EXPLANATORY MEMORANDUM

ON THE AGREEMENT FOR EXCHANGE OF INFORMATION

BETWEEN

THE GOVERNMENT OF THE REPUBLIC OF SOUTH AFRICA

AND

THE GOVERNMENT OF SAMOA

The purpose of an Agreement on the Exchange of Information between States is to promote international cooperation in tax matters in instances where jurisdictions have not entered into a Double Taxation Agreement. The Model was developed by the OECD Global Forum Working Group on Effective Exchange of Information, in which South Africa participates, to address harmful tax practices. Provision is made for such exchange of information between the States as may be required both for carrying out the provisions of the Agreement and for applying the domestic taxation laws concerning any tax imposed on behalf of the Contracting States. This Agreement is paramount in the campaign against tax fraud and evasion.  

In order to achieve full implementation of the international transparency and information exchange standards, a Tax Information Exchange Agreement has been entered into with Samoa (“the Agreement”).

The Agreement concluded between the Republic of South Africa and Samoa (“the Parties”) closely follows the OECD Model Agreement on Tax Information Exchange. In the explanation which follows, the general principles of each Article of the Agreement are set out.

PREAMBLE

The Preamble records that, recognising that the Parties have long been active in the fight against financial and other crimes including the targeting of terrorist financing, the object of the Agreement is to enhance and facilitate the terms and conditions governing the exchange of information relating to taxes.  

ARTICLE 1

SCOPE OF THE AGREEMENT

Paragraph 1 specifies that the Parties will provide assistance, through their competent authorities, for exchange of information with regard to the taxes covered by this Agreement. The information should be relevant to the administration and enforcement of the domestic laws of the Parties, in the determination, assessment, enforcement or collection of tax, the investigation of tax matters or the prosecution of criminal tax matters. Furthermore, emphasis is given to the fact that the rights and safeguards secured to persons by the laws or administrative practice of the requested Party remain applicable. The requested Party must also ensure to the best of its ability that the effective exchange of information is not unduly prevented or delayed.  

Paragraph 2 provides that a requested Party is not obliged to provide information which is not in the possession of its authorities or obtainable by or in the possession of persons who are within its jurisdiction.  

ARTICLE 2

TAXES COVERED

Article 2 identifies the taxes with respect to which the Parties agree to exchange information in accordance with the Agreement.

Paragraph 1 lists the existing taxes imposed by each State while paragraph 2 provides that the Agreement will also apply to identical or substantially similar taxes that are subsequently imposed by either State, if the Parties so agree.  Furthermore, competent authorities are also obliged to notify each other should there be changes to a Party’s domestic law which may have an effect on the obligations imposed on the Parties in terms of this Agreement.

ARTICLE 3

GENERAL DEFINITIONS

This Article defines various expressions which are used in the body of the Agreement. Several of these definitions are self-evident and are not further explained.

The definition of “South Africa” includes not only the sovereign territory but also those areas outside its territorial sea over which it may exercise jurisdiction in accordance with international law, for example, in relation to the exploitation of natural resources.

The term “criminal tax matters” is defined as all tax matters involving intentional conduct, which is liable to prosecution under the criminal laws of the Party.  A tax matter involves "intentional conduct" if the pertinent criminal law provision requires an element of intent. This definition does not create an obligation on the part of the requesting Party to prove to the requested Party an element of intent in connection with the actual conduct under investigation. 

Typical categories of conduct that constitute tax crimes include the wilful failure to file a tax return within the prescribed time period; wilful omission or concealment of sums subject to tax; making false or incomplete statements to the tax or other authorities of facts which obstruct the collection of tax and deliberate omissions of entries in books and records.  
 
The term “information gathering measures” means the methods set out in the domestic laws and administrative or judicial procedures of each Party.  Information gathering methods typically include requiring the presentation of records for examination, gaining direct access to records, making copies of such records and interviewing persons having knowledge, possession, control or custody of pertinent information.  

The definition of the term “person” is intended to be very broad. The definition explicitly mentions an individual, a company and any other body of persons. The main example of a “body of persons” is the partnership.  However, it also covers other organisational structures such as trusts, foundations, as well as collective investment funds or schemes.

