Corporate Tax 2024

Last Updated March 19, 2024

Brazil

Law and Practice

Authors



Machado Associados is a leading Brazilian law firm with a particular specialisation in the tax area, assisting clients across diverse business sectors in strategic tax issues. The firm’s tax department is divided into three areas: (i) advice on direct taxes, transfer pricing and international taxation; (ii) advice on indirect taxes and customs duties; and (iii) tax litigation. Despite this administrative division, all areas work in a co-ordinated manner to offer a comprehensive service to clients. Machado Associados has offices in São Paulo (headquarters), Brasília, and Rio de Janeiro. The tax team has multidisciplinary training, with graduates in law, accounting, and business administration. This is of particular importance in highly complex cases involving business, economic, operational, and logistical aspects that need to be properly addressed in tax advice and litigation strategies.

Businesses generally adopt a corporate form in order to perform their economic activities in Brazil. The main corporate forms used by businesses are corporations (sociedade anônima) and limited liability companies (limitada).

Sociedade Anônima

As a rule, a sociedade anônima must have at least two shareholders, which can be individuals or legal entities, residents or non-residents. However, the Brazilian Corporations Law establishes that exceptionally a sociedade anônima can be (i) incorporated as a wholly owned subsidiary, by public deed, as long as the sole shareholder of the corporation is a Brazilian company; or (ii) converted into a wholly-owned subsidiary as a consequence of the acquisition of its shares by a Brazilian company or merger of its shares into a Brazilian company.

There is no minimum capital requirement, and the liability of shareholders is limited to the price of the shares subscribed or acquired by them.

A sociedade anônima can be publicly held, if the securities issued are admitted for trade in capital markets, or closely-held, if the securities issued are not admitted for trade in capital markets.

Limitada

There is no minimum number of partners required to incorporate a limitada. As such, it is possible to incorporate a limitada with only one partner (limitada unipessoal).

There is also no minimum capital requirement and the liability of the quotaholders is limited to the amount of their respective quotas, but all quotaholders are jointly liable for the paying up any unpaid portion of the quota capital.

Limitadas cannot be publicly held.

Brazilian legislation also allows foreign companies to incorporate branches in Brazil and establishes that such a branch shall be treated as a Brazilian legal entity for tax purposes. The tax deductibility of expenses not associated with the activities of the branch in Brazil is accordingly restricted.

The establishment of a foreign company’s branch depends on a special permit granted by the federal government of Brazil and any amendment to the company by-laws or its articles of association requires the approval of the federal government in order to be valid in Brazil. In view of this, it is not common for foreign companies to incorporate branches in Brazil.

The most commonly used transparent entities in Brazil are consortiums and investment funds.

Consortium

Commonly used to explore public concessions, a consortium is an association set up by two or more companies for a predetermined amount of time to carry out a specific project or undertaking.

The member companies of a consortium are liable for their obligations as established in the consortium agreement, which must be registered in the Commercial Registry. As a rule, there is no joint responsibility between the member companies of a consortium, unless required in specific legislation.

Revenues, costs and expenses registered by the consortium shall be shared according to the provisions of the consortium agreement and the member companies must include such revenues, costs and expenses in their own results, according to their percentage of ownership in the consortium.

Investment Funds

As transparent entities, the income generated by investment funds is taxed at the level of the investors, and the fund manager is liable for withholding the income tax due.

The taxation of the investors in investment funds will vary according to the type of fund, the area of investment and the length of the investment (ie, long-term or short-term).

In order to determine the residence of a legal entity for tax purposes, Brazilian tax legislation takes into consideration only the place of incorporation of the legal entity, meaning that any kind of legal entity that is incorporated in Brazil will be considered as a Brazilian resident and taxed as such, regardless of its place of effective management.

Businesses in Brazil, even if they are owned directly by individuals, are subject to corporate income tax (IRPJ) at a 15% rate. A surcharge of 10% is applicable for taxable income exceeding BRL240,000 per year (approximately USD48,000).

In addition to the IRPJ, a social contribution on net profit (CSLL) is also due by Brazilian companies at a 9% rate, except for financial entities, which are currently subject to 15% or 20% rates, depending on the financial activity performed.

Brazil legal entities may be subject to the calculation of IRPJ and CSLL based on the following two main regimes: actual profit or deemed profit.

Actual Profit System

Under the actual profit system, the taxable income corresponds to the accounting profit accrued by the company adjusted in accordance with the additions and exclusions set forth by tax legislation, minus the offsetting of accumulated tax losses from previous years (limited to 30% of the adjusted profit). The main tax adjustments are:

  • permanent additions – eg, non-deductible expenses, profits earned abroad and losses resulting from the equity pick-up method of accounting;
  • permanent deductions – eg, profits resulting from the equity pick-up method of accounting, interest on net equity and tax benefits;
  • temporary additions – eg, provisions; and
  • temporary deductions – eg, differences in depreciation between tax and accounting criteria

Deemed Profit System

The deemed profit system may apply to companies with yearly revenues of up to BRL78 million (approximately USD15.6 million) or companies that are not mandatorily subject to the actual profit system. Under the deemed profit regime, the taxable basis corresponds to deemed percentages of the gross revenues of the company (such percentages vary from 1.6% to 32% depending on the activities of the company) plus other taxable revenues, without any deductions for costs and expenses or tax losses carried forward. Accrual or receipt basis may apply.

Lei do Bem

A special incentive for technological innovation (the lei do bem) is applicable to legal entities that carry out research on new products and manufacturing processes, and improvements in quality, productivity and competitiveness of existing products and manufacturing processes. This technological innovation incentive provides for the following benefits.

IRPJ and CSLL benefits:

  • deduction of expenses related to technological innovation R&D;
  • additional exclusion from the IRPJ and CSLL taxable basis of percentages varying from 60% to 100% of the expenses related to technological innovation R&D (conditions must be met);
  • full depreciation in the year of acquisition of new assets used in technological innovation R&D; and
  • accelerated amortisation of costs with the acquisition of intangibles linked to the technology innovation R&D.

