Wednesday, September 30, 2009

need to document a loan Jordan case

The Jordan case has a numbeR of issues worthy of discussion. My focu in this blog is the loan issue. Amounts that an individual withdrew on his company's line of credit and amounts that he withdrew from the company's profit-sharing plan represented unreported taxable income because he failed to establish that the amounts were loans and that he repaid any of the amounts.

Return preparers will see loan issues, and guidance needs to be given to clients on the fact that loans have to be substantiated. The Jordan case is one where there is no question that the loan was not adequately documented. To the extent the you or your client need guidance on that issue contact ab@irstaxattorney.com

Rodney Jordan v. Commissioner., U.S. Tax Court, CCH Dec. 57,951(M), T.C. Memo. 2009-223, (Sept. 29, 2009)
U.S. Tax Court, Dkt. No. 2555-00, 12938-01, TC Memo. 2009-223, September 29, 2009.



CH.


MEMORANDUM FINDINGS OF FACT AND OPINION

THORNTON, Judge: By notice of deficiency, respondent determined deficiencies in and penalties on petitioner and Carmen Jordan's Federal income taxes as reported on their joint returns as follows:


Penalty


Year
Deficiency

Sec. 6662(a)



1988
$24,599

$4,920



1991
187,288

37,458



By separate notices of deficiency, respondent determined deficiencies in and penalties on petitioner's Federal income taxes as reported on his and Carmen Jordan's joint tax returns as follows:


Penalty


Year
Deficiency

Sec. 6662(a)



1993
$8,477

$1,695



1994
2,019

404



1995
52,693

10,289



1996
82,320

16,464



After concessions, the issues remaining for decision are: (1) Whether for taxable years 1991 and 1992 petitioner had unreported income from certain alleged withdrawals or payments from Earth Construction, Inc. (ECI), and its profit-sharing plan; (2) whether for taxable year 1991 petitioner had unreported income from a sale of gravel rights to ECI; (3) whether for taxable year 1993 petitioner had unreported rental income and income from other unidentified sources; (4) whether for taxable year 1994 petitioner had unreported income from discharge of indebtedness; (5) whether for taxable year 1995 petitioner had unreported income from his gravel pit business; (6) whether for taxable year 1995 petitioner is entitled to certain deductions claimed with respect to his gravel pit business; (7) whether for taxable year 1996 petitioner understated his income on Schedule C, Profit or Loss From Business; (8) whether for taxable years 1993, 1994, and 1995 petitioner had taxable income attributable to payments to Carmen Jordan by her wholly owned S corporation, Green Mountain Custom Crushing, Inc. (GMCC), and from flow-through adjustments to GMCC's income tax returns; (9) whether petitioner's reported losses from horse activities for taxable years 1991 through 1994 are limited by section 469; and (10) whether petitioner is liable for the section 6662 accuracy-related penalty for all years at issue. 1

When he filed his petition at docket No. 2555-00, petitioner resided in New Hampshire. When he filed his petition at docket No. 12938-01, he resided in Tennessee. The parties have stipulated that any appeal of these consolidated cases will lie with the U.S. Court of Appeals for the Sixth Circuit.

The parties have stipulated some facts, which we incorporate herein by reference. For purposes of order and clarity, we have set forth below separately our Findings of Fact and Opinion for each issue.

The burden of proof is generally upon the taxpayers, except as may be otherwise provided by statute or determined by the Court. See Rule 142(a). 2 The U.S. Court of Appeals for the Sixth Circuit, to which any appeal of these cases would lie, has held that the Commissioner's determination of unreported income must be based on a “minimal evidentiary foundation” in order for the presumption of correctness to attach. United States v. Walton, 909 F.2d 915, 919 (6th Cir. 1990). Once the Commissioner meets his initial burden of production, the taxpayers bear the “burden of producing credible evidence that they did not earn the taxable income attributed to them or of presenting an argument that the IRS deficiency calculations were not grounded on a minimal evidentiary foundation.” Id.; see Olmos v. Commissioner, T.C. Memo. 2007-82.

Issue 1. Petitioner's Alleged Withdrawals in 1991 and 1992
FINDINGS OF FACT
In 1979 petitioner, Carmen Jordan, and David Shields started Earth Construction, Inc. (ECI). This company primarily constructed roads and bridges for the State transportation departments of Vermont and New Hampshire. During periods relevant to these cases, petitioner owned 51 percent of ECI, Carmen Jordan owned 15 percent, and David Shields owned 34 percent. Petitioner served as ECI's president and director.

A. Petitioner's Takings From ECI's Profit-Sharing Plan
In 1985 ECI started a profit-sharing plan. Petitioner, Carmen Jordan, and David Shields were named trustees of the ECI profit-sharing plan. By 1991, however, petitioner had taken over complete control of the profit-sharing plan and handled its financial affairs. A.G. Edwards & Sons, Inc. (A.G. Edwards), handled ECI's investments, although petitioner made all decisions. As of the end of 1992, the plan had about 31 participants. 3

On July 31, 1991, petitioner withdrew $100,000 from ECI's profit-sharing plan and deposited it into a personal bank account. On December 27, 1991, petitioner withdrew an additional $48,677 from ECI's profit-sharing plan and deposited it into his personal account. These two withdrawals nearly depleted the profit-sharing plan's assets.

On January 31, 1992, the last day of the profit-sharing plan's fiscal year, ECI wrote a check for $150,000 to the profit-sharing plan's account, effectively replenishing the funds that petitioner had taken. 4 The replenishment, however, was to be short lived. On February 18, 1992, petitioner withdrew $140,000 from the profit-sharing plan and deposited the check into his personal bank account. On February 21, 1992, petitioner wrote a check on this same personal bank account to purchase a cashier's check for $140,000, payable to First Vermont Bank and Trust Co. This cashier's check was deposited in ECI's line of credit account at First Vermont Bank and Trust Co. The proceeds were used to underwrite ECI's purchase of a gravel pit from a company in Tilton, New Hampshire.

On February 28, 1992, petitioner withdrew another $10,000 from the profit-sharing plan and deposited it into his personal account, thereby depleting all but $1,298.45 of the plan's assets.

In 1996 the U.S. Department of Labor brought suit against petitioner for improper takings from ECI's profit-sharing plan. See Metzler v. Jordan, No. 1:96-cv-117 (D. Vt., Apr. 4, 1996). As a result of this suit, in 1997 a judgment of $238,894.78 was entered against petitioner, representing a principal amount of $150,000 plus interest. 5

B. Petitioner's Withdrawals on ECI's Line of Credit
On August 1, 1991, petitioner withdrew $330,000 on ECI's line of credit at First Vermont Bank & Trust Co. He deposited the funds in his personal bank account. 6 The same day, he used these funds, plus some of the funds he had withdrawn from ECI's profit-sharing plan, to purchase seven convenience stores operating under the name of H-OUR Mart, Inc. (H-OUR Mart), in which he owned a 50-percent interest. 7

C. Suit Brought by David Shields
On February 23, 1992, David Shields filed a complaint in the Superior Court of Caledonia County, Vermont, against petitioner, Carmen Jordan, and ECI. He alleged, among other things, that petitioner had improperly caused $150,000 to be withdrawn from ECI's profit-sharing plan and had diverted about $500,000 of ECI's working capital to purchase an interest in H-OUR Mart. By summary order dated December 20, 1994, the Caledonia superior court entered a judgment of $200,000 in favor of David Shields. 8

D. Bankruptcy Proceedings
On May 3, 1993, petitioner and Carmen Jordan filed for chapter 11 bankruptcy. On January 5, 1994, petitioner and Carmen Jordan's second amended plan under chapter 11 was confirmed by the bankruptcy court.

On November 25, 1997, Carmen Jordan filed for chapter 13 bankruptcy. On March 31, 1998, her chapter 13 plan was confirmed by the bankruptcy court.

E. Tax Returns and Notice of Deficiency
Respondent determined that in 1991 petitioner received $478,677 of unreported taxable wages from ECI. Although the notice of deficiency does not detail the manner in which this number was derived, the parties appear to agree that it represents the sum of the $100,000 that petitioner withdrew from ECI's profit-sharing plan on July 31, 1991, the additional $48,677 that petitioner withdrew from ECI's profit-sharing plan on December 27, 1991, and the $330,000 that petitioner drew against ECI's line of credit on August 1, 1991, and invested in H-OUR Mart. In the same notice of deficiency respondent determined that in 1992 petitioner received $246,279 of unreported taxable wages from ECI. Again, the notice of deficiency does not detail the manner in which this number was derived, but the parties appear to agree that it represents the sum of $150,000 that petitioner allegedly withdrew from ECI's profit-sharing plan in February 1992 and an additional $96,279 of otherwise unidentified payments that ECI made to petitioner in 1992.

OPINION
Petitioner does not dispute that he received funds totaling at least $478,677 in 1991 and $246,279 in 1992. He contends, however, that these receipts represent loans from ECI pursuant to an open account rather than taxable income and that he actually repaid greater amounts to ECI than he received in 1991 and 1992. 9

1. Petitioner's 1991 Withdrawals

Plainly, the funds that petitioner misappropriated from ECI's profit-sharing plan cannot be said to be loans from either ECI or the plan. 10

Similarly, the record does not show that the $330,000 that petitioner withdrew on ECI's corporate line of credit was properly authorized. The court judgment awarding damages to ECI's former vice president, David Shields, for petitioner's unlawful diversion of ECI's working capital to H-OUR Mart, suggests strongly otherwise. Petitioner testified that he discussed the $330,000 withdrawal with ECI's accountant who “set it up as a loan”. In support of this testimony petitioner points to ECI's financial statements, which show, as of December 31, 1991, a $500,694 loan receivable from H-OUR Mart, which amount presumably includes the $330,000 in question. The record, however, contains no documentation of any loan agreement between ECI and H-OUR Mart. To the contrary, the record strongly suggests that petitioner diverted the $330,000 from ECI to finance his 50-percent ownership interest in H-OUR Mart. In the light of these circumstances, we attach little significance to the manner in which ECI's accountant, after the fact and in collaboration with petitioner, might have chosen to set up the transaction.

