VAL CO:R:C:V 545571 CRS
Area Director
U.S. Customs Service
Building #77, JFK Airport
Room 228
Jamaica, NY 11430
RE: Internal advice request; related parties, bona fide sale; transaction value; additions to the price
actually paid or payable; selling commissions
Dear Sir:
This is in reply to your memorandum of January 5, 1994, under cover of which you
forwarded, on February 14, 1994, a request for internal advice (I/A) dated August 5, 1993, submitted
by counsel on behalf of Mario Valentino International, Inc. ("MVII"). Purchase orders,
confirmations, invoices and other documentary evidence was attached to the I/A. In connection with
this matter we have also reviewed an audit report (No. 227-92-CEO-014, dated May 9, 1994) which
summarizes the results of a consumption entry audit of MVII performed by the Regulatory Audit
Division, New York. We regret the delay in responding.
FACTS:
MVII is a wholly-owned subsidiary of Mario Valentino S.p.A. ("S.p.A."), an Italian company
from which it imports women's shoes, clothing and accessories. Merchandise sold for exportation
to the United States is marketed in one of two ways: to retail customers through MVII's Manhattan
store; or to wholesale customers through MVII's wholesale division. The I/A request only concerns
entries of wholesale merchandise for the period September 1989 to September 1992; merchandise
imported by MVII for retail sale through its Manhattan store is not at issue.
The wholesale division employs two people and operates out of the same Manhattan store as
does the retail store. MVII acts as importer of record for merchandise ordered through the wholesale
division and pays duty on values reflecting the sale between parent and subsidiary. During the period
in question, MVII employed a New York corporation, Jealex, Inc., in the capacity of sales agent, to
assist MVII with its U.S. sales. The agency relationship with Jealex has since been terminated; but
while it was still in effect, it was embodied in a Sales Agency Agreement dated September 1, 1989.
Under the terms of the agreement, Jealex received a 12 percent commission on MVII's net sales,
payable against a monthly draw.
In your memorandum of January 5th, you make the following observations in regard to the
agreement. First, the agreement stated that MVII "manufactures" women's shoes; however, MVII
never manufactured shoes. All Mario Valentino shoes were produced by S.p.A. in Italy. Second,
article 5 of the agreement provided that agent would solicit orders at prices determined at MVII's
"sole discretion." Nevertheless, counsel observed in its submission of August 5, 1993, that "it is to
be expected that S.p.A. will have considerable influence over the prices at which MVII will offer
merchandise to its customers." Third, article 5 also provided that orders taken by the agent would
be accepted only upon the preparation and transmittal by MVII of its standard form contract. In
contrast, you have advised that through Jealex, U.S. wholesale customers were able to place orders
directly with S.p.A. which confirmed the purchase orders under its letterhead. The confirmations
reflected the prices charged to and paid by the ultimate purchasers. MVII played no role in this
process. Moreover, the confirmation orders do not reflect the prices allegedly paid by MVII.
You have also advised that MVII never took possession of the imported wholesale
merchandise. Instead, the merchandise was shipped directly from the port of entry (JFK Airport) to
the U.S. customer. Two sets of invoices, both printed by S.p.A., accompanied shipments of the
merchandise: the first set reflected a transaction between S.p.A. and MVII; the other, a transaction
between MVII and the ultimate purchaser. MVII's role in this process was limited to stamping the
date on the invoice sent to the ultimate U.S. purchaser. According to the first set of invoices the
terms of sale were FOB Naples; but the auditors determined that S.p.A. actually paid for the cost of
international freight and insurance.
Payment terms were either sixty or 120 days net. Payments for wholesale merchandise were
remitted to MVII, which in turn paid S.p.A.; however, you have stated that it was not uncommon for
MVII to withhold payment for a particular shipment for as much as a year after the date of entry.
Based on the information presented, prices charged to wholesale customers were approximately forty-five to fifty percent greater than the related party transfer prices for identical merchandise.
In view of the above, you contend that there was no sale between S.p.A. and MVII for
purposes of determining the transaction value of wholesale merchandise and that, instead, transaction
value should be based on the sale to the unrelated U.S. customers. Furthermore, it is your position
that Jealex acted as a selling agent for S.p.A. rather than as an agent for MVII and that, consequently,
commission payments to Jealex should be included in transaction value. Counsel for MVII agrees
that transaction value is the appropriate basis of appraisement, but argues that there is indeed a bona
fide sale between S.p.A and MVII.
ISSUE:
The issue presented is whether there was a bona fide sale between S.p.A. and MVII for
purposes of determining the transaction value of "wholesale" merchandise.
