think we should do something if we feel that the intent in the present law. Opens just loophole and obviously there are some who share that concern. So let's close the loophole for most of them. Let's not go in show doing and deny people the ability to to go back to their to their ancestral homes and die in peace. And take shelter. After all they have been paying taxes all along it's not a question of their escaping to actually they're not you keep a reasonable limit you don't want to impoverished people it seems to me that that's correct and that that's a problem and I thank the chair but thank you very much Mr Chairman. It's funny how things sometimes get circular in this life there's an expression that God made the world around so we couldn't see what was down the road and I was really tickled to find as part of the case in this area have been doing expatriation is one of the first cases that I tried as an assistant United States attorney Vance first what became later Vance secretary of state versus to Rouse's which was an expatriate case I was a...
junior lawyer and we had
a Mexican national who who were announced his United States citizenship in order to avoid going to the war and it was one of the first trials that I had to try from scratch and go through every step of the process...
involved with
expatriation and it was not a simple process you could just go and say I don't want to be a United States citizen anymore you have to fill out forms you have to go to the embassy I mean it was a complicated process and frankly the embassy's went to great lengths to see to it that people didn't mistakenly renounce their United States citizenship and in the case of bands vs to Ross's which is referenced in some of the underlying documentation here. The Supreme Court went to great lengths to go through what was involved and I don't have my glasses but they the holding was in. We hold that improving expatriation and expand Trading Act and an intent to relinquish citizenship must be proved by a preponderance of the evidence...
We also hold that when one of the statutory expatriating acts is proved it is constitutional to presume it would have been a voluntary act until and unless otherwise proved by the actor. If he succeeds. That is if you prove that you made a mistake. There can be no expatriation if he fails the question remains whether...
on all the evidence the
government is satisfied its burden of proof that the expatriating act was performed with the necessary intent to relinquish citizenship. And I raise raise that not just talk about a case that I tried when I first was a baby lawyer in the US attorney's office and in Chicago but to talk about what I think is one of the underlying issues in this entire debate and that is one of fairness fairness to the people who are left at home in the case the to Rouse's case that I tried I remember being more than allowed rage that that the individual who had renounced his citizenship was doing so at the expense of all those other young men who are having to go off to Vietnam and this situation I think the fairness issue is one of all those citizens who have who renounced their citizenship to go off. At the expense of the folks that are left here at home paying taxes and so in that regard it really does become a really fundamental issue of fairness. And one in which quite frankly again the voluntariness issue is not an issue because the court and President makes it very clear you really have to go out of your way to do this this is not something that just...
happens and you have
to knowingly do so if I propounded as we prove our plans of evidence and so it is a
set of steps. I also
would like to reference to Mr Keyes particularly as Senator Senator D'Amato I'm sorry. Anthony D'Amato from Northwestern University's School of Law which I. I also blame Chicago talked about the fact that indeed a case can be made the average American taxpayers rights...
are infringed. Under
current law if wealthy Americans can expand treat themselves and avoid paying their fair share
of capital gains tax
and so that becomes an issue so if we're talking about. What's involved the fairness issues here and what's involved in trying to fix this a lot of the debate this afternoon has been over the differences in the report. Mr Keyes that your. Department came up with and the Treasury Department and...
the difference in
revenue estimates and they differ widely Joint Tax apparently saying well this isn't a whole lot of money involved. Or at least it's a whole lot less money involved than Treasury says is involved with this expansion and so my question to you Mr Keyes in terms of the way that the issue was ranked in terms of administration and the...
points having to do with administration
to what extent did
you before doing your report on this issue
consult with the Treasury and go over the various points having to do with how this law works. Senator we have spent an extensive amount of time reviewing information which we requested from the Treasury Department in...