Petitioner contends that he should not be taxable on any of the 1991 receipts in question because he repaid ECI even more than he received. In support of this contention petitioner relies upon his own testimony and numerous photocopied documents, including receipts, personal checks, and portions of ECI's books and records.

We are not persuaded that petitioner repaid any part of the $148,677 he took from ECI's profit-sharing plan in 1991 or the $330,000 he withdrew from ECI's corporate line of credit. In the first instance, according to petitioner's own contentions, the $148,677 that he took from the profit-sharing plan was not repaid until January 31, 1992, when he orchestrated ECI's payment of $150,000 into the plan. Similarly, according to petitioner's own contentions, the $330,000 that he withdrew from ECI's corporate line of credit is reflected in a $500,694 loan receivable from HOUR Mart, as shown on ECI's yearend 1991 financial statements. 11 Because the $330,000 ostensibly remained in this balance as of yearend 1991, the financial statements do not support a conclusion that petitioner repaid this amount in 1991.

That said, the record does support petitioner's contention that in 1991 he and Carmen Jordan made certain payments to or on behalf of ECI. On the basis of all the evidence in the record we are not convinced, however, that these payments represent repayments of the withdrawals in question. By way of example, the record shows that in the fall of 1991 Carmen Jordan, on petitioner's behalf, wrote two checks to ECI totaling $190,000. 12 These repayments are reflected as credits in ECI's general ledger under “Accounts Receivable-Officers”, as are certain other amounts that petitioner claims to have paid ECI. This general ledger account, however, does not reflect the line-of-credit and profit-sharing plan withdrawals that are at issue; consequently, the various credits to the account do not support a conclusion that repayments were made with respect to the withdrawals at issue. More fundamentally, the “Accounts Receivable-Officers” general ledger account shows that in 1991 debits to the account exceeded credits by about $83,000, suggesting that petitioner and Carmen Jordan made withdrawals from ECI in addition to the withdrawals that respondent has determined to be taxable income, and that those additional withdrawals exceeded the amount of any repayments that were made in 1991. 13 Consequently, after careful review of the evidence, we are not persuaded that any of the payments that petitioner and Carmen Jordan allege to have made to ECI in 1991 are properly regarded as repayments of the withdrawals at issue. 14

Petitioner also claims that various other amounts should be counted as repayments of the withdrawals at issue for 1991. This amount includes $100,000 of income that he acknowledges realizing from his sale of gravel rights to ECI during 1991. Petitioner suggests that the $100,000 should be netted against the withdrawals in question for 1991 because he received the $100,000 amount not in cash but as a “set-off” to his “running balance” with ECI. Petitioner's contention is without merit. As discussed infra, the sale of gravel rights resulted in $100,000 of taxable income to petitioner in 1991. Accordingly, it in no way reduces the taxable income petitioner realized from his withdrawals from ECI's profit-sharing plan and ECI's corporate line of credit. Nor do we find any support in the record for petitioner's suggestion that the $100,000 is double-counted in respondent's determination.

In sum, we sustain respondent's determination that in 1991 petitioner had unreported taxable income of $478,677 from the transactions in question. 15

2. Petitioner's 1992 Profit-Sharing-Plan Withdrawals

On January 31, 1992, ECI wrote a check for $150,000 to the profit-sharing plan's account; on February 18, 1992, petitioner withdrew $140,000 from the profit-sharing plan and deposited it into his personal bank account at Bradford National Bank; and on February 21, 1992, petitioner wrote a check on this same personal bank account to purchase a cashier's check for $140,000, payable to First Vermont Bank and Trust Co., to be deposited in ECI's corporate line of credit and used to underwrite ECI's purchase of a gravel pit. In substance, then, petitioner orchestrated the transfer of $140,000 over the course of about 20 days from ECI to the profit-sharing plan to himself to ECI's corporate line of credit. The end result was that petitioner effectively restored for ECI's benefit $140,000 of the funds that he had caused to be placed temporarily in the profit-sharing plan. Then, on February 28, 1992, petitioner withdrew another $10,000 from the profit-sharing plan and deposited it into his personal account.

For reasons not entirely clear to us, both in the notice of deficiency and on brief respondent has characterized petitioner's withdrawals from ECI's profit-sharing plan as “wages”. If we were to agree with respondent's characterization, we might conclude that in 1992 petitioner voluntarily repaid $140,000 of the $150,000 “wages” and consequently had taxable income of $10,000. See Young v. Commissioner, T.C. Memo. 1961-33. Alternatively, and perhaps more plausibly, viewing the withdrawals as wrongful conversions, we similarly conclude that in 1991 petitioner made restitution of $140,000, leaving $10,000 of taxable income. See Fox v. Commissioner, 61 T.C. 704, 712-714 (1974); Chumbrook v. Commissioner, T.C. Memo. 1977-108.

3. Other Payments From ECI to Petitioner in 1992

In the notice of deficiency issued to petitioner and Carmen Jordan for taxable years 1988 and 1991 respondent determined that petitioner's 1992 unreported taxable income included, in addition to $150,000 of withdrawals from ECI's profit-sharing plan, $96,279 of payments from ECI. The notice of deficiency provides no explanation for this determination. Nor has respondent offered any evidence or separate argument about this $96,279 item. Rather, on brief respondent seems inexplicably to lump together this amount and petitioner's withdrawals from ECI's profit-sharing plan. Nevertheless, petitioner does not deny receiving the $96,279 of payments from ECI in 1992. He contends, however, that these payments simply reflect a “running balance” between himself and ECI and that the payments are approximately equal to amounts that he paid in 1992 to ECI or on ECI's behalf. In support of this contention petitioner introduced into evidence copies of many checks written on his personal bank account to various parties, including ECI, and gave detailed testimony about these payments.

Bearing heavily against respondent, who has offered no reasoned explanation for the basis on which he determined that the $96,279 was taxable income and has offered no evidence in this regard, we accept petitioner's explanation as adequately supported by the evidence. We do not sustain respondent's determination in this regard. 16

Issue 2. Petitioner's Sale of Gravel Rights to ECI
FINDINGS OF FACT
In 1991 petitioner sold gravel rights to ECI for $100,000. The proceeds were not reported on petitioner and Carmen Jordan's joint 1991 Federal income tax return.

OPINION
Petitioner does not dispute that in 1991 he sold gravel rights to ECI for $100,000 but contends that this income is not taxable because the proceeds were not paid to him in cash but instead “came in the form of a setoff or credit expressed in the running balance of transactions between Petitioner and ECI.” We disagree.

In the first instance, in contradiction of petitioner's argument, ECI's cashflow statement for the year ended December 31, 1991, shows a cash outflow of $100,000 for “Purchase of mineral rights”, described in more detail in notes to the financial statements as “Purchase of rights to 100,000 yards of material located in a gravel pit owned by the Company president”. But even if we were to assume, for the sake of argument, that rather than pay $100,000 directly to petitioner, ECI applied this amount to satisfy debts owed by petitioner, the result would be the same—for income tax purposes the transaction would be equivalent to petitioner's selling the gravel rights to ECI for $100,000 cash and then using the cash to defray his alleged debt to ECI. See Frazier v. Commissioner, 111 T.C. 243, 245 (1998); Schultz v. Commissioner, 59 T.C. 559, 565 (1973); Bialock v. Commissioner, 35 T.C. 649, 660 (1961).

Regardless of whether petitioner received the $100,000 of proceeds in cash or in satisfaction of claims against him, his taxable gain is the amount by which $100,000 exceeds his adjusted basis in the gravel rights. See sec. 1001(a); Bialock v. Commissioner, supra at 660. The record does not establish the amount, if any, of petitioner's adjusted basis in the gravel rights. Accordingly, we sustain respondent's determination that in 1991 petitioner realized taxable income of $100,000 on his sale of the gravel rights.

Issue 3. Petitioner's Alleged Unreported Income in 1993
FINDINGS OF FACT
Respondent determined that in 1993 petitioner had unreported rental income of $3,483 from Jay Peak, Inc. Respondent also determined that in 1993 petitioner realized $43,986 of unreported capital losses attributable to transactions in a brokerage account. Respondent determined that petitioner therefore had $43,986 of ordinary income because, as stated in the notice of deficiency, “the Jordans would have to cover the $43,986 in losses with deposits to the account.”

OPINION
A. Unreported Rental Income
The parties have stipulated as follows: “In 1993, the petitioner received taxable income from Jay Peak, reported to the petitioner on a Form 1099-MISC, in the amount of $10,973.00, of which the petitioner reported only $7,490.00 on his 1993 income tax return.” Notwithstanding this stipulation, on reply brief petitioner contends that he correctly reported $7,490 as the amount of net rental income, after deducting “internal charges for house keeping, etc.” He also contends that respondent has not met his “minimum burden of evidence as to this issue.” We reject these contentions as contrary to the parties' stipulation and unsupported by any competent evidence.

B. Imputed Income
Respondent has determined that because petitioner had an unreported capital loss of $43,986, he must have had unreported income of the same amount to cover the loss. Viewed charitably, this determination borders on the whimsical. Setting aside questions as to why petitioner's tax liability should reflect only this conjectural income and not the actual losses upon which it is improbably predicated, suffice it to say that respondent has introduced no evidence to show that petitioner actually covered the unreported losses, much less with unreported income. This determination is not sustained.

Issue 4. Discharge of Indebtedness Income—1994
FINDINGS OF FACT
Respondent determined that in 1994 petitioner had $5,005 of unreported income from discharge of debt.

OPINION
The parties have stipulated as follows: “In 1994, the petitioner received taxable discharge of indebtedness income from Chase Manhattan Bank, reported to the petitioner on a Form 1099-C, in the amount of $5,005.00, which the petitioner did not report on an income tax return.” Notwithstanding this stipulation, on reply brief petitioner contends that the $5,005 is not taxable because “the discharge was part of the bankruptcy proceedings”. We reject this contention as contrary to the stipulation and unsupported by competent evidence.

