Our business is substantially affected by the tax regime in Brazil on telecommunications goods and services, as disclosed in detail in "Item 4. Information on the Company-B. Business Overview-Taxes on Telecommunications Goods and Services."
In recent years, there have been several changes to Brazilian tax laws and their interpretation, which has created uncertainty for our business in how it calculates and complies with the relevant tax burdens. Further changes in tax regulations, such as a possible tax reform previously announced by the Brazilian Federal Government, could impact our financial assets and liabilities as well as our pricing, which could have a material adverse effect on our business, financial condition and results of operations.
In 2023, the Brazilian Federal Government experienced a primary deficit of approximately R$230 billion, equivalent to 2.1% of the GDP. This indicates that the Brazilian Federal Government expenses surpassed the total revenues. Additionally, the budget for the year 2024 has set a target of a zero primary deficit, signaling an effort to increase tax revenue in order to fulfill the plan. In the topics below, there is a list with recent tax changes that could potentially have adverse impacts on the taxes applicable to our business and our prices.
In order to limit the ability for state governments to undertake aggressive taxation, the Brazilian Federal Constitution prescribes that the ICMS can be variable, according to the essentiality of the goods and services. As such, the most essential goods and services should generally have lower rates than luxurious goods and services.
Accordingly, in December 2021, the Brazilian Supreme Court also ruled that telecommunications services must be taxed at the general ICMS rate provided for in each state's law. In the leading case, taxpayers required recognition of the unconstitutionality of the rate of 25% levied on the supply of communication services in the State of Santa Catarina where the general rate is 17%. The Brazilian Supreme Court decided that communication services should be taxed at the general rate and softened the effects of this decision on the state by providing that it becomes effective only in 2024.
Despite this decision, the Federal Congress enacted, on June 2022, Complementary Law No. 194/2022, which provides that communications and other activities, such as fuels, natural gas, electricity and public transportation, are essential goods and services, and, consequently, limited the ICMS levied on such transactions to the minimum tax rate of each State, which varied at the time from 17% to 18%. Therefore, the imposition of ICMS rates higher than the general rates of each State for the goods and services was prohibited by law from June 2022 onwards.
Due to this reduction, states were expected to have a significant tax collection decrease by the end of 2022, estimated at R$33.5 billion. In order to address and prevent the expected loss, a study by COMSEFAZ, a council of state finance secretaries, recommended state governments raise their general ICMS rate by 4 percentage points from 2023 onwards. In the same cases, the COMSEFAZ study also recommended the ICMS general rate increase of 7 percentage points.
As a result, in 2022, many states have elected to raise the ICMS general rate effective from 2023 as a way to offset their otherwise reduced tax collection. In some states, the general rate of the ICMS has been raised to 22%. The impact of this reduction on our business cannot currently be accurately measured due to a number of variables, such as customer base, future market and, price. In 2023, between October and December, fourteen States approved laws changing the ICMS rate applicable for telecommunication services effective from 2024. Eight States raised rates by around 2%. Other six States, according with the Brazilian Supreme Court's decision stating that telecommunications services must be taxed at the general ICMS rate, passed laws reducing the ICMS.
Also in 2022, Complementary Law No. 190/2022 was enacted to regulate the ICMS levied on interstate operations with final consumers or non-ICMS taxpayers. On interstate sales to final consumers, the ICMS should be split between the state of origin and state of destination, as follows: (a) to the state of origin, the ICMS is calculated with the interstate rate (4%, 7% or 12%); and (b) to the state of destination, the ICMS is calculated based on the difference between the interstate rates used in the transaction and the rate applicable to internal transactions in the state of destination (usually from 17% to 21%), also known as ICMS DIFAL.
According to this law, the ICMS DIFAL should be determined based on a double basis calculation. For us, it should mostly impact our fixed assets acquisitions and, although it should represent an increase in the cash out, the additional tax should be mainly recovered as a credit input on a monthly basis throughout the following four years.
In relation to other taxes, there were some relevant changes regarding the Federal Excise Tax (IPI). In February 2022, the Government issued a decree reducing the tax by 25% on average for several products sold in Brazil. In April, a new decree was enacted, increasing the IPI reduction to 35%, except for products produced in the Manaus Duty-Free Zone ("ZFM"). In 2023, these measures were kept.
The other relevant change in 2022 refers to PIS and Cofins. In December of 2022, the Brazilian Federal Revenue Office published the Normative Instruction No. 2,121/2022 ("IN No. 2,121/2022"), regulating the PIS and COFINS social contributions. In essence, IN No. 2,121/2022 – which replaced IN No. 1,911/19 – consolidated the new guidelines on ascertainment, inspection, collection and administration of the contributions for: (i) PIS/Pasep; (ii) Contribution for the Financing of Social Security (COFINS); (iii) PIS/PASEP-Import; and (iv) COFINS-Import.
Furthermore, on December 30, 2022, Decree No. 11,322/22 reduced by half the PIS/COFINS rates levied on financial income earned by companies subject to the non-cumulative regime. The rates changed from 0.65% and 4% to 0.33% and 2%, respectively. According to the Decree, the reduction would take effect from January 1, 2023. However, on January 2, it was revoked by the newly inaugurated Government, reestablishing the PIS and Cofins rates levied on financial income to its original values.