Other benefits:

  • 0% withholding tax on payments or credits to non-residents for the registration and maintenance of trade marks, patents, and cultivars abroad;
  • 50% reduction of the excise tax (IPI) levied on the purchase of assets destined for technological R&D; and
  • government subvention of up to 60% of the value of the remuneration of researchers holding master’s or PhD degrees.

Brazilian tax legislation provides for IRPJ incentives in order to promote the development of certain regions’ economic sectors.

Incentives for Regional Development

Companies in the North and Northeast of Brazil may benefit from a 75% IRPJ reduction if their activities are considered as a priority (such activities are defined by Presidential Decrees). In general terms, taxpayers may benefit from this reduction for a ten-year period provided they apply and have their projects approved before 31 December 2028. The benefit shall be approved by the Brazilian Federal Revenue Service based on a prior technical analysis of the regional Superintendencies (SUDAM/SUDENE).

The IRPJ reduction only applies to profits directly related to certain encouraged economic activities (eg, infrastructure related to energy, telecommunications, transportation, pipeline installation, gas production, water supply, and sanitation services projects; tourism; manufacturing industry in several areas including machinery and equipment, food and beverages, and pharmaceuticals; electro-electronic, mechatronics, information technology, and biotechnology; and the component industry).

Oil and Gas Sector Incentives

Companies that act in the oil and gas sector in Brazil may fully deduct from the IRPJ and CSLL taxable basis expenses and depreciation/exhaustion charges related to the exploitation of oil and gas. In some situations, an exemption of withholding income tax may apply.

Agricultural Sector Incentives

Companies that act in the agricultural sector in Brazil are allowed to fully offset their tax losses carried forward, without the need to comply with the 30% limitation mentioned in 2.4 Basic Rules on Loss Relief, as well as to benefit from accelerated depreciation of goods acquired for use in agricultural activities for IRPJ/CSLL purposes.

Under the actual profit regime, tax losses can be carried forward without any statute of limitations, provided that the offsetting does not exceed 30% of the taxable basis of any given period. No carry-back is allowed.

Non-operating tax losses may be offset only against non-operating profits.

A restriction to the offsetting of tax losses is imposed where there is a change (i) of control, and (ii) in the business activities pursued by a Brazilian company. Accordingly, a company cannot offset its tax losses if, from the date of the accrual of such losses to the date of their offsetting, a change in the control of the company and in the company’s business activities has occurred concurrently.

In the case of a spin-off, the company forfeits tax losses proportionally to the value of the spun-off part of its net worth. In the case of a merger, the merged company’s tax losses cannot be offset against the profits of the surviving company.

The general rule for the deduction of interest paid by local corporations is that the interest paid will only be considered deductible for tax purposes if it can be demonstrated that the loan to which the interest is related was necessary to the maintenance of the company’s activity.

In addition to the general rule, the deduction of interest derived from loans with related parties and/or parties resident in tax havens or subject to privileged tax regimes, are subject to compliance with thin capitalisation and transfer pricing rules.

Regarding the thin capitalisation rules:

  • if the creditor is a related party, the total debt amount shall not exceed twice the value of the equity stake held by the related party in the Brazilian company’s net worth;
  • if there is more than one creditor that is a related party, the total debt amount shall not exceed twice the value of the equity stake of all the related parties abroad in the Brazilian company’s net worth; or
  • if the creditor (related party or not) is located in a tax haven or subject to a privileged tax regime, the total debt amount shall not exceed 30% of the Brazilian company’s net worth.

Regarding the transfer pricing rules, as of 2024, the interest rate of the loan must comply with the arm’s length principle.

Consolidated group taxation is not applicable in Brazil and, as a rule, group companies are not allowed to utilise separate company losses.

Exceptionally, there are some tax settlement programmes provided by the federal government that allow companies to offset tax losses accrued by group companies against federal taxes due.

The capital gains accrued by a Brazilian company will be included in the IRPJ/CSLL taxable base, subject to general rates described in 1.4 Tax Rates.

VAT on Sales and Services (ICMS)

VAT is a state tax levied on the imports of goods, the domestic circulation of goods, inter-municipal or interstate transport services, and communication services.

Generally ICMS rates are:

  • 17% to 21% (rates vary depending on the goods) on imports and circulation of goods within the same state;
  • 17% to 21% on communication services;
  • 12% on transportation services;
  • 4% on interstate transactions involving imported goods that do not undergo a manufacturing process after their customs clearance or involving goods submitted to manufacturing if that manufacturing results in a final product more than 40% of the value of which is in its imported content;
  • 7% on shipments from taxpayers based in the South/Southeast to taxpayers based in the North/ Northeast/Central West and the state of Espírito Santo; and
  • 12% on other interstate transactions.

Tax on Services (ISS)

ISS is a municipal tax on services levied on the import and the domestic rendering of services listed in a Federal Supplementary Law. The ISS minimum and maximum rates are, respectively, 2% and 5%. The ISS rates vary in accordance with the service provided and the municipality competent to charge the tax.

IPI

IPI is a federal tax charged on the domestic shipment of goods from a manufacturing entity (or from an entity that the IPI legislation qualifies as a manufacturing entity even if there is no direct manufacturing, such as entities that import products for resale in Brazil), or on the import of goods (upon customs clearance of manufactured products). IPI rates vary according to the nature of the good (pharmaceutical products, for instance, are subject to zero rates as they are considered essential, whereas luxury or superfluous articles can be taxed at rates of up to 300%) and its classification under the IPI Table of Rates. IPI rates generally range from 3.25% to 19.5%.

PIS and COFINS are also due upon import of goods (rates of 2.1% and 9.65% respectively) and services (rates of 1.65% and 7.6% respectively).

