BETA


2022/0154(CNS) Debt-equity bias reduction allowance and limiting the deductibility of interest for corporate income tax purposes

Progress: Awaiting final decision

RoleCommitteeRapporteurShadows
Lead ECON NIEDERMAYER Luděk (icon: EPP EPP) REGNER Evelyn (icon: S&D S&D), BOYER Gilles (icon: Renew Renew), GRUFFAT Claude (icon: Greens/EFA Greens/EFA), HOOGEVEEN Michiel (icon: ECR ECR), BECK Gunnar (icon: ID ID), GUSMÃO José (icon: The Left The Left)
Lead committee dossier:
Legal Basis:
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Events

2024/04/15
   European Commission - Commission response to text adopted in plenary
Documents
2024/01/16
   EP - Decision by Parliament
Details

The European Parliament adopted by 324 votes to 132 with 155 abstentions, following a special legislative procedure (Parliament’s consultation), a legislative resolution on the proposal for a Council directive on laying down rules on a debt-equity bias reduction allowance and on limiting the deductibility of interest for corporate income tax purposes.

The proposed directive lays down rules on the deduction, for corporation tax purposes, of an allowance on increases in equity capital and on limiting the tax deductibility of additional borrowing costs.

Parliament approved the Commission's proposal with amendments to assist SMEs.

Allowances on equity

According to Members, an allowance on equity should be deductible, for:

- 10 consecutive tax periods, from the taxable base of an SME or medium-sized group for corporate income tax purposes up to 30% of the taxpayer’s earnings before interest, tax, depreciation and amortisation (“EBITDA”);

- 7 consecutive tax periods, from the taxable base of any large undertaking or large group for corporate income tax purposes up to 30% of the taxpayer's EBITDA.

Member States should ensure that taxpayers are able to carry forward, for a maximum of 3 tax periods, the part of the allowance on equity which exceeds the percentages of EBITDA laid down in a tax period.

If the deductible allowance on equity is higher than the taxpayer’s net taxable income in a tax period, Member States should ensure that the taxpayer may carry forward the excess of allowance on equity as follows:

- for a maximum of 3 tax periods, where the taxpayer is a large undertaking or a large group;

- without time limitation, where the taxpayer is an SME or a medium-sized group.

The proposal stated that the base of the allowance on equity should be calculated as the difference between the level of net equity at the end of the tax period and the level of net equity at the end of the previous tax period, in other words, the year-on-year increase in net equity. According to Members, the allowance on equity should be equal to the base of the allowance multiplied by the 10-year risk-free interest rate for the relevant currency, increased by a risk premium of 1% for SMEs .

Limiting the deductibility of exceeding borrowing costs

To effectively address the tax-related debt-equity bias in a manner sustainable for the Union’s public finances, Members considered that an allowance for equity financing should be accompanied by a rule limiting the deductibility of exceeding borrowing costs for groups that are not medium-sized groups and undertakings that are not SMEs. However, given the adverse economic conditions stemming from the COVID-19 crisis and from the Russian war of aggression against Ukraine, that limitation rule should only be introduced as of 2027.

Report and review

By 31 December 2028, the Commission should present a report to the European Parliament and to the Council on the implementation and impact of this Directive accompanied, if appropriate, by a legislative proposal to amend this Directive.

That report should pay special attention to SMEs, in particular assessing whether the special conditions available to SMEs have proven to be sufficient to increase the attractiveness of equity financing to them.

Transposition

Each Member State should, before it transposes this Directive into national law, make public an assessment of the estimated fiscal costs of the measures to be adopted and the resulting decrease in the effective tax rate for companies, and take proper measures to protect tax revenues if needed.

Member States should ensure that the measures they adopt to transpose this Article into national law comply with the guidance provided by the Code of Conduct Group (business taxation) on notional interest deduction regimes.

Text adopted by Parliament, 1st reading/single reading

Documents
2024/01/16
   EP - Results of vote in Parliament
2023/12/04
   European Parliament - Committee report tabled for plenary, 1st reading/single reading
Documents
2023/12/04
   EP - Committee report tabled for plenary, 1st reading/single reading
Documents
2023/11/28
   EP - Vote in committee
2023/01/19
   European Parliament - Amendments tabled in committee
Documents
2022/12/06
   European Parliament - Committee draft report
Documents
2022/10/26
   Economic and Social Committee: opinion, report - ESC
Documents
2022/07/25
   SE_PARLIAMENT - Reasoned opinion
Documents
2022/06/21
   EP - NIEDERMAYER Luděk (EPP) appointed as rapporteur in ECON
2022/06/09
   EP - Committee referral announced in Parliament
2022/05/12
   European Commission - Document attached to the procedure
2022/05/12
   European Commission - Document attached to the procedure
2022/05/12
   European Commission - Document attached to the procedure
2022/05/12
   European Commission - Document attached to the procedure
2022/05/11
   European Commission - Legislative proposal
Details

PURPOSE: to provide tax incentives for equity to help companies grow, become stronger and more resilient.

