Topics – Land, pre-cast foundation, residential building construction, sale of building land
C-594/23 Lomoco Development and Others
On 6 November 2024 the Court of Justice of the European Union (CJEU) delivered its judgment in this Danish referral asking whether a supply of land on which, at the time of supply, a pre-cast foundation had been constructed and on which a residential building is only subsequently constructed by other owners, should be treated as a sale of building land subject to VAT?
Nordre Strandvej Sæby (NSS) subdivided a number of plots of land which had previously been used as a campsite and in 2009, service lines for electricity, water, heating and sewage were established on some of these plots. In 2010, the casting of foundations began on some of those plots. The casting of the foundations was completed before 1 January 2011.
In 2015, NSS transferred ownership of the plots on which precast foundations had been built to a Danish company. These plots were subsequently sold to private individuals. On five of those plots, a residential building was built on the foundation cast in 2010. On eight other plots, a residential building was built, but not on the foundation cast in 2010. On the remaining three plots, the foundation cast in 2010 is still there, but no construction had been erected on it.
Until 31 December 2010, Danish law treated supplies of immovable property (without exception) as exempt from VAT. From 1 January 2011, that exemption was repealed in part such that supplies of immovable property were exempt from VAT with the exception of:
- The supply of a new building or of a new building and the land on which the building stands
- The supply of building land, whether improved or unimproved, and in particular the supply of built-on land
The Danish Tax Authorities ordered NSS to pay VAT on the supply of the plots on the basis that they were supplies of 'building land' subject to VAT under the amended Law.
NSS appealed to the National Tax Tribunal which held that the supply of the plots of land was an exempt supply of immovable property. In that regard, NSS had commenced the casting of foundations before 1 January 2011 and the same plots had been acquired by NSS before the submission of the Bill that introduced the Amended VAT law.
The Tax Authority appealed against the decision of the National Tax Tribunal and argued that in order to determine what constitutes a 'building' for VAT purposes, the wording of Article 12(2) must be considered, specifically, it follows that 'building' means 'any structure fixed to the ground'. According to a common linguistic understanding, a 'structure' in the form of a 'building' is characterised by the fact that it is composed of several individual parts forming a whole intended for a specific purpose. Taken in conjunction with Article 12(1)(a), which concerns the 'supply of a building or part of a building and its land before first occupancy', a building (or part thereof), is characterised by the fact that it can be moved into and can therefore be used for the purposes for which it is intended.
According to the Tax Authority, a building (or part thereof) cannot be put into use unless it has been completed to such an extent that partial occupancy is possible. Further, the third subparagraph of Article 12(2) allows criteria other than the date of first occupancy to be used to define the concept of 'building', in particular the period between the date of completion of the building and the date of first delivery. However, this provision means that an unfinished structure cannot be regarded as a building. Further, a residential building cannot be regarded as completed and cannot be the subject of occupancy if only a foundation has been cast for the building. Nor can such a foundation constitute 'part of a building' since there is a supply of part of a building only if the part of the building supplied is capable of being occupied, for example, phased delivery of apartments in a residential building.
The referring court states that, according to NSS, when the casting of the foundations began, the plots were transformed from being 'building plots' to being 'buildings or parts of a building with land attached to it'. It is undisputed that the foundations on those plots were fully usable at the time of the supply of those plots in 2015. According to NSS, the foundations are covered by the very broad concept of 'building' within the meaning of Article 12, which is defined as 'any solid structure'. In NSS's view, paragraph 54 of the VAT Order, which adds the condition that designs must be 'completed for the purpose for which they are intended', restricts this concept in conflict with the VAT Directive. Finally, NSS submitted that the criterion of first occupancy and the alternative criteria laid down in the third subparagraph of Article 12(2) of the VAT Directive are intended to determine the moment when supplies of buildings and of land may be subject to VAT and not the moment when a structure becomes a ‘building’.
In summary, the CJEU had to consider whether Article 12 must be interpreted as meaning that a transaction consisting of the supply of land on which, at the time of that supply, only foundations for residential buildings had been erected, constitutes a supply of 'building land'.
In accordance with Article 12(3) of that directive, ‘building land’, for the purposes of paragraph 1(b) of Article 12, means any land, unimproved or improved, defined as such by the Member States. However, the VAT Directive limits the discretion of the Member States as regards the scope of the concept of 'building land'. In that context, the Member States must comply with the objective pursued by Article 135(1)(k) which is to exempt only supplies of land which are not intended to be used for the construction of a building (Icade Promotion). Further, the definition of the concept of 'building land' is also limited by the scope of the concept of 'building', which the EU legislature has defined very broadly in Article 12(2) as covering 'any solid structure' (KPC Herning, Icade Promotion). The CJEU held that it follows that land bearing a structure which must be classified as a 'building' within the meaning of that provision cannot be classified as 'building land'.
