Western Maryland Railway Co. v. State Tax Commission
Western Maryland Railway Co. v. State Tax Commission
Opinion of the Court
delivered the opinion of the Court.
These appeals are taken by Western Maryland Railroad Company (Western Maryland) and Canton Railroad Company (Canton), from decrees of Circuit Court No. 2 of Baltimore City sustaining final assessment against the appellants made by the Maryland State Tax Commission (the Commission) for gross receipts taxes imposed by Article 81, section 95 of the 1943 Supplement of the Code.
The pertinent provisions of Article 81, sections 94-1/2 and 95, 1943 Supplement of the Code follow:
“941/2. The phrases ‘gross receipts’, ‘total receipts’, ‘gross earnings’, ‘total earnings’ and ‘all earnings’, as used in Sections 95 to 100, inclusive, mean in the case of railroads and other public service corporations, the operating revenues thereof, without any deductions or credits of any kind whatsoever. When any public service corporation is engaged in more than one class of business and one or more classes thereof is business not subject to the gross receipts tax or subject thereto at different rates, the operating revenues of the class or classes of business subject to such tax at different rates shall be reported separately and taxed at the rate or rates applicable to such class or classes of business. This section shall not be construed as implying that in the absence of this section the requirements of Sections 95 to 100, inclusive, could properly be otherwise construed.
“95. (a) A State tax as a franchise tax is hereby levied annually for the year 1930 and subsequent years measured by the gross receipts for the preceding calendar year, of:
“(1) All domestic or foreign railroad companies, whose roads are worked by steam, doing business in this State, at the following rates, to wit:
“Two per centum on all gross earnings above $1,000 and up to $2,000 per mile; and
“Two and one-half per centum on all earnings in excess of $2,000 per mile.
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“(b) If any such railroad company has part of its road in this state and part thereof in another State or States, such company shall return a statement of its gross receipts over its whole line of road, together with a statement of the whole length of its line and the length of its- line in this State, and such company shall pay to the State, at the said rates hereinbefore prescribed upon such proportion of its gross earnings as the length of its line in this State bears to the whole length of its line; and similar statements shall be made by each oil pipe line company, and each sleeping car, parlor car, express or transportation company, telephone or telegraph or cable company, so that the proportion of the said gross, earnings of the said companies, respectively, accruing, coming from their business within this State, may be • accurately ascertained, or said statement may be made in any other mode satisfactory to and required by the State Tax Commission. . The said gross receipts taxes shall be due and payable at the treasury on or before the first day of July in each year.
“(c) Every partnership or individual engaged in any of the above enumerated branches of business in this State shall be subject to the tax imposed by this Section and cohiply with all provisions relating thereto as if such firm or individual were a corporation.”
The so-called Import-Export clause of the Constitution of the United States, Article, 1, Section 10, Clause 2, follows : “No State shall, without the Consent of Congress, lay any Imposts or Duties on Imports or Exports, except what may be absolutely necessary for executing its inspection Laws: and the net Produce of all Duties and
The operating revenues claimed by the appellants to be exempt were received for transportation, switching, storage, crane privileges, wharfage and weighing of coal, grain, ores, and other miscellaneous commodities in transit between foreign ports and points within the United States. Appellant (Canton) claims that the tax in question is an occupation tax exacted for the privilege of engaging in the import-export process and therefore unconstitutional. This Court in a long line of cases has sustained the statutory declaration, supra, that the tax here in question is a franchise tax in lieu of all other State property taxes.