PROPOSED ACT: Council Directive.

ROLE OF THE EUROPEAN PARLIAMENT: the Council adopts the act after consulting the European Parliament but without being obliged to follow its opinion.

BACKGROUND: the current pro-debt bias of tax rules can incentivise companies to take on debt rather than increase equity to finance their growth.

Tax debt-equity bias arises from the different treatment of debt and equity financing costs for tax purposes and is a problem common to business across EU Member States. Despite this, only 6 Member States have taken tax measures to approximate the tax treatment of debt and equity.

The complete lack of relevant tax debt bias mitigating measures in 21 Member States along with the existence of significantly different measures in another six Member States may create distortions to the function of the internal market and can affect the location of investment in a significant manner.

An EU initiative would add value and ensure legal certainty and allow reducing compliance costs for business as taxpayers. It is also expected to boost competition in the single market by ensuring that all businesses, regardless of where they are located, have similar incentives towards appropriate financing.

This proposal is a follow-up to the Commission's Communication on Business Taxation for the 21st Century towards a strong, efficient and fair business tax system in the EU. It also contributes to the Capital Markets Union (CMU) Action Plan which aims to help companies raise the capital they need and improve their capital position, particularly during a period of recovery which involves higher levels of deficit and debt, as well as an increased need for equity investment.

This proposal also replies to the European Parliament’s expectation that the Commission would put forth a proposal for a debt-equity bias reduction allowance, including effective anti-avoidance provisions to avoid any allowance on equity being used as a new tool for base erosion.

CONTENT: with a view to addressing the tax-induced debt-equity bias across the single market in a coordinated way, this directive lays down rules to provide, under certain conditions, for the deductibility for tax purposes of notional interest on increases in equity and to limit the tax deductibility of exceeding borrowing costs . It applies to all taxpayers that are subject to corporate tax in one or more Member State, except for financial undertakings. Since small and medium enterprises (SMEs) usually face a higher burden to obtain financing, it is proposed to grant a higher notional interest rate to SMEs.

This measure will support businesses by introducing an allowance that will grant to equity the same tax treatment as debt . The proposal stipulates that increases in a taxpayer's equity from one tax year to the next will be deductible from its taxable base, similarly to what happens to debt.

By eliminating the tax distortion in favour of debt, the proposal aims to avoid over-reliance on debt and encouraging the re-equitisation of businesses.

The Commission considers that the preferred option should have a positive economic impact. Its main direct benefit is that it will promote higher capital ratios and thus reduce insolvency risks.

By increasing equity investments across the EU, this option is expected to indirectly promote the development of innovative technology. Equity is particularly important for fast-growing innovative companies in their early stages and scale-ups willing to compete globally. The green and digital transition requires new and innovative investments that will benefit from the measure.

Legislative proposal

2022/05/11
   EC - Legislative proposal published
Details

PURPOSE: to provide tax incentives for equity to help companies grow, become stronger and more resilient.

PROPOSED ACT: Council Directive.

ROLE OF THE EUROPEAN PARLIAMENT: the Council adopts the act after consulting the European Parliament but without being obliged to follow its opinion.

BACKGROUND: the current pro-debt bias of tax rules can incentivise companies to take on debt rather than increase equity to finance their growth.

Tax debt-equity bias arises from the different treatment of debt and equity financing costs for tax purposes and is a problem common to business across EU Member States. Despite this, only 6 Member States have taken tax measures to approximate the tax treatment of debt and equity.

The complete lack of relevant tax debt bias mitigating measures in 21 Member States along with the existence of significantly different measures in another six Member States may create distortions to the function of the internal market and can affect the location of investment in a significant manner.

An EU initiative would add value and ensure legal certainty and allow reducing compliance costs for business as taxpayers. It is also expected to boost competition in the single market by ensuring that all businesses, regardless of where they are located, have similar incentives towards appropriate financing.

This proposal is a follow-up to the Commission's Communication on Business Taxation for the 21st Century towards a strong, efficient and fair business tax system in the EU. It also contributes to the Capital Markets Union (CMU) Action Plan which aims to help companies raise the capital they need and improve their capital position, particularly during a period of recovery which involves higher levels of deficit and debt, as well as an increased need for equity investment.