Paragraph 2 provides that terms not defined in the Agreement have the meaning that they have under the domestic taxation laws of that Party at the time of application of the provisions of the Agreement.  Any meaning under the taxation laws will take precedence over a meaning under other laws of that Party.

ARTICLE 4

EXCHANGE OF INFORMATION UPON REQUEST

Paragraph 1 provides the general rule that the competent authority of the requested Party must exchange information on request provided it falls within the scope of this Agreement.  The requested Party is obliged to exchange information even if it is not needed by that Party for domestic tax purposes or the conduct being investigated would also constitute a crime under the domestic laws of the requested Party. Information must only be requested when the requesting Party is unable to obtain such information by other means unless such other means would give rise to disproportionate difficulty.

In terms of paragraph 2, if the information on hand is insufficient to comply with the request, the requested Party must use the information gathering methods it considers necessary to gather the requested information, irrespective of whether it has a domestic tax interest. Specifying that there is no need for a domestic tax interest ensures that there will be an effective exchange of information even in cases where the requested Party does not impose an income tax or the request relates to an entity not subject to tax within the jurisdiction of the requested Party.

Paragraph 3 includes a provision intended to require the provision of information, if specifically requested by a Contracting Party, in the form of statements from witnesses and certified copies of original records.

Paragraph 4 stipulates that each Party will ensure that its domestic law provides that, within the scope of this Agreement, the following information can be obtained and provided through its competent authority:

(a) 	Information held by banks and other financial institutions therefore ruling out bank secrecy.  Under this sub-paragraph, person’s acting in an agency or fiduciary capacity including nominees or trustees are also included;

(b) 	(i)	Information regarding the legal and beneficial ownership of persons;

	(ii)	Information on settlors, trustees and beneficiaries.

Paragraph 5 provides that in the case of publicly traded companies or public collective investment schemes, the competent authorities need only provide ownership information that the requested Party can obtain without disproportionate difficulties. It is recognised that where a true public market for ownership interests exists there is less of a risk that such vehicles will be used for tax evasion or other non-compliance with the tax law.

Paragraph 6 stipulates that any request for information must be in writing and formulated in accordance with the requirements of sub-paragraphs (a) to (i). While paragraph 6 contains important procedural requirements that are intended to ensure that fishing expeditions do not occur, the Commentary to the OECD Model provides that the sub-paragraphs nevertheless need to be interpreted liberally in order not to frustrate the effective exchange of information.

Paragraph 7 stipulates that the requested Party must be prompt in its response and furthermore, to ensure a prompt response, states under:

(a)	the receipt of a request must be acknowledged in writing by the competent authority of the requested Party and any deficiencies therein must be reported within 60 days; 

(b)	if 90 days have lapsed, the requested Party most furnish reasons for the delay. Furthermore, if it encounters obstacles or refuses to furnish information, it must immediately notify the requested Party, furnishing a full explanation.

Article 5

Tax Examinations Abroad

Paragraph 1 provides that the requesting Party may request the requested Party, to the extent permitted under its domestic laws and with the consent of the individuals concerned, to allow representatives of the competent authority of the requesting Party to enter the territory of the requested Party to interview individuals and examine records.  The competent authority of the requested Party must be advised of the time and place of any intended meeting arranged by the requesting Party.

Paragraph 2 provides for the competent authority of the requested Party to permit representatives of the competent authority of the requesting Party to attend a tax examination in the territory of the requested Party. It is understood that this request should only be made if the requesting Party is convinced that its presence will contribute greatly to the solution of a domestic tax case or may be regarded as part of an examination on a large scale, encompassing domestic enterprises and residents.

Paragraph 3 sets out the procedures to be followed if a request under paragraph 2 has been granted. All decisions on how the examination is to be carried out will be taken by the authority or the official of the requested Party in charge of the examination.

Article 6

Possibility of Declining a Request

This Article identifies the situations in which a requested Party is not required to supply information in response to a request.  If the grounds for declining a request under Article 6 are met, the requested Party is given discretion to refuse to provide the information.

Paragraph 1 provides that the competent authority of the requested Party may decline to assist under the following conditions:

(a)	where the request is not made in conformity with this Agreement. 

