Barker v. Kansas
Opinion of the Court
delivered the opinion of the Court.
The State of Kansas taxes the benefits received from the United States by military retirees but does not tax the benefits received by retired state and local government employees. Kan. Stat. Ann. §79-3201 et seq. (1989).
“The United States consents to the taxation of pay or compensation for personal service as an officer or employee of the United States, a territory or possession or political subdivision thereof, the government of the District of Columbia, or an agency or instrumentality of one or more of the foregoing, by a duly constituted taxing authority having jurisdiction, if the taxation does not discriminate against the officer or employee because of the source of the pay or compensation.”
Shortly after our decision in Davis v. Michigan Dept. of Treasury, 489 U. S. 803 (1989), which invalidated under § 111 the Michigan income tax imposed on federal civil service re
Our approach to deciding this case is controlled by Davis, which invalidated a Michigan law that imposed taxes on federal civil service retirees’ benefits but not on benefits received by state and local government retirees. In reaching
Well aware of Davis, the State Supreme Court undertook such an inquiry and concluded that significant differences existed between military retirees, who are taxed by Kansas, and state and local government retirees, who are not. The court proceeded to consider the State’s six proffered distinctions between military retirees and state and local government pensioners:
“(1) [F]ederal military retirees remain members of the armed forces of the United States after they retire from active duty; they are retired from active duty only; (2) federal military retirees are subject to the Uniform Code of Military Justice (UCMJ) and may be court mar-tialed for offenses committed after retirement; (3) they are subject to restrictions on civilian employment after retirement; (4) federal military retirees are subject to involuntary recall; (6) federal military retirement benefits are not deferred compensation but current pay for continued readiness to return to duty; and (6) the federal military retirement system is noncontributory and funded by annual appropriations from Congress; thus, all benefits received by military retirees have never been subject to tax.” 249 Kan., at 196, 815 P. 2d, at 53.
Military retirees unquestionably remain in the service and are subject to restrictions and recall; in these respects they are different from other retirees, including the state and local government retirees whom Kansas does not tax. But these differences, standing alone, do not justify the differential tax treatment at issue in this case. Nor do these differences persuasively indicate that, for purposes of 4 U. S. C. § 111, Kansas may treat military retirement pay as reduced pay for reduced services. As a general matter, a military retiree is entitled to a stated percentage of the pay level achieved at retirement, multiplied by the years of creditable service. Brief for United States as Amicus Curiae 11, n. 16. In this respect, “retired [military] pay bears some of the features of deferred compensation. The amount of retired pay a service member receives is calculated not on the basis of the continuing duties he actually performs, but on the basis of years served on active duty and the rank obtained prior to retirement.” McCarty v. McCarty, 453 U. S. 210, 223, n. 16 (1981) (citation omitted). By taking into account years of service, the formula used to calculate retirement benefits
In holding to the contrary, however, the Kansas Supreme Court found support in some of our precedents. In United States v. Tyler, 105 U. S. 244 (1882), for example, the Court decided that officers retired from active military service were entitled to the same percentage increase in pay that a statute had provided for active officers. The Court reached this result in part by characterizing military retirement pay as “compensation [that] is continued at a reduced rate, and the connection is continued, with a retirement from active service only.” Id., at 245.
The State Supreme Court also found support in McCarty, supra. In that case the California courts considered the applicability of state community property laws to the military retirement benefits for which an officer who had 18 years of service would be eligible 2 years hence. The California courts had held these benefits subject to division upon disso
The Kansas Supreme Court reasoned that McCarty’s, recognition of the Tyler holding,'as lvell as the decisions of several Courts of Appeals, indicated that Tyler controlled the description of military retirement pay. It thus concluded that taxing military retirement pay as current income could not validly be characterized as discriminating in favor of state and local government employees, whose benefits were exempt as being deferred compensation for past services. See 249 Kan., at 198, 815 P. 2d, at 54. For several reasons, we find this reading of our precedents unpersuasive.
First, Tyler’s statement that retirement pay is effectively indistinguishable from current compensation at a reduced rate was unnecessary to reach the result that Congress intended to include the retirement benefits of a certain class of retired officers in its provision for increasing the pay of active-duty officers. In holding (that such retired officers were eligible for this increase, the Court based its holding on the “uniform treatment” of retired and active officers in
Moreover, although McCarty referred to Tyler, it did not expressly approve Tyler’s description of military retirement pay. To the contrary, by declining to hold that federal law forbade the States to treat military retirement pay as deferred income and resting our decision on another ground, we reserved the question for another case. To punctuate this point, we noted that, despite Tyler, the state courts were divided as to whether military retirement pay is current income or deferred compensation. See McCarty, 453 U. S., at 222-223, nn. 15 and 16. We also stated that although military retirement pay bears some of the features of deferred compensation, two indicia of retired military service include a restriction on activities and a chance of being recalled to active duty. Hence, “the possibility that Congress intended military retired pay to be in part current compensation for those risks and restrictions suggests that States must tread with caution in this area, lest they disrupt the federal scheme.” Id., at 224, n. 16 (emphasis added).
