CIR Vs ST Lukes
CIR Vs ST Lukes
CIR Vs ST Lukes
DECISION
DEL CASTILLO, J.:
The doctrine of stare decisis dictates that "absent any powerful countervailing considerations,
like cases ought to be decided alike."1
This Petition for Review on Certiorari2 under Rule 45 of the Rules of Court assails the May 9,
2012 Decision3 and the September 17, 2012 Resolution4 of the Court of Tax Appeals (CTA) in
CTA EB Case No. 716.
Factual Antecedents
On December 14, 2007, respondent St. Luke’s Medical Center, Inc. (SLMC) received from the
Large Taxpayers Service-Documents Processing and Quality Assurance Division of the
Bureau of Internal Revenue (BIR) Audit Results/Assessment Notice Nos. QA-07-0000965 and
QA-07-000097,6 assessing respondent SLMC deficiency income tax under Section 27(B)7 of
the 1997 National Internal Revenue Code (NIRC), as amended, for taxable year 2005 in the
amount of ₱78,617,434.54 and for taxable year 2006 in the amount of ₱57,119,867.33.
On January 14, 2008, SLMC filed with petitioner Commissioner of Internal Revenue (CIR) an
administrative protest8assailing the assessments. SLMC claimed that as a non-stock, non-
profit charitable and social welfare organization under Section 30(E) and (G)9 of the 1997
NIRC, as amended, it is exempt from paying income tax.
On April 25, 2008, SLMC received petitioner CIR's Final Decision on the Disputed
Assessment10 dated April 9, 2008 increasing the deficiency income for the taxable year 2005
tax to ₱82,419,522.21 and for the taxable year 2006 to ₱60,259,885.94, computed as follows:
PARTICULARS AMOUNT
Sales/Revenues/Receipts/Fees ?3,623,511,616.00
Less: Cost of Sales/Services 2,643,049, 769.00
Gross Income From Operation 980,461,847.00
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Add: Non-Operating & Other Income -
Total Gross Income 980,461,847.00
Less: Deductions 481,266,883 .00
Net Income Subject to Tax 499, 194,964.00
XTaxRate 10%
Tax Due 49,919,496.40
Less: Tax Credits -
Deficiency Income Tax 49,919,496.40
Add: Increments
25% Surcharge 12,479,874.10
20% Interest Per Annum (4115/06-4/15/08) 19,995,151.71
Compromise Penalty for Late Payment 25,000.00
Total increments 32,500,025.81
Total Amount Due ?82,419,522.21
PARTICULARS [AMOUNT]
Sales/Revenues/Receipts/Fees ?3,8 l 5,922,240.00
Less: Cost of Sales/Services 2,760,518,437.00
Gross Income From Operation 1,055,403,803.00
Add: Non-Operating & Other Income -
Total Gross Income 1,055,403,803.00
Less: Deductions 640,147,719.00
Net Income Subject to Tax 415,256,084.00
XTaxRate 10%
Tax.Due 41,525,608.40
Less: Tax Credits -
Deficiency Income Tax 41,525,608.40
Add: Increments -
25% Surcharge 10,381,402.10
20% Interest Per Annum (4/15/07-4/15/08) 8,327,875.44
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Compromise Penalty for Late Payment 25,000.00
Total increments 18,734,277.54
Total Amount Due ?60,259,885.9411
Aggrieved, SLMC elevated the matter to the CTA via a Petition for Review,12 docketed as CTA
Case No. 7789.
On August 26, 2010, the CTA Division rendered a Decision13 finding SLMC not liable for
deficiency income tax under Section 27(B) of the 1997 NIRC, as amended, since it is exempt
from paying income tax under Section 30(E) and (G) of the same Code. Thus:
SO ORDERED.14
CIR moved for reconsideration but the CTA Division denied the same in its December 28,
2010 Resolution.15
This prompted CIR to file a Petition for Review16 before the CTA En Banc.
On May 9, 2012, the CTA En Banc affirmed the cancellation and setting aside of the Audit
Results/Assessment Notices issued against SLMC. It sustained the findings of the CTA
Division that SLMC complies with all the requisites under Section 30(E) and (G) of the 1997
NIRC and thus, entitled to the tax exemption provided therein.17
On September 17, 2012, the CTA En Banc denied CIR's Motion for Reconsideration.
Issue
Hence, CIR filed the instant Petition under Rule 45 of the Rules of Court contending that the
CTA erred in exempting SLMC from the payment of income tax.