Issue 5. Petitioner's Unreported Schedule C Income—1995
FINDINGS OF FACT
On Schedule C of their joint 1995 Federal income tax return, petitioner and Carmen Jordan reported $7,974 of gross receipts or sales from petitioner's gravel pit business. Respondent determined that this amount was understated by $55,935, on the ground that petitioner had $63,909 of unexplained deposits. As explained in the notice of deficiency, this amount reflects $21,355 that petitioner deposited in the fall of 1995 into his account at A.G. Edwards and $42,554 that petitioner deposited at some unspecified time into his personal account at First New Hampshire Bank.

OPINION
In the absence of adequate recordkeeping by a taxpayer as mandated by section 6001, the Commissioner is authorized to reconstruct the taxpayer's income by any reasonable method that clearly reflects income. See, e.g., sec. 446(b); Holland v. United States, 348 U.S. 121, 130-132 (1954). One acceptable method is the bank deposits method. Clayton v. Commissioner, 102 T.C. 632, 645 (1994); DiLeo v. Commissioner, 96 T.C. 858, 867 (1991), affd. 959 F.2d 16 (2d Cir. 1992); Bevan v. Commissioner, T.C. Memo. 1971-312, affd. 472 F.2d 1381 (6th Cir. 1973). The bank deposits method assumes that if a taxpayer is engaged in an income-producing activity and makes deposits to bank accounts, then those deposits, less amounts identified as nonincome items, constitute taxable income. See Clayton v. Commissioner, supra at 645-646. Where the Commissioner has used the bank deposits method to determine deficiencies, the taxpayer bears the burden of showing that the determinations are incorrect. See DiLeo v. Commissioner, supra at 871; Bevan v. Commissioner, supra.

Petitioner does not dispute making the deposits in question. He contends, however, that his deposits into his A.G. Edwards account merely represent transfers from other of his accounts. The evidence shows that the subject deposits in the A.G. Edwards account include three interaccount transfers totaling $5,200 that did not represent items of gross receipts in 1995. We conclude that these items should be omitted from respondent's income reconstruction. 17 Petitioner has failed, however, to establish that any of the other amounts deposited into his A.G. Edwards accounts represent items other than gross receipts. Accordingly, we hold and conclude that $16,155 of the deposits to petitioner's A.G. Edwards account in 1995 represents taxable income.

Acknowledging that in 1995 he deposited more than $42,554 into his personal account at First New Hampshire Bank, petitioner has attempted to show that these deposits were from nontaxable sources. The evidence in the record does not substantiate these claims. By way of example, petitioner claims that $20,121 of his First New Hampshire Bank deposits in 1995 represents insurance proceeds relating to a theft loss incurred at H-OUR Mart. Petitioner suggests that these insurance proceeds are nontaxable because they represent “repayment from my basis”. Petitioner has produced no documentation either of an insurance claim for a theft loss or of payment on any such claim by an insurance company; moreover, petitioner has not explained why insurance proceeds relating to a theft loss incurred by H-OUR Mart should be paid to petitioner directly or, if they were, why the proceeds would represent nontaxable return of basis. Similarly, although petitioner has offered detailed explanations of the other deposits into his First New Hampshire Bank, the evidence in the record does not convince us that these deposits were from nontaxable sources.

Issue 6. Schedule C Deductions—1995
FINDINGS OF FACT
On his and Carmen Jordan's joint 1995 Federal income tax return petitioner claimed various Schedule C deductions including a $10,000 “Crushing Cost” which respondent disallowed. 18 On Form 886A, Explanation of Items, respondent's examining agent explained this adjustment as follows:

An amount of $10,000 was deducted on the Schedule C of Rodney Jordan. This amount was purportedly in payment of crushing costs to Green Mountain Custom Crushing. Numerous checks are written to and from Rodney, Carmen and Green Mountain Crushing. Rodney Jordan has not provided all bank statements for all accounts, has not provided invoices, and has not provided all cancelled checks. Rodney Jordan claims to have paid expenses of Green Mountain Custom Crushing in exchange for crushing. A listing of amounts totaling $12236 was not examined in detail. Rodney Jordan has also been paid amounts from Green Mountain Custom Crushing that he considers to be reimbursements.

Examination of the returns has revealed additional income and it is impossible to determine at this time if expenses are for Green Mountain or in relation to the unreported income or to the existing schedule C.

OPINION
Petitioner has the burden of proving he is entitled to the claimed deduction. See Rule 142(a); Welch v. Helvering, 290 U.S. 111 (1933). At trial petitioner offered no evidence that he was entitled to deduct crushing costs. Instead, petitioner contends that during the audit he submitted to respondent's examining agent documentation to substantiate even more than the $10,000 deduction claimed on his Schedule C but she refused in bad faith to consider the documentation. In support of this contention, petitioner focuses on the above-quoted language from the Form 886A: “A listing of amounts totaling $12236 was not examined in detail.”

Because a trial before the Tax Court is a de novo proceeding, “our determination of a petitioner's tax liability must be based on the merits of the case and not any previous record developed at the administrative level.” Jackson v. Commissioner, 73 T.C. 394, 400 (1979) (citing Greenberg's Express, Inc. v. Commissioner, 62 T.C. 324, 328 (1974)). Having offered no competent evidence in support of this claimed deduction, petitioner has failed to establish that he is entitled to the claimed deduction for crushing costs. In any event, the Form 886A suggests that respondent's examining agent declined to examine petitioner's “listing of amounts” in detail partly because it was impossible to tell whether GMCC had reimbursed petitioner for the amounts he was claiming as deductions. We take into account this same consideration in concluding that petitioner has failed to establish entitlement to the claimed deduction. Respondent's determination as to this issue is sustained.

Issue 7. Unreported Schedule C Income—1996
FINDINGS OF FACT
On Schedule C to their 1996 joint Federal income tax return, petitioner and Carmen Jordan reported $9,945 gross income from a “Gravel Pit/Logging Operation”. On the basis of a bank deposits analysis, respondent determined that this Schedule C income was understated by $228,519. In particular, respondent determined that in 1996 these bank deposits, totaling $238,464, represented taxable income of: (1) $85,417.82 deposited into petitioner's personal accounts at Merchants Bank; (2) $61,276 deposited into the bank account of Sodalitan Mayer, a woman with whom petitioner was then living; and (3) $91,740 deposited into petitioner's account at A.G. Edwards.

OPINION
The issue is whether respondent correctly determined that in 1996 petitioner and Carmen Jordan understated Schedule C income by $228,519. 19

A. The Merchants Bank Deposits
Petitioner has stipulated that in 1996 he received $82,764.92 from “various Schedule C sources” which he deposited into his Merchants Bank accounts but did not report on an income tax return. He has also stipulated that in 1996 he received $2,652.90 of Schedule C income from a lumber company which he did not report on an income tax return; the notice of deficiency reflects this item as an additional deposit into one of petitioner's Merchants Bank accounts. Petitioner has failed to show that respondent erred in treating these Merchants Bank deposits as taxable income. We conclude that $85,417.82 of petitioner's 1996 deposits to his Merchants Bank accounts represent taxable income to him.

B. Deposits to Sodalitan Mayer's Account
The parties have stipulated that in 1996 checks payable to petitioner and totaling $57,760.55 were deposited into Sodalitan Mayer's account. Petitioner has offered neither argument nor evidence to show that respondent erred in determining that these $57,760.55 of deposits represent taxable income to him. This $57,760.55 amount as to which the parties have stipulated is $3,515.90 less than the $61,276.45 described in the notice of deficiency as having been deposited into Sodalitan Mayer's account. The notice of deficiency indicates that this remaining $3,515.90 of alleged deposits was transferred by petitioner from another of his bank accounts. On the basis of all the evidence, we conclude that this interaccount transfer does not represent an item of gross receipts in 1996. We conclude and hold that petitioner is taxable on $57,760.55 of the deposits he made into Sodalitan Mayer's account.

C. Deposits to Petitioner's A.G. Edwards Account
Petitioner has stipulated that in 1996 checks made payable to him and totaling $91,740 were deposited into his A.G. Edwards account. The evidence of record persuades us that two of the underlying deposits, one for $5,000 and another for $6,500, represent petitioner's interaccount transfers rather than unreported income. Petitioner has failed, however, to show that respondent erred in treating the other $80,240 of deposits into his A.G. Edwards account as taxable income. 20 We conclude that $80,240 of the deposits to petitioner's A.G. Edwards account represents taxable income.

Issue 8. Items Pertaining to Carmen Jordan and GMCC
In 1990 Carmen Jordan incorporated her wholly owned S corporation, GMCC. 21 Some of the deficiencies in dispute arise in part from respondent's determinations that Carmen Jordan had unreported income from GMCC or from flow-through adjustments to GMCC. As a threshold matter, petitioner contends that these issues are “void” because Carmen Jordan's debts were discharged in bankruptcy. His brief states: “It is common knowledge that the IRS failed to file proof of claim and therefore their debt was discharged in the confirmed bankruptcy plan(s).” The record does not establish whether any of Carmen Jordan's tax liabilities were discharged in bankruptcy. But whether they were discharged or not is irrelevant to the determination of petitioner's tax liability. Spouses who file joint returns are jointly and severally liable for the entire tax liability, which may be collected from either spouse. See sec. 6013(d)(3). Carmen Jordan's bankruptcy case has no effect on petitioner's liability under section 6013(d)(3).

A. Carmen Jordan's 1993 and 1994 Payments From GMCC
FINDINGS OF FACT
During 1993 and 1994 GMCC was in financial straits. It had little cash and no available sources of outside credit. In an effort to keep the company going Carmen Jordan advanced funds to GMCC from time to time as necessary to allow it to pay its bills. These advances were in the form of numerous checks or cash deposits, of varying, relatively small amounts, totaling $29,575 in 1993 and $16,205 in 1994. From time to time, as it had funds available, GMCC would make payments to Carmen Jordan of varying, relatively small amounts. These payments from GMCC to Carmen Jordan totaled $29,295 in 1993 and $37,595 in 1994.