This proposal also replies to the European Parliament’s expectation that the Commission would put forth a proposal for a debt-equity bias reduction allowance, including effective anti-avoidance provisions to avoid any allowance on equity being used as a new tool for base erosion.

CONTENT: with a view to addressing the tax-induced debt-equity bias across the single market in a coordinated way, this directive lays down rules to provide, under certain conditions, for the deductibility for tax purposes of notional interest on increases in equity and to limit the tax deductibility of exceeding borrowing costs . It applies to all taxpayers that are subject to corporate tax in one or more Member State, except for financial undertakings. Since small and medium enterprises (SMEs) usually face a higher burden to obtain financing, it is proposed to grant a higher notional interest rate to SMEs.

This measure will support businesses by introducing an allowance that will grant to equity the same tax treatment as debt . The proposal stipulates that increases in a taxpayer's equity from one tax year to the next will be deductible from its taxable base, similarly to what happens to debt.

By eliminating the tax distortion in favour of debt, the proposal aims to avoid over-reliance on debt and encouraging the re-equitisation of businesses.

The Commission considers that the preferred option should have a positive economic impact. Its main direct benefit is that it will promote higher capital ratios and thus reduce insolvency risks.

By increasing equity investments across the EU, this option is expected to indirectly promote the development of innovative technology. Equity is particularly important for fast-growing innovative companies in their early stages and scale-ups willing to compete globally. The green and digital transition requires new and innovative investments that will benefit from the measure.

Legislative proposal

Documents

Votes

A9-0387/2023 – Luděk Niedermayer – Chapter II – title – Am 29 #

2024/01/16 Outcome: -: 362, 0: 130, +: 114
IE CY PT MT LV FI LU EL FR BE DK LT EE AT HR SI NL CZ BG SK SE HU DE RO ES PL IT
Total
13
4
20
5
4
13
6
19
66
19
14
9
7
16
12
8
22
20
12
14
20
16
80
25
52
45
65
icon: Verts/ALE Verts/ALE
62

Ireland Verts/ALE

2

Portugal Verts/ALE

1

Finland Verts/ALE

3

Luxembourg Verts/ALE

For (1)

1

Belgium Verts/ALE

3

Denmark Verts/ALE

2

Lithuania Verts/ALE

For (1)

1

Austria Verts/ALE

3

Netherlands Verts/ALE

3

Czechia Verts/ALE

3

Sweden Verts/ALE

3

Spain Verts/ALE

For (1)

1

Poland Verts/ALE

For (1)

1

Italy Verts/ALE

3
icon: The Left The Left
33

Cyprus The Left

Against (1)

2

Finland The Left

For (1)

1

Belgium The Left

For (1)

1

Denmark The Left

1

Netherlands The Left

For (1)

1

Czechia The Left

1

Sweden The Left

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1
icon: S&D S&D
118

Cyprus S&D

Abstain (1)

1

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2

Luxembourg S&D

Abstain (1)

1

Greece S&D

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1

Belgium S&D

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2

Lithuania S&D

2

Estonia S&D

2

Slovenia S&D

2

Netherlands S&D

3

Czechia S&D

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1

Bulgaria S&D

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1

Slovakia S&D

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1
icon: NI NI
41

Latvia NI

1

France NI

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2

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1

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1

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2

Czechia NI

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1

Germany NI

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3
icon: ID ID
50

Belgium ID

2

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1

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1

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3

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1
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54

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icon: Renew Renew
96

Ireland Renew

2

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1

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3

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2

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1

Lithuania Renew

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1

Estonia Renew

3

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1

Croatia Renew

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1

Slovenia Renew

2

Bulgaria Renew

3

Sweden Renew

3

Hungary Renew

2

Poland Renew

1

Italy Renew

3
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4

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1

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4

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4

A9-0387/2023 – Luděk Niedermayer – Article 4 – Am 30D #

2024/01/16 Outcome: -: 362, 0: 126, +: 111
CY IE PT MT LV FI LU EL FR DK BE LT EE SI HR AT CZ SE BG SK NL HU RO DE ES PL IT
Total
4
13
20
5
4
13
6
18
64
13
18
9
7
8
12
16
20
20
12
14
23
16
26
78
51
44
65
icon: Verts/ALE Verts/ALE
61

Ireland Verts/ALE

2

Portugal Verts/ALE

1

Finland Verts/ALE

3

Luxembourg Verts/ALE

For (1)

1

Denmark Verts/ALE

2

Belgium Verts/ALE

3

Lithuania Verts/ALE

For (1)