Social Security Contributions on Revenues (PIS/COFINS)

PIS and COFINS are federal social security contributions levied on revenues earned by legal entities. Exceptions apply (eg, dividends and revenues derived from exports of goods or services). As a rule, PIS and COFINS rates are 1.65% and 7.6% respectively, if the company is subject to the non-cumulative system, and 0.65% and 3% respectively, if the company is subject to the cumulative system.

Customs Duty (II)

The customs duty (II) is a federal tax due on Brazilian importers levied on imports of goods and charged for the clearance of such goods from customs. Applicable rates vary per imported item and may range from 0% to 35%. II is not a VAT.

Tax on Financial Transactions (IOF)

A tax is levied on credit transactions at a 0.0041% daily rate plus a 0.38% surcharge, and on exchange transactions generally at a rate of 0.38% and insurance transactions at rates varying from 0% to 7.38%, as well as on securities at variable rates.

Urban Property Tax (IPTU)

A municipal tax is levied annually on the ownership or possession of any real estate located in urban areas. The rates vary according to the municipality. In the city of São Paulo, the rates range from 1% to 1.5% with discounts or additions granted based on the market value and use of the relevant property.

Tax on Vehicle Ownership (IPVA)

A state tax is levied annually on the ownership of land, water and air motor vehicles. The applicable rate may vary according to each state. In São Paulo, the tax rate varies from 1.5% to 4%.

Tax on Real Estate and Related Rights Transfer (ITBI)

A municipal tax is levied on inter vivos and remunerated transfers of ownership or in rem rights over real estate. The applicable rate may vary according to the municipality. In the city of São Paulo, the general rate is 3%.

Social Security Contributions

Social security contributions due by companies are generally composed of a fixed rate of 20%, which is supplemented by rates generally varying from 0.5% to 6% in the case of compensation paid to employees. The contributions to support welfare services (which are in addition to social security contributions) comprise rates of up to 5.8% over the compensation paid to employees.

Closely held local businesses usually operates in corporate form.

Income earned by individual professionals is subject to progressive rates up to 27.5%.

In principle, the 34% corporate rate (25% IRPJ rate plus the 9% CSLL rate) is higher than the individual rate. However, if the company is subject to the deemed profit regime, there are some situations in which the effective corporate rate could be lower than the individual rate.

In view of this situation, if the Brazilian tax authorities understand that a company has been incorporated with the sole purpose of allowing the individual to earn income at a lower tax rate with little to no substance (eg, offices and employees), Brazilian tax authorities may challenge the existence of the company and tax the income as if it had been earned by the individual.

Brazilian tax legislation does not provide for any taxation on the distribution of dividends. In view of this, Brazil does not have rules preventing closely held corporations from accumulating earnings for investment purposes.

Distributions of dividends from Brazilian Companies is exempt from income tax, regardless of the beneficiary (individual or legal entity and resident or non-resident).

If an individual sells it shares in a Brazilian closely held corporation, the positive difference between the sale price and the acquisition cost will be taxed as capital gains and therefore subject to progressive rates of 15% to 22.5%. If the beneficiary of the capital gain is domiciled in a tax haven, a 25% withholding income tax applies, regardless of the amount of the capital gain.

Distributions of dividends from Brazilian companies is exempt from income tax, regardless of the beneficiary (individual or legal entity and resident or non-resident).

The gain on the sale of shares by Brazilian individuals in publicly traded corporations is subject to taxation at a 15% rate, as a rule. However, gains in day trade operations are subject to a tax rate of 20%.

The gains on the sale of shares in publicly traded corporations by non-residents are, in principle, tax exempt. If the non-resident investor is located in a tax haven the gains will be taxed according to the rules applicable to investors resident in Brazil.

Distributions of dividends from Brazilian companies is exempt from income tax, regardless of the beneficiary (individual or legal entity and resident or non-resident).

In general, royalties and interest paid by Brazilian residents to non-resident companies is subject to withholding tax at a rate of 15%. If the non-resident company is a resident of a tax haven, a higher tax rate of 25% is applicable. With regard to interest, certain specific cases involving investment funds may be subject to a zero rate.

Tax authorities in Brazil have shown themselves to be determined to collect withholding taxes on the import of services. Local legislation has a broad concept of technical services – considering any service provided through the use of specific knowledge or that involves administrative assistance or consultancy, irrespective of any transfer of technology to be technical in nature – and the tax authorities’ interpretation is that withholding tax is due regardless of the place where the services are provided. Tax authorities also seek to frame the import of services as royalties for treaty purposes.

In addition, a contribution for the intervention in the economic domain (CIDE) is also due at a 10% rate by Brazilian residents on royalties and compensation for technical services paid to non-resident companies. CIDE is borne by the Brazilian resident (it is not a withholding tax).

Considering that dividends are exempt in Brazil and that the double tax treaties signed by Brazil allow the taxation of capital gains, there is generally no reason for foreign investors to use specific tax treaty countries to make investments in Brazil. However, the countries with which Brazil has signed a tax treaty and which have the highest amount of investments in Brazil are the Netherlands, Luxembourg and Spain.

Due to the Brazilian IRPJ/CSLL particularities and to the fact that dividends are exempt in Brazil, it is not usual for Brazilian tax authorities to challenge the use of treaty country entities by non-treaty country residents. Nevertheless, the most recent double tax treaties signed by Brazil provide for limitations on the entities that are entitled to the benefits of a double tax treaty.

Until the end of 2023, the biggest transfer pricing issue for inbound investors in Brazil was the difference between the local rules and the OECD guidelines, which led to different profit margins being acceptable in Brazil compared to other nations, specifically due to the fact that Brazilian rules provided for fixed margins instead of margins based on the arm’s length principle and did not provide for profit-based methods.

As of 2024, when Brazilian transfer pricing rules were substantially changed for the purposes of alignment with the OECD transfer pricing guidelines, the biggest issue for inbound investors operating in Brazil is the adaptation of their transactions to the new transfer pricing rules.