Meanwhile, on September 26, 2012, the Court rendered a Decision in G.R. Nos. 195909 and
195960, entitled Commissioner of Internal Revenue v. St. Luke's Medical Center, Inc., 18 finding
SLMC not entitled to the tax exemption under Section 30(E) and (G) of the NIRC of 1997 as it
does not operate exclusively for charitable or social welfare purposes insofar as its revenues
from paying patients are concerned. Thus, the Court disposed of the case in this manner:
WHEREFORE, the petition of the Commissioner of Internal Revenue in G.R. No. 195909is
PARTLY GRANTED. The Decision of the Court of Tax Appeals En Banc dated 19 November
2010 and its Resolution dated 1 March 2011 in CTA Case No. 6746 are MODIFIED. St. Luke's
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Medical Center, Inc. is ORDERED TO PAY the deficiency income tax in 1998 based on the
10% preferential income tax rate under Section 27(B) of the National Internal Revenue Code.
However, it is not liable for surcharges and interest on such deficiency income tax under
Sections 248 and 249 of the National Internal Revenue Code. All other parts of the Decision
and Resolution of the Court of Tax Appeals are AFFIRMED.
The petition of St. Luke's Medical Center, Inc. in G.R. No. 195960 is DENIED for violating
Section I, Rule 45 of the Rules of Court.
SO ORDERED.19
Considering the foregoing, SLMC then filed a Manifestation and Motion20 informing the Court
that on April 30, 2013, it paid the BIR the amount of basic taxes due for taxable years 1998,
2000-2002, and 2004-2007, as evidenced by the payment confirmation21 from the BIR, and
that it did not pay any surcharge, interest, and compromise penalty in accordance with the
above-mentioned Decision of the Court. In view of the payment it made, SLMC moved for the
dismissal of the instant case on the ground of mootness.
CIR opposed the motion claiming that the payment confirmation submitted by SLMC is not a
competent proof of payment as it is a mere photocopy and does not even indicate the
quarter/sand/or year/s said payment covers.22
CIR argues that under the doctrine of stare decisis SLMC is subject to 10% income tax under
Section 27(B) of the 1997 NIRC.29 It likewise asserts that SLMC is liable to pay compromise
penalty pursuant to Section 248(A)30 of the 1997 NIRC for failing to file its quarterly income tax
returns.31
As to the alleged payment of the basic tax, CIR contends that this does not render the instant
case moot as the payment confirmation submitted by SLMC is not a competent proof of
payment of its tax liabilities.32
SLMC's Arguments
SLMC, on the other hand, begs the indulgence of the Court to revisit its ruling in G.R. Nos.
195909 and 195960 (Commissioner of Internal Revenue v. St. Luke's Medical Center,
Inc.)33 positing that earning a profit by a charitable, benevolent hospital or educational
institution does not result in the withdrawal of its tax exempt privilege.34 SLMC further claims
that the income it derives from operating a hospital is not income from "activities conducted for
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profit."35 Also, it maintains that in accordance with the ruling of the Court in G.R. Nos. 195909
and 195960 (Commissioner of Internal Revenue v. St. Luke's Medical Center, Inc.), 36 it is not
liable for compromise penalties.37
In any case, SLMC insists that the instant case should be dismissed in view of its payment of
the basic taxes due for taxable years 1998, 2000-2002, and 2004-2007 to the BIR on April 30,
2013.38
Our Ruling
The issue of whether SLMC is liable for income tax under Section 27(B) of the 1997 NIRC
insofar as its revenues from paying patients are concerned has been settled in G.R. Nos.
195909 and 195960 (Commissioner of Internal Revenue v. St. Luke's Medical Center,
Inc.),39 where the Court ruled that:
x x x We hold that Section 27(B) of the NIRC does not remove the income tax exemption of
proprietary non-profit hospitals under Section 30(E) and (G). Section 27(B) on one hand, and
Section 30(E) and (G) on the other hand, can be construed together without the removal of
such tax exemption. The effect of the introduction of Section 27(B) is to subject the taxable
income of two specific institutions, namely, proprietary non-profit educational institutions and
proprietary non-profit hospitals, among the institutions covered by Section 30, to the 10%
preferential rate under Section 27(B) instead of the ordinary 30% corporate rate under the last
paragraph of Section 30 in relation to Section 27(A)(l).
Section 27(B) of the NIRC imposes a 10% preferential tax rate on the income of (1) proprietary
non-profit educational institutions and (2) proprietary non-profit hospitals. The only
qualifications for hospitals are that they must be proprietary and non-profit. 'Proprietary' means
private, following the definition of a 'proprietary educational institution' as 'any private school
maintained and administered by private individuals or groups' with a government permit. 'Non-
profit' means no net income or asset accrues to or benefits any member or specific person,
with all the net income or asset devoted to the institution's purposes and all its activities
conducted not for profit.