connection with our study. Both in terms of looking at the raw data that they used for purposes of doing their estimates we also obtained substantial information from the State Department which I don't even think the Treasury Department previously had. In terms of our revenue analysis we too are showing that there is significant potential revenue and the twelve we predict would raise two point four billion over a ten year period that compares with the one point nine billion that we think the administration proposal would raise Now that's a that is a smaller number and the administration predicts. It's still a substantial amount of money in excess of a billion dollars is not an insignificant. I mean but the specific answer your question is we we have reviewed extensively the information which Treasury used to do their own asked him and we've also done extensive analysis of State Department data. About people who have explained treated. We've compared it with the lists of the wealthiest people in America to try and determine what the incidence of expatriation by wealthy people is to...
then try and get a a reasonable estimate
of how much money can be raised from an effective
legislative change here that
provides additional deterrent beyond what is available under current law except that Mr Chairman if I mean the question I asked had to do with consulting with Treasury not just obtaining information we met with different sources we consult we had. We met with them on a number of occasions in the process of preparing the study. Thank you thank you Mr Chairman Senator Grassley...
raised the issue of the basis of exemptions within the various proposals. Apparently there is also an exemption
in the House bill that relates to your place of birth or your spouse place of birth or one of your parents' place of birth but if you repatriate to a country which meets one of those tests that you are exempt from the application of this law is not a correct statement....
GRAHAM That's actually not correct.
What the House bill does is it says that as a general proposition. Anybody expatriate is presumed to do it for tax avoidance it then says that under certain circumstances including the one that you alluded to an individual has the opportunity to ask the Treasury Department for a ruling that he or she is not doing it for tax avoidance and if he or she is able to prove that he or she is not doing it for tax avoidance. They then would not be subject to the tax regime. But. Just being just returning to the country of your parents birth or your birth is not right you an exemption you then have to carry the burden of proof of showing that you are not doing it for tax avoidance and indeed you don't even get the ability to do that unless you submit a ruling request to the Treasury Department within a year of your expatriating event. Can I ask a question I'd like to ask much same as common. What are...
some of the other
categories that would raise the potential of challenging the
motivation. The other categories
are if you are a long time non resident of the United States a somebody who has not been resin in the United States for a
substantial period of time. Another
category is if you are. Give up your citizenship. Prior to eighteen and a half and I believe
that I think those are the other kind of I mean. And we the the eight hundred twelve would also give the Treasury Department. It's already to probably get under regulations other situations that might be viewed as sympathetic that would permit taxpayers to then be able to prove that they are not doing it for tax avoidance purposes. Now the Treasury Department has raised a concern about whether or not the proof of tax avoidance is a difficult thing. Eight hundred twelve by requiring the taxpayer to come forward and actually present him he or she to the Treasury Department think puts them in a different situation from current law where basically the I.R.S. has to chase the person down in order to be able to pursue them. So I mean but that's that's the way twelve works. Samuel's GRAHAM We have a somewhat different view of the impact of this provision in H.R. eight hundred twelve which we think creates a favored class of citizens those with the connections to another country in a variety of ways and I think that the way we look at it is it is...
correct. You have to apply for a ruling but
there is no requirement that you actually get a ruling and as we
all know the issue that the ruling
request relates to is the matter of intent and not has been
the question of intent is what has kind of
dogged us over the last twenty nine years of trying to figure out what it is so that expatriate comes in one of these categories they file for ruling the I.R.S. says we think you had a bad intent and person says well too bad...
you know come after me
and then the I.R.S. has to go through all of itsessment procedures and then you wind up in court and I think that it's fair to say that that the very wealthy are also very well advised and that has been the problem with proving intent. So we think that you're back to current law in effect with this ruling procedure and all the problems inherent in current law and therefore we think that this group of citizens who happen to have some connections in one way or another with foreign countries should not be treated separately in any different way than citizens who have been living here. Graeme just for a second coming out of his time at the possible back with you thank you very much just to make the point Mr Samaras is making it really is a very the issue is a very difficult issue in this whole area and the trial back in one nine hundred eighty that I was involved with in this...
case that
is the trial. So I just wanted to thank you and
I'm sorry. And thank you very much for courtesy SENATOR GRAHAM Can I just mention one thing about in ten issue and that is I think the facts...
exactly consistent with what Mr same Ailsa said the Treasury Department
has only litigated the issue of intent twice in twenty nine years they won one of those cases
and they lost one. So there is not a long history
of the. I'm not succeeding in proving intent that those are the facts in terms of what is actually happened.
