Were a hospital lessee's additional tax-equivalent payments part of taxable Florida real-property rent?

Plain-English summary

The Florida Department of Revenue concluded that additional payments required under this hospital-property lease were subject to sales tax as part of the total rental consideration.

Beyond stated rent, the lessee paid amounts designed to approximate property taxes, fire-district taxes, and special assessments that would have applied if the lessor were not exempt. Those payments were required for the right to occupy and use the premises.

The ruling also notes that required tenant improvements that become the lessor's property and separately stated insurance premiums protecting the lessor can be part of taxable rent, depending on the lease terms.

What this means for you

Commercial landlords

Taxable rent can include more than the line labeled “rent.” Review tax-equivalent payments, required improvements, insurance, and other occupancy conditions.

Tenants

Paying a county or third party directly does not necessarily remove a lease-required amount from the rental tax base.

Accountants and tax professionals

Trace whether each payment is required to maintain possession or benefits the landlord. Both landlord and tenant can face liability when tax is not collected or paid.

Common questions

Q: Were the tax-equivalent payments taxable?
A: Yes.

Q: Did it matter that some payments went to the county?
A: No, under the lease terms described.

Q: Can insurance or improvements also become taxable rent?
A: Yes, under the conditions described in the ruling.

Citations and references

• Fla. Stat. §§ 212.031(1)(b), (c), (2), (3), 212.07, 212.12, and 213.22
• Fla. Admin. Code r. 12A-1.070(4), (12)

Source

• Landing page: Florida Tax Law Library
• Advisement: TAA 16A-008

Original ruling text

Executive
Director
Leon M. Biegalski

QUESTION: ADVICE IS REQUESTED ON WHETHER CERTAIN PAYMENTS
THAT ARE MADE BY A LESSEE TO THE LESSOR, IN ADDITION TO RENT, ARE
SUBJECT TO FLORIDA SALES TAX AS A PART OF THE TOTAL RENTAL
CONSIDERATION.
ANSWER: YES. THE ADDITIONAL PAYMENTS ARE PAYMENTS FOR THE
RIGHT TO OCCUPY AND USE THE LEASED PREMISES (REAL PROPERTY) AND
ARE SUBJECT TO SALES TAX AS A PART OF THE TOTAL RENTAL
CONSIDERATION.
June 24, 2016
Re:

Technical Assistance Advisement 16A-008
Sales and Use Tax – Rental of Real Property
Sections: 212.031, Florida Statutes (“F.S.”)
Rule: 12A-1.070, Florida Administrative Code (F.A.C.)

Dear XXXX:
This letter is a response to your petition February 5, 2016, for the Florida Department of
Revenue’s (the “Department”) issuance of a Technical Assistance Advisement ("TAA")
concerning the above referenced party and matter. Your petition has been carefully
examined and the Department finds it to be in compliance with the requisite criteria set
forth in Chapter 12-11, Florida Administrative Code. This response to your request
constitutes a TAA and is issued to you under the authority of s. 213.22, F.S.
Requested Advisement
Advice is requested on whether certain payments that are made by a lessee to the lessor, in
addition to rent, are subject to Florida sales tax as a part of the total rental consideration.
Brief Answer
Yes. The additional payments are payments for the right to occupy and use the leased
premises (real property) and are subject to sales tax as a part of the total rental
consideration.

Child Support – Ann Coffin, Director  General Tax Administration – Maria Johnson, Director
Property Tax Oversight – Dr. Maurice Gogarty, Director  Information Services – Damu Kuttikrishnan, Director

http://dor.myflorida.com/dor/
Florida Department of Revenue
Tallahassee, Florida 32399-0100

