TBJ MARCH 2023
State Income Taxation of
State Universities
A framework for analysis.
Written by David S. Hansen
State universities (defined in this article as integral parts of the
state, as opposed to state-owned 501(c)(3) organizations operating as
universities) are taxed under a unique set of applicable laws. Most
notably, their federal income tax exemption is derived not from a
specific exemption in the Internal Revenue Code, or IRC, but rather they
are not subject to tax in the first place based on the “doctrine of
inter-governmental immunity.” The doctrine of inter-governmental
immunity was developed by the U.S. Supreme Court based on the supremacy
clause, the 10th Amendment, and the preservation of
federalism.1 At the same time, state universities are subject
to federal income tax on their unrelated business taxable income, or
UBTI, pursuant to IRC § 511(a)(2)(B). Over the years, the federal
taxation of such state universities has been refined and clarified into
a fairly predictable set of rules. However, state income tax laws are
often not so clear cut and create a host of ambiguities and potential
compliance risks that representatives of such entities must be prepared
for.
Below, this article outlines a three-step framework for the analysis of
taxability as many state codes differ significantly in form and
terminology, or even the existence of applicable taxes at all (see South
Dakota and Wyoming, which do not have corporate income taxes). Then an
example of the framework applied to a state, using Florida as an
example, follows.
Step 1: Search for an income tax imposition statute. Without a statute
imposing tax, there is no tax owed and the analysis can end. Commonly,
the tax potentially applicable to a state university is a “corporate
tax.” Sometimes, it is called a “franchise tax.” Sometimes the
imposition statute follows a similar pattern to federal law and imposes
tax only within a UBTI statute.
Step 2: Once you find the potentially applicable statute, look at the
definitions applicable to the statute at issue. Many states, for
example, might have an imposition statute that taxes “corporations”
defined in a way that excludes foreign state governments. Sometimes, the
UBTI statute only applies to “501(c)(3) organizations,” which means a
state university that is not a 501(c)(3) would escape taxation.
Step 3: If a tax appears to apply, search for various exceptions to the
tax.
One potential grey area is when an imposition statute is broadly worded
to cover all income with no exemption. In that case, non-UBTI income
should still be exempted under the doctrine of intergovernmental
immunity, but this may be a source of litigation.
Example: Florida
Florida has a relatively clear set of statutes and taxes UBTI similar
to the federal model. The imposition statute2 imposes tax on
the “net income” of “taxpayers.”
The term “taxpayers” is defined to include “corporations,” which
includes “all other organizations, associations, legal entities, and
artificial persons which are created by or pursuant to the statutes of
this state, the United States, or any other state, territory,
possession, or jurisdiction.”3 That definition of corporation
is likely expansive enough to cover state universities as they are
generally legal entities created pursuant to a state statute, and
accordingly the imposition statute would apply.
“Net income” is further defined, in Fla. Stat. Ann. § 220.12, as
“adjusted federal income.” Adjusted federal income is then defined in
Fla. Stat. Ann. § 220.13 (West) differently for various entities, but
the one applicable to state universities would be Fla. Stat. Ann. §
220.13(2)(l):
“Taxable income,” in the case of a taxpayer whose taxable income is not otherwise defined in this subsection, means the sum of amounts to which a tax rate specified in s. 11 of the Internal Revenue Code plus the amount to which a tax rate specified in s. 1201(a)(2) of the Internal Revenue Code are applied for federal income tax purposes.4
Section 11 of the IRC is corporate taxes and the income of a state
university subject to those taxes is generally UBTI. Going through the
exercise reveals that the state of Florida imposes a tax on only the
UBTI of state universities. TBJ
DAVID S. HANSEN
serves as assistant general counsel in the Business Law Section of the
Office of General Counsel for the University of Texas System. Hansen
specializes in tax and is certified in tax law by the Texas Board of
Legal Specialization. He retired from ScottHulse, a law firm in El Paso
where he was the shareholder attorney in charge of the tax section.
Hansen received his J.D. (cum laude) from the University of Texas School
of Law and an L.L.M. in taxation from the New York University School of
Law.