Another relevant transfer pricing issue in Brazil is that double tax treaties signed by Brazil do not provide for compensating adjustments.

Brazilian transfer pricing rules in force until the end of 2023 were based on fixed profit margins and not on the arm’s length principle, meaning that the fact that a distributor had limited risk was not relevant for Brazilian transfer pricing rules. Considering that the new Brazilian transfer pricing rules, mandatorily in force as of 2024, are based on the arm’s length principle, it is possible that discussions on the use of such arrangements will arise in the coming years.

The Brazilian transfer pricing rules have been substantially revised to align with the OECD transfer pricing guidelines. As these only came into force in 2024, potential issues could relate to difficulties in obtaining local comparables and timing issues with performing year-end adjustments. Local legislation requires that the year-end adjustment is made until the end of the calendar year to which it refers.

Historically, Brazilian tax authorities tends to be aggressive regarding transfer pricing rules, even using secret comparables.

Transfer pricing disputes are generally settled in administrative tax courts. Brazil does not include compensating adjustments in double tax treaties (Article 9.2 of the OECD Model Tax Convention). As such, double tax treaties are not used to settle transfer pricing disputes.

Although the mutual agreement procedure (MAP) is regulated in local legislation, this procedure is not yet common in Brazil.

The Brazilian transfer pricing legislation in force as of 2024 provides for compensating adjustments when the transfer pricing adjustment is performed spontaneously by the taxpayer, as long as certain requirements are complied with. Compensating adjustments are not allowed when a transfer pricing claim is settled.

Although MAPs are provided for in local legislation, Brazil does not have significant practical experience with them; instead, transfer pricing issues have historically been resolved through administrative and/or judicial discussions.

Local branches and subsidiaries of non-local corporations are subject to the same tax treatment.

Capital gains acquired by non-resident individuals and legal entities on the sale of stock in local corporations are subject to withholding tax at progressive rates of 15% to 22.5%. If the beneficiary of the capital gain is domiciled in a tax haven, a withholding tax of 25% applies, regardless of the amount of the capital gain.

There are no rules providing for the taxation on the indirect sale of stock of a Brazilian company.

Brazilian tax legislation does not provide any rules for the taxation on the indirect sale of stock of a Brazilian company. However, if the Brazilian tax authorities understand that a foreign holding company was used to avoid the triggering of taxation on capital gains in Brazil, they could disregard the holding company and consider that the price was paid for the acquisition of local company stock and thus subject to capital gain taxation as described in 5.3 Capital Gains of Non-residents. There was an attempt to include change of control provisions in Brazilian tax legislation in the past, but it was unsuccessful.

Brazilian subsidiaries and branches are subject to same rules for determining taxable income as described in item 2.1 Calculation for Taxable Profits, regardless of being locally or foreign owned.

As a general rule, in order for an expense to be deductible it is necessary to prove that such expense is necessary, usual and normal for the performance of the company’s activities/undertakings and that it relates to services that were actually performed.

As for payments for management and administrative expenses incurred by a non-resident affiliate, since they are transactions with related parties, it is also necessary to comply with transfer pricing rules. As such, if expenses correspond to back office services, they probably fall under the definition of low value-added intragroup services thus being subject to a simplified approach for transfer pricing (5% margin on costs).

The constraints applicable to related-party borrowing are transfer pricing and thin capitalisation rules, described in item 2.5 Imposed Limits on Deduction of Interest.

Brazilian companies are taxed on their worldwide income.

Capital gains and income earned abroad, as well as the profits accrued by branches, affiliated companies or direct and indirect controlled companies abroad, are included in the taxable basis of IRPJ/CSLL, at a general rate of 34%, in the year they are accrued, regardless of their distribution or availability to the Brazilian controlling company.

In order to avoid double taxation, Brazilian legislation allows Brazilian companies to offset the income tax paid abroad with the IRPJ and CSLL due in Brazil, up to the limit of IRPJ and CSLL levied in Brazil on such income.

Foreign income is not exempt in Brazil, so there are no rules limiting the deduction of local expenses because of attribution to exempt foreign income.

Due to the fact that profits earned by foreign subsidiaries are included in the taxable basis of IRPJ/CSLL of the controlling Brazilian company in the year that such profits are accrued, dividends paid by subsidiaries are not taxed at the moment of their distribution.

The licensing of an intangible developed by a Brazilian company to a related party abroad is subject to Brazilian transfer pricing rules and thus should be compensated according to the arm’s length principle. Corresponding compensation or transfer pricing adjustment is subject to IRPJ/CSLL.

Brazilian worldwide taxation rules tax profits earned by any subsidiary, affiliate or branch abroad. In view of this broad application of worldwide taxation, it is arguable that the Brazilian rules could be considered as a CFC-type rules.

Brazilian tax legislation does not provide for any rules related to substance of non-resident companies. However, Brazilian courts have already issued decisions stating that if the non-resident company’s substance is not verified it could be disregarded for tax purposes.

The capital gains are included in the IRPJ/CSLL taxable basis, similarly to capital gains from local from local investments (see 2.7 Capital Gains Taxation).

The Brazilian National Tax Code (CTN) provides for a general anti-avoidance rule stating that Brazilian tax authorities may disregard acts and transactions carried out with the sole purpose of masking the occurrence of the tax triggering event or the nature of the elements constituting the tax obligation. Although controversial, Brazilian tax authorities tend to disregard acts and transactions when they identify a lack of a valid economic purpose.

There is no regular routine audit cycle in Brazil. The only requirement related to tax audits established in Brazilian legislation is that they need to start within the statute of limitations of five years.