(b)	where the information has been requested and the requesting Party has not pursued all means available in its own territory unless the requesting Party is unable to obtain such information due to the exercise giving rise to disproportionate difficulty;

(c)	where the disclosure of information would be contrary to public policy.  

Paragraph 2 ensures that the requested Party is not obliged to provide information which would disclose any trade, business, industrial, commercial or professional secret or trade process.  However, the proviso in this paragraph makes it clear that the Agreement overrides any domestic law or practices that may treat information as a trade, business, industrial, commercial or professional secret or trade process merely because it is held by a person described in paragraph 4 (a) of Article 4 or because it is ownership information. 

Paragraph 3 provides for confidentiality in client-attorney communications when:

(a)	in the provision of seeking or providing legal advice;

(b)	to be used in legal proceedings.

Paragraph 4 clarifies that a request for information must not be refused on the basis that the tax claim, to which it relates, is disputed.

Paragraph 5 makes it clear that a requested Party is not required to obtain and provide information that the requesting Party would not be able to obtain under its own laws for purposes of the administration or enforcement of its domestic law. This stipulation is intended to prevent the requesting Party from circumventing its domestic law limitations by requesting information from the other Party thereby making use of greater powers than it possesses under its own laws. 

Paragraph 6 is intended to ensure that the Agreement does not result in discrimination between nationals of the requested Party and nationals in the same circumstances of the requesting Party. It provides for the requested Party to decline a request if it would result in the enforcement of a provision of the requesting Party’s tax law which discriminates against its nationals.

Article 7

Confidentiality

Respect for the confidentiality of information is necessary to protect the legitimate interests of taxpayers. This Article ensures that adequate protection is given to information received from another Contracting Party.

Paragraph 1 provides that any information received pursuant to this Agreement by either Party must be treated as confidential.  Mutual assistance between competent authorities is only feasible if each is assured that the other will treat with proper confidence the information, which is obtained in the course of their co-operation. 

Paragraph 2 stipulates that the information may be disclosed only to persons or authorities involved in the assessment or collection of, the enforcement or prosecution in respect of, or the determination of appeals in relation to taxes covered by the Agreement.  

Paragraph 3 stipulates that the information requested must not be used for any purpose other than for the purposes stated in Article 1 unless written consent is given by the requested Party that supplied the information. 

Paragraph 4 precludes disclosure by the requesting Party to any other jurisdiction.

Article 8

Costs

Unless otherwise agreed by the competent authorities, indirect costs in providing assistance would be borne by the requested Party and direct costs by the requesting Party.  The Article provides for the competent authorities to consult from time to time in relation to this issue and stipulates that the competent authority of the requesting Party must be warned in advance by the competent authority of the requested Party if the costs of providing information with respect to a specific request are expected to be significant.

Article 9

MUTUAL AGREEMENT PROCEDURE

Paragraph 1 institutes a mutual agreement procedure for resolving any difficulties arising out of the implementation or interpretation of the Agreement. 
 
Paragraph 2 allows the competent authorities to decide on the procedures to be used under Articles 4, 5 and 8 by mutual agreement.

Paragraph 3 provides for the competent authorities to communicate with each other directly.

Paragraph 4 provides that the Parties may agree to other forms of dispute resolution should the mutual agreement procedure fail to resolve a matter.

Article 10

IMPLEMENTATION OF LEGISLATION

This Article stipulates that the Parties must enact any legislation not in place and which is necessary to ensure that the Agreement is effective.

Article 11

Entry into Force

This Article stipulates that the Agreement will enter into force in both South Africa and Samoa 30 days after receipt of written notification by the latter Party that their domestic requirements for the entry into force have been completed. Once the Agreement has entered into force, the taxes matters referred to will become effective in accordance with the provisions of this paragraph, differentiation being made between exchange of information in criminal tax matters and exchange of information in all other tax matters.

Article 12

termination

Paragraph 1 stipulates that this Agreement will remain in force until terminated by either Party.

Paragraph 2 provides for the notice of termination to be given in writing and sets out the conditions thereto.

Paragraph 3 ensures that the Parties shall remain bound by the obligation of confidentiality under Article 7 with respect to any information obtained under this Agreement.