On their 1993 joint Federal income tax return petitioner and Carmen Jordan reported $8,218 of wages which, according to an attached Form W-2, Wage and Tax Statement, all represented wages to petitioner from GMCC. On their 1994 joint return petitioner and Carmen Jordan reported $13,200 of wages, which according to an attached Form W-2, all represented wages to Carmen Jordan from GMCC. Respondent determined that Carmen Jordan had unreported wages of $29,295 in 1993 and $24,395 in 1994 (representing total wages of $37,595 less the $13,200 reported on the return).

OPINION
Although the notice of deficiency is not explicit in this regard, the parties appear to agree that the determination relates to unreported wages allegedly paid to Carmen Jordan by GMCC. Petitioner does not expressly deny that in 1993 and 1994 Carmen Jordan received payments from GMCC as determined in the notice of deficiency. 22 Petitioner contends, however, that Carmen Jordan paid into GMCC more than it paid out to her during these years, and that the payments at issue represent nontaxable “loan repayments” on open account.

Petitioner has introduced into evidence numerous canceled checks and deposit tickets showing that, as we have found, Carmen Jordan made payments or cash deposits to GMCC totaling $29,575 in 1993 and $16,205 in 1994. 23 These canceled checks and bank deposit tickets generally indicate that the amounts paid are a “temp loan” or a “cash loan”. In one instance, a canceled check for $8,000 in October of 1993 indicates that it is for a “loan payback”.

Respondent does not expressly dispute that in 1993 and 1994 Carmen Jordan made substantial payments to GMCC. 24 Respondent suggests, however, that those payments should be disregarded because petitioner has produced no “loan documentation” to show any loans between Carmen Jordan and GMCC.

Particularly in a circumstance like this involving transactions between a corporation and its sole shareholder on an open account, formal indicia of indebtedness are not necessarily essential to the existence of bona fide debt; rather, the question is whether there is a bona fide expectation of repayment. “Advances are an additional contribution of capital if they are intended to enlarge the stock investment, but not if they are intended as a loan.” Edward Katzinger Co. v. Commissioner, 44 B.T.A. 533, 536 (1941) (open-account cash advances by taxpayer to wholly owned corporation constituted loans), affd. 129 F.2d 74 (7th Cir. 1942); cf. Am. Processing and Sales Co. v. United States, 178 Ct. Cl. 353, 371 F.2d 842, 851-857 (1967) (corporation's advances to its subsidiary, taking the form of non-interest-bearing open accounts and made with a reasonable expectation of repayment, were loans); Byerlite Corp. v. Williams, 286 F.2d 285, 290-291 (6th Cir. 1960) (advances on open account by a parent corporation to its subsidiary were loans).

Indeed, the regulations contemplate that such open-account transactions between a shareholder and an S corporation may constitute indebtedness. The regulations provide that “shareholder advances not evidenced by separate written instruments and repayments on the advances ( open account debt) are treated as a single indebtedness.” 25 Sec. 1.1367-2(a), Income Tax Regs. The basis of a shareholder's open account debt is properly determined by netting shareholder advances and repayments that occur during the S corporation's tax year. Brooks v. Commissioner, T.C. Memo. 2005-204; cf. Cornelius v. Commissioner, 494 F.2d 465 (5th Cir. 1974) (advances and repayments that constitute separate transactions are not properly netted), affg. 58 T.C. 417 (1972). As a corollary, a shareholder has gain on repayments of open account debt during a year only to the extent that the repayments exceed advances during the year plus the basis of the debt as of the beginning of the year.

On the basis of all the evidence, we are convinced that Carmen Jordan intended that GMCC would repay the advances at issue and that GMCC intended to repay and did in fact repay them. We conclude that the advances are properly treated as open account debt rather than as separate transactions.

In 1993 Carmen Jordan's advances to GMCC of $29,575 exceeded by $280 the $29,295 of payments that GMCC made to her, leaving her a basis of $280 in the open account debt. Consequently, in 1993 GMCC's payments to Carmen Jordan gave rise to no taxable income to her.

In 1994 the $37,595 of payments that GMCC made to Carmen Jordan exceeded by $21,110 the sum of Carmen Jordan's $16,205 of advances to GMCC and her $280 carryover basis in the open account debt. We conclude that this $21,110 of net repayments represents ordinary income to her in 1994. 26 We conclude that petitioner and Carmen Jordan's joint 1994 return underreported ordinary income by $7,910 ($21,110 less the $13,200 reported on the joint return as wages).

B. Disallowed Losses From GMCC—1993, 1994, and 1995
FINDINGS OF FACT
On their joint Federal income tax returns, petitioner and Carmen Jordan reported losses from GMCC of $62,369 for 1993, $62,409 for 1994, and $46,599 for 1995.

Respondent determined that as of yearend 1992 Carmen Jordan's adjusted basis in her GMCC stock was $33,754. Respondent determined that Carmen Jordan's 1993 GMMC loss was limited to this amount of adjusted basis and accordingly disallowed $28,885 ($62,639 minus $33,754) of the claimed 1993 loss. Determining that this partial allowance of the 1993 loss eliminated any remaining basis in Carmen Jordan's GMCC stock, respondent disallowed in its entirety the claimed 1994 loss of $62,409.

In addition, respondent disallowed the claimed 1995 loss, determining on the basis of flow-through adjustments to GMCC's 1995 income tax return, that in 1995 Carmen Jordan actually had ordinary income from GMCC of $92,189, resulting in an adjustment of $138,788 ($92,189 plus the $46,599 disallowed loss). The notice of deficiency indicates that these flow-through adjustments resulted from adjustments to expense accounts.

OPINION
1. The 1993 and 1994 Losses

Generally, an S corporation shareholder determines his or her tax liability by taking into account a pro rata share of the S corporation's income, losses, deductions, and credits. Sec. 1366(a)(1). The shareholder may not take into account, however, S corporation losses and deductions for any taxable year in excess of the shareholder's adjusted basis in the S corporation's stock and debt. Sec. 1366(d)(1). 27

Petitioner bears the burden of establishing Carmen Jordan's basis in her GMCC stock. See Rule 142(a); Welch v. Helvering, 290 U.S. 111 (1933). Petitioner has failed to establish that Carmen Jordan's basis in GMCC as of yearend 1992 was any greater than determined in the notice of deficiency. 28 We sustain respondent's determination disallowing the claimed GMCC losses for 1993 and 1994 in excess of that basis. 29

2. Unreported 1995 GMCC Income

Petitioner contends that the notice of deficiency issued to him with respect to the flow-through adjustments resulting from respondent's examination of GMCC's 1995 income tax return “failed to adequately notify Petitioner of the specifics in which to defend”. He alleges: “The IRS has failed to notify Petitioner of the examination results, which would have been essential for Petitioner to know in order to prepare and appropriately defend the IRS position.” 30 As to this issue, petitioner suggests that respondent should have the burden of proof, contending that respondent “failed to establish the minimum burden pursuant to this issue.”

Insofar as petitioner's contentions may be construed as attacking the validity of the notice of deficiency in this regard, they must fail. Section 7522(a) provides that a notice of deficiency “shall describe the basis for, and identify the amounts (if any) of, the tax due, interest, additional amounts, additions to the tax, and assessable penalties included in such notice.” The statute goes on to provide, however, that an “inadequate description * * * shall not invalidate such notice.” The purpose of section 7522 is to give the taxpayer notice of the Commissioner's basis for determining a deficiency. See Shea v. Commissioner, 112 T.C. 183, 196 (1999). The notice of deficiency apprised petitioner in at least general terms of the basis for respondent's determination and identified the amount of tax due as a result of the flow-through adjustments from GMCC.

Insofar as petitioner's contentions may be construed as seeking to shift the burden of proof to respondent, they must also fail. The U.S. Court of Appeals for the Sixth Circuit has held that the Commissioner cannot rely on the presumption of correctness to support a determination of unreported income “‘in the absence of a minimal evidentiary foundation’”. United States v. Walton, 909 F.2d at 919 (quoting Weimerskirch v. Commissioner, 596 F.2d 358, 361 (9th Cir. 1979), revg. 67 T.C. 672 (1977)). By contrast, it is well established that the taxpayer bears the burden of proof with regard to claimed losses or other deductions. See, e.g., Time Ins. Co. v. Commissioner, 86 T.C. 298, 313-314 (1986); Chaum v. Commissioner, 69 T.C. 156, 163-164 (1977). 31

We do not believe that the holding of Walton has any applicability to the determination in question, which ultimately is predicated on respondent's disallowance of expenses claimed by GMCC. But even if we were to assume, for sake of argument, that the item in issue is properly regarded as stemming from alleged unreported income, we believe that the requisite minimal evidentiary foundation has been established. In Weimerskirch v. Commissioner, supra, upon which Walton is predicated, there was no evidence connecting the taxpayer with the activity allegedly producing the unreported income. By contrast, in the instant cases there is no question as to the relationship of Carmen Jordan to the income-producing activity of GMCC. Because petitioner is jointly and severally liable for the taxes resulting from the GMCC flow-through adjustments, Carmen Jordan's connection with GMCC's income-producing activity provides a minimal evidentiary foundation, if any be required, to support respondent's deficiency determination against petitioner.

Petitioner complains that respondent failed to notify him adequately of the specific adjustments to GMCC's return. He does not expressly dispute, however, that respondent communicated with Carmen Jordan about the GMCC adjustments in her capacity as GMCC's sole shareholder. In fact, according to Carmen Jordan's testimony, she previously petitioned this Court to challenge the flow-through adjustments of GMCC. 32 Testifying as petitioner's witness, she expressed familiarity with issues underlying the flow-through adjustments in question. We are not persuaded that petitioner lacked access to, or through discovery could not have obtained, information about the GMCC adjustments as necessary to defend against them.

In fact, on brief, having complained about lack of access to the specifics of the GMCC adjustments, petitioner identifies “With conjecture” the makeup of the disputed S corporation adjustments to within $77.18 of the $138,788 total adjustments at issue. Although petitioner makes various assertions as to why he believes these adjustments were in error, he has failed to support these contentions with competent evidence. Petitioner has failed to carry his burden of proving that respondent erred in this determination.

