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BFH ruling

Tax consideration of non-mandatory contributions to a Swiss public pension fund when working in
Swiss public service – possibly also in the private sector?

Many employees commute to work from Germany to Switzerland every day. If you are treated as a cross-border commuter within the meaning of Article 15 a DBA, you will be taxed 100% of your income in Germany. Depending on the situation, other employees may be taxed on part of their income in Germany or their Swiss income may only be taken into account in Germany as part of the progression adjustment. In all of these cases, the taxable income must be determined in accordance with the principles of the German EStG for the tax return in Germany. One of the problems relates to the question of whether and to what extent the Swiss employer's contributions constitute taxable wages in Germany.

From the perspective of the tax authorities, the BFH has now supposedly provided clarity, which means that contributions to the so-called extra-mandatory scheme should be treated as taxable wages. However, the BFH only dealt with the individual case of an employee working in the public service and, in the opinion of the author of this article, did not understand the Swiss system and therefore made the wrong decision. Current objections should therefore be maintained and a new and comprehensive legal clarification should be brought about or awaited.

Table of Contents

BFH principles

  1. Non-mandatory employer contributions for an employee who is subject to tax in the Swiss public service and as a cross-border commuter in Germany are wages that the employee receives at the time the contribution is made if the contributions are paid to a Swiss public pension fund
  2. Non-mandatory employer contributions to a Swiss public pension fund are not (then) tax-free future security benefits in accordance with Section 3 No. 62 Sentence 1 of the Income Tax Act.
 

The case to be decided was like this

The case takes place in 2016, eight years ago! The plaintiff worked in the public service in St. Gallen, was subject to social security contributions in Switzerland, but was subject to German taxation as a so-called cross-border commuter in accordance with Article 15a of the DBA.

As an employee insured in Switzerland, in addition to the claims from the statutory pension insurance AHV (old-age and survivors' insurance), he also acquired mandatory claims against the so-called pension fund. Benefits to the pension fund are not voluntary, but are made based on a legal obligation. The most important key data are as follows:

  • Salary components up to a maximum of CHF 88 pa are taken into account in the mandatory requirement
  • However, the obligation to contribute does not begin with the first franc of income, but only from the age of 24, together with reaching an annual minimum income of CHF 22 (as of January 050, 1.1.2024).
  • The so-called coordination deduction (free allowance) is a fixed amount of CHF 25.
  • The annual savings contributions are 7%, 10%, 15% or 18% depending on age.
  • Interest is paid on the retirement capital at the applicable minimum interest rate (currently 1,25%).
  • The statutory conversion rate for the mandatory is 6,8%. This means that the future pension is determined based on these key data.

 

Anyone who earns more also pays contributions from the excess income. However, these do not bear interest straight away. Other circumstances can also lead to the accumulation of retirement assets in the so-called extra-mandatory situation:

  • The company pension plan makes it possible to insure income that is below the statutory entry threshold.
  • The savings process begins before the age of 25.
  • The annual salary is higher than CHF 88, and the salary components above this are taken into account in the BVG solution.
  • The coordination deduction is smaller than required by law (e.g. depending on the level of employment).
  • The savings contributions are higher (voluntary higher contributions from employers and employees).
  • The retirement capital earns interest at a higher interest rate than the legal minimum requirement.
  • The employee already had a pension solution before the BVG (1985) came into force.
  • Voluntary purchases were made into the pension fund.

In contrast to the compulsory system, there are no legal requirements for the non-compulsory system with regard to the conditions and services. This means that the pension funds can freely determine the interest and conversion rate to be applied for the non-mandatory salary components. 

