FREPENCA List of GST issues for RMCD consideration aimed at reducing burden on both Customs and businesses Category 1 – Compliance cost simplification without law change Issue High level description Explanation of issue and implications Clarification / Simplification of of current view process / changes to law sought Customs comment 1 Foreign exchange rate In accordance with Paragraph 5 of the Third Schedule of the Goods & Service Tax Act, 2014 (“the Act”) where any sum relevant for determining value is expressed in a currency other than ringgit, it is to be converted into ringgit at the selling rate of exchange prevailing in Malaysia at the time when the supply takes place or in the case of the importation of goods, at the rate of exchange determined by the Director General at the time applicable for the calculation of customs duty or excise duty and valuation. Customs agree to consider on a case-by-case basis application for use of other than daily selling rates. For the moment, businesses are requested to continue to apply individually. We understand that many such requests have met a favourable response from Custom’s. We wish to ask Customs to expand the relaxation of the use of the fx in the Panel Decision 1/2014 to allowing the use of fx currently used by the respective companies e.g. average daily fx or average weekly fx or average monthly fx instead of a daily selling rate for their sales / supplies. The use of common fx among companies in a group is to have consistency in measurement of individual company performance within the group and will be/is on a par with commercial fx rates in the marketplace. Paragraph 32(b) of the Guide on Tax Invoice and Record Keeping issued by the RMCD states the following: We also wish to ask Customs to extend the allowance for the use of fx (a) In the case of local transactions, the mentioned in the aforesaid paragraph use of daily exchange rates at the time of for imports ie to use the same fx supply of any bank operating in Malaysia used for sales / supplies for their is required. imports. (b) In the case of importation, conversion of foreign currency should be at the exchange rates published weekly by the RMCD. This approach would reduce business compliance costs with no impact on GST revenues as the need for conversion is largely for reporting purposes only with no net tax The Panel Decision 1/2014 allowed the following relaxation to the law: (i) The use of exchange rates published by BNM, any commercial banks in Malaysia or any banks registered under BNM, any news agencies eg Bloomberg, Reuters, Oanda, foreign central banks eg European Central Bank and Federal Reserve Bank of New York. (ii) Provided the exchange rates must be the prevailing rate (selling rate) corresponding to the time of supply, consistently used for internal business reporting and accounting purpose and used consistently for at least one year. collected from business to business transactions. Further, the use of the proposed fx would enable businesses to comply with the Panel Decision 1/2014 para 6(b)(ii) “..consistently used for internal business reporting and accounting purposes” which otherwise, may be a requirement by Customs which MNCs may not be able to comply. Extending the relaxation of the use of fx in a revised Panel Decision (or a clarification in an appropriate GSDT Guide) would reduce the number of businesses writing to Customs and so reduce the burden of reviewing and responding to numerous requests. Currently many MNCs use a common global foreign exchange rate (fx) within the companies in the group which could be fixed daily / weekly / monthly. 2 Reverse charge on imported services – accounting for output tax and claim of ITC In accordance with Section 13(1), (2), (3) and (4) of the Act, imported services are subject to GST and the company is required to account for output tax on the imported services (as though these were supplied by company to itself) by way of the “Reverse Charge Mechanism”. In accordance with Section 13(4) of the Act, the time of supply for imported Whilst 1/2014 Panel Decision allows for output tax to be accounted for at either time of payment or receipt of invoice is a welcomed compliance simplification, if the input tax credit cannot also be claimed at the same time, then this is no simplification at all. We wish to request Customs to Customs confirm that the Panel Decision 1 specifically gives concession to accounting for output tax only. Claiming of input tax remain as per Paragraph 38(e) of the GST Regulations. services is when the supplies are paid for approve the accounting for, and claim by the recipient. of input tax credit, in the same taxable period as the GST is payable, based on the time when the transaction is Paragraph 38(e) of GST Regulations processed, be it invoice processing, or specifies that for imported services any other date, so long as this is where reverse charge mechanism applies, input tax credit is allowed to be before actual payment date. claimed upon payment of the invoice. Again, this