In the case of State v. Philadelphia, Wilmington & Baltimore Railroad Company, 45 Md. 361, 24 Am. Rep. 511, the Court had before it Chapter 234 of the Acts of 1872 which was the predecessor of the present Gross Receipts Tax. This Court said in that case, 45 Md. at page 379, in holding the tax constitutional: “Properly speaking, the tax is not imposed upon the gross receipts; they are referred to not as descriptive of the subject to be taxed, but merely as furnishing the basis of ascertaining the amount of tax to be paid. If then it is not a tax upon property, what is it? We say, it is a tax upon the franchise of railroad companies, measured by the extent of their business.” At page 381 of 45 Md. it was said: “Being of opinion, then, that the tax upon gross receipts of railroad companies, imposed by the Act of 1872, is a tax upon the franchise of such companies, and not upon their property, * * * we come to the question whether the defendant corporation is exempt from the payment of said tax?” State v. Baltimore & O. R. Co., 1878, 48 Md. 49; Cumberland & Pennsylvania R. Co. v. State, 1901, 92 Md. 668, 48 A. 503, 52 L. R. A. 764; State v. U. S. Fidelity & Guaranty Co., 1901, 93 Md. 314, 48 A. 918;
Western Maryland makes no contention that this is not an in lieu franchise tax. Canton to sustain its contention that the tax is an occupation tax and not an in lieu franchise tax cites Section 144 of Article 81 of the Code (1947 Supplement), which imposes a general franchise tax on corporations. Section 144(b) explicitly says that the tax is imposed “for its franchise to be a corporation.” Sections 95, supra, and 144 supra, tax different kinds of franchises. The franchise to operate a railroad is of course different from the ordinary privileges conferred by a franchise to operate as a corporation.
Canton also contends that the tax here in question is not a franchise tax in lieu of property taxes because it is not proportionate in amount to the property taxes to which it would have been liable. Canton bases this argument on the fact that if the ordinary rate of State taxes is applied to the assessed value of its property for the calendar year 1946 its taxes would have been $3800 while its gross receipt taxes for that period amount to $39,092. Appellee points out in ‘ its brief that when Chapter 965 of the Acts of 1945, (substantially reenacted, except as to rátes, by Chapter 677 of the Acts of 1947 and codified as Sections 7(15), 25(h), 94% and 95 of Article 81, 1947, Supplement of the Code), is taken into consideration Canton’s ad valorem property tax for the calendar year of 1946, as taxes on operating property, including land, would have been $40,681, an amount of $1000 “more than the amount of gross receipt taxes imposed for the gross receipts derived during that calendar year.” Nashville C. & St. L. Ry. v. Browning, 310 U. S. 362, 60 S. Ct. 968, 84 L. Ed. 1254; Ohio River & W. R. Co. v. Dittey, 232 U. S. 576, 34 S. Ct. 372, 58 L.Ed. 737.
The in lieu franchise tax on apportioned gross income has been held valid under the Commerce Clause of the Constitution, art. 1, § 8, cl. 3, because it is not a direct tax on interstate business, not because the tax does not in the end increase the cost of interstate business. Such taxes are held valid because they are in lieu taxes and substitute for a property tax which is constitutional. State of Maine v. Grand Trunk Railroad Co., 1891, 142 U. S. 217, 12 S. Ct. 121, 163, 35 L. Ed. 994; U. S. Express Co. v. Minnesota, 1912, 223 U. S. 335, 32 S. Ct. 211, 56 L. Ed. 459; Cudahy Packing Co. v. Minnesota, 1918, 246 U. S. 450, 38 S. Ct. 373, 62 L. Ed. 827; Northwestern Mut. Life Insurance Co. v. Wisconsin, 1918, 247 U. S. 132, 38 S. Ct. 444, 62 L. Ed. 1025; Great Northern Railway Co. v. Minnesota, 1929, 278 U. S. 503, 49 S. Ct. 191, 73 L. Ed. 477; Illinois Central Railway Co. v. Minnesota, 1940, 309 U. S. 157, 60 S. Ct. 419, 84 L. Ed. 670; State Tax Commission v. Western Maryland Railway Co., 188 Md. 240, 52 A. 2d 615, supra.