Issue 9. Passive Losses From Horse Activities
FINDINGS OF FACT
In 1990 Alice Stockwell wrote petitioner a letter inquiring whether he was interested in investing in a business of breeding and raising Morgan horses. She represented that she had the knowledge, experience, time, and facilities but lacked the financial resources.

In 1991 Alice Stockwell, Chet Stockwell, Phillip Pierce, and petitioner formed Chalice Farms, Inc. (Chalice Farms), for the purpose of breeding and raising Morgan horses. 33 The business started with just a couple of horses that Alice Stockwell already had on her property. Petitioner provided funds to buy another three horses. In the winter of 1991 petitioner helped finance the construction of an addition to a barn on Alice Stockwell's property for the horse operations. Before that, beginning in September 1991 and continuing for 4 or 5 months, petitioner kept three or four of the Chalice Farms horses at his own property, which was distant from Alice Stockwell's property. Alice Stockwell testified that she initially visited the horses only intermittently, but finding them poorly cared for, eventually ended up going every day to take care of them.

In 1992 petitioner and Alice Stockwell began to have problems jointly operating Chalice Farms. In June 1993 petitioner filed a complaint in State court seeking the liquidation of the assets of Chalice Farms and demanding an accounting of all income and expenses. In her answer Alice Stockwell denied that petitioner had been involved in the breeding, raising, training, and sale of horses for Chalice Farms. In her counterclaim she sought damages, alleging that in consideration of her agreeing to work full time on the breeding, raising, training, and sale of horses, petitioner had agreed to pay her a weekly salary and to provide working capital to run the business but had failed to do so. In an order dated February 24, 1995, the Vermont Superior Court ordered petitioner to pay $5,700 to Alice Stockwell, representing $300 per month for her past care of the horses from July 1993 and also to pay her $300 per month for the continuing care and feeding of the horses. In 1995 Chalice Farms was dissolved.

On his and Carmen Jordan's joint Federal income tax returns, petitioner claimed these losses from Chalice Farms:


Year
Loss



1991
$28,816



1992
30,475



1993
9,726



1994
5,076



Respondent disallowed these claimed losses as being attributable to a passive activity.

OPINION
Section 469(a) limits the deductibility of losses from certain passive activities of individual taxpayers. Passive losses disallowed in one year generally may be carried over to the next year. See sec. 469(b). Generally, a passive activity is a trade or business in which the taxpayer does not materially participate. Sec. 469(c)(1). Material participation is defined generally as regular, continuous, and substantial involvement in the business operations. Sec. 469(h)(1). The regulations identify these seven situations in which an individual will be treated as materially participating in an activity:

(1) The individual participates in the activity for more than 500 hours during such year;

(2) The individual's participation in the activity for the taxable year constitutes substantially all of the participation in such activity of all individuals (including individuals who are not owners of interests in the activity) for such year;

(3) The individual participates in the activity for more than 100 hours during the taxable year, and such individual's participation in the activity for the taxable year is not less than the participation in the activity of any other individual (including individuals who are not owners of interests in the activity) for such year;

(4) The activity is a significant participation activity (within the meaning of paragraph (c) of this section) for the taxable year, and the individual's aggregate participation in all significant participation activities during such year exceeds 500 hours;

(5) The individual materially participated in the activity (determined without regard to this paragraph (a)(5)) for any five taxable years (whether or not consecutive) during the ten taxable years that immediately precede the taxable year;

(6) The activity is a personal service activity (within the meaning of paragraph (d) of this section), and the individual materially participated in the activity for any three taxable years (whether or not consecutive) preceding the taxable year; or

(7) Based on all of the facts and circumstances (taking into account the rules in paragraph (b) of this section), the individual participates in the activity on a regular, continuous, and substantial basis during such year.

[ Sec. 1.469-5T(a), Temporary Income Tax Regs., 53 Fed. Reg. 5725-5726 (Feb. 25, 1988).]

The regulations also provide that the last-described “facts and circumstances” test requires that the individual's participation in the activity exceed 100 hours during the taxable year. Sec. 1.469-5T(b)(2)(iii), Temporary Income Tax Regs., 53 Fed. Reg. 5726 (Feb. 25, 1988).

Although the regulations permit a taxpayer to establish the extent of his participation by “any reasonable means”, sec. 1.469-5T(f)(4), Temporary Income Tax Regs., 53 Fed. Reg. 5727 (Feb. 25, 1988), a postevent “ballpark guesstimate” does not suffice, see Lee v. Commissioner, T.C. Memo. 2006-193; Bailey v. Commissioner, T.C. Memo. 2001-296; Carlstedt v. Commissioner, T.C. Memo. 1997-331; Speer v. Commissioner, T.C. Memo. 1996-323; Goshorn v. Commissioner, T.C. Memo. 1993-578.

Petitioner has not provided us even a ballpark estimate of the number of hours he allegedly spent in his Chalice Farm activities. Nor does the record otherwise establish the number of hours petitioner might have spent in those activities. Consequently, he has not established that he meets the quantitative requirements of the first, third, fourth, or seventh test described above. The record does not provide any basis for concluding that he meets the requirements of any of the other seven tests for material participation. On the basis of all the evidence, we conclude and hold that petitioner has failed to establish that he materially participated in the Chalice Farms activity. 34 Respondent's determination is sustained.

Issue 10. Accuracy-Related Penalty
Respondent has determined that the section 6662(a) accuracy-related penalty applies against petitioner for each of the years in issue. Section 6662(a) authorizes the Commissioner to impose a penalty in an amount equal to 20 percent of the portion of the underpayments that are attributable to the items set forth in section 6662(b). Section 6662(b)(1) includes any underpayment attributable to negligence or disregard of rules or regulations. Negligence is defined as “any failure to make a reasonable attempt to comply with the provisions of * * * [the Internal Revenue Code]”. Sec. 6662(c); see also Neely v. Commissioner, 85 T.C. 934, 947 (1985) (negligence is lack of due care or failure to do what a reasonable and prudent person would do under the circumstances). Negligence also includes any failure by the taxpayer to keep adequate books and records or to substantiate items properly. See sec. 1.6662-3(b)(1), Income Tax Regs.

No penalty shall be imposed under section 6662(a) with respect to any portion of an underpayment if it is shown that there was reasonable cause and that the taxpayer acted in good faith. See sec. 6664(c). Whether a taxpayer acted in good faith depends upon the facts and circumstances of each case. See sec. 1.6664-4(b)(1), Income Tax Regs. Reliance on a professional return preparer may be reasonable and in good faith if the taxpayer establishes: (1) The return preparer had sufficient expertise to justify reliance; (2) the taxpayer provided necessary and accurate information to the return preparer; and (3) the taxpayer actually relied in good faith on the return preparer's judgment. Neonatology Associates, P.A. v. Commissioner, 115 T.C. 43, 99 (2000), affd. 299 F.3d 221 (3d Cir. 2002).

Petitioner suggests that he is not liable for the negligence penalty because he properly relied in good faith on his tax return preparer. Petitioner has not, however, pursued this defense in any meaningful way. Apart from passing references in his testimony to his tax return preparer, the record is devoid of evidence to support petitioner's contentions. Petitioner did not call his tax return preparer as a witness. There is no evidence in the record as to the advice his tax return preparer might have given him; no evidence to support a determination that petitioner acted reasonably or in good faith in relying upon it; no evidence as to his tax return preparer's qualifications; no evidence that petitioner disclosed to his tax return preparer all relevant facts and circumstances; and no evidence that the advice was based on reasonable factual or legal assumptions.

Petitioner also contends that he was not negligent as to any of the items pertaining to Carmen Jordan or GMCC because “he had no personal knowledge in which to be negligent.” Because petitioner made joint returns with Carmen Jordan, his liability for penalties is joint and several. See sec. 6013(d)(3); Pesch v. Commissioner, 78 T.C. 100, 129 (1982). Petitioner has introduced no evidence to show that the underpayments arising from items pertaining to Carmen Jordan or GMCC were not the result of negligence or that he and Carmen Jordan acted with reasonable cause and in good faith in reporting these items on their joint returns.

We conclude that petitioner's underpayments are attributable to negligence or disregard of rules or regulations. We hold that petitioner is liable for accuracy-related penalties under section 6662(a) based on the amount of his underpayments for the years at issue, to be determined in the Rule 155 computations.

To reflect the foregoing and the parties' concessions,

Decisions will be entered under Rule 155.


Footnotes

1 Unless otherwise indicated, all section references are to the Internal Revenue Code (Code) in effect for the years at issue, and all Rule references are to the Tax Court Rules of Practice and Procedure.

2 Sec. 7491(a) shifts the burden of proof to the Commissioner in certain circumstances with respect to any factual issue relevant to ascertaining the taxpayer's liability for tax imposed by subtit. A or B of the Code. See sec. 7491(a)(1); Rule 142(a)(2). Sec. 7491 is effective with respect to court proceedings arising from examinations commenced after July 22, 1998. See Internal Revenue Service Restructuring and Reform Act of 1998, Pub. L. 105-206, sec. 3001(c)(1), 112 Stat. 727. Similarly, sec. 7491(c) places the burden of production on the Commissioner with respect to the liability of any individual for any penalty, addition to tax, or additional amount, in court proceedings arising in connection with examinations commencing after July 22, 1998. The parties have stipulated that respondent's audit of the years at issue commenced before July 22, 1998. Consequently, the provisions of sec. 7491(a) and (c) are inapplicable to these cases.

3 The record does not indicate the number of plan participants on other dates.

4 The profit-sharing plan's annual reports are prepared at the end of each plan year for submission to the IRS and issuance to the plan participants.

5 The record does not conclusively identify which of petitioner's withdrawals made up the $150,000 principal amount. The record also does not reflect whether petitioner has paid this judgment.

