Loss Set-Off and Apportionment in the Shipping Industry : Clause 230(2)-(4) of the Income Tax Bill, 2025 Vs. Section 115VM of the Income-tax Act, 1961

Clause 230 Exclusion of deduction, loss, set off etc.,

Income Tax Bill, 2025

Introduction

The evolution of taxation for shipping companies in India has been marked by the introduction of the tonnage tax regime, a specialized system designed to foster the growth and competitiveness of the Indian shipping industry. Both the Income-tax Act, 1961 (via Chapter XIIG, including Section 115VM) and the proposed Income Tax Bill, 2025 (via Clause 230) address the computation and treatment of losses for companies opting into the tonnage tax scheme. Clause 230(2) to (4) of the Income Tax Bill, 2025 and Section 115VM of the 1961 Act are pivotal statutory provisions that determine the treatment, set-off, and apportionment of losses for shipping companies transitioning into or operating under the tonnage tax regime. This commentary provides a detailed analysis of each relevant sub-clause, examines their legislative intent and operational mechanics, highlights practical implications, and offers a comparative analysis with the existing legal framework. The discussion is structured to facilitate a comprehensive understanding of the statutory landscape, the rationale behind these provisions, and their practical ramifications for stakeholders.

Objective and Purpose

The primary objective of both Clause 230(2)-(4) of the Bill and Section 115VM is to provide clarity and certainty regarding the treatment of losses accrued by shipping companies prior to and after their transition into the tonnage tax regime. The tonnage tax system, being a presumptive taxation regime, departs significantly from the traditional computation of profits and gains under the head "Profits and Gains of Business or Profession." Instead, income is computed based on the net tonnage of qualifying ships, thereby necessitating special rules for the carry-forward and set-off of business losses. The legislative intent is to prevent any double benefit or unintended tax advantage that may arise from the transition into the tonnage tax regime, while also ensuring that losses genuinely attributable to the shipping business prior to opting for the scheme are given due consideration. The provisions are also designed to maintain the integrity and self-contained nature of the tonnage tax system, thereby avoiding conflicts or overlaps with the general provisions of the Act.

Detailed Analysis

1. Clause 230(2) of the Income Tax Bill, 2025

Section 112 shall apply in respect of any losses that have accrued to a company before its option for tonnage tax scheme and which are attributable to its tonnage tax business, as if such losses had been set off against the relevant shipping income in any of the tax years when the company is under the tonnage tax scheme.

This clause addresses the treatment of pre-option losses attributable to the tonnage tax business. It provides that such losses, which accrued before the company opted for the tonnage tax scheme, shall be deemed to have been set off against the relevant shipping income during the period the company is under the tonnage tax scheme. The reference to Section 112 (presumably the section dealing with carry-forward and set-off of business losses in the 2025 Bill) is analogous to Section 72 of the 1961 Act.

Interpretation and Rationale:

- The deeming fiction ensures that pre-option losses do not remain unabsorbed or available for indefinite carry-forward once the company enters the tonnage tax regime.

- The provision prevents the taxpayer from claiming set-off of such losses against other heads of income or against income computed under the normal provisions after transitioning to the tonnage tax scheme.

- This approach preserves the integrity of the tonnage tax regime as a self-contained code.

Ambiguities and Issues:

- The phrase "as if such losses had been set off" creates a legal fiction but may raise questions about the mechanics of such set-off, especially for companies with complex business structures or multiple sources of income.

- The provision does not specify whether any documentation or procedural compliance is required to evidence the quantum and nature of such losses.

2. Clause 230(3) of the Income Tax Bill, 2025

The losses referred to in sub-section (2) shall not be available for set off against any income other than relevant shipping income in any tax year beginning on or after the company exercises its option u/s 231.

This clause restricts the set-off of pre-option losses strictly to relevant shipping income. Once the company has exercised its option for the tonnage tax regime, such losses cannot be set off against any other income (such as income from non-qualifying ships, other business activities, capital gains, or income from other sources).

Interpretation and Rationale:

- The restriction is essential to prevent the misuse of losses accrued in the shipping business for reducing tax liability on other income streams.

- It aligns with the principle that the tonnage tax regime is applicable only to qualifying shipping income and should not be used to shield other income.

Ambiguities and Issues:

- The provision hinges on the precise definition of "relevant shipping income," which must be clearly delineated to avoid disputes.

- There may be practical challenges in cases where the company's activities are integrated or where income streams are not easily separable.

3. Clause 230(4) of the Income Tax Bill, 2025

Any apportionment necessary to determine the losses referred to in sub-section (2) shall be made on a reasonable basis.

This clause addresses the method of apportioning losses when only a part of the losses accrued before the option for tonnage tax is attributable to the tonnage tax business. It mandates a "reasonable basis" for such apportionment.

Interpretation and Rationale:

- The clause recognizes that, in practice, a company may have both qualifying and non-qualifying shipping businesses, or other business activities, making it necessary to apportion losses.

- The requirement of a "reasonable basis" introduces flexibility but also places the onus on the taxpayer to justify the apportionment method adopted.

Ambiguities and Issues:

- The term "reasonable basis" is inherently subjective and may lead to disputes between taxpayers and the tax authorities.

- There is no prescribed formula or guidance, which could result in inconsistent approaches or litigation.

