Com. v. Olan Mills, Inc. of Ohio
Com. v. Olan Mills, Inc. of Ohio
Opinion of the Court
Opinion by
This is an appeal from an order of the Commonwealth Court dismissing appellant’s appeal from the decision of the Board of Finance and Bevenue refusing to strike off a use tax assessment, and entering judgment in favor of the Commonwealth and against appellant in the amount of $871.00, with interest. The appeal was heard by the Commonwealth Court on a stipulation of facts, which is accurately summarized in the majority opinion:
“Olan Mills, Inc. of Ohio, appellant, a Tennessee corporation, is engaged in making and selling portraits in 21 states. It solicits business by telephone and personal contacts made by travelling sales personnel. Appellant has one permanent studio in Harrisburg, Pennsylvania, but in all other locations in Pennsylvania the customers go to hotels and other similar places for picture sittings. Business is solicited on the representation that appellant’s photographs are custom-made. Following the taking of pictures in Pennsylvania with a special portrait camera and unexposed film, the then exposed film is sent by mail to appellant’s plant in Springfield, Ohio. The film is placed in a chemical developing solution, resulting in the formation of nega
“Here the alleged deficiency in use tax, for the period from November 1, 1965, to October 1, 1966, amounts to $871.58 which is assessed in the amount of $49.22 on camera equipment and $822.36 on film purchased and used in Pennsylvania.”
The Tax Act of 1963 for Education
The Commonwealth Court held (1) that the making of custom-made portraits constitutes manufacturing within the definition of the Act; (2) that the cameras and film are used in one of the operations of the manufacture of personal property; (3) that use of the cameras and film is nevertheless taxable because all of the “production stages” in the manufacture of the custom-made portraits take place outside the Commonwealth; and (4) that the tax is not unconstitutional. Commonwealth v. Olan Mills Inc. of Ohio, 1 Pa. Commonwealth Ct. 230 (1971), exceptions dismissed, 5 Pa. Commonwealth Ct. 548 (1972).
We agree with the first two holdings of the court below, but conclude on the basis of those findings, as did the dissenters in the Commonwealth Court,
In Commonwealth v. Sitkin’s Junk Co., 412 Pa. 132, 194 A. 2d 199 (1963), this Court, speaking through Mr. Justice (now Chief Justice) Jones, said: “In its definition of ‘manufacture’, the Act (Section 2(c)) emphasizes two criteria, i.e., the type of the activity and
The application of this dual test to the facts of the case at bar leads us to the conclusion that appellant’s cameras and film are used in the manufacture of personal property in accordance with the Act’s definition. In Sitkin’s Junk Co., supra, we found the ejusdem generis rule of interpretation inapplicable to the language of this section and adopted the dictionary definition of “operation”, i.e., “the action of making or producing something”. The Oxford English Dictionary, Vol. VII, p. 145. Such a broad definition would certainly encompass appellant’s activities in the instant case. Appellant is engaged in the business of “making or producing” custom-made portraits. An essential step in that process is the “making or producing” of a negative from which the print (which ultimately becomes the finished portrait) is made. The making of the negative in turn involves a series of chemical reactions i,n the coating of the film, the first of which is caused by the in-camera exposure of the film to light, the “taking” of the picture. Also, when we consider the result of appellant’s activity, we readily see that personal property is placed “in a form, composition or character different from that in which it is acquired” by appellant. The sensitized paper, oil and water colors are changed into a portrait. The unexposed film, when developed, becomes the negative. In both instances, the composition and character of the property is “different from that in which it is acquired”.
We therefore conclude, as did the Commonwealth Court, that appellant’s cameras and film are used directly in one of the operations of the manufacture of personal property. It follows that where, as here, the taxpayer’s activity fits within the statutory definition of “manufacture”, the use of equipment and supplies in such activity is necessarily excluded from the statutory definition of “use”, and the Department of Revenue is without authority to assess a tax on such use. We are unable to agree, however, with the holding of the majority below that, although use of the property in question is within the manufacturing exclusion of the statute, such use may nevertheless be taxed because other steps in the manufacturing process (the “production stages”) take place outside the Commonwealth. We can find nothing in the statute to indicate that, unless a certain number or a certain type of the operations in the manufacturing process are performed within Penn
Act of May 29, 1963, P.L. 49, 72 P.S. §3403-1 et seq.
72 P.S. §3403-201. The scheme and function of the use tax and its interrelation with the sales tax have been most recently set forth in our opinion in Com. v. J. W. Thompson Co., 450 Pa. 5, 297 A. 2d 109 (1972).
72 P.S. §3403-2 (n) (4) (c).
72 P.S. §3403-2(e).
The dissenting opinion was filed by Judge Ceumlish ; Judge (now Justice) Mandekiko joined.
Statutory Construction Act of 1972, 1 Pa. S. §1921(b).
The reliance of the dissent on Commonwealth v. Deitch Co., 449 Pa. 88, 295 A. 2d 834 (1972), Commonwealth v. Berlo Vending Co., 415 Pa. 101, 202 A. 2d 94 (1964) and Commonwealth v. Weldon Pajamas, Inc., 432 Pa. 481, 248 A. 2d 204 (1968) is misplaced. None of those cases involved the Tax Act of 1963 for Education (i.e., the Sales and Use Tax Act), with which we are here concerned, or the definition of “manufacture” set forth in that act. They are not even cited by the Commonwealth. The dissenting opinion is mistaken in asserting that “the principles enunciated in [Deiteh] and [Berio Tending] control this ease . . . .”