impacts merely the way GST is reported and not on the net Panel Decision 1/2014 paragraph 2(ii) only allows the accounting for output tax GST payable as in most cases the based on invoice date and is silent on the GST payable will also be recoverable. time of claim of input tax credit. If RMCD has any concerns about potential revenue leakage then it could restrict this application to those approved for ATS and/or ATMS only. FREPENCA then made the following requests which Customs agreed to consider and issue a separate guide in due course: (i) Reconsider the businesses’ request to allow the claim of input tax and accounting for output tax on the same date and allow businesses to do so either on invoice date or invoice processing. (ii) If (i) cannot be allowed by Customs, to clarify Panel Decision 1 regarding the claim of input tax as many businesses are not aware of Custom’s position on the subsequent claiming of input tax. 3 Availability to pull information on imports from Dagangnet - for reporting / use of value of goods imported in K1/K8 for GST03 reporting Value of imported goods (CIF + Duty) reflected in Custom declaration forms for imports (K1/K8) are currently not input into financial systems of most businesses. However, these value of imported goods (CIF + Duty) in K1/K8 s are now required to be reported in Line 6a & 6b of GST03 return, or if a business has approval under the Approved Trader Scheme (ATS), be reported in Line 14 & 15 of GST03 return. Based on the current practice of businesses, the amounts of the imports that get captured into the financial system are cost of goods purchased based on final invoice from supplier, cost of insurance, freight / carriage based on invoices from the respective supplier and custom duties, if any. These amounts do not necessarily tie or is reconcilable to the value of imported goods (CIF + duty) reflected in the K1/K8 due to the following reasons: (i) the different foreign exchange rate used in K1/K8 and financial system, to convert the value of purchase in foreign currency (refer also item 1 of this Appendix); and (ii) the insurance and freight amounts declared in the K1/K8 at most times are estimates; We wish to request Customs to firstly acknowledge the inherent differences of value of imports (CIF + duty) for K1/K8 and amounts captured into the financial system and not require businesses to prepare reconciliations. We would use the value of goods imported as reflected in K1/K8 for GST03 reporting. We suggest that Customs makes available information from Dagangnet {information on value of imports (CIF + duty)} to companies for GS03 return reporting purposes. We understand that the Singapore tax authorities allow information from Tradenet to be made available to companies to download for Singapore GST reporting purposes. In Australia taxpayers who have applied for a special scheme to defer the payment of GST on their importations, have the GST amount payable printed directly on their GST return by the tax authorities. Custom’s appreciate the concerns being raised by FREPENCA in obtaining the necessary information. Customs agreed to look into how it may be able to assist businesses to make arrangements with Dagangnet. As such, if businesses are now required to compile the value of imports (CIF + duty) for reporting in GST03 return, businesses need to re-configure the IT system and accounting process to capture the amounts for mere purpose of GST reporting and has no value-add to the business. 4 Provision of space to In accordance with Paragraph 5(3) of the canteen operator First Schedule of the GST Act, goods held or used for the purposes of the business that are put into private use or made available to any person for use, for any purpose other than a purpose of the business, whether or not for a consideration, the usage or making available of goods is a supply of services. 5 Gift Rule – not claiming input tax It is common practice for large manufacturers located in the various special zones, where access to food outlets for their employees is not readily available, for employers to provide canteen facilities for their workers. This is also good business practice in that it reduces staff absences and boost staff morale increasing productivity and business profits. There appeared to be differing views within Custom’s on this issue. On the one hand the supply of free space to a canteen operator could be seen as being for business use as per FREPENCA It is not uncommon for employers to offer submission and so canteen operators the use of space for Arguably, the provision of the space to the provision of free within their facilities from which to the canteen operator is for the services for free to a operate the canteen. furtherance of the businesses non-connected party operations and can be distinguished is out of scope. We are seeking Customs confirmation from the provision of businesses Alternatively this is a that such transactions are out of scope of assets to a third party for no supply of a business