'Non-profit' does not necessarily mean 'charitable.' In Collector of Internal Revenue v. Club
Filipino, Inc. de Cebu, this Court considered as non-profit a sports club organized for
recreation and entertainment of its stockholders and members. The club was primarily funded
by membership fees and dues. If it had profits, they were used for overhead expenses and
improving its golf course. The club was non-profit because of its purpose and there was no
evidence that it was engaged in a profit-making enterprise.
The sports club in Club Filipino, Inc. de Cebu may be non-profit, but it was not charitable. Tue
Court defined 'charity' in Lung Center of the Philippines v. Quezon City as 'a gift, to be applied
consistently with existing laws, for the benefit of an indefinite number of persons, either by
bringing their minds and hearts under the influence of education or religion, by assisting them
to establish themselves in life or [by] otherwise lessening the burden of government.' A
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nonprofit club for the benefit of its members fails this test. An organization may be considered
as non-profit if it does not distribute any part of its income to stockholders or members.
However, despite its being a tax exempt institution, any income such institution earns from
activities conducted for profit is taxable, as expressly provided in the last paragraph of Section
30.
The Court in Lung Center declared that the Lung Center of the Philippines is a charitable
institution for the purpose of exemption from real property taxes. This ruling uses the same
premise as Hospital de San Juan and Jesus Sacred Heart College which says that receiving
income from paying patients does not destroy the charitable nature of a hospital.
As a general principle, a charitable institution does not lose its character as such and its
exemption from taxes simply because it derives income from paying patients, whether
outpatient, or confined in the hospital, or receives subsidies from the government, so long as
the money received is devoted or used altogether to the charitable object which it is intended
to achieve; and no money inures to the private benefit of the persons managing or operating
the institution.
For real property taxes, the incidental generation of income is permissible because the test of
exemption is the use of the property. The Constitution provides that '[c]haritable institutions,
churches and personages or convents appurtenant thereto, mosques, non-profit cemeteries,
and all lands, buildings, and improvements, actually, directly, and exclusively used for
religious, charitable, or educational purposes shall be exempt from taxation.' The test of
exemption is not strictly a requirement on the intrinsic nature or character of the institution. The
test requires that the institution use property in a certain way, i.e., for a charitable purpose.
Thus, the Court held that the Lung Center of the Philippines did not lose its charitable
character when it used a portion of its lot for commercial purposes. The effect of failing to meet
the use requirement is simply to remove from the tax exemption that portion of the property not
devoted to charity.
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The Constitution exempts charitable institutions only from real property taxes. In the NIRC,
Congress decided to extend the exemption to income taxes. However, the way Congress
crafted Section 30(E) of the NIRC is materially different from Section 28(3), Article VI of the
Constitution. Section 30(E) of the NIRC defines the corporation or association that is exempt
from income tax. On the other hand, Section 28(3), Article VI of the Constitution does not
define a charitable institution, but requires that the institution 'actually, directly and exclusively'
use the property for a charitable purpose.
Section 30(E) of the NIRC provides that a charitable institution must be:
(4) No part of its net income or asset shall belong to or inure to the benefit of any member,
organizer, officer or any specific person.
Thus, both the organization and operations of the charitable institution must be devoted
'exclusively' for charitable purposes. The organization of the institution refers to its corporate
form, as shown by its articles of incorporation, by-laws and other constitutive documents.
Section 30(E) of the NIRC specifically requires that the corporation or association be non-
stock, which is defined by the Corporation Code as 'one where no part of its income is
distributable as dividends to its members, trustees, or officers' and that any profit 'obtain[ed] as
an incident to its operations shall, whenever necessary or proper, be used for the furtherance
of the purpose or purposes for which the corporation was organized.' However, under Lung
Center, any profit by a charitable institution must not only be plowed back 'whenever
necessary or proper,' but must be 'devoted or used altogether to the charitable object which it
is intended to achieve.'
The operations of the charitable institution generally refer to its regular activities. Section 30(E)
of the NIRC requires that these operations be exclusive to charity. There is also a specific
requirement that 'no part of [the] net income or asset shall belong to or inure to the benefit of
any member, organizer, officer or any specific person.' The use of lands, buildings and
improvements of the institution is but a part of its operations.
There is no dispute that St. Luke's is organized as a non-stock and non-profit charitable
institution. However, this does not automatically exempt St. Luke's from paying taxes. This only
refers to the organization of St. Luke's. Even if St. Luke's meets the test of charity, a charitable
institution is not ipso facto tax exempt. To be exempt from real property taxes, Section 28(3),
Article VI of the Constitution requires that a charitable institution use the property 'actually,
directly and exclusively' for charitable purposes. To be exempt from income taxes, Section
30(E) of the NIRC requires that a charitable institution must be 'organized and operated
exclusively' for charitable purposes. Likewise, to be exempt from income taxes, Section 30(G)
of the NIRC requires that the institution be 'operated exclusively' for social welfare.
