TEC America, Inc. v. DeKalb County Bd. of Tax Assessors

• Decision Date: 20 March 1984
• Docket Number: No. 67103,67103
• Citation: 317 S.E.2d 637,170 Ga.App. 533
• Court: Georgia Court of Appeals
• Parties: TEC AMERICA, INC. v. DeKALB COUNTY BOARD OF TAX ASSESSORS et al.

Page 637

317 S.E.2d 637

170 Ga.App. 533

TEC AMERICA, INC. v. DeKALB COUNTY BOARD OF TAX ASSESSORS et al.

No. 67103.

Court of Appeals of Georgia.

March 20, 1984.

Rehearing Denied March 29, 1984.

John A. Blackmon, William B. Wood, Atlanta, for appellant.

Richard W. Calhoun, George P. Dillard, Decatur, for appellees.

CARLEY, Judge.

The instant ad valorem tax case arises as a consequence of Article 7, Section 1, Paragraph 4 of the Constitution of 1976. That constitutional provision provided, in relevant part, that "[t]he governing authority of any county or municipality may, subject to the approval of the electors of such political subdivision, exempt from ad valorem taxation, including all such taxes levied for educational purposes and for State purposes, all or any combination of [inventories of certain specifically enumerated] types of tangible personal property ..." Pursuant to this constitutional provision, which authorized the adoption by local governments of the so called "Freeport" exemption, a referendum was held in DeKalb County and the voters approved the grant of an ad valorem tax exemption as to certain types of inventories. Thereafter, the governing authority of DeKalb County passed an implementing resolution to the effect that inventories of those specified goods "shall be granted a partial exemption from ad valorem taxation ..."

At all times relevant to the instant appeal, there was no State statutory provision specifying that the exemption from taxation which had otherwise been granted to inventories was conditioned upon the taxpayer's timely filing of an application therefor. The absence of an application requirement as a precondition for the inventory exemption was in direct contrast to the statutory provisions regarding the homestead exemption. See OCGA § 48-5-45(a). It was not until the enactment of OCGA § 48-5-48.1, subsequent to the dates which are relevant here, that the tax exemptions for homesteads and for inventories were harmonized by a clear legislative pronouncement to the effect that a taxpayer's failure to file a timely application for the inventory exemption would constitute a waiver of that exemption. In addition to the absence of any State statutory provision on the subject of waiver in effect at the relevant times, the original implementing resolution as approved by DeKalb County did not provide that the inventory exemption it was granting would be conditioned upon the taxpayer's timely application therefor.

Notwithstanding this absence of authority of a State statute or a local ordinance, the appellee-DeKalb County Board of Tax Assessors (Board) independently determined that its official "office procedure" would be to regard the inventory exemption as completely waived or forfeited for any year in which the taxpayer had not claimed the exemption on a return filed by the April 1 deadline for the timely filing of county tax returns. The tax forms and instructions that the Board provided taxpayers for the years 1978 and 1979 did not state that the exemption for inventories would be considered waived if no return was filed claiming the exemption by the April 1 deadline. The tax forms and instructions for 1980 and 1981, however, did contain the following notice: "Filing for the 'Freeport' exemption must be made on or before April 1st, in the year in which exemption is sought. Failure to do so constitutes a waiver for such exemption that year." (Emphasis supplied).

Appellant-taxpayer made a timely return claiming its inventory exemption for the years 1978, 1979, 1980 and 1981. The tax forms for 1982 differed from any of those of previous years. With regard to the inventory exemption, the 1982 forms contained the following notice: "Filing for the 'Freeport' exemption must be made on or before April 1st, in the year in which exemption is sought. Supporting documentation must be provided with this application." Thus, unlike the forms for the previous two years, the 1982 forms did not specify that the failure to file for the inventory exemption by April 1 would be deemed a waiver of the exemption for the year. According to appellant, it presumed that the consequence of its failure to file its 1982 tax return by April 1 would be the mere imposition of the standard 10% penalty for late filing, calculated after taking whatever exemption that would be applicable for its inventory. In other words, appellant did not anticipate that the Board would deem its failure to file a timely 1982 return to be a waiver of its entire inventory exemption and thus result in the imposition of the 10% penalty for late filing calculated with no allowance for the exemption. Based upon this understanding, appellant made the determination that its other internal financial and fiscal matters were more pressing than the timely filing of its 1982 tax return by April 1. It elected to complete these other matters, file a late return claiming its inventory exemption, and pay the 10% penalty that it anticipated would be assessed.