the GST as the use of business assets is consideration and should be treated asset for free and a for the purposes of the businesses. We as out of scope. This should be the deemed supply at the also seek Custom’s concurrence that no case irrespective of whether the standard rate. Gift rules are triggered and that there is Canteen operator is required to Customs will discuss no private / non-business use of assets. provide food at below OMV to that this issue in their businesses’ employees. Committee meeting and issue guidaince in due course. The gift rule does not apply to the giving Another way of reducing the burden Customs does not of gifts which are zero rated, exempt or on businesses of having to track gifts agree. However, credit on acquisition where the input tax credit was blocked. is to allow them to exclude gifts from the Gift Rule where they choose not to claim the input tax credit on its acquisition. We wish to seek clarification that this would apply equally to where the employer chose not to claim the input tax credit. We refer you to the situation in Singapore where this choice is permitted and provide an extract from the Singapore GST: General Guide for Businesses: Example A local GST-registered company (H) purchased 2 hampers from a GST registered supplier on 1 Oct 2013 at $190 (exclusive of GST, inclusive of GST price is $190 x 1.07 = $203.30). H chose not to claim input tax on its purchases. H subsequently gave both hampers to one employee during a company function for free to reward him for his good performance. Under the gift rule, H is required to account for output tax on the hampers since the gift inclusive of GST costs more than $200. However, since H did not claim input tax on its purchase of the hampers, H is not required to account for output tax. If H has claimed the input tax incurred on its purchase of the 2 hampers, H would need to account for GST on these 2 hampers (i.e. output tax to be accounted for = $13.30 ($190 x 0.07)). 6 Use of incoterms as primary indicator for transfer of title & Section 17(1) of the GST Act reads as follows: Customs had no objection to businesses accounting for output tax on the total amount of purchase per the invoice, at the same time input tax is claimed, on assumption that all the said purchases are meant for gifts at a later time. In other words it was okay for businesses to pay more GST than may otherwise have been payable and have to track gifts given to employees. We are of the view that incoterms are The discussion not to be the only factor in couldn’t arrive at a determination of transfer of title and as resolution. In the determination of movement of gods A zero rated supply is: (a) Any supply of goods or services determined to be a zero rated supply by the Minister under subsection (4); and a consequence, used in the criteria for determining whether a supply of goods qualifies as export and be zero rated. Reference must be made to the commercial arrangements between the parties, the contracts and other (b) Any supply of goods if the goods are agreements relating to the transaction in question. exported. Reference is also made to the Guide on Export (draft) issued on 4 November 2013 We understand from the GST Act and Guide on Export that a person who exports goods outside Malaysia and is named as exporter in the Custom’s export declaration form (K2) would be entitled to zero-rate the supply irrespective of the incoterms. However, we have in recent times, through various conversations with Customs officers been informed that incoterms is to be used as a determinant of point of title transfer and hence a deciding factor on whether that supply qualifies for a zero rate. Case scenario extracted form Q&A 4 of the Guide on Export: Q4: My local customer ordered some goods from me but he requested me to send the said goods to his overseas customer. Do I have to charge GST when I invoice my local customer? We ask Customs to revisit the Panel Decision 1/2014 and issue clear and consistent guidance on the determination of export and qualification criteria for applying a zero rate to reflect this point. interest of time, it was suggested that a separate meeting be held for an in-depth discussion. This is a critical issue impacting on the competitiveness of Malaysian exports. A4: If you export the goods yourself in your own name, you can zero rate that supply even though you bill your local customer. However you should maintain the necessary documents to enable your supply to be zero-rated. We also draw your attention to item 5 (ii) of Panel Decision 1/2014. The scenario provided is exactly as Q&A 4 of the Guide on Export. However, the response provided is entirely different as the response in the Panel Decision made references to the “transfer of ownership” which in this case, is deemed to happen in Malaysia. Extract of Item 5(ii) of Panel Decision 1/2014 is as follows: Item 5(ii) Local company X purchases goods from local manufacturer M and request the local manufacturer M to export the goods