LAW AND ANALYSIS:
Merchandise imported into the United States is appraised in accordance with section 402 of
the Tariff Act of 1930, as amended by the Trade Agreements Act of 1979 (TAA; 19 U.S.C. 1401a).
The preferred method of appraisement under the TAA is transaction value, defined as the "price
actually paid or payable for the merchandise when sold for exportation to the United States," plus
certain enumerated additions. The additions include any selling commissions incurred by the buyer
with respect to the imported merchandise to the extent that the commissions are not otherwise
included in the price actually paid or payable. 19 U.S.C. 1401a(b)(1)(B).
However, in order for transaction value to be applicable, there must exist a bona fide sale
between the buyer and seller. For Customs purposes, the word "sale" is defined as a transfer of
ownership in property from one party to another for a price or other consideration. J.L. Wood v.
United States, 62 CCPA 25, C.A.D. 1139 (1974); J.H. Cottman & Co. v. United States, 20 CCPA
344, T.D. 46114 (1932). While J.L. Wood was decided under the prior appraisement statute,
Customs continues to adhere to this definition under the TAA. The existence of a bona fide sale may
depend on a number of factors. Customs will consider, inter alia, whether the alleged buyer has
acquired title to the merchandise and assumed the risk of loss; whether the alleged buyer paid for the
merchandise; whether the payments are linked to specific importations; and whether the
circumstances of the transaction indicate that the parties are functioning as buyer and seller.
Headquarters Ruling Letter (HRL) 545542, dated December 9, 1994; HRL 545570, dated January
27, 1995.
You have identified a number of factors which you believe mitigate against MVII being
considered an independent seller. Initially, you note that while the agreement states that MVII is a
shoe manufacturer, MVII has never manufactured shoes. All of the imported merchandise is
produced in Italy by S.p.A. It is your belief that the fact that the agreement states otherwise indicates
that MVII merely signed on behalf of S.p.A.
In addition, article 5 of the agreement provides that the prices charged to U.S. customers
would be determined at MVII's "sole discretion." In contrast, however, you cite counsel's statement
that "it is to be expected that S.p.A. will exercise considerable influence over the prices at which
MVII may offer merchandise to its customers." Letter of August 5, 1993, at 4. Moreover, price lists
used by Jealex to solicit orders bore S.p.A.'s name and address, rather than MVII's. The evidence
submitted also indicates that orders resulting from Jealex's efforts were confirmed by S.p.A., not by
MVII. All confirmations reflect prices paid by the unrelated U.S. customer. Further evidence of
S.p.A.'s control over both the entire transaction is the fact that S.p.A. issued all invoices and other
paperwork relating to MVII's alleged wholesale sales, as well as the invoices pertaining to the
transaction between S.p.A. and MVII. MVII's role was limited to dating the invoice to the ultimate
purchaser in the U.S.
An examination of the terms of payment also supports a finding that the only sale for
exportation to the United States occurred between S.p.A. and the ultimate U.S. purchaser.
According to the commercial invoices, MVII's payment terms are either sixty or 120 days, net.
Nevertheless, the documentation indicates that MVII can take a significantly longer time to pay, in
some cases, over a year. It is thus your position that the terms and manner of payment suggest there
is no sale between S.p.A and MVII, and that the latter's principal role is to collect S.p.A.'s accounts
receivable. In this regard you also note that the wholesale division has only two employees, and that
all marketing activities are handled by Jealex. In support of your view that the wholesale division
exists principally to collect amounts due S.p.A., you cite a telephone conversation between a member
of your staff and the manager of the wholesale division (who is also the manager of the retail store),
that the wholesale division was established as a "service" to S.p.A. since it was easier for a U.S. based
company to perform this function.
Based on the evidence presented, it is our position that the circumstances of the transaction
indicate that MVII and S.p.A. did not act, respectively, as buyer and seller. E.g., HRL 545542, dated
December 9, 1994. Accordingly, we find that for purposes of determining transaction value, the "sale
for exportation to the United States" occurred between S.p.A. and the ultimate U.S. purchasers.
However, since the selling commissions paid to Jealex were included in the price to the ultimate
purchaser, no addition to the price actually paid or payable for these amounts is required under
section 402(b)(1)(B) of the TAA.
HOLDING:
There was no bona fide sale between S.p.A and MVII for purposes of determining the
transaction value of "wholesale" merchandise. Transaction value should be based on the price
actually paid or payable to S.p.A. by the ultimate U.S. purchasers.
This decision should be mailed by your office to the internal advice requester no later than
sixty days from the date of this letter. On that date the Office of Regulations & Rulings will take
steps to make the decision available to Customs personnel via the Customs Rulings Module, and to
the public via the Diskette Subscription Service, Freedom of Information Act and other public access
channels.
Sincerely,
John Durant, Director
Commercial Rulings Division