Brazil has already implemented the following recommended changes based on the OECD’s Base Erosion and Profit Shifting actions:

  • action 1 – taxation on remittances related to digital economy;
  • action 3 – implementation of CFC rules;
  • action 4 – implementation of thin capitalisation rules;
  • action 5 – list of tax havens and privileged tax regimes;
  • action 6 – implementation of anti-abuse clauses in the recent tax treaties signed;
  • actions 8–10 – alignment of the local transfer pricing rules with the OECD guidelines;
  • action 13 – implementation of the country-by-country report; and
  • action 14 – implementation of the mutual agreement procedure (MAP).

As an active member of the OECD/BEPS Framework, Brazil intends to implement most of the BEPS’ actions. However, the government has already stated that some of the actions will not be implemented (eg, MLI and disclosure of aggressive tax planning). Discussions on the implementation of Pillar One and Two is still in its early stages and formal declarations on how, when and if they are going to be implemented are still awaited.

International taxes have a high public profile in Brazil, as the country has already implemented CFC rules and aligned its transfer pricing rules with the OECD guidelines. This should have a positive influence on the implementation of BEPS recommendations.

The Brazilian state has shown interest in having an internationally competitive tax policy in order to attract foreign investments. However, in recent years, the main focus of the tax administration has been to maximise the country’s tax collection. This focus is in line with most BEPS action plans.

The Brazilian tax system is complex and provides for several different taxes and tax incentives, mainly in the indirect tax area, which have led to long-standing disputes between taxpayers and tax authorities. A tax reform aimed at simplifying the system, minimising the number of taxes, limiting different tax treatments and reducing tax litigation, was recently approved in the National Congress. However, it is still uncertain whether, when implemented, these objectives will be met.

As the recent main focus of the administration has been to maximise the tax collection, some measures have been taken to restrict the exclusion of tax incentives in the calculation of the IRPJ/CSLL and PIS/COFINS taxable bases.

Brazilian tax legislation provides for the tax deduction of a type of remuneration paid to shareholders (calculated on the net worth), known as interest on net equity (JCP) – there has been some discussion on whether this could be considered as a hybrid instrument. Changes were recently introduced to legislation aiming to limit the amount of this deduction.

Brazil does not have a territorial tax regime.

Brazil has had rules limiting the deduction on interest for quite some time and this has not adversely affected investment.

Brazil does not have a territorial tax regime.       

Considering that Brazilian tax authorities already adopt a substance over form approach and tend to disregard contracts, structures and transactions where they believe there to be a strong case for doing so based on a lack of substance argument, it is not likely that the new double tax convention limitations will have any impact on inbound and outbound Brazilian investors.

In June 2023, Brazil modified its transfer pricing rules for the purposes of alignment with the OECD transfer pricing guidelines.

Given that the transfer pricing rules in force until the end of 2023 were different from the OECD guidelines as they were based on fixed margins provided for in the legislation, the introduction of more subjective rules based on the arm’s length principle substantially changed the transfer pricing regime in Brazil.

As the new transfer pricing rules were only recently implemented in Brazilian legislation (January 2024), it is not yet possible to determine whether the taxation of profits from intellectual property will be a source of controversy under the new regime.

Brazil has adopted a very favourable position on transparency in international taxation matters, being part of the information exchange network provided for in BEPS action 14 and having implemented the country-by-country report rules.

Although Brazil has not implemented changes in the legislation regarding digital economy businesses, Brazilian tax authorities have significantly changed their approach regarding the taxation of remittances made abroad related to the digital economy, taxing transaction that were not taxed before (or were subject to lower taxation).

A few proposals related to digital taxation have been discussed in the National Congress, but none of these have been successful yet. Nevertheless, Brazilian tax authorities adopt an aggressive approach aiming to tax almost all digital transactions at source.

Royalty payments related to offshore intellectual property deployed in Brazil is subject to withholding tax at a general rate of 15%. Payments made to tax havens are subject to an increased rate of 25%.

Machado Associados

Avenida Brigadeiro Faria Lima, 1656
11th floor
01451-918
São Paulo/SP
Brazil

+55 11 3819 4855

+55 11 3819 4855

machado@machadoassociados.com.br www.machadoassociados.com.br/en/
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Trends and Developments


Authors



William Freire Advogados (WFAA) has a tax department that is renowned for its expertise in mining, steel-making, agribusiness, and energy sectors, offering comprehensive tax services and agile responses to client demands. Led by Paulo Honório, alongside Rodrigo Pires and Bruno Feitosa, the tax consultancy department provides a wide range of services, including tax planning, asset restructuring, investment structuring, tax review, and legal opinions. In tax litigation, we have a strong presence before CARF (federal administrative court) and ANM (in cases involving mining royalties), handling disputes with expertise and diligence. Our key work areas include international tax planning for foreign investors, advisory on tax effects arising from M&A operations in Brazil and handling relevant tax disputes before administrative and judicial courts.

Corporate taxation in Brazil was substantially changed by Amendment to the Constitution No 132/2023 (the "Amendment"), resulting in the need for new tax planning for those who operate or intend to operate their activities in the country. The last major regulatory change at this level occurred in the 1960s with the creation of the current National Tax Code.

Taxation on Consumption

The Amendment was approved with the aim of bringing the Brazilian tax system closer to what is observed in most developed and developing countries. Its new features are:

  • the creation of a dual VAT – the Tax on Goods and Services (IBS), which will be shared between States and Municipalities, and the Contribution on Goods and Services (CBS), of the Federal Union;
  • the creation of a Selective Tax, levied on activities harmful to health or the environment, with a primarily extra-fiscal purpose;
  • the authorisation for some Brazilian states to create an unprecedented tax on primary and semi-finished products, mainly affecting mining, agribusiness and oil and gas sectors, which could also be charged on exports; and
  • in culmination of the above, gradually extinguishing the current taxes levied on consumption by 2033, at all federal levels, namely, the Tax on Services (ISS, the "Municipal VAT"), the Tax on Goods and Transport and Telecommunications Services (ICMS, the "State VAT"), and the Contributions on Gross Revenue and Tax on Industrialised Products (PIS/Cofins and IPI, the "Federal VAT").