to his overseas customers. Whether the supply by the local manufacturer M to the local company X is subject to GST. Reply to Item 5(ii)” i. The supply made by local manufacturer M to the local company X is a standard rated supply, because the transfer of ownership of the goods took place in Malaysia; ii. The supply made by the local company X to his overseas client can be zero rated if the export declaration was in the name of the local company X. According to Incoterms@2010, published by The International Chamber of Commerce (http://store.iccwbo.org/incoterms-2010), Incoterms 2010 do not deal at all with transfer of title to the goods. Incoterms 2010 deals only with transfer of risks, meaning risks of loss of or damage to the goods while they are in transit. We highlight another example on the confusion which would arise if we are to use incoterms as a factor in determining transfer of title and consequently the meaning of export: Co A, a Malaysian GST registered company supplies goods to Co B, a foreign customer on ex-works incoterms. Co A is named as exporter in the Customs export declaration form (K2/K8). In this scenario, if we were to use the meaning of export as in the GST Act and Guide to Export, the supply by Co A would qualify for zero rate, If we were to throw in the incoterms as determinant of transfer of title happening in Malaysia, even if Co A is the named exporter in the Customs Export Declaration form (K2/K8), it appears that from the Panel Decision, this supply is standard rated. 7 Definition of Third Schedule paragraph 2(1), GST Act Within the context of paragraph 2(1), Customs clarified that connected person 8 Movement of goods from PCA into Bonded Warehouse provides for definition of connected persons as follows: (a) they are officers or directors of one another's business (b) ….. (c) … Businesses have been receiving differing view on whether, for GST purposes, the movement of goods located in PCA and placed into a bonded warehouse will be treated as those goods having been exported. GST Act, we would like Customs to clarify the meaning of: (i) Officers; (ii) “…. …one another’s business” In particular we ask Custom’s to confirm that officers or directors of a business are not connected persons of the same business that they are officers or directors of. We wish to clarify whether, for GST purposes, the movement of goods from PCA into a Bonded Warehouse will be treated as an export of those goods. This is the treatment that applies in a Section 17 of the GST Act mentions that number of neighbouring countries. any supply of goods is zero rated if the goods are exported. Export in GST Act is given the same definition as export in the Customs Act, 1967 (Customs Act) For purposes of the Customs Act, goods may be placed in bonded warehouse for export without the payment of customs duty. However, for GST, it is silent and therefore appears that goods placed in a bonded warehouse are subject to GST (local sales) This can have significant implications on businesses eligibility for special item (a) is meant to define that 2 companies are “connected persons” when they have common officers or directors. This issue was not discussed as Customs indicated that they, together with MoF, were in the midst of discussions on treatment of bonded warehouses. schemes such as ATMS that require at least 80% of their goods to be exported. 9. Approved toll manufacturers scheme (ATMS) Regulation 91 of the GST Regulations 2014 provides that a person making supplies comprising the treatment or processing of goods for and to a person who belongs to another country and exports at least 80% of the finished goods may apply for ATMS. We request Customs to issue clear guides on the definition of a toll manufacturer and clarify whether does billing arrangement (where separate billings for value add portion and for components and parts used for processing and treatment) affect the defining of a toll manufacturer. In reality, many manufacturers have arrangements, not only to supply the service of treatment or processing but may also purchase many components and parts as specified by the principal to be built into the final finished product as part of the treatment or processing service. Often times, separate billings for service portion and components & parts are raised. Many discussions with Customs officers has caused some confusion on the definition of a toll manufacturer which then brings about concerns on the application for the ATMS which requires the local toll manufacturer, overseas principal and the local end customer to make a joint application, submitting the Toll Manufacturing agreement which contains many private & confidential information. Custom’s were of the view that a toll manufacturer was essentially someone who processed goods belonging to another business and that that ownership of those goods remained with the business they had contracted with. Customs agreed to look into and issue further guidance on criteria to determine who is a toll manufacturer for