Let me use this discussion as a bridge to a basic question
. I'd like. Each of your opinion on this question as a matter of
tax policy. Do you think that persons who are renouncing their United States citizenship and. Expatriating should have either an exit obligation or a continuing tax liability for a period of years or some combination of financial obligation to the United States Treasury saying again I think that the man as a matter of tax policy the Congress has long ago decided that I ask you what your opinion. Yes or no should should there be such a well I think there ought to be some penalty for people expatriating for tax avoidance and...
I think that that's an appropriate policy of our tax system
so
Graham in and out of the experience that we've had over the last twenty nine years. I think and all of the discussion we've had over the past several months. I think it's absolutely clear that in terms of public's perception of the tax system which isn't what an issue and tax policy that it is extremely important that...
the public feel that when someone
expatriates they are saddling up with their tax liability and I think that when a very wealthy person
expatriate since those
it's because of a non tax reason I don't think the average person will believe that. And I think that one of the published reports of a warrior...
involved in in
advisory U.S. citizens who are expatriates he
said you know there are always reasons but there's also always
money and I think that the public knows that so we think that there ought to be settling up at the time as a policy matter at the time someone. Or they can make a selection as...
is provided Senator Moynihan and Senator Bradley's a bill and that that is the appropriate policy to deal with this issue. Mr Chairman I'd like to ask permission to insert in the record this point to an article from The New York Times of July tenth on this issue. Thank you Mr Chairman Samuels I've been impressed that your testimony. How long have you been...
with the department. SENATOR SIMPSON I was confirmed in May of one thousand nine hundred three. OK but but you have been a follower of the if...
or almost twenty five
where you helping these guys
know where your vast reservoir of knowledge.
I mean really I would spend a lot of time in kind of corporate and international practice and this was Senator Moynihan has the book something is going to a cottage industry that most people who...
are involved in international tax practice know about it's not a it's not a
not a surprise and actually we've spent a lot of time in the last professor has gone to his book but what you have here and I think I think that from our perspective the reason we made this proposal is that he said based on anecdotal evidence we got interested in this problem. Let me go let me. I have a very short period of time with your background and. Both of you...
sharing your thoughts because I think when we started
this obviously it was a great pot of gold at the end of the rainbow that we had suddenly found that's the way we look upon it seemed to me and obviously when you get into issues of intent and...
prove. Ten. We all know
lawyers are not lawyers but that is obviously very very difficult. So and then And then there's how much it will raise very very difficult. We're...
we're we're
searching the
country for money and where do we get to the tough votes
but your resolution was nothing compared
to when we get to the tough votes and the entitlements
and are all heard that
my question is.
Of all the proposals that
you have heard of in your time. Recently or in the past on your experience and background.
What is the biggest hammer that we could use. What would be the most effective deterrent
here from Americans right now saying there are sufficient
ships. What would that be Senator our conclusion was that an approach that imposed a continuing tax regime for a substantial period of time was more effective than than...
one that only taxed
appreciation at the particular point of renunciation So our conclusion was one that
provided continuing taxation. If you wanted to be even more aggressive you would tax not only U.S. source income but foreign source income if if you were looking for an even more strenuous department don't treaties prevent us from doing a lot of that kind of activity when you get into taxation among citizens of countries and expatriates I mean there's various As has been pointed out. Senator Simpson a number of the people that are expatriating are going to places where we don't even have U.S. tax treaties for example Billie's and some of those tax haven countries so it depends on what countries they're actually expatriating to as to whether or not there's any treaty protection...