The Brazilian dual VAT

VAT is a non-cumulative tax charged at all stages of the production and marketing process guaranteeing, at each stage, the credit corresponding to the tax paid in the previous stage. This characteristic of VAT makes it a neutral tax.

Because of this, the following characteristics are part of the nature of a VAT:

  • broad base of incidence;
  • full appropriation of credits from previous stages, leading to tax neutrality throughout a production chain; and
  • little or no exceptions to the general taxation rule (no tax incentives or beneficial sectoral treatments).

The Brazilian tax regime on consumption, structured in the 1960s, lacked all these characteristics. It was decided to grant each federative entity (Union, states and municipalities) their own VAT. But this specific VAT, granted to each political person, did not capture the same tax bases.

The Union was given a VAT on all revenues of the legal entity, called Contributions to PIS and Cofins, as well as a VAT levied only on Intrustrialised Products (IPI). Its incidence and crediting rules are different, having jointly generated the biggest dispute in the history of the Brazilian tax system.

States were granted a VAT, charged at origin, levied on transactions involving goods, as well as two types of services: telecommunications and intercity and interstate transport (ICMS). This tax has incidence and crediting rules that are completely different from the VAT charged by the Union, which has always generated great complexity for taxpayers. Furthermore, each of the 27 states in the Brazilian Federation created different rules for this VAT, making it the most tormenting tax in national history.

The municipalities received VAT levied only on services (ISS), except telecommunications and intermunicipal and interstate transport, which belong to the state VAT incidence hypothesis.

As each VAT has a distinct materiality (revenue, industrialised products, goods and services), the Supreme Court was called upon to decide dozens of cases on the meaning of these terms. There have been many conflicts of competence between federal entities in recent years, mainly due to the digitalisation of the economy and the granting of tax incentives to attract investments.

This chaotic scenario of consumption taxation in Brazil was the main reason that led to the approval of the Amendment, which aims to abolish all mentioned VAT in favour of Brazilian dual VAT.

The idea of creating a single VAT was debated in the National Congress, but was deemed not possible due to the distrust that Brazilian states and municipalities have in relation to the Union. Hence the alternative was the creation of two VAT, one shared between states and municipalities (the IBS) and another for the Union (the CBS).

The Amendment determined that both taxes have the same characteristics. In other words, the IBS and CBS will, by law, have the same incidence hypotheses, calculation basis, taxable persons, exemptions, special regimes, and crediting system.

However, as these taxes will be managed by different tax administrations, it is expected that there will be interpretative divergences regarding the legislation establishing each VAT. The IBS will have a management committee made up of representatives from the 27 states and 27 municipalities. The CBS will be managed by the Union, through the Federal Revenue Service. There is no guarantee that the IBS management committee and the Federal Revenue Service will adopt the same interpretations of the IBS and CBS rules, though theoretically identical, which could lead to complexity for taxpayers.

The main normative characteristics of the Brazilian dual VAT are as follows:

  • It will be levied on operations with material or immaterial goods, including rights, or services.
  • It will be levied on the import of material or immaterial goods, including rights, or services carried out by an individual or legal entity, even if they are not habitual taxpayers.
  • It will levy on the transaction’s destination, and no longer on its origin, as was the Brazilian paradigm in taxation on consumption.
  • It will not be levied on exports, guaranteeing the exporter the maintenance and use of credits from previous operations.
  • It will not be levied on itself (avoiding the inclusion of VAT in its own calculation basis) and on other contributions and taxes charged in the country, except for the Selective Tax.
  • The general immunities provided for in the Constitution will apply to IBS and CBS.
  • Non-cumulative nature, based on the principle of neutrality, with the exception of the right to receive credit only for goods and services considered to be for personal use or consumption.
  • The right to credit, as a rule, is not conditional on payment of VAT in the previous stage. However, there are two exceptions:
    1. (1) when the purchaser must collect the VAT, denoting, in addition to imports, the possibility of tax substitution or deferral rules; or
    2. (2) when VAT is collected through financial settlement (split payment).
  • There will be, according to the law, the right to presumed tax credit in the acquisition of goods and services from:
    1. (1) a rural producer, an individual or legal entity that obtains annual revenue of less than BRL3.6 million, as well as from an integrated producer, who are not opting by IBS/CBS;
    2. (2) self-employed individual cargo transporter who is not a tax payer;
    3. (3) waste and other materials intended for recycling, reuse or reverse logistics, from individuals, cooperatives or other forms of popular organisations; and
    4. (4) movable property used by a non-taxpaying individual, for resale.
  • The rates will be set by each federative entity by specific law, and the total dual VAT rate will correspond to the sum of each of these rates, considered in the destination of the operation.
  • The rates will be uniform for all goods and services, except in cases reserved by the Constitution.
  • The Senate will set IBS reference rates, with three objectives:
    1. (1) maintaining the current tax burden, when compared to GDP;
    2. (2) compensate for the absence of tax rates in any federal entity, notably municipal;
    3. (3) define the IBS rates during the transition period, from 2026–33.
  • Dual VAT does not allow for tax benefits or special regimes, except in cases reserved by the Constitution (in addition to rate reductions, there are provision for differentiated regimes for a series of situations).

It is possible to reduce the dual VAT rate by 60% in/for the following areas:

  • Education services.
  • Health services.
  • Medical devices.
  • Accessibility devices for people with disabilities.
  • Medicines.
  • Basic menstrual health care products.
  • Collective public transport services for road and metro passengers of an urban, semi-urban and metropolitan nature, which may also be exempt, in accordance with the law.
  • Food intended for human consumption.
  • Personal hygiene and cleaning products mostly consumed by low-income families.
  • Agricultural, aquacultural, fishing, forestry and plant extractive products in natura.
  • Agricultural and aquaculture inputs.
  • National artistic, cultural, event, journalistic and audiovisual productions, sporting activities and institutional communication.
  • Goods and services related to sovereignty and national security, information security and cybersecurity.