At the time of supply, the land at issue had in place only the foundations for residential buildings. It is therefore necessary to determine whether those foundations constitute a 'building' or a 'part of a building', in which case those plots could not be regarded as 'building land'. Clarification is necessary since the supply of building land is subject to VAT. Although the supply of a building or part of a building is also in principle subject to VAT, it is clear that, until 31 December 2010, Denmark treated all supplies of immovable property as exempt from VAT. The supply of buildings, the construction of which had begun by that date, continued to be exempt from VAT under the applicable national legislation. Since the foundations of the land at issue were cast in 2010, NSS contended that the supply of those plots was exempt from VAT.
The CJEU considered that the Court has already held that Article 12(3) provides that land which is under development could be covered by the concept of 'building land' even if it has been improved. In other words, the development of land, such as the connection to electricity, gas and water supply networks, cannot change its legal classification as a 'building' as a structure fixed to the ground by, for instance foundations (Icade Promotion). Furthermore, although Article 12(2) defines a building very broadly as 'any structure fixed to the foundation', the fact remains that that provision refers to Article 12(1)(a) and 'the supply of buildings or parts thereof before their first occupancy'. It cannot therefore be concluded that ordinary network connection works may fall within the concept of 'building' (Icade Promotion). Thus, in the context of the very broad definition of the concept of 'building', the Court has emphasised the importance of the criterion of the 'first occupation' of a building.
Article 135(1)(j) provides for an exemption from VAT for supplies of buildings other than those referred to in Article 12(1)(a) thereof. Those provisions draw a distinction between old buildings (the sale of which is not, in principle, subject to VAT) and new buildings, the sale of which is subject to VAT, whether in the context of a lasting economic activity or occasionally (État belge and Promo 54).
The CJEU held that in light of earlier case law, the foundations of residential buildings cannot be classified as a 'building' or 'part of a building'. Article 12(2) broadly defines a building as 'any structure fixed to the ground' and it cannot therefore be ruled out that such a definition taken in isolation could be interpreted as covering foundations. However, that provision refers to Article 12(1)(a) which refers to the 'first occupation' criterion. The CJEU held that mere foundations of residential buildings cannot be the subject of a 'move-in' nor do they mark the completion of the construction process when the building becomes a consumer good and therefore cannot be a building or part of a building. Part of a building could include a building which consists of several parts or units, such as apartments, which are constructed in stages, even though some of those parts or units may be subject to occupancy while other parts are still under construction, the important point being the actual use of immovable property at the time of supply. The CJEU also points out that Member States may apply criteria other than first occupation, such as the period between the date of completion of the building and the date of the first delivery or the period between the date of first occupation and the date of subsequent delivery.
The CJEU was not persuaded by NSS’s reliance on other case law to support its view of the interpretation that foundations constitute a building within the meaning of Article 12(2). The CJEU pointed out that the Court has already held in Icade Promotion that the development of land, such as by way of connection to electricity, gas, water supply networks etc. cannot have the effect of altering the legal classification of those plots as a 'building' as a structure fixed to the ground by a foundation. The Court merely confirmed that foundations are a means of attaching a structure to the ground, and not that those foundations constitute a building. In Breitsohl, the Court stated that a construction comprising foundations and a partially completed floor was considered to be the delivery of a building or part of a building and its land before first occupancy. However, NSS acknowledged that this case did not concern the interpretation of 'building' or 'part of a building' as per the first subparagraph of Article 4(3) of Sixth Directive 77/388, equivalent to Article 12 (2) of the VAT Directive. Finally, in (Maierhofer), the Court held that single-storey and two-storey buildings standing on a concrete base erected on concrete foundations sunk into the ground, even though they were capable of being dismantled or moved, constituted ‘immovable property’. Thus, the assessment of the Court in that judgment related to completed buildings not to their foundations.
In summary, the CJEU held that a transaction consisting of the supply of land with foundations for residential buildings constitutes a supply of 'building land' and therefore is subject to VAT under Denmark’s amended VAT law.
Comments: Whilst not of direct relevance to the UK as it has not introduced the concept of building land and therefore not the mandatory taxation of it, the case does serve to highlight the difficulties of assessing when a building comes into existence and when construction of a building has commenced. For UK developers this is particularly acute when considering how much construction needs to have occurred in order to apply the zero rate to a supply of a building designed as a dwelling or number of dwellings. This judgment perhaps offers some support for HMRC’s current position that a building is only clearly under construction “…once it has progressed beyond foundation level” – a position which is increasingly tested by modern construction methods and the erection of modular buildings.
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