The following are not compulsorily insured in occupational pension schemes:

  • Self-employed people
  • People who are not yet subject to AHV contributions (due to age or income)
  • family members working on their own farm
  • at least 70% disabled people unable to work
  • Employees with fixed-term contracts of a maximum duration of 3 months
  • Women aged 64 and over and men aged 65 and over are entitled to pensions
  • Part-time employees who already pay into the mandatory contribution in a full-time job
  • Employees whose employers do not have compulsory AHV insurance

The BFH has obviously not familiarized itself with this part of the basic principles of Swiss insurance and is of the opinion that all contributions to the non-mandatory insurance are voluntary contributions by the employer and the employee. However, that is not the case. “Extra-mandatory” contributions can also be mandatory under labor and civil law.

All contributions to a pension fund are not to be made individually, but rather for all of the company's employees in an institution determined by the employer - without the employee's right to have a say. Because the employer cannot work in different facilities, but only in one.

Insured persons can request a cash payment of a so-called termination benefit instead of a pension if they permanently leave Switzerland, they become self-employed and are no longer subject to compulsory occupational pension provision, or the termination benefit is less than their annual contribution (Article 5 of the Freedom of Movement Act). This question usually cannot be answered at the time of making the contribution.

The insured person can also claim an amount from their pension fund up to the amount of the termination benefit in accordance with the Freedom of Movement Act for home ownership for their own needs (so-called advance withdrawal) up to three years before the entitlement to retirement benefits arises (Art. 30c BVG). If the insured events of old age, death and disability occur, the insurance benefit is usually granted as a pension. In its regulations, however, the pension fund can provide for the insured person's right to choose a lump sum payment instead of a corresponding pension (Art. 37 BVG).

As part of the “self-employment area” regulated in Art. 49 BVG, pension funds can provide for benefits in their regulations that go beyond the legal minimum provisions (so-called extra-mandatory provisions).

Tax treatment in Switzerland

According to Swiss law, both the mandatory and non-mandatory contributions to the pension fund must be deducted from wages when taxing (Art. 81 BVG). During the payout phase, the benefits are fully subject to taxation (subsequent taxation, Art. 83 BVG).

Reasons for the BFH’s decision

The payment of the legally owed employer's share of an employee's pension, health and unemployment insurance does not constitute wages because the payment of the employer's share is not to be assessed as consideration for the employee's work. The employer must pay his share of the total contribution based on his own public law obligation imposed directly on him for social reasons. Until then there is agreement.

The BFH bases its judgment on the fact that the individual compulsorily insured employee through “the paymentFrom the BFH's point of view (probably meaning the employer's payment), there is neither an individual advantage under membership or contribution law nor an increase in benefits or other assets. Rather, the employer’s share is “system useful“and bring advantages and disadvantages to individual employers and their workforces; he will "earned by all compulsorily insured employees.” and calculated accordingly (as already stated in the Senate judgment of June 06.06.2002, 178 - VI R 97/XNUMX).

If these principles are applied, the non-mandatory contributions to occupational pension schemes made by a Swiss employer for its employees are taxable wages. In particular, this is not a general financial contribution intended for third parties, through which the individual employee does not experience an individual advantage under membership or contribution law, nor an increase in benefits or other assets. Rather, the extra-mandatory employer savings contribution paid would be credited to the savings balance maintained for the individual employee, which would increase their individual (pension) benefits when the “old age” insured event occurs. 

This is hardly comprehensible and ignores reality. Because we don't live under socialism. In Germany, too, the employer's contributions are not charitable, but have a direct influence on the number of months of contributions and the amount of the employee's future pension. This means that employees in Germany also have an individual advantage from the employer's contributions, even though the pension in Germany is financed on a pay-as-you-go basis and is not paid out on a capital basis. For the recipient of wages, however, it makes no tax difference whether the wages are paid directly by the employer or by a third party. It just depends on the context of the content. Furthermore, the pension is not related to income from employment within the meaning of Section 19 EStG or Article 15 ff. DBA Switzerland assigned. 