6 The parties have stipulated that petitioner withdrew $300,000. Facts disclosed by the record clearly show, however, that the actual amount of the withdrawal was $330,000 and that the income adjustment in the notice of deficiency is predicated upon this figure, which petitioner does not dispute. Consequently, we disregard the stipulation insofar as it indicates that the amount of the withdrawal was $300,000 rather than $330,000. See Cal-Maine Foods, Inc. v. Commissioner, 93 T.C. 181, 195 (1989).

7 The other 50-percent owner was Gilles W. Desjarlais; the record does not reveal the amount, if any, of his investment.

8 The damages were apparently calculated taking into account that David Shields owned a 34-percent interest in ECI.

9 Because no deficiency has been determined for 1992, we lack jurisdiction with respect to that year. See sec. 6214(b); Paccon, Inc. v. Commissioner, 45 T.C. 392, 396-397 (1966); Parker v. Commissioner, 37 T.C. 331, 332 (1961). We may, however, determine the correct amount of taxable income or NOL for a year not in issue (whether or not the assessment for that year is time barred) as a preliminary step in determining the correct amount of an NOL carryback or carryover to a taxable year in issue. See sec. 6214(b); Calumet Indus., Inc. v. Commissioner, 95 T.C. 257, 274-275 (1990). The notice of deficiency for 1988 and 1991 states that “the elimination of the 1992 NOL affects the tax years 1989 and 1990” by increasing petitioner's taxable income for those years. Similarly, the notices of deficiency for the later years disallow amounts characterized as “carryback/carryover” without explanation of the year of origination. Petitioner appears to assign as error the disallowance of at least some of these “carryback/carryforwards” on the ground that they are properly allowable carryforwards of a 1992 NOL. Both parties have addressed respondent's adjustments to petitioner and Carmen Jordan's 1992 taxable income, from which we infer that the parties agree that these adjustments are properly at issue in these cases as affecting the proper amount of carryback and carryforward of any 1992 NOL carryover. We expect the parties to address this matter in the Rule 155 computations.

10 Petitioner suggests vaguely that some of the money he withdrew from the profit-sharing plan represented his and Carmen Jordan's own contributions. Even if we were to assume for the sake of argument that petitioner and Carmen Jordan made contributions to the profit-sharing plan, this would not mean that the withdrawals were necessarily nontaxable. A profit-sharing plan is a type of deferred compensation plan. See sec. 1.401-1(b)(1)(ii), Income Tax Regs. Distributions are generally taxable under rules relating to annuities. Subject to various exceptions, distributions from a profit-sharing plan are generally taxable. See sec. 402(a). Petitioner has not established the applicability of any exception to this general rule.

11 As previously discussed, we do not view the manner in which ECI reported these amounts on its financial statements as dispositive. We refer to the financial statements here only to evaluate petitioner's claims to have repaid these amounts.

12 In particular, the record contains copies of these canceled checks: A $175,000 personal check dated Oct. 31, 1991, and a $15,000 personal check dated Nov. 12, 1991. Both of these checks are signed by Carmen Jordan and drawn on her and petitioner's joint bank account and posted as credits in the “Accounts Receivable-Officers” account in ECI's general ledger. In her request for innocent spouse relief submitted to the Commissioner on Feb. 23, 2000, Carmen Jordan stated that in the fall of 1991 petitioner asked her to lend him $175,000 so that he could repay a portion of debt that he owed ECI and that several weeks later he sought to borrow an additional $15,000 from her. According to her statement, she issued the checks to ECI as petitioner had requested but later successfully sued him to recover these funds.

13 This conclusion is bolstered by the notes to ECI's financial statements which, under the heading “Related Party Transactions”, show a similar increase from yearend 1990 to yearend 1991 in “Loans receivable from stockholder” from $74,262 to $161,584.

14 In the light of this conclusion, it is unnecessary to describe in detail the extensive evidence that petitioner has offered to show payments made to ECI in 1991, other than to say that we find it to be of variable quality and persuasiveness. While some of the evidence suggests additional payments were made to ECI in 1991 and recorded in ECI's books, most of the evidence relates to purported payments that are not reflected in the portions of ECI's books and records that petitioner has introduced into evidence. Petitioner has offered no convincing explanation why ECI's books and records reflect only certain of the payments he alleges he made.

15 Respondent has characterized this unreported income as “wages” from ECI. Although it seems to us that these withdrawals might more accurately be characterized as wrongful conversions, the labeling does not affect the taxation of these amounts as ordinary income to petitioner.

16 In reaching this result we are mindful that petitioner produced similar evidence and gave similar testimony as to amounts he alleges to have paid on ECI's behalf in 1991. In that instance, however, as previously discussed, we have concluded that the taxable income was from sources other than from any “running balance”.

17 Petitioner also contends that two other deposits of $500 and $800 similarly represent interaccount transfers, but the evidence in the record is insufficient to substantiate these claims.

18 Petitioner also claimed as a Schedule C expense $9,999 of interest expense. During respondent's examination of petitioner's 1995 tax return, respondent's allowance of an additional $68 in interest expenses and disallowance of the crushing costs of $10,000 for 1995 resulted in a $9,932 net adjustment to petitioner's Schedule C deductions.

19 On reply brief petitioner contends that after trial respondent conceded all but $92,774 of this amount and that on brief respondent has improperly failed to abide by this alleged concession. The record does not reflect any such concession.

20 Petitioner alleges that $44,000 of these deposits was generated by a payment from a “wealthy entrepreneur” in consideration of an option to purchase a one-half interest in a gravel pit that petitioner owned. Petitioner contends that this option expired in 1998, at which time he declared the amount “as a capital gain on my 1998 income taxes”. Petitioner has provided no documentary evidence to support these contentions and has offered no explanation for failing to do so. We draw an adverse inference from these lapses, see Wichita Terminal Elevator Co. v. Commissioner, 6 T.C. 1158, 1164 (1946), affd. 162 F.2d 513 (10th Cir. 1947), and find petitioner's testimony insufficient to establish that the deposits did not represent taxable income as respondent charged, see Sharwell v. Commissioner, 419 F.2d 1057, 1060 (6th Cir. 1969), vacating and remanding on other issues T.C. Memo. 1968-89.

21 For the periods at issue, GMCC's taxable years ended Dec. 31.

22 Petitioner has introduced into evidence copies of canceled checks showing payments from GMCC to Carmen Jordan during 1993 and 1994. The amounts of GMCC's payments evidenced by these canceled checks are less than the payments determined in the notice of deficiency. We are not convinced, however, that the canceled checks in evidence represent the totality of all checks issued by GMCC to Carmen Jordan in 1993 and 1994. In any event, as mentioned in the text supra, petitioner has not expressly disputed that GMCC paid Carmen Jordan the amounts indicated in the notice of deficiency.

23 Petitioner also suggests that we should take into account payments and deposits that Carmen Jordan allegedly made to GMCC in 1995 and 1996, which he contends greatly exceeded payments to her from GMCC during those years and resulted in a greater “surplus” in Carmen Jordan's favor. Because the determinations at issue involve only 1993 and 1994, we limit our analysis to those years.

24 Counting only the amounts indicated on the canceled checks and disregarding the amounts shown on the deposit tickets, respondent contends that Carmen Jordan's deposits into GMCC were less than the amounts indicated supra. Respondent has offered no explanation for disregarding cash deposits as indicated on the deposit tickets.

25 The regulations have been modified with respect to shareholder advances made to an S corporation on or after Oct. 20, 2008. See T.D. 9428, 2008-2 C.B. 1174.

26 Petitioner does not expressly dispute respondent's characterization of the payments as ordinary income. To the contrary, on their joint 1994 Federal income tax return, petitioner and Carmen Jordan characterized $13,200 of the payments from GMCC to Carmen Jordan as ordinary wage income.

27 More exactly, with respect to taxation of a shareholder of an S corporation, sec. 1366(a)(1) provides:

there shall be taken into account the shareholder's pro rata share of the corporation's—

(A) items of income (including tax-exempt income), loss, deduction, or credit the separate treatment of which could affect the liability for tax of any shareholder, and

(B) nonseparately computed income or loss.

The aggregate amount of losses and deductions taken into account by such shareholder for a taxable year cannot exceed the sum of: “(A) the adjusted basis of the shareholder's stock in the S corporation * * *, and (B) the shareholder's adjusted basis of any indebtedness of the S corporation to the shareholder”. Sec. 1366(d)(1).

28 Petitioner contends that Carmen Jordan's adjusted basis in GMCC should be increased by $60,000 to reflect equipment purchases she made in 1990 and 1991. The evidence introduced in support of this claim indicates that GMCC, not Carmen Jordan, was the purchaser of the equipment. Although Carmen Jordan testified that the equipment was purchased with her cash, no documentation was offered into evidence to corroborate this claim. In any event, the record does not establish that Carmen Jordan's adjusted basis in GMCC as of yearend 1992 as determined by respondent does not include any equipment purchases Carmen Jordan might have made on behalf of GMCC in 1990 or 1991.

29 Respondent concedes that these disallowed losses from 1993 and 1994 will be available to offset a portion of Carmen Jordan's unreported GMCC income for 1995, as discussed infra.

30 At trial respondent's counsel asserted that petitioner was not entitled to challenge the adjustments of GMCC's 1995 tax return, suggesting that only GMCC or Carmen Jordan would be entitled to challenge the adjustment. Respondent has not pursued this argument on brief; we deem respondent to have conceded or waived it.

31 As the Court of Appeals stated in United States v. Walton, 909 F.2d 915, 918 (6th Cir. 1990) (quoting Moraski, Note, “Proving A Negative—When the Taxpayer Denies Receipt”, 70 Cornell L. Rev. 141, 141 (1984)): “When, for example, the IRS bases an assessment on the disallowance of deductions, ‘placing the burden of proof on the taxpayer is reasonable because the taxpayer has better access to evidence of the underlying transactions.’” There would appear to be some tension between this observation and subsequent dicta in Walton suggesting that the Court of Appeals might also require the Government to provide a “minimal evidentiary foundation” where the issue in dispute is the taxpayer's “payment of expenses”. Id. at 919. For the reasons explained in the text supra, we need not attempt today to resolve any such tension.