An ad valorem property tax on tangible and intangible personal property both used in and derived from the process of importing and exporting is valid. Wheeling, P. & Cincinnati Transport Co. v. Wheeling, 1879, 99 U. S. 273, 25 L. Ed. 412; People of State of New York ex rel. Burke v. Wells, 208 U. S. 14, 28 S. Ct. 193, 52 L. Ed. 370. If such an ad valorem tax is constitutional it certainly appears that a franchise tax in lieu of such direct ad valorem taxes is not barred by the Import-Export Clause. People ex rel. Parke, Davis & Co. v. Roberts, 1898, 171 U. S. 658, 19 S. Ct. 70, 43 L. Ed. 323,
Both Canton and Western Maryland contend that this tax measured by the gross receipts for handling articles previously imported or to be exported and in “the importing and exporting process,” is prohibited by the Import-Export Clause. Of course, a direct tax on imports and exports such as a license tax on the occupation of importing, a direct tax on sales of imports and exports, a tax on the actual doing of an import business, a direct tax on objects in process of importing or exporting, are constitutionally invalid under the Import-Export Clause. Brown v. Maryland, 1827, 12 Wheat. 419, 6 L. Ed. 678; Crew Levick Co. v. Pennsylvania, 245 U. S. 292, 38 S. Ct. 126, 62 L. Ed. 295; Anglo-Chilean Nitrate Sales Corp. v. Alabama, 288 U. S. 218, 53 S. Ct. 373, 77 L. Ed. 710; Spalding & Bros. v. Edwards, 262 U. S. 66, 43 S. Ct. 485, 67 L. Ed. 865; Hooven & Allison Co. v. Evatt, 324 U. S. 652, 65 S. Ct. 870, 89 L. Ed. 1252.
The tax here in question is not a direct tax on imports or exports like that of a State stamp tax upon bills of lading for the export of gold and silver; or a federal stamp tax on an export bill of lading for wheat exported; or an ad valorem tax on warehouse receipts issued on account of whiskey physically in a foreign country; or a federal stamp tax on charter parties exclusively for the carriage of cargoes from State ports to foreign countries; or á tax applied against contracts of marine insurance which were held, to be an integral part of exportation. Almy v. California, 1861, 24 How. 169, 65 U. S. 169, 16 L. Ed. 644; Fairbank v. United States, 1901, 181 U. S. 283, 21 S. Ct. 648, 45 L. Ed. 862; Selliger v. Kentucky, 1909, 213 U. S. 200, 29 S. Ct. 449, 53 L. Ed. 761; United States v. Hooslef, 1915, 237 U. S. 1, 35 S. Ct. 459, 59 L. Ed. 813, Ann. Cas. 1916A, 286; Thames & Mersey Marine Insurance Co. v. United States, 1915, 237 U. S. 19, 35 S. Ct. 496, 59 L. Ed. 821, Ann. Cas. 1915D, 1087.
In People of State of New York ex rel. Burke v. Wells, 1908, 208 U. S. 14, 28 S. Ct. 193, 52 L. Ed. 370, supra, the City of New York assessed for ad valorem personal property taxes, among other things, the cash on hand and notes owned by a foreign corporation doing business in New York State as importers, which were the proceeds of the sale of imported goods in the unbroken original packages. The Supreme Court of the United States held that these items could be taxed under the New York law as capital employed in business within the State without infringing Article I, Section 10, of the Constitution of the United States, although most of the proceeds of such sales were remitted to the home office of the corporation in Ireland.
In People ex rel. Parke, Davis & Co. v. Roberts, 1896, 171 U. S. 658, 19 S. Ct. 70, 43 L. Ed. 323, supra, it was held that a franchise tax on the amount of the capital
As herein stated the contested taxes here are for the years 1946 and 1947. Evidently the appellants rely largely on decisions of the Supreme Court of the United States since and beginning in 1946. Great reliance is placed by appellants on the case of Richfield Oil Corporation v. State Board, 1946, 329 U. S. 69, 67 S. Ct. 156, 164, 91 L. Ed. 80. The majority opinion was written by Mr. Justice Douglas with Mr. Justice Black dissenting. In that case by statute California levied a retail sales tax on certain oil “measured by the gross receipts of retail sales and levied on retailers ‘For the privilege of selling tangible personal property at retail’ ”. The Rich-field Oil Corporation contracted with the government of New Zealand for the sale of oil, f. o. b. Los Angeles. Payment was to be made in London. Delivery was made by Richfield by its own pipe lines from its refinery in California to storage tanks at the Los Angeles harbor and pumped directly from the storage tanks into a vessel owned by the New Zealand government, in the harbor of Los Angeles, and consigned to the Naval Officer-in-Charge at Auckland, New Zealand. No portion of the oil was