Contrary to the BFH, the employer's share is not "system useful” and is currently not earned by all compulsorily insured employees, that would be nice. German employers complain that they have to pay the employer's contributions to social insurance from their income and at their own expense, without support from the general public. The “entity of compulsorily insured employees” certainly does not help them bear these costs and burdens. What is true in Germany is that the “Total number of compulsorily insured employees“ and the taxpayers bear the pension provision of the civil servants and thus the judges, who for their part do not (have to) participate in building up their pension provision. The tax exemption of the employer's contributions is not tied to the fact that these contributions "system useful" are. In any case, it is arguable whether the German SV system “system useful“is or perhaps even anti-system. Because the “system” is the whole thing. If large parts of the population, especially the privileged, are not involved in bearing the burden of pension provision, then at least different perspectives are allowed.  

The BFH’s statement is correct that the extra-mandatory “Employer risk surcharges(What this is supposed to be again remains unclear) increase the individual claims of the individual employee in the event of “death” and “disability”. With statutory pension insurance, the number of contribution months and the amount of contributions also influence the amount of individual pension entitlements. In any case, this cannot justify a different tax treatment.

According to the BFH, the employer's future security benefits are paid if the employer makes insurance contributions for the employee in such a way that he or she has his or her own irrevocable right to insurance benefits. This is to be agreed. However, it is a different question whether the payments into the pension fund lead to an irrevocable entitlement and whether this is associated with a tax liability for the contributions.

Anyone who is going through a divorce will be able to explain to the BFH how irrevocable their claim is. Of course, pension fund balances are included in the statutory pension equalization and are therefore withdrawn in whole or in part from the previous owner. Benefits that remain tax-free during the payment phase are generally offset 1:1 against the credit from the extra-mandatory benefit. At this point we will not discuss the rules of the IPR on the general effects of marriage. Of course, the claims can be withdrawn. Anyone who dies prematurely also has nothing from their pension or from the assets.

Comparability with a German pension fund

In the case of foreign contributions by the employer to occupational pensions, the question of whether the requirements of Section 3 No. 63 EStG are met must be checked as to whether the Swiss pension fund is comparable to a domestic German pension fund as a means of implementing company pension provision in accordance with the German Company Pension Act or one the implementation methods can be assigned as comparable (BFH ruling of May 17.05.2017, 10 - X R 15/14.07.2010). Comparability can be assumed if the core content of the foreign performance corresponds to the common and typical characteristics of the domestic performance, i.e. is equivalent in terms of motivation and function. Since complete identity is hardly conceivable, this assessment must necessarily be limited to certain characteristics of both types of performance and exclude others as insignificant for the comparison (BFH judgments of July 37, 08 - X R 26.11.2014/38 and of November 10, XNUMX - VIII R XNUMX/ XNUMX). Until then, the BFH must be followed.

In the judgment, the BFH considered that the intended options for paying out the retirement savings (in exceptional cases) as a lump sum payment before an insured event occurs, but also after it occurs, are so important that the non-mandatory pension agreement cannot be compared with the domestic company pension scheme be given. The BFH left it open which forms and designs of the BAV exist in Germany and how this should be viewed in relation to the Swiss pension funds. There was also no differentiation as to whether or not a lump sum payout was possible at all due to the age of the insured person and/or other circumstances. Among other things, the right to choose a lump sum payment could depend on whether other beneficiaries have to agree or not (including divorce cases). The fact that the BFH referred in its judgment to the company pension law in the version applicable for 2016 (but now outdated) has no bearing on the further assessment because the amendment to the law in 2020 does not contain any innovations in the crucial points. 

However, under German law there is also the possibility of lump-sum payment of claims under the Company Pension Act. The BFH was involved Judgment dated September 20.9.2016, 23, XR 15/XNUMX, decided that the one-off lump-sum settlement of current claims against a pension fund used for company pension provision is subject to the regular income tax rate in any case if the right to choose capital was already included in the original pension regulation. As with the Swiss pension fund, this is a case of downstream taxation.