Technical Assistance Advisement

2

Facts
You are a representative for the XXXX (the “Lessor”). According to your letter, on or
about June 1, 1998, both Lessor and XXX, Inc. (the “Lessee”) entered into a thirty year
lease agreement (the “Original Lease”) for the lease of certain real property that served as
the premises for certain hospitals located in XXXX County, Florida (collectively the
“Leased Premises”). The Original Lease contained, among other things, several provisions
relating to the rental of the Leased Premises. Article III, section 3.3, of the Original Lease
states that the annual rental payment for the Leased Premises for the Lease Term shall be
$300,000.1 Article VI, sections 6.1 – 6.6 require the Lessee to maintain certain types and
levels of insurance coverage for the protection of both the Lessor and Lessee. Article VII,
sections 7.2 and 7.3 of the Original Lease provide that repairs, alterations, and
improvements shall be made at Lessee’s expense, and will become the property of the
Lessor.
Several competitor hospitals objected to the lease agreement between the Lessor and
Lessee, as Lessee did not have to pay various property taxes and assessments for the Leased
Premises that would normally have been levied against the Leased Premises if Lessor were
not exempt from taxes and related assessments. In order to address these concerns, on or
about December 2, 2005, both Lessor and Lessee signed an amendment to the Original
Lease (the “First Amendment”). The First Amendment contained, among other things,
several provisions that extended the lease term,2 and added an additional property to the
Leased Premises,3 and several provisions related to rent and additional payments. The First
Amendment amends section 3.3 of the Original Lease to provide, in part, the following:
3.3.2 The Lessee shall pay to Lessor on an annual basis, either as rent or by
virtue of a payment to XXXX County of an amount (“Additional
Payment”)4 equal to sum of the following:
3.3.2.1 An amount equal to that portion of the ad valorem taxes that
would have been paid to XXXX County on the Leased Premises …
3.3.2.2 An amount equal to that portion of the ad valorem taxes that
would have been paid to the XXXX Fire and Rescue District …
and/or any other special taxing district that may be established
pursuant to law; and
3.3.2.3 An amount equal to all special assessments levied by XXXX
County through any municipal Service Benefit Unit …;
and
See s. 3.3 “Rent” of the Original Lease.
The First Amendment modified section 3.1 “Lease Term” of the Original Lease and extended the term for an
additional fifteen years.
3
Section 3.2 of the First Amendment amended the “Leased Premises” section of the Original Lease.
4
According to your inquiry, these amounts were deliberately structured to equal or approximate the actual
costs or assessments that would have been factored into the total ad valorem taxes and real property
assessments levied on the property.
1
2

Technical Assistance Advisement

3

3.3.2.4 An amount equal to all ad valorem tax levied by XXXX
County through any Municipal Service Taxing Unit created by
XXXX County pursuant to the provisions of Section 125.01, Florida
Statutes.
Lessor did not charge, collect, or remit sales tax to the Department on the additional rental
payments. Subsequent to the signing of the First Amendment, the Lessor was audited by
the Department. The Department assessed sales tax on the additional rental payments made
by Lessee to Lessor, as a part of the total rental consideration for the Leased Premises.
Lessor disagreed with the assessment and filed a Petition for Formal Administrative
Hearing (the “Administrative Hearing”).
During the pendency of the Administrative Hearing, on or about September 13, 2013, both
Lessor and Lessee signed a second amendment to the Original Lease (the “Second
Amendment”). The Second Amendment amends Article III, section 3.3 “Rental
Payments,” of the Original Lease and First Amendment, and states, among other things,
that rent payments are $3,300,000.00 per year, and the rental payments may be subject to
Florida sales tax.5 Section 3.3.2 “Additional Payment for County Services” provides for
additional payments in an amount equal to the ad valorem and special assessment taxes, to
be paid for by Lessee. The Second Amendment states that the additional payment is not
intended to constitute rent and is not intended to create an event subject to Florida sales
tax.6
On December 30, 2011, after the Administrative Hearing on the issue, the Judge issued a
recommended order and ruled that the additional payments were a part of the rental
consideration paid by Lessee to Lessor, regardless of the parties’ intent, and were subject
to sales tax.7 Your inquiry states that, in the abundance of caution, the Lessor has included
sales tax on the “Additional Payments” on most of its recent invoices to the Lessee.
You request guidance on whether the “additional payments” are subject to Florida sales
tax.
Law and Response
Florida law imposes a state sales tax on the general privilege of engaging in the business
of renting, leasing, letting, or granting a license for the use of any real property. See s.
212.031, F.S. The tax is imposed at the rate of six percent (6%) on “the total rent or license
fee charged for such real property by the person charging or collecting the rental or license
fee.”8 (Emphasis provided.) See s. 212.031(1)(c), F.S. The total rental or license fee
includes “all considerations due and payable by the tenant … to his landlord … for the
privilege of use, occupancy or the right to use or occupy any real property for any purpose,”
See s. 3.3.1 “Rent” of the Second Amendment.
See s. 3.3.2.4 of the Second Amendment.
7
Lessor eventually entered into a settlement agreement with the Department to pay the assessment.
8
Discretionary county sales surtax, if any, is also owed on the rental charge if the 6% Florida state sales tax
applies. See s. 212.054, F.S.
5
6