Joseph v. Carter & Weekes Stevedoring Co., 1947, 330 U. S. 422, 67 S. Ct. 815, 91 L. Ed. 993, involved a New York State occupation tax upon stevedoring measured by gross receipts from servicing ships at the port of New York. The goods moved both in interstate and foreign commerce. The Majority of the -Supreme Court of the United States held that this tax violated the Commerce Clause of the Constitution but made no reference to the Import-Export Clause which was argued to the Court. The majority opinion was written by Mr. Justice Reed, concurred in by the Chief Justice, and Justices Frankfurter, Jackson, and Burton. Mr. Justice Black dissented totally from the majority opinion. Justices Douglas, Rutledge, and Murphy dissented on the proposition that the Commerce Clause was violated. Justices Douglas and Rutledge dissented from the invalidity of the tax under the Commerce Clause but were of opinion that it was invalid under the Import-Export Clause. This dissenting opinion was based upon the cases of Thames & Mersey Marine Ins. Co. v. United States, 237 U. S. 19, 35 S. Ct. 496, 59 L. Ed. 821, Ann. Cas. 1915D, 1087, supra; Spalding & Bros. v. Edwards, 262 U. S. 66, 43 S. Ct. 485, 67 L. Ed. 865, supra; Richfield Oil Corp. v. State Board, 329 U. S. 69, 67 S. Ct. 156, 91 L. Ed. 80, supra. The tax here before us is certainly not comparable under the Import-Export Clause to the following taxes before the Supreme Court in the last three cases cited: a tax applied against a contract of marine insur
Joy Oil Company v. State Tax Commission, 1949, 337 U. S. 286, 69 S. Ct. 1075, involved a personal property ad valorem tax. The gasoline on which the tax was levied was transported from Grand Rapids to Detroit, Michigan, for export, where it was placed in storage tanks from which it was to be shipped by water to Canada. On account of the inability of the taxpayer to obtain shipping space, the gasoline, except for 50,000 gallons exported, remained in Detroit for about fifteen months. The majority of the Supreme Court of the United States held that while the gasoline was stored in Detroit it did not constitute an export because it might have been used for domestic purposes. Four Justices dissented on the ground that all of the facts indicated that the gasoline would be exported. The minority opinion therefore was based on the fact that this was a direct tax on an export and therefore a violation of the Import-Export Clause. Another case involving an invalid direct tax on articles in export is Empresa Siderurgica, S. A. v. County of Merced, 1949, 337 U. S. 154, 69 S. Ct. 995. That case is not in point here.
It is argued that the Import-Export Clause should be given a more prohibitive effect than the Commerce Clause because of the fact that the former contains an express ta^ exemption whereas the latter does not. Neither clause literally supports the interpretations that have been put upon them by unchallenged decisions. The Commerce clause has been extended by implication to prohibit state exactions regardless of Federal regulation, and the Import-Export Clause has been extended to cover not only exactions upon the goods themselves but on the integral
Decrees affirmed, with costs.
Dissenting Opinion
delivered the following dissenting opinion, in which Delaplaine, J., concurred.
On a federal question our duty is to follow the Supreme Court, not to try to lead it. In the fourth Texas primary case, Smith v. Allwright, 321 U. S. 649, 652, 64 S. Ct. 757, 759, 88 L. Ed. 987, 151 A. L. R. 1110, the court remarked that the district court had denied relief and “the Circuit Court of Appeals quite properly affirmed its action on the authority of Grovey v. Townsend, 295 U. S. 45, 55 S. Ct. 622, 79 L. Ed. 1292, 97 A. L. R. 680 [the third Texas primary case].” The court thereupon overruled Grovey v. Townsend and reversed the action “quite properly” taken by the lower court. We are not at liberty to guess about personalities, changes in personnel, or possible future changes in decisions, or to take the obscurantist attitude that determination of the present status of the authorities amounts to searching into the inscrutable and that we should therefore sustain the tax and let the Supreme Court strike it down if it will. As we have recently said, through Chief Judge Marbury, “If the Supreme Court did not mean what it said, or said more than it should, or what it should not have said, the responsibility is its and not ours.” Goetz v. Smith, 191 Md. 707, 711, 62 A. 2d 602, 604. We may, and should, compare opinions of the court with dissenting opinions to determine the line of demarcation between them and the scope of the decisions of the court.