From a federal tax perspective, at the end of 2022, there were new relevant tax legislation enacted, including Provisional Measure No. 1,152 ("MP No. 1,152/2022"), which changed the legislation on IRPJ and CSLL, providing for new transfer pricing rules. MP No. 1,152/2022 aims to align the Brazil's rules with international standards and results from a process aimed at adapting Brazilian standards to those recommended by the Organization for Economic Cooperation and Development (OECD). To this end, there was an amendment to the arm's length principle and changes to transfer pricing rules which used to be exclusive to Brazil. This Provisional Measure was converted into Law No. 14,596, dated as of June 14, 2023. This new law expressly incorporated the arm's length principle into the Brazilian legal system. In addition, the new regulation reformulates the current system, abandoning the fixed-margin Benchmark calculation in favor of comparability tests, which better approximate to the "arm's length" principle incorporated into the Brazilian legal system with the new law mentioned above. This principle establishes that the Benchmark calculation should consider the relationships between independent parties in comparable transactions. This new regime must be complied mandatorily starting on 2024, or voluntarily starting on 2023, for taxpayers who wish to anticipate the effects of the new law. The regulation of the law will be issued by the Special Secretariat of the Federal Revenue of Brazil in the form of a Normative Instruction that will be updated periodically to reflect the needs for additional practical guidance and clarification considerations. As of now, we have the first normative instruction published on September 29, 2023, the Normative Instruction No. 2,161/23.
Brazilian Tax Reform on Consumption was enacted on December 20, 2023, by the Brazilian Congress through Constitutional Amendment No. 132/2023.
This reform provides significant changes in the current tax system, changing the indirect taxation into two new taxes: (i) a new dual tax called "IBS" (that substitutes "ICMS" and "ISS") and (ii) "CBS" (that replaces "PIS" and "COFINS"). It was also created a new tax called IS that partially replaces the current "IPI", which will be levied on the extraction, production, sale or import of goods and services considered harmful to human health and the environment.
There will be a transition period, effectively starting in 2026, in which the tax rates for IBS and CBS will be reduced for a period, increasing trough years, and a new methodology to offset credits and other matters related to the "old" taxes will take place, as detailed below. With all these changes, PIS/COFINS are expected to be totally discontinued by 2027, and ICMS and ISS are expected to be fully replaced by 2033, pursuant to the following schedule:
- 2026: rates of 0.9% of CBS and 0.1% of IBS can be offset against PIS/COFINS;- 2027: implementation of CBS, discontinue of PIS/COFINS and IPI rates reduced to zero (except ZFM, which will remain with positive rates);- 2029 to 2032: proportional levy/increase of the IBS rate and proportional extinction of ICMS and ISS; and - 2033: end of the transition period, when the new system comes into full effect.
These new taxes will be regulated by Complementary Laws and the tax rates will be defined by the Senate before the transition period.
The other relevant change from a federal tax law perspective was that the Executive Branch completely modified the current system of exemption from subsidies for investment in the country with the revocation of article 30, of Law No. 12,973/14, as well as the provisions of Law No. 10,637/02 and Law No. 10,833/03, on August 30, 2023, through Provisional Measure No. 1,185.
As a result, such subsidy revenues are normally taxed by the Corporate Income Tax (IRPJ), the Social Contribution on Net Profit (CSLL), the Contribution for Social Security Financing (COFINS) and contributions to the Social Security Program. Social Integration (PIS). On the other hand, the new legal system allows the appropriation of tax credits to be used to offset the taxpayer's own debts to the Brazilian Federal Revenue Service (RFB) or reimbursed in cash. The application of this mechanism depends on prior authorization from the Federal Revenue, which will be granted after investments have been made in the enterprise that is intended to qualify to receive the tax incentive.
The project to convert the above-mentioned Provisional Measure into law was approved by the Brazilian Congress on December 15, 2023, Law No. 14,789 which inaugurates a new tax treatment system for subsidies at the federal level.
It is important to highlight that the bill that was approved innovated in relation to the bill originally proposed by changing the legal treatment rendered to taxation of interest on equity ("IoE"). The bill made the institute more restrictive by providing, for example, that positive variations in net equity resulting from corporate acts between dependent parties, which do not involve the effective inflow of assets to the legal entity, will not be considered, as disclosed in detail in "Item 10. Additional Information––E. Taxation––Brazilian Tax Considerations-Distributions of Interest on Capital". These changes may represent a potential reduction in deductibility limit, for the CIT base.
On December 28, 2023, the Provisional Measure No. 1,202 was issued and among other provisions, aims to establish a new legal framework limiting the offsetting of credits resulting from a final court decision with a value equal to or exceeding R$10 million. This measure, set to take effect in 2024, aims to boost tax collection by restricting the use of credits from final court decisions for offsetting taxes. The specific duration for which the credit can be offset will be determined in accordance with the regulations. Furthermore, the text may change when submitted to Congress.