. Maybe thoughts from
Senator Simpson I think the way we approach this is. Is that the time to saddle up with an expatriate is basically at the time the expatriate They either pay their tax or your Senator Moynihan is Bill they will enter into an agreement with the I.R.S. by posting adequate security...
to pay their continuing tax obligations on the assets that they elected subject to tax and the problem with H.R. eight hundred twelve is that it's basically built on the foundation of current law and we think. Current law is based that foundation is basically crumble everybody agrees the current law is too easy to get around and that's why Senator Moynihan has that book. So we think that any provision that allows people to kind of wait out some time period will not encourage a confidence in the tax system because inevitably there will be people who beat the system by waiting whatever period of time you set so that's how we've approached this issue and as I say we know that we have the need for funding is extreme and as we just have a difference in ranking these proposals of the joint committee it's going to be a very difficult thing for us that's what's obvious very difficult for and very difficult and one of the Russians involved a resident of the state of Wyoming the heir of the Campbell fortune Gorham's Dorrans very...
fine person he was
seeking to answer a great portion of his property
. And animals
and people of
that area did not think that it would be good to land the red
deer Africa with the elk whatever. Or the dick dick with the
deer and so on. And he was denied that opportunity
to have a a
game farm and the state filled with with
wild animals and then apparently went
to Ireland and then has holdings in
other places in the United States are not in the United States but around the
the world
apparently under that under the law of the United States or the
under the law of Ireland where a person can
return to the United States
for what period
of time if that's of some interest here to me and later. SENATOR
SIMPSON It's under the United
States Tax law a
nonresident alien which would include an expatriate can be returned for up to one hundred twenty days a year without being subject to
U.S. tax as a resident
without any limitations on what type of
habitation or where they would go
and bring you know no limitation but I think we have a tough one there and that's for sure. Thank you very much. Yes I'm always X.X. our white citizenship secondary or it's an escape confiscatory tax already in its second edition and I probably would be a third to get this bill passed...
and when was the when was that book for the
second edition is ninth
one thousand nine hundred three nine hundred ninety four edition. Would you like to know
more I can pass and I think you're
right
after coming out of draft copy I would like to think I
mean Card get you into United States will you need a red card to
get you out that's what they're talking about this legislation Yes
Yes I mean messing with a green card. Thank you very
much Mr Chairman I don't really have any any further questions I think that pretty much concludes that I just want to thank the chairman for this hearing and the witnesses and I hope that we can now we can reach closure on this issue I'm certainly at a time that we're talking about cutting...
job training programs for disadvantaged youth in and closing their educational opportunities and trying to get this budget balanced or get it in some balance and deal with the entitlements issues Medicare Medicaid what's do about senior citizens and. Health care funding. We've got all these issues and it just doesn't make any sense at all it seems to me for us to fool around in this area and not have something that is clear and consistent and understandable and fair and it's for that reason...
I hope that you and Joint
Tax My take of kindly look at the going to hand approach to this issue. Thank you thank us a rare. Mr Keyes.
How much money did the
Treasury receive in F Y ninety four from the current expatriates times Senator Graham. We don't have the specific numbers on that some of the information that we do have is taxpayer privilege can't be disclosed in a public hearing. So I mean I'm not asking any individual person but I mean your your estimate is that the...
House proposal would raise two point four billion over the next ten years correct just dividing that
by ten that. That would be two hundred forty million per year. What is what are we raising today. Senator Bradley the only information that we have is taxpayer specific but so I can't talk about that in public. But let me just mention the two point four billion as in the case of the administration's estimates...
is substantially
attributable to discouraging people from
expatriating so they stay here
and pay tax on their worldwide income not from collecting the tax under the provision of eight seventy seven so a good deal of revenue pick up is a tribute able to discouraging people from expatriating all. And that's true of all the proposals I think Mr Sanders are you at liberty to...
comment as to what the range of
current collections would be under this under the current law and I agree it's extremely small amount and we don't I don't have a say in how many we last night seven are nice and less than fifty million dollars I think that. My my staff here is giving me some advice that it's been very...