In both Deitch and Berlo Tending, as well as in Weldon Pajamas, the issue was whether the taxpayer was entitled to the manufacturing exemption of the Capital Stock Tax Act of June 1, 1889, P.L. 420, as amended, 72 P.S. §1871. This is a different issue from that in this case, which involves the manufacturing exclusion in the Sales and Use Tax Act. The principles enunciated in Deitch and Berio, which are referred to but not elucidated in the dissenting opinion, are: (1) “Since the appellant and its property are within the general language of the act which imposes the capital stock tax, the provisions relied on to establish the claimed exemptions must be strictly construed. Commonwealth v. Berlo Vending Co., supra.” Commonwealth v. Deitch Co., 449 Pa. at 95. (Emphasis supplied.) and (2) “The element of difficulty in this and other cases dealing with the Capital Stock Tax manufacturing exemption arises from the absence of any statutory definition of the term ‘manufacturing’.
“ ‘Manufacturing’ as used in a legislative enactment is given its ordinary and general meaning.” Commonwealth v. Berlo Vending Co., 415 Pa. at 104.
Neither of these principles is applicable to the question of what is “manufacture” under the definition of that term in the Sales and Use Tax Act.
As noted in the main text, that Act, in defining those sales and uses upon which the tax is imposed, specifically excludes from the definition of the general term “use”, the “use ... of tangible personal property ... in any of the operations of the manufacture of personal property”. The issue in this ease, therefore, is not whether the taxpayer qualifies for an exemption, but the more basic question of whether the taxpayer or his property is within the general language of the statute imposing the tax. In answering this question, the language of the taxing statute is to be strictly construed against the Commonwealth, not against the taxpayer. 1 Pa. S. §1928(b)(3) and (4); Commonwealth v. Sitkin’s Junk Co., 412 Pa. 132 at 141-42, 194 A. 2d 199 (1963) ; Commonwealth v. Rieck Inv. Corp., 419 Pa. 52, 213 A. 2d 277 (1965).
As for the second of the Deiteh-Berlo principles, as was so carefully explained in this Court’s unanimous decision in Commonwealth v. Sitkin’s Junk Co., supra, at 136-38:
“[I]n the statutes which antedated the [Sales and Use Tax] Act . . . generally there was no definition of ‘manufacture’ and the courts resorted to the popular concept of the meaning of that term. In the Act now under construction the legislature has seen fit to define at some length the term ‘manufacture’.
“We have long held that where a statute contains its own definition, the meaning of the terms as defined at common law or as constructed under prior statutes is not controlling. [Citing cases.] By specifically defining ‘manufacture’, the legislature indicated its intent that ‘manufacture’ be construed in accordance with the statutory language and that the construction of such word was not to be controlled by prior judicial construction of such word under prior statutes.”
It is precisely because different principles controlled the two eases that “the compression of old automobiles into blocks of steel”
Dissenting Opinion
Dissenting Opinion by
Anyone who ever snapped the shutter of a camera would be surprised indeed to learn that, in the majority’s view, he is engaged in “manufacturing.” The majority reaches its result by holding the mere exposure of film to be “manufacturing.” Accordingly, the Commonwealth by today’s decision is precluded from imposing tax
I dissent and would affirm the order of the Commonwealth Court. In my view, the principles enunciated in Commonwealth v. Deitch Co., 449 Pa. 88, 295 A.2d 834 (1972), and Commonwealth v. Berlo Tending Co., 415 Pa. 101, 202 A.2d 94 (1964), control this case and compel a result contrary to that reached by the majority.
In Deitch this Court held that “the compression of old automobiles into blocks of steel,” 449 Pa. at 97, 295 A.2d at 839, did not constitute manufacturing. This Court in Berlo Tending, held that the “popping” of com was not manufacturing. Again, I do not see how the ma
Even were appellant’s operation viewed as a whole to be considered manufacturing, appellant would nevertheless be foreclosed, by virtue of Commonwealth v. Weldon Pajamas, Inc., 482 Pa. 481, 248 A.2d 204 (1968), from claiming the manufacturing exclusion. See Commonwealth v. Olan Mills, Inc., 1 Pa. Commonwealth Ct. 230, 274 A.2d 272 (1971). Appellant’s entire process of developing exposed film, making proofs and prints from negatives, retouching prints, placing oil and water colors on prints, and baking the final product in an oven takes place outside of this Commonwealth. This Court was of the view in Weldon Pajamas that, except in a single circumstance
What the majority unfortunately overlooks is the legislative policy behind the exemption or exclusion of manufacturing from tax liability. The sole reason for the legislative choice to confer these tax benefits is to stimulate and encourage manufacturing in Pennsylvania. Appellant’s manufacturing, as the Commonwealth Court correctly held, took place outside of Pennsylvania; the reason for the exclusion (exemption) does not exist; the tax was here properly assessed.
The majority seeks to buttress its conclusion by gnomic references to the Statutory Construction Act. For my part, the only canon of statutory construction applicable here is that which instructs the court not to
Only by ignoring this canon can the absurd conclusion that the snapping of a shutter of a camera is manufacturing be reached. If, as the majority believes, the mere snapping of a camera’s shutter is manufacturing, what then is not?
Tax Act of 1963 for Education, Act of May 29, 1963, P.L. 49, 72 P.S. §§ 3403-1 to -205 (1964), as amended, 72 P.S. §§ 7101-7282 (Supp. 1973).
“The exception to this rule relates to a corporation organized for manufacturing purposes and owning a manufacturing plant which is leased to another corporation which is actually engaged in manufacturing.” Commonwealth v. Weldon Pajamas, Inc., 432 Pa. 481, 484, 248 A.2d 204, 205 (1968).
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