However, the last paragraph of Section 30 of the NIRC qualifies the words 'organized and
operated exclusively' by providing that:
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Notwithstanding the provisions in the preceding paragraphs, the income of whatever kind and
character of the foregoing organizations from any of their properties, real or personal, or from
any of their activities conducted for profit regardless of the disposition made of such income,
shall be subject to tax imposed under this Code.
In short, the last paragraph of Section 30 provides that if a tax exempt charitable institution
conducts 'any' activity for profit, such activity is not tax exempt even as its not-for-profit
activities remain tax exempt. This paragraph qualifies the requirements in Section 30(E) that
the '[n]on-stock corporation or association [must be] organized and operated exclusively for . . .
charitable . . . purposes . . . . ' It likewise qualifies the requirement in Section 30(G) that the
civic organization must be 'operated exclusively' for the promotion of social welfare.
Thus, even if the charitable institution must be 'organized and operated exclusively' for
charitable purposes, it is nevertheless allowed to engage in 'activities conducted for profit'
without losing its tax exempt status for its not-for-profit activities. The only consequence is that
the 'income of whatever kind and character' of a charitable institution 'from any of its activities
conducted for profit, regardless of the disposition made of such income, shall be subject to tax.'
Prior to the introduction of Section 27(B), the tax rate on such income from for-profit activities
was the ordinary corporate rate under Section 27(A). With the introduction of Section 27(B),
the tax rate is now 10%.
In 1998, St. Luke's had total revenues of ₱l,730,367,965 from services to paying patients. It
cannot be disputed that a hospital which receives approximately ₱l.73 billion from paying
patients is not an institution 'operated exclusively' for charitable purposes. Clearly, revenues
from paying patients are income received from 'activities conducted for profit.' Indeed, St.
Luke's admits that it derived profits from its paying patients. St. Luke's declared ₱l,730,367,965
as 'Revenues from Services to Patients' in contrast to its 'Free Services' expenditure of
₱218,187,498. In its Comment in G.R. No. 195909, St. Luke's showed the following
'calculation' to support its claim that 65.20% of its 'income after expenses was allocated to free
or charitable services' in 1998.
x x xx
'[e]xclusive' is defined as possessed and enjoyed to the exclusion of others; debarred from
participation or enjoyment; and 'exclusively' is defined, 'in a manner to exclude; as enjoying a
privilege exclusively.' . . . The words 'dominant use' or 'principal use' cannot be substituted for
the words 'used exclusively' without doing violence to the Constitution and thelaw. Solely is
synonymous with exclusively.
The Court cannot expand the meaning of the words 'operated exclusively' without violating the
NIRC. Services to paying patients are activities conducted for profit. They cannot be
considered any other way. There is a 'purpose to make profit over and above the cost' of
services. The ₱l.73 billion total revenues from paying patients is not even incidental to St.
Luke's charity expenditure of ₱2l8,187,498 for non-paying patients.
St. Luke's claims that its charity expenditure of ₱218,187,498 is 65.20% of its operating
income in 1998. However, if a part of the remaining 34.80% of the operating income is
reinvested in property, equipment or facilities used for services to paying and non-paying
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patients, then it cannot be said that the income is 'devoted or used altogether to the charitable
object which it is intended to achieve.' The income is plowed back to the corporation not
entirely for charitable purposes, but for profit as well. In any case, the last paragraph of Section
30 of the NIRC expressly qualifies that income from activities for profit is taxable 'regardless of
the disposition made of such income.'
Jesus Sacred Heart College declared that there is no official legislative record explaining the
phrase 'any activity conducted for profit.' However, it quoted a deposition of Senator Mariano
Jesus Cuenco, who was a member of the Committee of Conference for the Senate, which
introduced the phrase 'or from any activity conducted for profit.'
de dicha universidad?
x x x x x x xxx
The question was whether having a hospital is essential to an educational institution like the
College of Medicine of the University of Santo Tomas.1awp++i1 Senator Cuenco answered
that if the hospital has paid rooms generally occupied by people of good economic standing,
then it should be subject to income tax. He said that this was one of the reasons Congress
inserted the phrase 'or any activity conducted for profit.'