The BFH also justified the lack of comparability of the Swiss and German BAV with the fact that the Swiss pension fund allows the payment of 50% of the savings balance as a capital benefit at the time of drawing benefits. In contrast, in the case of company pension schemes within the meaning of Section 3 No. 63 Sentence 1 EStG, in accordance with Section 1 Paragraph 1 Sentence 1 No. 4 Letter a AltZertG in Germany (2016 version), there is only a payout of a maximum of 30% of the amount available standing capital outside of the monthly benefits possible. There is no justification in the judgment that the lack of equality admitted by the BFH is a negative in terms of comparability.

The BFH correctly explains in point 37 of the reasons for the judgment that the employer's expenses for securing the future of the employee remain tax-free according to Section 3 No. 62 Sentence 1 EStG to the extent that the employer does so in accordance with social security or other legal regulations or based on legal authorization Provision is obligatory and it does not involve donations or contributions from the employer according to numbers 56 and 63. This also applies if the obligation is based on foreign laws. Legal regulations in this sense are only government-imposed regulations. Statutes under public law within the meaning of German law are not among these state-imposed regulations because - unlike, for example, a legal ordinance - they are issued by a non-governmental body.

Now Germany will hardly (be allowed to) expect other countries to copy the German political order and implement it 1:1. The basis for the non-mandatory contributions to the Swiss pension fund is complex (see above)

Comparability from the perspective of the Federal Social Court

In the judgment of February 23.02.2021, 12, B 32 KR 19/XNUMXR, the BSG decided that the benefits from Swiss pension funds are fully subject to compulsory health and nursing care insurance in Germany and must be paid for, without differentiation according to mandatory and non-mandatory requirements. This could not be the case if at least the benefits from the extra-mandatory scheme were to be assessed as repayment of taxed deposits. The BSG agreed with the assessment of the lower courts, according to which it was a pension from the GRV comparable to a pension from abroad with regard to both the mandatory and the compulsory benefit components. The comparability of the pension in the benefit phase also requires comparability in the payment phase. The BSG bases its judgment on the fact that the benefits of the Swiss Pension Fund are comparable to either a German pension or a German company pension scheme. This is independent of whether the Swiss Pension Fund's benefits are based on mandatory or non-mandatory components. The BFH and BSG, as the highest specialist courts, contradict each other on this important question.

It doesn't help that at the end of its judgment the BFH uses an obviously self-defined "model of German basic pension provision" that the Swiss system does not correspond to. In this respect, the sovereignty of interpretation should be left to the BSG, which is more responsible.

Conclusion

With reference to the outdated legal situation in 2016, the BFH decided that a cross-border commuter employed in the Swiss public service (Art. 15a DBA Switzerland) must pay tax on his employer's contributions to the extra-mandatory Swiss pension fund. The BFH did not consider the employer's services to be comparable to the services that a German employer would have to provide. The BFH is right in many cases, because German civil servants do not pay anything into the statutory social security scheme; the employer or taxpayer bears 100% of the burden. An extension of the case law to employees employed in the private sector has not been decided and is not permitted. The BFH assesses the comparability of compulsory and non-compulsory benefits differently than the BSG, which requires and establishes the full comparability and uniform treatment of compulsory and non-compulsory benefits.

To the extent that the German tax authorities tax employer contributions to extra-mandatory contributions to the Swiss pension fund, this should be addressed with an objection and application for suspension of enforcement. The serious doubts about the legality of the tax assessments are based on the fact that the responsible highest specialist court, namely the Federal Social Court, requires and determines the uniform treatment of compulsory and non-compulsory benefits.

The question of tax assessment in the payment phase has consequences for the benefits in the performance phase. The BSG must be followed analogously here; only downstream taxation applies.

Jürgen Bächle
Jurgen Bachle

has been working as an independent tax consultant and expert in international tax law since 1989 and has been a member of the board of the German Association of Tax Consultants Baden-Württemberg, DSTVBW, for over 20 years.

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