A 30% reduction in dual VAT rates may be granted, relating to the provision of services of an intellectual profession, of a scientific, literary, or artistic nature. This is the case of lawyers, doctors, engineers, accountants, and other independent professionals.

The reduction in rates can reach 100%, according to the law, in the cases of:

  • vegetables, fruits and eggs;
  • medical and accessibility devices for people with disabilities;
  • medicines and basic menstrual health care products;
  • services provided by a non-profit Scientific, Technological and Innovation Institution (ICT);
  • passenger cars, when purchased by people with disabilities or professional taxi drivers;
  • higher education services under the terms of the University for All Program (Prouni);
  • urban rehabilitation activities in historic areas and critical areas for urban recovery and conversion.

Among the sectors and operations that will have different tax regimes, the following stand out:

  • the maintenance of the Manaus Free Trade Zone and Free Trade Areas;
  • special customs regimes;
  • fuels, with a uniform rate throughout the country, single-phase regime, ad valorem or ad rem rates;
  • favoured tax regime for biofuels and low-carbon hydrogen;
  • goods and services that promote the circular economy aiming at sustainability in the use of natural resources;
  • financial services, transactions with real estate and health care plans, which may be subject to cumulative VAT, with uniform rates throughout the national territory;
  • acquisition of capital assets may be exempted;
  • co-operatives; and
  • hospitality industry, amusement parks and theme parks, restaurants and regional aviation.

Conceptually, these are very important changes to simplify consumption taxation in Brazil. In order for them to be well implemented, it will be up to the National Congress to enact laws establishing these taxes in a reasonable and rational manner.

The Selective Tax

Alongside the dual VAT, the Amendment authorised the Union to institute a tax with an extra-fiscal aspect to discourage certain acts of consumption that would be, theoretically, "harmful to health and the environment": the Selective Tax. This is an unprecedented tax in the national experience and cannot be confused with the Tax on Industrialised Products (IPI).

Although unprecedented in Brazil, other countries charge taxes similar to the Selective Tax, normally called Excise Taxes. Their most common justifications for its creation, around the world, are:

  • collects, focusing on highly consumed goods, such as tobacco, alcoholic beverages, oil and motor vehicles;
  • internalises negative externalities (the "Pigouvian tax", based on the Pigou Theory, in The Economics of Welfare); and
  • discourages certain acts of consumption, considered harmful to human health or state interests.

The Brazilian Selective Tax is inspired by this global tradition and will have the following characteristics:

  • Its institution must occur by complementary law, and its rates can be established by ordinary law.
  • Extraction was included among the temporal criteria, alongside the production, commercialisation and import of goods and services.
  • Operations with electricity and telecommunications were immunised.
  • As a rule, it cannot be charged on exports. There is a possible controversy in this regard, about its levy on the extraction of minerals, oil and gas.
  • When charged at the time of extraction, the tax will have a maximum rate of 1% on the market value of the extracted product and will apply regardless of its destination.
  • It will be single-phase.
  • Its rates can be specific, per unit of measurement adopted, or ad valorem.
  • Goods and services with reduced IBS and CBS rates may not be subject to Selective Tax.

In his report, Senator Eduardo Braga highlighted that the Selective Tax "will be a very useful instrument for the relevant climate change mitigation policy"; "[...]will not be used for its primary collection function"; and that "there is no need for multiphase incidence, which is why we included the monophase restriction".

The wording of the Amendment suggests caution regarding the statement made by the rapporteur in the Senate, that this tax would not have a primarily revenue-raising purpose. Any human activity is potentially harmful to the environment, whether legal or illegal. It must be made clear that there is a difference between environmental impact and environmental damage, the latter of which gives rise to the obligation to indemnify.

For environmental impact, in addition to the mitigating measures provided for in the environmental licensing of the economic enterprise, there is a provision for financial imposition that implements the user-pays and polluter-pays principles. This is SNUC compensation, provided for in Law No 9,985/2000, which created the National System of Nature Conservation Units. It is understood that not every mitigating measure will completely avoid any (lawful) impact on the environment, resulting in the duty to compensate, which cannot be confused with the obligation to indemnify, the latter is always linked to illicit environmental damage.

The wording given to the Amendment does not distinguish between the two situations and potentially authorises the collection of the Selective Tax even on licensed economic activities and subject to SNUC compensation. This implies that any human activity could, from this perspective, be subject to this tax, which does not seem to be the purpose of its creation.

Given its broad scope in the constitutional text, since any human activity causes legal impacts on the environment, the new tax may lose its supposed extra-fiscal nature and become a collection instrument.

With regard to its impact on acts of extraction, it should be noted that the intention expressed by the rapporteur in the Senate would be:

  • to restrict mining activity in Brazil; and:
  • to have the Selective Tax applied even to mineral exports.

Once the constitutional amendment is promulgated, the possible intention of the legislator becomes another interpretative criteria of the promulgated text, and which then becomes the property of the legal system, and not of the individuals or bodies that participated in its drafting.

It is necessary to check the text of the amendment to know if the declared intention of the rapporteur in the Senate corresponds to what was promulgated. The answer is negative, both for the possibility of mining activity being restricted in Brazil, and for the tax to be charged on mineral exports.

The Brazilian Constitution determines that exploration and exploitation of mineral resources must be carried out in the national interest. This is not the interest of any federative entity specifically, but rather of the Brazilian people. The Attorney General's Office of the Union has a relevant statement in this regard: "Mineral resources, which, ultimately, belong to the people, must be explored with a view to the national interest (Section 1 of article 176 of the Constitution), to satisfy collective needs".

This is the basis for which the economic use of mines and mineral deposits has been included as cases of public utility.

This implies that mining must be encouraged, through the granting of exploration authorisations and mining concessions as Article 176 of the Constitution does not authorise the use of the Selective Tax as an instrument to discourage mining.