The Court finds that St. Luke's is a corporation that is not 'operated exclusively' for charitable
or social welfare purposes insofar as its revenues from paying patients are concerned. This
ruling is based not only on a strict interpretation of a provision granting tax exemption, but also
on the clear and plain text of Section 30(E) and (G). Section 30(E) and (G) of the NIRC
requires that an institution be 'operated exclusively' for charitable or social welfare purposes to
be completely exempt from income tax. An institution under Section 30(E) or (G) does not lose
its tax exemption if it earns income from its for-profit activities. Such income from for-profit
activities, under the last paragraph of Section 30, is merely subject to income tax, previously at
the ordinary corporate rate but now at the preferential 10% rate pursuant to Section 27(B).
A tax exemption is effectively a social subsidy granted by the State because an exempt
institution is spared from sharing in the expenses of government and yet benefits from them.
Tax exemptions for charitable institutions should therefore be lin1ited to institutions beneficial
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to the public and those which improve social welfare. A profit-making entity should not be
allowed to exploit this subsidy to the detriment of the government and other taxpayers.
St. Luke's fails to meet the requirements under Section 30(E) and (G) of the NIRC to be
completely tax exempt from all its income. However, it remains a proprietary non-profit hospital
under Section 27(B) of the NIRC as long as it does not distribute any of its profits to its
members and such profits are reinvested pursuant to its corporate purposes. St. Luke's, as a
proprietary non-profit hospital, is entitled to the preferential tax rate of 10% on its net income
from its for-profit activities.
St. Luke's is therefore liable for deficiency income tax in 1998 under Section 27(B) of the
NIRC. However, St. Luke's has good reasons to rely on the letter dated 6 June 1990 by the
BIR, which opined that St. Luke's is 'a corporation for purely charitable and social welfare
purposes' and thus exempt from income tax. In Michael J Lhuillier, Inc. v. Commissioner of
Internal Revenue, the Court said that 'good faith and honest belief that one is not subject to tax
on the basis of previous interpretation of government agencies tasked to implement the tax
law, are sufficient justification to delete the imposition of surcharges and interest.'40
A careful review of the pleadings reveals that there is no countervailing consideration for the
Court to revisit its aforequoted ruling in G.R. Nos. 195909 and 195960 (Commissioner of
Internal Revenue v. St. Luke's Medical Center, Inc.). Thus, under the doctrine of stare decisis,
which states that "[o]nce a case has been decided in one way, any other case involving exactly
the same point at issue x x x should be decided in the same manner,"41 the Court finds that
SLMC is subject to 10% income tax insofar as its revenues from paying patients are
concerned.
To be clear, for an institution to be completely exempt from income tax, Section 30(E) and (G)
of the 1997 NIRC requires said institution to operate exclusively for charitable or social welfare
purpose. But in case an exempt institution under Section 30(E) or (G) of the said Code earns
income from its for-profit activities, it will not lose its tax exemption. However, its income from
for-profit activities will be subject to income tax at the preferential 10% rate pursuant to Section
27(B) thereof.
As to whether SLMC is liable for compromise penalty under Section 248(A) of the 1997 NIRC
for its alleged failure to file its quarterly income tax returns, this has also been resolved in G.R
Nos. 195909 and 195960 (Commissioner of Internal Revenue v. St. Luke's Medical Center,
Inc.),42 where the imposition of surcharges and interest under Sections 24843 and 24944 of the
1997 NIRC were deleted on the basis of good faith and honest belief on the part of SLMC that
it is not subject to tax. Thus, following the ruling of the Court in the said case, SLMC is not
liable to pay compromise penalty under Section 248(A) of the 1997 NIRC.
However, in view of the payment of the basic taxes made by SLMC on April 30, 2013, the
instant Petition has become moot.1avvphi1
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While the Court agrees with the CIR that the payment confirmation from the BIR presented by
SLMC is not a competent proof of payment as it does not indicate the specific taxable period
the said payment covers, the Court finds that the Certification issued by the Large Taxpayers
Service of the BIR dated May 27, 2013, and the letter from the BIR dated November 26, 2013
with attached Certification of Payment and application for abatement are sufficient to prove
payment especially since CIR never questioned the authenticity of these documents. In fact, in
a related case, G.R. No. 200688, entitled Commissioner of Internal Revenue v. St. Luke's
Medical Center, lnc.,45 the Court dismissed the petition based on a letter issued by CIR
confirming SLMC's payment of taxes, which is the same letter submitted by SLMC in the
instant case.
In fine, the Court resolves to dismiss the instant Petition as the same has been rendered moot
by the payment made by SLMC of the basic taxes for the taxable years 2005 and 2006, in the
amounts of ₱49,919,496.40 and ₱4 l,525,608.40, respectively.46
SO ORDERED.
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