the purposes of the various GST schemes. Category 2 – Compliance cost simplification which may require law change 10 Reverse charge on imported services Section 13(1) of the GST act imposes a reverse charge obligation on persons in We are again asking Customs to consider a more pragmatic approach Custom’s to consider this at an appropriate receipt of imported services for use in their business. The requirement that all services imported for business use be reverse charge places an unnecessary burden on business. It is understandable that Customs would wish to ensure that it collects GST on services consumed in Malaysia. However, in nearly all instances the GST payable is claimable as an input tax credit by that same business. The only time there is a net gain to revenue is if that business is using the imported services to make an exempt supply – this covers a small population of Malaysian businesses. in achieving the desired outcome. time. Rather than require all businesses to reverse charge an alternative approach could be to either: (i) Only make reverse charge compulsory for businesses not making wholly taxable supplies; or (ii) Only make reverse charge compulsory for businesses where the imported service is not used wholly for making a supply for which full input tax credit would not be available. Either of these approaches achieves the desired outcome without imposing an unnecessary burden on the majority of businesses. Again you may wish to look to the practice in Australia and New Zealand which has adopted the second of the approaches outlined above. 11 Bonded warehouse (BWH, free commercial zone (FCZ), free industrial zone (FIZ) / licensed manufacturing warehouse (LMW) company be treated as outside Malaysia. Overseas companies with no presence in Malaysia are required to appoint a GST agent in order to register for GST in Malaysia if it is making taxable supplies in Malaysia. Many overseas companies perceive there are permanent establishment (PE) risks in registering their overseas principal. Moreover, registering for GST in Malaysia will We are asking that Customs introduce See comment to Item a special permit for a company who 8 above. supplies to an overseas company / overseas principal but drop ship the goods into a BWH, FCZ, FIZ / LMW companies in Malaysia to be GST zero rate or suspended, whether goods or service. require costly IT System configuration. We acknowledge that Customs has provided the Approved Toll The perception that registering their Manufacturer Scheme (ATMS) for overseas principal may result in businesses under toll arrangement unnecessary attention from tax having overseas principal but would authorities means that many may simply like to highlight to Customs that in choose not to register – this has been the many instances, the toll arrangement experience in many other GST countries. is very complex and may involve Non-registration will result in Malaysian several parties along the supply chain exports being more expensive as the within Malaysia and therefore involves GST charged is not recoverable by the movements of goods from toll overseas principal contrary to the manufacturer to toll manufacturer for intention of the GST Act. value add services and purchase by foreign principals of goods from local Below are 2 very common specific supplier to be placed with various toll scenarios happening in Malaysia: manufacturers for assembly. This makes the application for ATMS A. Sale by local manufacturers to approval complex and tedious, not to overseas company with goods drop mention that processing the application may take long time as it ship to BWH, FCZ.FIZ/LMW requires Customs to understand each company and every application. Currently, there are many sale arrangements by local manufacturers with overseas customers where goods are delivered into BWH or FCZ or FIZ / LMW company with subsequent title transfer happening within the BWH / FCZ or somewhere along the delivery chain in Malaysia. The GST law states that these are local supplies subject to GST. Most of the goods are eventually exported out of Malaysia by the foreign customers but some of the goods may be sold to local customers. These arrangements create the following dilemmas for the overseas companies: Our request for Customs to grant special permits for a company who supplies to a overseas company / overseas principal but drop ship the goods into a BWH, FCZ or FIZ / LMW company in Malaysia to be GST zero rate or suspended, whether goods or services, produces the same GST outcome as if the overseas principal had registered for GST but reduces the need for such registration resulting in both administrative and compliance cost savings. (i) The GST charged by the local manufacturer to the overseas supplier will become an additional cost of doing business in Malaysia thus making Malaysia uncompetitive, unless the overseas entity gets itself GST registered. (ii) Registering for GST will create other issues as mentioned in the first paragraph of this section, again additional