Lane Electric Cooperative, Inc. v. Department of Revenue

765 P.2d 1237, 307 Or. 226, 1988 Ore. LEXIS 761
CourtOregon Supreme Court
DecidedDecember 20, 1988
DocketOTC 2583; SC S34820
StatusPublished
Cited by3 cases

This text of 765 P.2d 1237 (Lane Electric Cooperative, Inc. v. Department of Revenue) is published on Counsel Stack Legal Research, covering Oregon Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Lane Electric Cooperative, Inc. v. Department of Revenue, 765 P.2d 1237, 307 Or. 226, 1988 Ore. LEXIS 761 (Or. 1988).

Opinion

VAN HOOMISSEN, J.

Lane Electric Cooperative, Inc. (LEC), appeals the Tax Court’s judgment upholding the Department of Revenue’s (Department) assessments for gross revenue tax deficiencies under ORS 308.8051 on certain money that LEC collected from and subsequently returned to its member-owners. Lane Electric Cooperative v. Dept. of Rev., 10 OTR 501 (1987). The question is whether the Tax Court erred in concluding that the money was subject to the tax on electric cooperative gross revenue. On de novo review, ORS 305.445, ORS 19.125(3), we affirm.

LEC is a not-for-profit rural electric cooperative association incorporated under ORS chapter 62. It provides electric utility services to approximately 10,000 customers, mainly in rural Lane County. LEC’s principal business is maintaining an electrical distribution system for its members’ [229]*229benefit. LEC is subject to a tax based on “gross revenues” derived from the use or operation of its transmission and distribution lines. ORS 308.805. LEC is an accrual basis taxpayer, paying taxes based on gross revenue to which it becomes entitled during a tax period rather than on gross revenue actually received during that period.

In 1982, LEC became concerned about its possible financial liability because of its involvement since 1976 in the ill-fated Washington Public Power Supply System (WPPSS) Projects 4 and 5. LEC’s Board of Directors adopted a resolution which increased rates about 10 percent to create a WPPSS contingency escrow fund. LEC promised to return any money collected as a result of the increase with interest to its member-owners to the extent that the money was not needed to satisfy any WPPSS liability under the WPPSS participation agreement. LEC’s monthly electric bills to its customers included the WPPSS assessment. LEC deposited the assessment revenue in a special WPPSS contingency escrow fund. In 1984, the Washington Supreme Court affirmed that LEC was not liable for WPPSS debt. See Chemical Bank v. Wash. Pub. Power Supply, 102 Wash 2d 874, 691 P2d 524 (1984). LEC refunded the money with interest to its members. LEC paid no tax on the money it collected for the WPPSS contingency escrow fund. Department found that LEC should have included the money in LEC’s “gross revenue.”

LEC appealed to the Tax Court, which held that the legislature intended the term “all gross revenue” in ORS 308.805 to be construed in the broadest sense, i.e., all money received. The court found that LEC’s potential WPPSS liability was no different from any other liability for which LEC may provide either by special fund or in its general budget. The Tax Court reasoned:

“The weakness of [LEC’s] position is that the tax imposed by ORS 308.805 is imposed before the determination is made whether the money is needed for [LEC’s] expenses and operations or will be returned to its patrons. [LEC] does not dispute that it is subject to tax under ORS 308.805 on all gross revenue received even though part of that revenue may be eventually returned to its patrons as a return of capital. The court sees no difference in the funds which were received and accumulated by [LEC] for its potential WPPS liability.”

[230]*230LEC contends that the Tax Court erred in holding that the ORS 308.805 gross revenue tax applied to LEC’s WPPSS contingency escrow fund. LEC also argues that it never “received” the money because it had to and did return the money to its member-owners. Department contends that money collected for LEC’s WPPSS fund in LEC’s regular billings did not differ from other LEC revenue which, with very few exceptions, is taxable under ORS 308.805, whether or not some of it is later returned to member-owners. Department argues that a 1969 amendment to ORS 308.805 changing “all gross earnings” to “all gross revenue” reflected a legislative intent to broaden the scope of ORS 308.805 to be virtually all-inclusive.

Our decision in this case requires an interpretation of the words “all gross revenue” in ORS 308.805 and a determination of whether the money in LEC’s WPPSS fund falls within that interpretation.

ORS chapter 308 deals with valuation of various types of property for property tax purposes. ORS 308.805 through 308.820 deal with a specific type of property (electrical distribution systems) owned by a specific class of taxpayers (non-profit electric cooperatives). ORS 308.805 provides a method of taxing such property different from the usual ad valorem method based on assessed value. Although the tax is measured by gross revenue, the tax is more properly considered a property tax than an income tax. ORS 308.805 underscores this conclusion because that statute provides that all cooperative property other than transmission and distribution lines is subject to normal ad valorem taxation. The parties’ citations to case law dealing with income, excise or property taxes are not persuasive.2

ORS 308.805 reflects a legislative intent to impose an appropriate property tax for the specified cooperative property. That statute taxes cooperative distribution systems based on a percentage of all gross revenues generated by (“derived from”) such systems. Clearly, all gross revenue [231]*231includes, at a minimum, member-owners’ obligation to pay their power bills, whether refundable or not.

The legislature tied the tax to gross revenue and underscored its inclusive intent by prefacing that term with (an arguably redundant) “all.” No statutory language supports LEC’s argument that other adjustments to “all gross revenue” must be allowed. LEC’s argument that “all gross revenue” is subject to the adjustment it seeks in this case is defeated by the inclusion of a single express statutory exception (for revenue from government leases).

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Cite This Page — Counsel Stack

Bluebook (online)
765 P.2d 1237, 307 Or. 226, 1988 Ore. LEXIS 761, Counsel Stack Legal Research, https://law.counselstack.com/opinion/lane-electric-cooperative-inc-v-department-of-revenue-or-1988.