32 We take judicial notice that on Feb. 10, 2000, Carmen Jordan petitioned this Court and that on June 23, 2000, this Court granted respondent's unopposed motion to dismiss the case on the ground that the petition was filed in violation of the 11 U.S.C. sec. 362(a)(8) automatic bankruptcy stay.

33 Chalice Farms, Inc., was registered with the secretary of state of Vermont as a corporation. Nevertheless, the parties have stipulated that “for purposes of this case, the petitioner and Alice Stockwell will be considered partners in the reporting of the income and loss from Chalice Farms, Inc. for the taxable years 1991, 1992, 1993 and 1994”.

34 On brief petitioner contends that as a consequence of the dissolution of Chalice Farms in 1994 he is entitled to “carry back the unused portion of his $173,300 contributions” in Chalice Farms. Petitioner has failed to establish the existence or amount of any such loss.

Labels:

Tuesday, September 29, 2009

Heads up on 274(d) issues

A salesman was denied deductions for various vehicle expenses because he failed to provide adequate substantiation as required under Code Sec. 274(d). The taxpayer did not keep a log of the mileage for business or other use of his vehicle and did not have any contemporaneous records of the times, dates or number of trips taken that would corroborate his reconstruction of his expenses.

Because the issue is clearly covered by regulations, there would be a $5,000 6694 penalty if a return preparer prepared this tax return and took the deduction. This is a routine issue. You cannot just put numbers into software without checking out this issue in any return you preparer.


Jack A. & Lettie G. Wheeler v. Commissioner., U.S. Tax Court, T.C. Summary Opinion 2009-151, (Sept. 28, 2009)
Docket No. 25087-08S. Filed September 28, 2009.



PURSUANT TO INTERNAL REVENUE CODE SECTION 7463(b), THIS OPINION MAY NOT BE TREATED AS PRECEDENT FOR ANY OTHER CASE.

Alan C. Housholder, for petitioners. Lynette Mayfield, for respondent.


COHEN, Judge: This case was heard pursuant to the provisions of section 7463 of the Internal Revenue Code in effect when the petition was filed. Pursuant to section 7463(b), the decision to be entered is not reviewable by any other court, and this opinion shall not be treated as precedent for any other case. Unless otherwise indicated, all section references are to the Internal Revenue Code in effect for the year in issue, and all Rule references are to the Tax Court Rules of Practice and Procedure.

Respondent determined a deficiency of $5,070 in petitioners' Federal income tax for 2005. The issue for decision is whether Jack A. Wheeler (petitioner) has substantiated deductible vehicle expenses as required under sections 274(d) and 280F(d)(4).

> Background
Petitioners resided in Tennessee at the time that they filed their petition. During 2005 petitioner represented a laboratory that provided testing for clinics performing renal services, including dialysis, to patients. Petitioner's employment required him to make sales and service calls on customers. Petitioner used his personal vehicle in calling on customers. Petitioner did not maintain any logs reflecting his business use of a vehicle or any other contemporaneous records of his vehicle expenses.

On Schedule C, Profit or Loss From Business, attached to petitioners' Form 1040, U.S. Individual Income Tax Return, for 2005, petitioners reported no income but deducted $19,420 as car and truck expenses. Petitioner prepared the return for 2005. Respondent disallowed the claimed deduction and made corresponding adjustments increasing the taxable portion of petitioners' Social Security benefits and reducing deductible medical expenses.

In their petition and at trial, petitioners reduced the amount claimed for car and truck expenses to $4,841, based on a proposed amended Form 1040 and an amended Schedule C prepared by petitioners' counsel. Attached to the proposed amended Form 1040 were a Schedule A, Itemized Deductions, which included a deduction for employee business expenses, and a Form 2106-EZ, Unreimbursed Employee Business Expenses, but neither form separately identified any vehicle expenses. The reduced claim was based on reconstructed mileage for weekly visits to two labs and monthly and less frequent but regular visits to other customers or potential customers of petitioner's employer.

Discussion
Petitioner and a representative of one of his customers testified at trial. Their testimony was to the effect that petitioner made business calls on certain customers at various intervals, and they estimated the mileage to the customer's places of business from some unspecified locale. Petitioner offered a reconstructed schedule of “examples” of business calls he made on behalf of his employer during 2005, including estimates that he visited certain customers 1-1/2 times per week. Petitioners' counsel acknowledged that the reconstructed mileage was employee business expense, rather than Schedule C expense, and relied on the proposed amended return as stating petitioners' position.

Respondent objected to the testimony, to any discussion of the amended return, and to the reconstruction that did not relate to the amounts claimed on the original Schedule C. Respondent asserts that the proposed amended return was not filed and was “simply a settlement negotiation offer [and] inadmissible.”

From the time the petition was filed, it was apparent that petitioners were not relying on the Schedule C filed with their original return for 2005. If they adequately substantiated deductible vehicle expenses that should have been claimed as employee business expenses, the expenses might be allowable as itemized deductions subject to the limitations on that category of expenses. See secs. 67 and 68. Petitioners elected the small tax case procedure under Rule 171 when they filed their petition, and evidence having probative value is admissible under Rule 174(b). The testimony of petitioner and his witness had probative value in explaining petitioner's business use of his vehicle. Respondent's objections based on the difference between the original Schedule C and the reduced claim are not well founded, and they are overruled.

On the other hand, we cannot accept petitioners' counsel's argument that Rule 174(b) relaxes the standards of evidence of deductible business expenses subject to the section 274(d) requirement of substantiation by adequate records. A passenger vehicle is listed property under section 280F(d)(4). Thus deductions are disallowed unless the taxpayer adequately substantiates the amount of the expense; the time and place of business use of the vehicle; and the business purpose of the travel. These rules were adopted to preclude estimates based solely on a finding that some deductible business expenses were incurred, as allowed in other contexts. See Sanford v. Commissioner, 50 T.C. 823, 827 (1968), affd. per curiam 412 F.2d 201 (2d Cir. 1969). The statutory standard of adequacy of evidence is not modifiable by a rule regarding admissibility of evidence, such as Rule 174(b).

Petitioner admitted during trial that he did not keep a log of the mileage for business or other use of his vehicle, and he did not have any contemporaneous records that would corroborate his reconstruction. He testified only that some motel or gas receipts had been misplaced. We are not persuaded that petitioner ever had adequate records to substantiate either the $19,420 claimed on his filed return or the lesser amount of $4,841 claimed at trial. The disparity in these claims casts doubt on the reliability of petitioner's recollections in reconstructing the events of 2005.

Petitioner has adequately explained and corroborated the business purpose of his calls on customers during 2005. He has not, however, adequately substantiated the time or date and number of trips taken. His reconstruction is based on estimates and averages; obviously he did not make 1-1/2 trips in a week. His reconstruction based on weekly trips in each of 52 weeks or monthly trips in each of 12 months in 2005, without any indication of the day of the week or month on which he made those trips, is unreliable.

We give no weight to the proposed amended return prepared by petitioners' counsel, beyond the concession of reduced business mileage. The proposed amended return contains inconsistencies and obvious errors; it also sets forth other unexplained deductions that are not in issue here. Thus we need not resolve the dispute between the parties about whether the amended return was filed.

The other adjustments made in the statutory notice are automatic, and petitioners have given us no reason to believe that they are erroneous. For the foregoing reasons,

Decision will be entered for respondent.

Monday, September 28, 2009

Estoppel based on IRS misrepresentations

The Crisci case is interesting in that the IRS can be estopped from seizure and collection if the IRS made relevant misrepresentations. any excess to the trust fund tax liability.
“Estoppel is an equitable doctrine invoked to avoid injustice in particular cases.” Heckler v. Community Health Servs., 467 U.S. 51, 59 (1984). The burden of proof is on the party claiming estoppel. United States v. Asmar, 827 F.2d 907, 912 (3d Cir. 1987) (citing Lyng v. Payne, 476 U.S. 926, 936 (1986)). A party attempting to estop another private party must prove: (1) a misrepresentation by another party; (2) which he reasonably relied upon; (3) to his detriment. Fredericks v. Comm'r, 126 F.3d 433, 438 (3d Cir. 1997); United States v. Asmar, 827 F.2d at 912. In addition, the majority of circuits recognizing estoppel as an equitable defense against government claims, including the Third Circuit, impose an additional burden on claimants to establish some affirmative misconduct on the part of the government officials. United States v. Asmar, 827 F.2d at 911 n.4, 912; see also Kurz v. Philadelphia Elec. Co., 96 F.3d 1544 (3d Cir. 1996).
The court held that there was no IRS representation in this case. But this case is worth saving because the IRS often does make misrepresentations. And the IRS is often wrong on the law.