1

Austria Verts/ALE

3

Czechia Verts/ALE

3

Sweden Verts/ALE

3

Netherlands Verts/ALE

3

Romania Verts/ALE

1

Spain Verts/ALE

For (1)

1

Poland Verts/ALE

For (1)

1

Italy Verts/ALE

3
icon: The Left The Left
32

Cyprus The Left

2

Finland The Left

For (1)

1

Denmark The Left

1

Belgium The Left

For (1)

1

Czechia The Left

1

Sweden The Left

For (1)

1

Netherlands The Left

For (1)

1
icon: S&D S&D
116

Cyprus S&D

Abstain (1)

1

Finland S&D

2

Luxembourg S&D

Abstain (1)

1

Greece S&D

Abstain (1)

1

Belgium S&D

For (1)

Abstain (1)

2

Lithuania S&D

2

Estonia S&D

2

Slovenia S&D

2

Czechia S&D

Abstain (1)

1

Bulgaria S&D

Abstain (1)

1

Slovakia S&D

Abstain (1)

1

Netherlands S&D

3
icon: NI NI
41

Latvia NI

1

France NI

Against (2)

2

Belgium NI

For (1)

1

Lithuania NI

Against (1)

1

Croatia NI

Against (1)

Abstain (1)

2

Czechia NI

Against (1)

1

Germany NI

Against (1)

3
icon: ID ID
49

Belgium ID

2

Estonia ID

Against (1)

1

Austria ID

3

Czechia ID

For (1)

1
icon: ECR ECR
54

Finland ECR

Against (1)

1

Greece ECR

Abstain (1)

1

Belgium ECR

2

Croatia ECR

Against (1)

1

Sweden ECR

Against (1)

3

Bulgaria ECR

2

Slovakia ECR

Against (1)

1
icon: Renew Renew
94

Ireland Renew

2

Latvia Renew

Against (1)

1

Finland Renew

3

Luxembourg Renew

2

Greece Renew

Against (1)

1

Belgium Renew

3

Lithuania Renew

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1

Estonia Renew

3

Slovenia Renew

Against (1)

Abstain (1)

2

Croatia Renew

Against (1)

1

Austria Renew

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1

Sweden Renew

3

Bulgaria Renew

3

Hungary Renew

2

Poland Renew

1

Italy Renew

3
icon: PPE PPE
152

Cyprus PPE

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1

Malta PPE

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1

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2

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2

Denmark PPE

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1

Estonia PPE

Against (1)

1

Slovenia PPE

4

A9-0387/2023 – Luděk Niedermayer – Commission proposal #

2024/01/16 Outcome: +: 324, 0: 155, -: 132
IT PL ES RO SK HU BG NL DE HR LT SI BE CZ LV FR AT LU EE EL FI PT MT CY DK IE SE
Total
66
45
51
26
14
16
12
24
81
12
9
8
19
20
5
66
16
6
7
19
13
20
5
4
14
13
20
icon: PPE PPE
153

Latvia PPE

2

Luxembourg PPE

2

Estonia PPE

For (1)

1

Malta PPE

For (1)

1

Cyprus PPE

For (1)

1

Denmark PPE

Against (1)

1
icon: Renew Renew
96

Italy Renew

Against (1)

3

Poland Renew

1

Hungary Renew

2

Croatia Renew

Abstain (1)

1

Lithuania Renew

1

Slovenia Renew

2

Latvia Renew

For (1)

1

Austria Renew

For (1)

1

Luxembourg Renew

2

Estonia Renew

3

Greece Renew

1

Finland Renew

3

Ireland Renew

2

Sweden Renew

For (1)

3
icon: ECR ECR
55

Slovakia ECR

For (1)

1

Bulgaria ECR

2

Netherlands ECR

Against (1)

Abstain (1)

4

Croatia ECR

1

Belgium ECR

2

Latvia ECR

For (1)

1

Greece ECR

Abstain (1)

1

Finland ECR

Abstain (1)

1

Sweden ECR

3
icon: NI NI
41

Germany NI

For (1)

3

Croatia NI

Abstain (1)

2

Lithuania NI

1

Belgium NI

Abstain (1)

1

Czechia NI

For (1)

1

Latvia NI

Against (1)

1

France NI

For (1)

Against (1)

2
icon: ID ID
50

Belgium ID

2

Czechia ID

Against (1)

1

Austria ID

3

Estonia ID

Against (1)

1

Denmark ID

Against (1)

1
icon: S&D S&D
119

Slovakia S&D

Abstain (1)

1

Bulgaria S&D

Abstain (1)

1

Netherlands S&D

4

Lithuania S&D

Abstain (1)

