South African value-added tax implications of interactive gambling in the absence of detailed place of supply rules

Abstract

Interactive gambling transactions take place over the internet, which is essentially a borderless environment. Typically, interactive gambling providers are located off-shore in tax-friendly destinations in order to maximise their profits. In the context of cross-border transactions, value-added tax (VAT) place of supply rules provide certainty regarding where a supply is deemed to take place in order to determine the correct treatment for VAT purposes. In contrast to a number of other countries, South Africa has limited place of supply rules. This creates uncertainty regarding where the activities of a non-resident supplier is deemed to take place. The absence of detailed place of supply rules impacts on the determination of whether the transaction will be liable to VAT in South Africa and also creates uncertainty regarding whether or not a non-resident is liable to register for VAT in South Africa. The main purpose of this study is to critically analyse the South African VAT implications of interactive gambling in the absence of detailed place of supply rules. This objective is achieved by analysing the South African VAT Act in the context of interactive gambling legislation to determine whether it succeeds in providing certainty regarding the place of supply of interactive gambling for purposes of the VAT Act. This analysis highlights the problems associated with the limited place of supply rules in South Africa. This study also critically analyses the legislation in a number of countries with place of supply rules from a South African perspective. The study concludes that the VAT place of supply rules in South Africa are not specific enough to create certainty regarding where the supplies of a non-resident interactive gambling supplier to a South African resident is deemed to take place and consequently whether the supply will be subject to VAT in South Africa. This may result in a failure to bring these transactions within the VAT net. The study further concludes that the place of supply rules in the European Union are in line with the guidelines issued by the Organisation for Economic Co-operation and Development (OECD) as well as recent South African case law (albeit not specifically related to the place of supply for VAT purposes), which indicates that interactive gambling transactions should be taxed where the consumer is situated. By implementing place of supply rules based on European legislation, through amending the current legislation or by issuing interpretation guidance, the problems associated with the limited place of supply rules in South Africa can be alleviated. This will also ensure that South African providers of interactive gambling services can compete on an equal footing with off-shore providers. AFRIKAANS : Inter-aktiewe dobbel transaksies vind plaas oor die internet, wat in beginsel ‘n grenslose omgewing is. Die verskaffers van inter-aktiewe dobbel dienste is tipies nie-inwoners wat gebaseer is in belastingvriendelike bestemmings om sodoende hulle winste te maksimeer. In die konteks van hierdie oorgrens transaksies, verskaf plek van lewering reëls duidelikheid oor waar lewering geag word plaas te vind om sodoende die korrekte behandeling in terme van belasting op toegevoegde waarde (BTW) vas te stel. Anders is in verskeie ander lande, het Suid-Afrika beperkte plek van lewering reëls. Dit veroorsaak onduidelikheid oor waar die aktiwiteite van ‘n nie-inwoner geag word plaas te vind. Die afwesigheid van gedetailleerde plek van lewering reels gee ook aanleiding tot onsekerheid oor of die transaksies van die nie-inwoner onderworpe sal wees aan BTW in Suid-Afrika, asook oor die verpligting van die nie-inwoner om in Suid-Afrika vir BTW te registreer. Hierdie studie het ten doel om die Suid-Afrikaanse BTW gevolge van inter-aktiewe dobbel in die afwesigheid van plek van lewering reëls krities te analiseer. Dit word bereik deur die BTW-wet in die konteks van inter-aktiewe dobbel te ontleed om sodoende vas te stel of die BTW-wet daarin slaag om duidelikheid te verskaf oor die plek van lewering van oorgrens inter-aktiewe dobbel transaksies. Hierdie analise bring die probleme wat gepaard gaan met die beperkte plek van lewering reels in Suid-Afrika na vore. Die studie kom tot die slotsom dat die huidige BTW plek van lewering reels in Suid-Afrika nie spesifiek genoeg is om duidelikheid te verskaf oor waar ‘n nie-inwoner se lewering van inter-aktiewe dobbel dienste aan ‘n Suid-Afrikaanse inwoner geag word plaas te vind nie. Gevolglik is daar onduidelikheid oor of hierdie transaksies onderworpe sal wees aan BTW in Suid-Afrika. Dit mag tot gevolg hê dat hierdie transaksies moontlik die Suid-Afrikaanse BTW-net ontglip. Die studie kom verder tot die gevolgtrekking dat die plek van lewering reëls wat in die Europese Unie toegepas word, bepaal dat inter-aktiewe dobbel transaksies vir BTW doeleindes belasbaar is waar die klient geleë is. Dit is in ooreenstemming met die riglyne van die OECD, sowel as onlangse Suid-Afrikaanse regspraak (alhoewel die betrokke hofsaak nie spesifiek die plek van lewering vir BTW doeleindes aangespreek het nie). Deur soortgelyke plek van lewering reëls in Suid-Afrika te implementeer kan die probleme wat met die beperkte plek van lewering reëls gepaard gaan, verminder word. Dit kan vermag word deur bestaande wetgewing te wysig of deur interpretasie riglyne deur die Suid-Afrikaanse Inkomstediens uit te reik. Die implementering van plek van lewering reëls sal ook verseker dat Suid-Afrikaanse verskaffers van inter-aktiewe dobbel dienste op ‘n gelyke voet met nie-inwoners kan kompeteer.