Technical Assistance Advisement

4

and specifically includes ad valorem taxes paid by the tenant to the landlord or any other
person on behalf of the landlord. See Rule 12A-1.070(4)(b), (c), F.A.C. See also Cascella
v. Canaveral Port Authority, 827 So.2d 308, 310 (Fla. 5th DCA 2002)(Citing Black’s Law
Dictionary 1299 (7th ed. 1999)). With respect to insurance premiums paid by a tenant,
Florida law provides that any portion of the premium which secures the protection of the
landlord or person granting the right to occupy or use such real property and which is
separately stated or itemized is regarded as rental or license fee consideration and is
taxable. See Rule 12A-1.070(12), F.A.C.
The tax is to be charged by the landlord, in addition to the total amount of the rental, “in
and by a rental or license fee arrangement with the tenant … and shall be due and payable
at the time of the receipt of” rent payments by the landlord. See s. 212.031(2)(a),(3), F.S.
The tax shall be separately stated as Florida tax on any tangible evidence of sale. See s.
212.07(2), F.S. The tax is to be paid by the tenant to the landlord. See s. 212.031(1)(b),
F.S. A landlord who fails to remit the tax due is liable for paying the tax, as well as interest
and penalties. See generally ss. 212.07 and 212.12, F.S. Similarly, a tenant who fails to pay
the tax on taxable rental payments is “directly liable to the state for any tax, interest, or
penalty due on any such taxable transactions.” See s. 212.07(8), F.S.
Under the facts presented, Lessor is engaged in the privilege of renting real property to
Lessee; therefore, the general rule of taxability applies. Based on a review of all lease
agreements, the base rental payments of $3,300,000.00 per year, plus any additional
considerations due and payable by the Lessee for the privilege of use and occupancy, or
the right to use or occupy, the Leased Premises are subject to sales tax. The First and
Second Amendments state that the Lessee shall pay to Lessor, on an annual basis, either as
rent or by virtue of a payment to XXXX County of an amount (“Additional Payment”)
equal to the sum of the amounts that would equal or approximate to certain portions of the
ad valorem or special assessment taxes that would have been assessed against the property
if Lessor were not exempt.9 These “Additional Payments” are payments for the right to
occupy and use the Leased Premises (real property) and are subject to sales tax, as
discussed above, as a part of the total rental consideration. See s. 212.031(1)(c), F.S.
Your inquiry states that the Lessor has included sales tax on the “Additional Payments” on
“most” of its recent invoices to the Lessee. Please note that the Lessor must charge, collect,
and remit the tax to the Department, and, if the Lessor fails to remit the tax due, Lessor is
liable for paying the tax, as well as interest and penalties. See generally ss. 212.07 and
212.12, F.S. Similarly, the Lessee is directly liable to the state for any tax, interest, or
penalty due on the taxable transactions if Lessee fails to pay the tax. See s. 212.07(8), F.S.
Furthermore, please note that the “total rental consideration” may also include certain
payments for real property improvements10 that are required by the lease agreement and
9

As mentioned in your request, these amounts were deliberately structured to equal or approximate the actual
costs or assessments that would have been factored into the total ad valorem taxes and real property assessments
levied on the property.
10
The taxability of the amounts paid for improvements by a tenant depends on whether or not the
improvements are required by terms of the lease agreement and are necessary in order to maintain possession
of the property. See Department of Revenue v. Seminole Clubs, Inc., 745 So.2d 473 (Fla. 5th DCA 1999), and
Department of Revenue v. Ruehl No. 925, LLC, 76 So.3d 389 (Fla. 1st DCA 2011).

Technical Assistance Advisement

5

become the property of the Lessor, and certain payments for insurance premiums that
secure the protection of the Lessor, and which is separately stated on a contract or invoice.
See Rule 12A-1.070(12), F.A.C.
This response constitutes a Technical Assistance Advisement under section 213.22, F.S.,
which is binding on the Department only under the facts and circumstances described in
the request for this advice as specified in section 213.22, F.S. Our response is predicated
on those facts and the specific situation summarized above. You are advised that
subsequent statutory or administrative rule changes, or judicial interpretations of the
statutes or rules, upon which this advice is based, may subject similar future transactions
to a different treatment than that expressed in this response. You are further advised that
this response, your request and related backup documents are public records under
Chapter 119, F.S., and are subject to disclosure to the public under the conditions of
section 213.22, F.S. Confidential information must be deleted before public disclosure.
In an effort to protect confidentiality, we request you provide the undersigned with an
edited copy of your request for Technical Assistance Advisement, the backup material,
and this response, deleting names, addresses, and any other details which might lead to
identification of the taxpayer. Your response should be received by the Department within
15 days of the date of this letter.

Sincerely,

Pamela Hernandez, Esq.
Senior Attorney
Technical Assistance & Dispute Resolution
Record ID: 209642