2

Slovenia S&D

2

Belgium S&D

Against (1)

Abstain (1)

2

Czechia S&D

Abstain (1)

1

Luxembourg S&D

Abstain (1)

1

Estonia S&D

2

Greece S&D

Abstain (1)

1

Finland S&D

2

Cyprus S&D

Abstain (1)

1
icon: The Left The Left
34

Netherlands The Left

Against (1)

1

Belgium The Left

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1

Czechia The Left

Against (1)

1

Finland The Left

Against (1)

1

Cyprus The Left

2

Denmark The Left

Against (1)

1

Ireland The Left

4

Sweden The Left

Against (1)

1
icon: Verts/ALE Verts/ALE
63

Italy Verts/ALE

3

Poland Verts/ALE

Against (1)

1

Spain Verts/ALE

Against (1)

1

Romania Verts/ALE

Against (1)

1

Netherlands Verts/ALE

3

Lithuania Verts/ALE

Against (1)

1

Belgium Verts/ALE

3

Czechia Verts/ALE

3

Austria Verts/ALE

3

Luxembourg Verts/ALE

Against (1)

1

Finland Verts/ALE

3

Portugal Verts/ALE

Against (1)

1

Denmark Verts/ALE

2

Ireland Verts/ALE

2

Sweden Verts/ALE

3
AmendmentsDossier
95 2022/0154(CNS)
2023/01/19 ECON 95 amendments...
source: 739.748

History

(these mark the time of scraping, not the official date of the change)

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  • The European Parliament adopted by 324 votes to 132 with 155 abstentions, following a special legislative procedure (Parliament’s consultation), a legislative resolution on the proposal for a Council directive on laying down rules on a debt-equity bias reduction allowance and on limiting the deductibility of interest for corporate income tax purposes.
  • The proposed directive lays down rules on the deduction, for corporation tax purposes, of an allowance on increases in equity capital and on limiting the tax deductibility of additional borrowing costs.
  • Parliament approved the Commission's proposal with amendments to assist SMEs.
  • Allowances on equity
  • According to Members, an allowance on equity should be deductible, for:
  • - 10 consecutive tax periods, from the taxable base of an SME or medium-sized group for corporate income tax purposes up to 30% of the taxpayer’s earnings before interest, tax, depreciation and amortisation (“EBITDA”);
  • - 7 consecutive tax periods, from the taxable base of any large undertaking or large group for corporate income tax purposes up to 30% of the taxpayer's EBITDA.
  • Member States should ensure that taxpayers are able to carry forward, for a maximum of 3 tax periods, the part of the allowance on equity which exceeds the percentages of EBITDA laid down in a tax period.
  • If the deductible allowance on equity is higher than the taxpayer’s net taxable income in a tax period, Member States should ensure that the taxpayer may carry forward the excess of allowance on equity as follows:
  • - for a maximum of 3 tax periods, where the taxpayer is a large undertaking or a large group;
  • - without time limitation, where the taxpayer is an SME or a medium-sized group.
  • The proposal stated that the base of the allowance on equity should be calculated as the difference between the level of net equity at the end of the tax period and the level of net equity at the end of the previous tax period, in other words, the year-on-year increase in net equity. According to Members, the allowance on equity should be equal to the base of the allowance multiplied by the 10-year risk-free interest rate for the relevant currency, increased by a risk premium of 1% for SMEs .
  • Limiting the deductibility of exceeding borrowing costs
  • To effectively address the tax-related debt-equity bias in a manner sustainable for the Union’s public finances, Members considered that an allowance for equity financing should be accompanied by a rule limiting the deductibility of exceeding borrowing costs for groups that are not medium-sized groups and undertakings that are not SMEs. However, given the adverse economic conditions stemming from the COVID-19 crisis and from the Russian war of aggression against Ukraine, that limitation rule should only be introduced as of 2027.
  • Report and review
  • By 31 December 2028, the Commission should present a report to the European Parliament and to the Council on the implementation and impact of this Directive accompanied, if appropriate, by a legislative proposal to amend this Directive.
  • That report should pay special attention to SMEs, in particular assessing whether the special conditions available to SMEs have proven to be sufficient to increase the attractiveness of equity financing to them.
  • Transposition
  • Each Member State should, before it transposes this Directive into national law, make public an assessment of the estimated fiscal costs of the measures to be adopted and the resulting decrease in the effective tax rate for companies, and take proper measures to protect tax revenues if needed.
  • Member States should ensure that the measures they adopt to transpose this Article into national law comply with the guidance provided by the Code of Conduct Group (business taxation) on notional interest deduction regimes.
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