In June of 1982, subsequent to appellant's failure to meet the April 1 deadline for timely filing tax returns, the Board mailed appellant a "Notice of Assessment Change." The notice contained figures which were apparently based upon appellant's 1981 tax return but which also contained the notation that appellant's inventory exemption had been "Forfeited." In July, appellant filed its late tax return, claiming the inventory exemption. In response, the Board mailed appellant another "Notice of Assessment Change." This new notice was based upon the figures of appellant's late 1982 return with the exception that the inventory exemption was again "Forfeited."

Appellant filed a protest and appeal from the Board's assessment of its property without giving consideration to its inventory exemption. When its administrative appeals were unsuccessful, appellant appealed to the superior court. Cross-motions for summary judgment were made. After a hearing, the superior court denied appellant's motion and granted the Board's. The basis for the superior court's order was "that appellant waived its Freeport exemption by its failure to file its tax return and claim said exemption by April 1, 1982." It is from this order that appellant now brings the instant appeal to this court.

1. "Where rights are conferred by the Constitution or by statutes, mere rules of administrative bodies cannot amend or repeal those constitutional or statutory rights." O'Neal v. Ga. Real Estate Comm., 129 Ga.App. 211, 212, 199 S.E.2d 362 (1973). "[T]he test of an administrative rule is twofold: (1) Is it authorized by statute, and (2) is it reasonable? An agency rule might be reasonable but unauthorized by statute, or authorized by statute but unreasonable. In either event it could not stand." Ga. Real Estate Comm. v. Accelerated Courses, 234 Ga. 30, 32, 214 S.E.2d 495 (1975). As noted above, at all times relevant to the instant appeal the statutory provisions regarding the inventory exemption, as directly opposed to those regarding the homestead exemption, did not expressly provide that the taxpayer's failure to make a timely application therefor would be deemed a total waiver of the right to claim the exemption. Not until OCGA § 48-5-48.1, enacted subsequent to the instant case, was the procedure regarding the inventory exemption specifically harmonized with that controlling the homestead exemption, so that the former as well as the latter exemption was conditioned upon a timely application. Accordingly, the issue presented for resolution in the instant case is whether the Board's "office procedure" regarding waiver of the inventory exemption, which only now has explicit statutory authorization, was implicitly authorized under the former statutory provisions.

The Board first asserts that the applicable rule of statutory construction to be employed is that which provides that the grant of an exemption from taxation is to be construed strictly against the taxpayer and, unless it is clear that an exemption is to be granted, it is the duty of this court to rule in favor of the taxing authority. See Fulton County Fed. S. & L. Assn. v. Simmons, 210 Ga. 621, 624, 82 S.E.2d 16 (1954). However, this rule of statutory construction is not applicable in the instant case. Under the relevant statutes, there is no doubt that appellant was granted an exemption from taxation on its inventory. See Great Northern Nekoosa Corp. v. Bd. of Tax Assessors, 244 Ga. 624, 626(2), 261 S.E.2d 346 (1979). The only question is whether appellant has waived or forfeited the exemption it has been granted. Under these circumstances, the applicable rule of statutory construction is that "forfeitures and penalties are not favored and statutes relating to them must be strictly construed, and in a manner as favorable to the person against whom the forfeiture or penalty would be exacted as is consistent with fair principles of interpretation. [Cits.]" Moore v. Beneficial Fin. Co., 158 Ga.App. 535, 537, 281 S.E.2d 293 (1981). See also Goldstein v. State Revenue Comm., 50 Ga.App. 317, 318(3), 178...