As for the possible charge on exports, which is the intention expressed by the rapporteur in the Senate, this cannot be done without violating the Constitution, which enshrines, in several provisions, the principle of the country of destination. All taxes on consumption on exports were immunised, including to comply with international free trade agreements signed by Brazil, such as the General Agreement on Tariffs and Trade (GATT).

The Brazilian Constitution establishes the impossibility of regression in matters of fundamental rights and individual guarantees. Immunities, in general, are individual guarantees for taxpayers, which cannot be suppressed even by constitutional amendment. This is what the Supreme Court decided, when judging Direct Unconstitutionality Action No 939.

Hence, tax immunity on exports is an individual guarantee for taxpayers, which cannot be suppressed under penalty of violating the principle of progressive rights and prohibition of retrogression.

Conversely, the collection of the Selective Tax on extraction must consider the market value of the extracted product, in its raw state, as the calculation basis. Tax cannot be charged on the sales value or market value of the final product without violating the constitutional text.

The State Contribution on primary and semi-finished products

There is also the unprecedented constitutional authorisation for the creation of a State Contribution levied on primary and semi-finished products, destined for infrastructure and housing funds, including exports.

The Amendment establishes the requirements for the creation of the new contribution by the States:

  • On 30 April 2023, have a fund intended for investments in infrastructure works and housing. These are cumulative and not alternative destinations; in which case the word either would have been used: infrastructure or housing.
  • Still cumulatively, this Fund is financed by contributions on primary and semi-finished products established as a condition for the application of state VAT benefits, on 30 April 2023.

The new contribution will be valid until 31 December 2043 and may affect the export of primary and semi-finished products. This will return, unconstitutionally as seen with the Selective Tax, to the scenario that existed in Brazil before 1996, when state VAT was charged on exports of non-industrialised products.

Primary and semi-finished products, as understood by Complementary Law No 65/1991, includes those:

  • resulting from raw material of animal, vegetable or mineral origin subject to tax when exported in natura;
  • whose raw material of animal, vegetable or mineral origin has not undergone any process that involves modification of the original chemical nature; and
  • whose cost of raw material of animal, vegetable or mineral origin represents more than 60% of the cost of the product.

In addition to the possible discussion regarding the levy of this State Contribution on exports, it is a measure that violates federal equality, because not all States will be able to create it. It is unacceptable, in a Federation, for some entities to have certain tax powers and others not.

The transition between the old and new tax model

Considering that the changes described in this text are significant, the intention is to implement them gradually from 2026–33:

In 2026:

IBS will be charged at 0.1% and CBS at 0.9%. This 1% dual-VAT can be deducted from the Federal Cofins Contribution, without increasing the tax burden, and, until 2028, from the CBS itself.

If the taxpayer does not have sufficient debts to deduct Cofins, the amount collected may be offset against any other federal tax or be reimbursed within 60 days.

In 2027:

CBS will be charged in full and Contributions to PIS and Cofins (federal VAT) will be eliminated.

The IPI will have a 0% rate, except for industrialised products in the Manaus Free Zone.

Selective Tax may be charged.

From 2029–32:

  • Previous state and municipal VAT (ICMS and ISS) are reduced 10% per year, until they reach 60% in 2032.
  • State VAT tax benefits will be maintained until 2032.
  • The reference rates for IBS and CBS (dual VAT) in this period will be fixed by Senate resolution, in the year prior to their implementation.
  • The reference rates will be revised annually aiming to maintain the tax burden.

In 2033:

All taxes on consumption active prior to the Amendment will be extinguished, with dual VAT being charged in full. Studies by the Ministry of Finance and the Federal Court of Auditors estimate that the total dual VAT rate will be approximately 27%.

State VAT credits whose use or reimbursement are permitted by the legislation in force on 31 December 2032, and which have been approved by the respective entities, may be:

  • Offset at 1/48, when linked to the acquisition of fixed assets; or
  • Reimbursed over 20 years in other cases, adjusted for inflation (IPCA index), starting in 2033.

Accumulated Federal VAT credits may be refunded after their termination, as regulated in complementary law.

Conclusion

The new consumption taxation rules in Brazil require study and planning on the part of taxpayers and their investors. It is especially important to pay attention in the transition period, between 2026–33, during which the old and new tax systems will coexist. Great complexity and many challenges are expected at this stage.

William Freire Advogados

Avenida Afonso Pena, 4.100
12º andar
Edificio Atlântico
Cruzeiro
CEP 30130-009
Brazil

+55 31 3261 7747

paulo@wfaa.com.br www.williamfreire.com.br
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Machado Associados is a leading Brazilian law firm with a particular specialisation in the tax area, assisting clients across diverse business sectors in strategic tax issues. The firm’s tax department is divided into three areas: (i) advice on direct taxes, transfer pricing and international taxation; (ii) advice on indirect taxes and customs duties; and (iii) tax litigation. Despite this administrative division, all areas work in a co-ordinated manner to offer a comprehensive service to clients. Machado Associados has offices in São Paulo (headquarters), Brasília, and Rio de Janeiro. The tax team has multidisciplinary training, with graduates in law, accounting, and business administration. This is of particular importance in highly complex cases involving business, economic, operational, and logistical aspects that need to be properly addressed in tax advice and litigation strategies.

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William Freire Advogados (WFAA) has a tax department that is renowned for its expertise in mining, steel-making, agribusiness, and energy sectors, offering comprehensive tax services and agile responses to client demands. Led by Paulo Honório, alongside Rodrigo Pires and Bruno Feitosa, the tax consultancy department provides a wide range of services, including tax planning, asset restructuring, investment structuring, tax review, and legal opinions. In tax litigation, we have a strong presence before CARF (federal administrative court) and ANM (in cases involving mining royalties), handling disputes with expertise and diligence. Our key work areas include international tax planning for foreign investors, advisory on tax effects arising from M&A operations in Brazil and handling relevant tax disputes before administrative and judicial courts.

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