4. Section 115VM of the Income-tax Act, 1961

(1) Section 72 shall apply in respect of any losses that have accrued to a company before its option for tonnage tax scheme and which are attributable to its tonnage tax business, as if such losses had been set off against the relevant shipping income in any of the previous years when the company is under the tonnage tax scheme. (2) The losses referred to in sub-section (1) shall not be available for set off against any income other than relevant shipping income in any previous year beginning on or after the company exercises its option u/s 115VP. (3) Any apportionment necessary to determine the losses referred to in sub-section (1) shall be made on a reasonable basis.

Section 115VM of the 1961 Act is structurally and substantively similar to Clause 230(2)-(4) of the Bill. It sets out the same principles regarding the treatment of pre-option losses, their set-off against relevant shipping income, restriction on set-off against other income, and the requirement for reasonable apportionment.

Legislative Continuity:

- The near-identical language of Section 115VM and Clause 230(2)-(4) reflects legislative continuity and the intention to carry forward the established principles into the new tax code.

- The reference to Section 72 of the 1961 Act (carry-forward and set-off of business losses) is mirrored by the reference to Section 112 in the Bill, indicating a similar structural placement in the new legislation.

Practical Implications

For Shipping Companies

- Transition Planning: Companies must carefully assess their accumulated losses before exercising the tonnage tax option, as these losses will be deemed to have been set off against shipping income and cannot be carried forward for set-off against other income.

- Documentation and Apportionment: Companies with mixed business activities must maintain robust documentation to substantiate the quantum of losses attributable to the tonnage tax business and the apportionment method adopted.

- Tax Compliance: The provisions necessitate careful compliance and disclosure in tax returns and financial statements, especially in the year of transition and subsequent years.

For Tax Authorities

- Assessment and Verification: Tax authorities must scrutinize the apportionment of losses and the basis adopted by taxpayers, ensuring that the set-off is confined to relevant shipping income.

- Dispute Resolution: The subjective nature of "reasonable basis" for apportionment may lead to increased litigation and the need for administrative or judicial clarification.

For Policy Makers

- Clarity and Guidance: There may be a need to issue detailed rules or guidance on acceptable methods of apportionment to reduce ambiguity and disputes.

- Monitoring Abuse: Ensuring that the tonnage tax regime is not exploited for unintended tax benefits remains a key policy concern.

Comparative Analysis: Income Tax Bill, 2025 vs. Income-tax Act, 1961

Structural and Substantive Parity

The provisions in Clause 230(2)-(4) of the Income Tax Bill, 2025 are almost verbatim reproductions of Section 115VM(1)-(3) of the Income-tax Act, 1961. Both sets of provisions:

- Deem pre-option losses attributable to the tonnage tax business to have been set off against shipping income during the period under the tonnage tax regime.

- Prohibit the set-off of such losses against other income after the option is exercised.

- Require apportionment of losses on a reasonable basis where necessary.

Key Differences

- Section References: The Bill refers to Section 112, while the 1961 Act refers to Section 72. This is a result of the re-numbering and restructuring of sections in the new Bill.

- Terminology: The Bill uses "tax year" and "relevant shipping income," while the 1961 Act uses "previous year" and "relevant shipping income." The substance, however, remains unchanged.

- Contextual Integration: The Bill integrates these provisions within a new framework, potentially accompanied by updated definitions and procedural requirements, though the core principles are retained.

Comparative International Perspective

- Many jurisdictions with a tonnage tax regime (e.g., the UK, Singapore, the Netherlands) adopt similar principles regarding the treatment of pre-option losses, generally disallowing their carry-forward into the tonnage tax period or restricting their set-off to shipping income.

- The Indian provisions are consistent with international best practices, emphasizing the self-contained nature of the tonnage tax regime.

Potential Issues and Areas for Reform

Ambiguity in Apportionment

- The absence of a prescribed method for apportionment could lead to inconsistent practices and disputes.

- Introduction of detailed rules, safe harbors, or illustrative examples could enhance certainty for taxpayers and administrators.

Definition of "Relevant Shipping Income"

- Given the increasing complexity of shipping businesses (including logistics, offshore services, and related activities), the definition of "relevant shipping income" may require periodic review and clarification.

Transitional Provisions

- The transition from the 1961 Act to the new Bill may necessitate specific transitional provisions to address companies that have already exercised the tonnage tax option or have accumulated losses under the old regime.

Judicial Clarification

- In the absence of detailed rules, judicial decisions may play a significant role in interpreting "reasonable basis" for apportionment and the scope of "relevant shipping income."

Conclusion

The provisions of Clause 230(2) to (4) of the Income Tax Bill, 2025 and Section 115VM of the Income-tax Act, 1961 collectively embody the legislative intent to maintain the integrity and self-contained nature of the tonnage tax regime for shipping companies. By restricting the set-off of pre-option losses to relevant shipping income and mandating reasonable apportionment, these provisions seek to prevent abuse while ensuring that genuine business losses are not disregarded. The near-identical structure of these provisions in both the existing and proposed law underscores the continuity of policy and the importance of these rules for the effective operation of the tonnage tax system. However, the subjectivity inherent in the requirement for a "reasonable basis" for apportionment and the potential for disputes regarding the scope of "relevant shipping income" highlight the need for further administrative or legislative guidance. As the shipping industry evolves and the tax law transitions to a new framework, ongoing clarification and adaptation of these provisions will be essential to ensure fairness, certainty, and compliance.

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Full Text:

Clause 230 Exclusion of deduction, loss, set off etc.,

 

Dated: 14-5-2025