CJEU to decide on the interpretation of several provisions of the DRM
On August 7, 2025, the Latvian District Administrative Court referred a preliminary question to the CJEU concerning the interpretation of the Directive 2017/1852 on tax dispute resolution mechanisms (DRM or the Directive).
The plaintiff, a Dutch company, sold its shares in several property-rich Latvian companies to another Latvian company. More than 50 percent of the value of the assets of the sold companies consisted of immovable property situated in Latvia. In accordance with Latvian domestic tax law, and following discussions with the Latvian tax authorities, the buyer withheld from the purchase price a sum equal to 3 percent of the transaction price, representing Latvian corporate income tax due by the seller. From a Dutch perspective, the proceeds of the sale transaction were within the scope of Dutch corporate income tax, but benefited from a participation exemption.
The plaintiff consulted with the Dutch tax authorities and challenged the tax treatment applied by the buyer. In its view, the provisions of the capital gains article of the double tax treaty concluded between Latvia and the Netherlands were applicable, and no tax should have been due in Latvia. Since the positions of the competent authorities differed, the Latvian tax authorities decided in 2021 to start the mutual agreement procedure under the DRM. However, the competent authorities were unable to reach an agreement on the interpretation of the treaty provisions within the three-year period provided by the DRM. As a result, the taxpayer requested the Latvian tax authorities to set up a dispute resolution advisory commission – per Article 6(1)(b) of the DRM. The Latvian tax authorities, however, refused to initiate the procedure on the ground that the facts of the case did not involve ‘double taxation’ within the meaning of the DRM, since the Netherlands had in fact exempted the sale proceeds. Therefore, according to the Latvian tax authorities, there was no actual taxation of the same income in two different Member States and, consequently, no obligation to establish an advisory commission.
The plaintiff challenged the refusal before the Latvian courts. The plaintiff argued that the Directive defines double taxation broadly, referring to situations where the same income is included in the tax bases of two or more Member States. Therefore, in the plaintiff’s view, this definition does not require that income actually be taxed twice, but only that it falls within the scope of taxation in two national tax systems.
The referring court expressed doubts about the correct interpretation of the DRM and referred the following questions to the CJEU:
- Whether Article 6(1)(b) of the DRM establishes a clear obligation that, if the authorities of two Member States fail to reach an agreement within the required period, an advisory commission must be established at the request of the affected taxpayer.
- Whether the term’ double taxation’ within the meaning of the DRM also covers situations where the same income falls under the tax systems of two Member States, even if that income is exempt from taxation in one of them.
- Whether the taxpayer retains the right to a dispute resolution advisory commission even if the CJEU concludes that the present case does not involve double taxation within the meaning of the DRM.
Polish referral on fiscal neutrality in corporate restructuring measures
On July 1, 2025, a request for a preliminary ruling was published in the Official Journal of the EU (case C-434/25). The request was raised by the District Administrative Court in Gliwice (Poland) on June 2, 2025, and concerns the corporate income tax implications of a partial division, and its compatibility with EU law, specifically:
- Article 8(2) of Directive 2009/133/EC1 (the Merger Directive), which ensures fiscal neutrality for partial divisions by preventing taxation on the allotment of securities to shareholders, and
- Article 8(6) of the Merger Directive, which allows Member States to tax gains from the subsequent transfer of securities received.
Before 2021, article 12(4)(12)(a) of the Polish Corporate Income Tax Act generally allowed shareholders to benefit from tax neutrality (i.e., no immediate taxation) on the value of shares received in exchange for mergers or divisions, in line with the Merger Directive, provided certain conditions were met. Effective from 2022, this provision was amended to limit tax neutrality, which now applies only if the shares in the company being merged or divided were not previously acquired or taken up as a result of an exchange of shares, or allotted as a result of another merger or division. In other words, if the shareholder had acquired their shares in the company being divided/merged as a result of a previous restructuring (merger, division, or exchange of shares), the tax neutrality does not apply. The value of the new shares received in the subsequent restructuring is then treated as taxable income.
On March 1, 2022, the plaintiff executed a partial division under Polish law, transferring part of its enterprise to another entity. In exchange, this entity issued new shares, which were allotted to the plaintiff as the sole shareholder. The plaintiff argued that no taxable income was generated under Polish law since the value of the shares allotted was not higher than the value recorded for tax purposes before the division. The Polish tax authority disagreed on the grounds that fiscal neutrality does not apply due to the prior acquisition of some of the shares through a merger.
The plaintiff in this case is contesting a tax ruling issued by the Director of the National Tax Information in Poland, claiming it violated the Merger Directive and EU law. The District Administrative Court annulled the tax ruling, finding that EU law should guide the interpretation of national provisions. However, the Supreme Administrative Court overturned this decision, stating that the lower court had failed to demonstrate a need to interpret the Merger Directive or identify specific conflicts between EU and Polish law.
The referring court has doubts about the compatibility of Polish law with the Merger Directive and Article 63(1) TFEU, which prohibits restrictions on the movement of capital within the EU. It seeks clarification on whether Article 8(2) of the Merger Directive precludes national provisions imposing additional conditions for fiscal neutrality, and whether Article 8(6) justifies limiting fiscal neutrality to the first restructuring measure and taxing subsequent similar transactions.