costs of doing business in Malaysia. B. Toll manufacturers with foreign principals where goods, after value add are drop ship to BWH, FCZ, or another FIZ/LMW company. Currently, many toll manufacturing arrangements with foreign principals require local toll manufacturers to deposit the goods (after value add) into either a BWH or FCZ or another FIZ /LMW company. Some of these goods are then on-sold by the foreign principal to local customers. This arrangement creates the following dilemma: Drop shipment of the goods (after value add) into a BWH or FCZ constitutes a local sale by the foreign principal, thus causing the local toll manufacturer not able to meet the export requirement to qualify for Approved Toll Manufacturer Scheme (ATMS), without which, value add services are subject to GST. 12 Services on goods eventually exported to be zero rated Section 14 of the GST Act provides for the place where supplier of services belongs. If the supplier of services belongs to Malaysia, then the supply of service is subject to GST unless the supply is zero rated under the Goods & Services Tax (Zero-Rated Supply) Order 2014 (“Zero rated Order”). Extract of paragraph 12 of Second Schedule of Zero rated Order reads as follows: In order to put Malaysia on level Custom’s to consider competitive ground with our this at an appropriate neighbouring countries who are also time. vying for foreign direct investment from MNCs and which currently accord GST zero rates to such service charges, we ask Customs to accord zero-rating to all services on goods which are eventually exported. We do not believe that it was the intention of the GST law to impose additional costs on Malaysia’s export Services supplied under a contract with a competing industries but rather to person who belongs in a country other improve its international than Malaysia and which directly benefit competitiveness. a person who belongs in a country other than Malaysia who is outside Malaysia at the time the services are performed, but shall not include : (a) Any services comprising either one or both of the following: (i) The supply of a right to promulgate an advertisement by means of any medium of communication; and (ii) The promulgation of an advertisement by means of any medium of communication; or (b) Services which are supplied directly in connection with: (i) A land situated in Malaysia or any improvement to such land; (ii) Goods which are in Malaysia at the time the services are performed; or (iii) Capital market products as defined in the Capital Markets and Services Act 2007 [Act 671] traded in Malaysia or insurance contracts where the coverage relates to risk in Malaysia and includes any similar transaction conducted in accordance with the principles of Syariah. Malaysia is heavily dependent of foreign direct investment and is a manufacturing base for many large MNCs. Many support industries to these large MNCs sprang up in Malaysia, setting up base close to their major customers. Many of these manufacturing plants of MNCs and the supporting industries provide key services to these foreign companies such as : (i) Research & development; (ii) Toll manufacturing (and do not qualify for ATMS); (iii) Re-manufacturing; (iv) Repair and rework; (v) Failure analysis and testing; and (vi) Handling services. 13 Billing for non-recurring expenditure (NRE) to be zero rated In the electronics industry, there are various billing arrangements apart from the billing for the finished goods which is often based on agreed upfront selling price by the local company with their overseas customers where the final finished goods are eventually exported. However, at the time these other billings are raised, the goods are still in Malaysia. Such arrangements have been agreed upon for various reasons. Examples of such billings are: (i) Billings for the purchase of toolings, jigs, fixtures and equipment used specifically for a customer in the local company’s premises. These toolings, jigs, fixtures and equipment usually have a lifespan based on when the finish product reaches ‘end-of-life’; Similar to item 11 above, we ask Customs to accord zero rating to all such billings where these can be clearly related to finished goods that are eventually exported outside Malaysia. We understand that Singapore has adopted zero-rating for item (i). Custom’s to consider this at an appropriate time. (ii) Billings for components, materials or parts to be used in the production of finished goods prior to the completion and billing of finished goods (billing in advance); (iii) Recovery of price fluctuations in the purchase price of components, materials and parts for the production of finished goods, and adjustments to prices / price re-evaluation. Such billing usually occurs before the finished goods are completed and ready to export; (iv) Lump sum service cost, manufacturing overheads, labour costs, overtime payments not budgeted into initially agreed selling price but identifiable to a specific order of finish goods, billed separately.