difficult to decide how to define. How much one is collecting as Mr Key says part of that is people
who aren't expatriate but we don't the data for one thousand nine hundred four isn't yet in because people are still filing returns
but it's a it's quite a we think it's quite a small. I'm don't want to get off on this side issue but it seems to me it's a little difficult to be asked to evaluate. Changes for the future unless you have some context of what it is you're doing now because the next question is when I ask is. You both agree that as a matter of tax policy...
it was appropriate to have a special tax where these explain what is the what is the problem with the law that we've had in place for twenty nine years that it is not accomplishing a policy objective that both of you share the principal problem of current law is that there are a number of legal methods of eliminating any income from. Being treated as us...
sort what would be the three
major means of evasion of the current
taxpayer can transfer all of their U.S. source assets into a foreign
corporation and as a consequence the income they
then receive from that foreign corporation is treated as foreign source
not U.S. source and therefore not subject to the current law provisions that's probably one of the more significant
ways to avoid legally the reach of the current
law provision. Even if you have been proven to be subject to have expatriated for tax avoidance purposes. And how would the House bill deal with the House bill would treat that is continuing as U.S. source income if it's transferred into a foreign corporation and not a recognition of that so if the taxpayer doesn't enter into an agreement type like the agreement. In Senator Moynihan and Grant and your bill under which you pay tax currently on the gain then the income of that foreign corporation we continue to be treated as US source income do you agree Mr same as a test...
the principle means of
avoidance today. And if so how would the administration's proposal deal with that Senator Graham that is certainly one of the principal methods that I think is most widely used and by the way I would just add that one of the one of the aspects of H.R. eight hundred twelve is while they try to in a fact follow the U.S. asset when it's dropped into the foreign...
holding company. They limit the U.S. tax on any gain at the time it's dropped in so that if it appreciates over ten years. There's a difference between people who drop in assets in a foreign corporation and hold them directly for ten years or so when your H.R. eight hundred twelve there will be the same incentive in our view for expatriates who are trying to beat the ten years to give them the most flexibility they will drop in their assets into a foreign holding company as soon as possible and we think that those kinds of planning we think that those type. Planning devices. Once you. Once you examined certain categories of assets like like foreign source income producing assets and as soon as you have a time period. The cottage industry of toxic visors are going to think up ways of getting around it and that's why we think you have to fix the liability when you leave or make this selection by posting adequate security is provided in Senator Moynihan and Senator Bradley's bill so that's how we think you have to deal with the problem or we're going to be forever chasing. The next tax idea and it's very difficult to keep track of people for ten years. There is no requirement that once someone leaves under H.R. eight hundred twelve they have to file a piece of paper when they leave but there's no continuing obligation to file so it's hard for the I.R.S. can be hard for the I.R.S. to kind of keep up and know what's going on that's and that's another concern that we have when the morning handbill if the tax if the grand bill. Let us. I think it was President Kennedy who said that victory always has one hundred parents defeat. Is an orphan. Let's see how this child to claim the heritage...
but in the in the morning hand Bradley Graham Givens. Bill if the taxpayer. Point of expatriation lacks not to make a settlement but rather to be subject to ten years of payment. They they host some type of security there is the House bill have a similar posting of security agreement it does it does not contain that type of proposal. I just might point out that all of these proposals prison including the House bill and the administration proposal presume a level of voluntary compliance because the...
payment of tax in all cases comes after the taxpayer has expatriated.
So that there is a presumption of some voluntary compliance for all of these proposals and that but I think it was President Reagan who says stay...
quoting presidents who said trust but verify
we might trust everyone to be voluntarily complying would be helpful to also get some
security up front gates
they. They disappointed us. But I think
Senator Graham that's something that ought to be
looked at relative to eight hundred twelve if it is considered.
Gentlemen thank you very much.
you Thank Center. The Senate meets
Monday at nine thirty A.M. lawmakers will be continuing work on a regulatory reform bill.