In urging States to be cautious in treating military retirement pay, McCarty thus should not be read to.consider Tyler as settling the issue. Indeed, our handling of the community property dissolution issue suggests the opposite. In Me-
Finding no support for the Kansas Supreme Court’s holding either in differences in the method of calculating benefits or in our precedents discussing military retirement pay, we examine congressional intent, as inferred through other applicable statutes that treat military retirement pay. Promptly after McCarty, for example, Congress enacted the Uniformed Services Former Spouses’ Protection Act, 10 U. S. C. § 1408(c)(1), which negated McCarty’s holding by giving the States the option of treating military retirement pay “either as property solely of the member or as property of the member and his spouse in accordance with the law of-the jurisdiction of such court.” Because the premise behind permitting the States to apply their community property laws to military retirement pay is that such pay is deferred compensation for past services, see McCarty, supra, at 221, Congress clearly believed that payment to military retirees is in many respects not comparable to ordinary remuneration for current services. To extend to States the option of deeming such benefits as part of the marital estate as a matter of state law would be inconsistent with the notion that military retirement pay should be treated as indistinguishable from compensation for reduced current services.
We therefore determine that the Kansas Supreme Court’s conclusion that, for purposes of state taxation, military retirement benefits may be characterized as current compensation for reduced current services does not survive analysis in light of the manner in which these benefits are calculated, our prior cases, or congressional intent as expressed in other provisions treating military retirement pay. For purposes of 4 U. S. C. § 111, military retirement benefits are to be considered deferred pay for past services. In this respect they are not significantly different from the benefits paid to Kansas state and local government retirees.
So ordered.
As the Kansas Supreme Court explained, to arrive at the adjusted gross income of a taxpayer under the Kansas Income Tax Act, the starting point is the adjusted gross income under the federal Internal Revenue Code, which includes retirement benefits received' by retired military officials and state and local government retirees. 249 Kan. 186, 190-191, 815 P. 2d 46, 49-50 (1991). As relevant for present purposes, in calculating Kansas’ adjusted gross income, the retirement benefits of state and local governments are deducted and are exempt from taxation. See Kan. Stat. Ann. § 79-32,117(c)(ii) (Supp. 1990); §74-4923(b) (Supp. 1990); see also 249 Kan., at 190-191, 815 P. 2d, at 49-50 (listing classes exempt from state taxation). Benefits received under the Federal Civil Service Retirement System and by retired railroad employees are also exempt. Kan. Stat. Ann. §§ 79-32,117(c)(vii) and (viii) (Supp. 1990). Not deducted and hence taxable are benefits received by retired military personnel, certain Central Intelligence Agency employees, officials serving in the National Oceanic and Atmospheric Association or the Public Health Service, and retired federal judges. See 249 Kan., at 205, 815 P. 2d, at 58.
The taxpayers also relied on the Supremacy Clause of the United States Constitution, the Privileges and Immunities Clause of the Fourteenth Amendment, and Article 11, §2, of the Kansas Constitution. The taxpayers further alleged that the State deprived them of their civil rights as secured by the United States Constitution and laws in violation of the Fourteenth Amendment and of 42 U. S. C. § 1983. See 249 Kan., at 188, 815 P. 2d, at 48.
See, e. g., Kuhn v. State, 817 P. 2d 101 (Colo. 1991) (en banc); Pledger v. Bosnick, 306 Ark. 45, 811 S. W. 2d 286 (1991); and Hackman v. Director of Revenue, 771 S. W. 2d 77 (Mo. 1989) (en banc), cert. denied, 493 U. S. 1019 (1990).
The Court explained:
“It is impossible to hold that men who are by statute declared to be a part of the army, who may wear its uniform, whose names shall be borne upon its register, who may be assigned by their superior officers to specified duties by detail as other officers are, who are subject to the rules and articles of war, and may be tried, not by a jury, as other-citizens are, but by a military court-martial, for any breach of those rules, and who may finally be dismissed on such trial from the service in disgrace, are still not in the military service.” United States v. Tyler, 105 U. S., at 246.
In listing the differences between the two classes of retirees involved here, the State Supreme Court also observed that Kansas state and local retirees have contributed to their retirement benefits and that their contributions have been taxed as part of their current income. Military personnel, on the other hand, do not contribute to their retirement benefits, which are paid out of annual appropriations. As we read the court, however, it did not rest its decision on this difference and in the end returned to its basic holding that military retirees “receive current compensation while all persons receiving state and local government retirement benefits receive deferred compensation.” 249 Kan., at 205, 815 P. 2d, at 58. Moreover, we note that the State applies, its income tax to other federal retirees who contributed to their benefits, such as members of the Central Intelligence Agency, Foreign Service, bankruptcy judges, and United States magistrates. See ibid.
Concurring Opinion
with whom Justice Thomas joins, concurring.
While I agree with the Court’s explanation of why this case is controlled by Davis v. Michigan Dept. of Treasury, 489 U. S. 803 (1989), I remain convinced that that case seri
Reference
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