On their face the Import-Export Clause and the Commerce Clause suggest two possible differences, (1) the Commerce Clause covers “commerce”, the Import-Export Clause “imports” and “exports”, which conceivably might be construed as meaning only the goods imported or exported, not the busines or process of importation or exportation, (2) the Commerce Clause does not contain any express tax exemption, the Import-Export Clause does. In Brown v. Maryland, supra, the first case under the Import-Export Clause, the first possible difference was negatived. That clause ever since has been construed as exempting from taxation not only the goods imported or exported, but the business and the process of importation or exportation. The second possible difference was never completely excluded, for about 150 years in a varying degree was almost eliminated, but in the last ten years has been definitely affirmed.
Until 1869 the Import-Export Clause was assumed to give an express tax exemption to transportation in foreign or interstate commerce. In 1873 there were decided the State Freight Tax, 15 Wall. 232, 21 L. Ed. 146, and the State Tax on Railway Gross Receipts, 15 Wall. 284, 21 L. Ed. 164, the former holding invalid a tax on freight, including interstate freight, at graduated rates per ton on different articles, the second sustaining a Pennsylvania tax on railway gross receipts, including receipts from interstate commerce. The opinions in both cases were delivered by the same justice, but only four justices concurred in both decisions, which were essentially irreconcilable. After repeated subsequent decisions consistent with the State Freight Tax, the State Tax on Railway Gross Receipts was in effect overruled in Philadelphia & Southern M. Steamship Co. v. Pennsylvania, 1887, 122 U. S. 326, 7 S. Ct. 1118, 30 L. Ed. 1200.
“It seems clear that we cannot write any such qualification into the Import-Export Clause. It prohibits every State from laying ‘any’ tax on imports or exports without the consent of Congress. Only one exception is created — ‘except what may be absolutely necessary for executing its inspection Laws.’ The fact of a single exception suggests that no other qualification of the absolute prohibition was intended. It would entail a substantial revision of the Import-Export Clause to substitute for the prohibition against ‘any’ tax a prohibition against ‘any discriminatory’ tax. As we shall see, the question as to what is exportation is somewhat entwined with the question as to what is interstate commerce. But the two clauses, though complementary, serve different ends. And the limitations of one cannot be read into the other.” 329 U. S. at pages 75-76, 67 S. Ct. at page 160.
“We cannot, therefore, read the prohibition against ‘any’ tax on exports as containing an implied qualification.” 329 U. S. at page 78, 67 S. Ct. at page 161. In the Richfield case the court held unconstitutional under the Import-Export Clause application of a California gross receipts sales tax to an export shipment.
As a decision under the Import-Export Clause the Richfield case is not qualified, but reaffirmed, by the Joseph case. In the Joseph case five justices broadened the invalidation of the tax to include interstate commerce as well as imports and exports, seven condemned it as to imports and exports. It is impossible to escape Professor Powell’s interpretation of the opinions in this respect. 60 Harvard Law Review 744. Though the majority opinion does not mention the Import-Export Clause it cites the Crew Levick case to the very page quoted, supra, where the court said the two questions were one. Reason and authority may be surveyed in vain without finding any ground for holding that a tax, invalid under the Commerce Clause, could be valid, as to imports or exports, under the Imports-Exports Clause.
Under the Commerce Clause, since the recent cases and perhaps before, it may be that the Maryland gross receipts tax is constitutional as an “in lieu” tax. Canton, but not Western Maryland, disputes this proposition on the facts, but the fact question, I think, is not adequately presented on the record. So far as imports and exports are concerned, the question as to the Commerce Clause is immaterial. In the Import-Export Clause “the prohibition against ‘any’ tax on imports and exports contains no implied qualification.” It matters not, therefore, what is the present scope or extent of the “in lieu” qualification or exception to the cases condemning gross receipts taxes under the Commerce Clause. Before the instant cases no question as to the constitutionality of the gross receipts tax under the Import-Export Clause has ever been raised.
I think the tax, as to imports and exports, is unconstitutional and the judgment should be reversed.
Judge Delaplaine authorizes me to say that he concurs in this opinion.
Reference
- Full Case Name
- WESTERN MARYLAND RAILWAY COMPANY v. STATE TAX COMMISSION OF MARYLAND CANTON RAILROAD COMPANY v. ROGAN
- Cited By
- 1 case
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- Published