USTC Cases, Harry E. Crisci, Plaintiff v. United States of America, Defendant and Third Party Plaintiff v. Carole L. McConnell and H. Brian Crisci, Third Party Defendants., U.S. District Court, W.D. Pennsylvania, 2009-2 U.S.T.C. ¶50,647, (Sept. 21, 2009)
U.S. District Court, West. Dist. Pa.; 2:07cv1331, September 21, 2009.
Penalties, civil: Trust fund recovery penalty: Nontrust fund tax liability: Affirmative misconduct: Misrepresentation: Reliance: Reasonableness: Allocation.–
II. STATEMENT OF THE CASE
Brian was the President of Ideas in Motion-Pennsylvania, Inc. (“IIM”). Harry was the majority shareholder and owner of IIM, and McConnell was the Controller of the company. Pl. CSF ¶¶ 1, 3 and 4. Harry, Brian and McConnell were assessed a penalty of $177,145.23 by the Internal Revenue Service (IRS), pursuant to 26 U.S.C. § 6672, representing withheld income and FICA taxes of the employees of IIM that had not been timely paid to the IRS. Def. SUF ¶¶ 1 and 2. IIM had been assessed for unpaid trust fund taxes withheld from its employees' pay, and nontrust fund taxes that were owed by the corporation as employer. Id. ¶ 3. Unlike general taxes, employee trust fund liability taxes, if unpaid, may be assessed personally against the subject company's officers and/or owners.
On or about November 30, 2004, Harry, Brian and McConnell met with IRS Officers Robert Allingham (“Allingham”) and William Evans (“Evans”) to discuss the delinquent taxes and tax returns, as well as, solutions to the tax problems. Def. SUF ¶¶ 4 and 5; Pl. CSF ¶¶ 7 and 8. The Taxpayers allege that Allingham and Evans told them that the IRS was mainly concerned with collecting the trust fund taxes, as many corporations file for bankruptcy protection to avoid the non-trust fund taxes. PL. CSF. ¶¶ 9 and 10. The Taxpayers were also told to file all delinquent returns and all future returns when due and to make the required deposits moving forward. Pl. CSF ¶ 16. The Taxpayers were given time to come up with a plan to pay the back taxes. Pl. CSF ¶ 17.
Thereafter, the officers of IIM discussed several options to pay the back taxes, and ultimately decided that the best solution was to sell off the assets of IIM. Pl. CSF ¶¶ 19 and 22. Brian alleges that he had several discussions with Allingham regarding the tax liabilities, all of which were in relation to the trust fund taxes. Pl. CSF. ¶¶ 20 and 21. The Taxpayers contend that the sole purpose of the auction to sell IIM's assets was to pay off the trust fund tax liability and avoid personal liability on IIM's delinquency. PL. CSF ¶ 23. Brian further alleges that he informed Allingham of the decision to sell the corporate assets and their intention to pay off the trust fund taxes. Pl. CSF ¶ 24. Allingham indicated that the auction was an acceptable solution to the payment of the trust fund taxes, and emphasized the proceeds from the auction had to be paid directly to the IRS. Pl. CSF ¶ 25.
At the time of the auction, the outstanding tax liability of IIM was $404,197.90 of which $171,087.90 represented trust fund taxes. Def. SUF ¶ 32. After the auction, but before the certified check was issued by the auctioneer, the officers of IIM consulted with their attorney who advised them to request that only IIM's name be on the check in order to ensure that the proceeds were applied to trust fund taxes in order to eliminate as much of the personal liability of the officers of IIM as possible. Pl. CSF. ¶¶ 27 and 28. Though the officers were aware and agreed that the proceeds would be handed directly over to the IRS, Brian asked the auctioneer to make the check for the auction proceeds payable to IIM. Pl. CSF. ¶¶ 30 and 32. The net proceeds from the auction totaled $192, 210.31. Def. SUF ¶ 37.
Allingham issued a notice of tax levy to the auctioneer on March 23, 2005, in order to secure the proceeds for the IRS. Def. SUF ¶ 40. On March 24, 2005, Brian gave written instructions to Allingham stating that the auction proceeds were to be applied to the trust fund liabilities. Pl. CSF ¶ 33. Despite Brian's written instructions, the proceeds from the auction were allocated as follows: $31,119.69 to trust fund taxes from the last quarter of 2003, and the remaining $161,090.62 to non-trust fund taxes from 2003. Def. SUF ¶ 42. Harry, Brian and McConnell were then assessed the balance of the trust fund tax liability in the amount of $177, 145.33. Def. SUF ¶ 1.
III. LEGAL STANDARD FOR SUMMARY JUDGMENT
Pursuant to FED. R. CIV. P 56(c), summary judgment shall be granted when there are no genuine issues of material fact in dispute and the movant is entitled to judgment as a matter of law. To support denial of summary judgment, an issue of fact in dispute must be both genuine and material, i.e., one upon which a reasonable fact finder could base a verdict for the non-moving party and one which is essential to establishing the claim. Anderson v. Liberty Lobby, 477 U.S. 242, 248 (1986). When considering a motion for summary judgment, the court is not permitted to weigh the evidence or to make credibility determinations, but is limited to deciding whether there are any disputed issues and, if there are, whether they are both genuine and material. Id. The court's consideration of the facts must be in the light most favorable to the party opposing summary judgment and all reasonable inferences from the facts must be drawn in favor of that party as well. Whiteland Woods, L.P. v. Township of West Whiteland, 193 F.3d 177, 180 (3d Cir. 1999), Tigg Corp. v. Dow Corning Corp., 822 F.2d 358, 361 (3d Cir. 1987).
When the moving party has carried its burden under Rule 56©, its opponent must do more than simply show that there is some metaphysical doubt as to the material facts . See Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574, 586 (1986). In the language of the Rule, the nonmoving party must come forward with “specific facts showing that there is a genuine issue for trial.” FED. R. CIV. P 56(e). Further, the nonmoving party cannot rely on unsupported assertions, conclusory allegations, or mere suspicions in attempting to survive a summary judgment motion. Williams v. Borough of W. Chester, 891 F.2d 458, 460 (3d Cir.1989) (citing Celotex Corp. v. Catrett, 477 U.S. 317, 325 (1986)). The non-moving party must respond “by pointing to sufficient cognizable evidence to create material issues of fact concerning every element as to which the non-moving party will bear the burden of proof at trial.” Simpson v. Kay Jewelers, Div. Of Sterling, Inc., 142 F. 3d 639, 643 n. 3 (3d Cir. 1998), quoting Fuentes v. Perskie, 32 F.3d 759, 762 n.1 (3d Cir. 1994).
IV. DISCUSSION
The parties stipulate that the only issue in this case is whether the IRS was estopped from applying the proceeds from the auction to IIM's various tax liabilities at the discretion of the IRS rather than in accordance with the instructions of the Taxpayers. The Taxpayers contend that Allingham and Evans represented that the Government would permit a liquidation of IIM's assets for the express purpose of paying off the trust fund tax of IIM, thus avoiding personal liability, but leaving the non-trust fund taxes unpaid. The IRS, however, levied on the auction proceeds and applied the involuntary payments, according to IRS procedure, to the non-trust fund tax liability first and then any excess to the trust fund tax liability.
“Estoppel is an equitable doctrine invoked to avoid injustice in particular cases.” Heckler v. Community Health Servs., 467 U.S. 51, 59 (1984). The burden of proof is on the party claiming estoppel. United States v. Asmar, 827 F.2d 907, 912 (3d Cir. 1987) (citing Lyng v. Payne, 476 U.S. 926, 936 (1986)). A party attempting to estop another private party must prove: (1) a misrepresentation by another party; (2) which he reasonably relied upon; (3) to his detriment. Fredericks v. Comm'r, 126 F.3d 433, 438 (3d Cir. 1997); United States v. Asmar, 827 F.2d at 912. In addition, the majority of circuits recognizing estoppel as an equitable defense against government claims, including the Third Circuit, impose an additional burden on claimants to establish some affirmative misconduct on the part of the government officials. United States v. Asmar, 827 F.2d at 911 n.4, 912; see also Kurz v. Philadelphia Elec. Co., 96 F.3d 1544 (3d Cir. 1996).
The Government argues that the Taxpayer's estoppel claim fails because: (1) there is no evidence representatives of the IRS made statements that were sufficiently definite to constitute an affirmative misrepresentation; (2) their reliance on such vague and indefinite statements was unreasonable; and (3) the Taxpayers suffered no legal detriment.
A. Affirmative Misconduct By Government Officials
The Third Circuit has found that not every form of misinformation by the government is sufficient to estop the government, and not all reliance on government statements is reasonable. Fredericks v. Comm'r, 126 F.3d at 438. Affirmative misconduct requires more than a mere omission, negligent failure, or erroneous oral advice from an IRS agent. Id.; United States v. Pepperman, 976 F.2d 123, 131 (3d Cir. 1992). The Third Circuit has recognized that the authority to act, as well as the failure to do so when such authority exists, can give rise to an estoppel claim. Fredericks v. Comm'r, 126 F.3d at 440. In Ritter v. United States, 28 F.2d 265 (3d Cir. 1928), the court stated: “[t]he acts or omissions of the officers of the government, if they be authorized to bind the United States in a particular transaction, will work estoppel against the government ….” Id. at 267.
Considering the facts in the light most favorable to the Taxpayers, and drawing all reasonable inferences therefrom in their favor, there is no reliable evidence in the record that would allow this Court to elevate the vague and ambiguous statements allegedly made by Allingham and/or Evans to affirmative misconduct necessary to work an estoppel against the Government.
The Taxpayers rely on the following as evidence that a material issue of fact exists and to prove affirmative misconduct by the IRS:
(1) At the first meeting with the IRS in November of 2004, Allingham and Evans explained to Harry, Brian and McConnell “what the trust funds were” and that the trust fund taxes were “the responsibility of the officers of the corporation and that many companies actually file bankruptcy to avoid the remaining non-trust fund taxes.” Declaration of H. Brian Crisci (“Brian Decl.”) ¶ 7.
(2) Allingham and Evans were mainly concerned about the trust fund taxes. Brian Decl. ¶ 8; Declaration of McConnell (“McConnell Decl.”) ¶ 7. “[T]he government usually forgives the rest. McConnell Decl. ¶ 7.
(3) Brian had several discussions with the IRS between the initial meeting and the decision to auction IIM's assets during which the following were discussed: (1) IIM was filing and paying taxes in a timely manner; (2) the officer's of IIM were continually looking to pay off taxes and trust fund liabilities; and (3) ultimately IIM was going to auction its assets to pay off the trust fund liability. Brian Deposition p. 36.
(4) After the officers of IIM decided to sell the assets of IIM to pay the trust fund liabilities, Allingham said the auction was “an acceptable way to move forward to pay off theses liabilities, [Allingham] simply emphasized to [Brian] that the auction proceeds had to be paid directly to the IRS.” Brian Decl. ¶ 12.
(5) On March 24, 2005, Brian gave Allingham written instructions indicating that the auction proceeds were to be allocated to IIM's trust fund tax liability. Brian Decl. ¶ 18.
(6) Neither Allingham nor Evans ever told the officers of IIM that they intended to levy the auction proceeds and then allocate such proceeds first to the non-trust fund tax liability of IIM. Brian Decl. ¶ 19.
All the evidence relied upon by the taxpayers consists of the testimony of Brian, Harry or McConnell and what their understanding was regarding the intentions of the IRS. There is neither written nor oral confirmations from anyone at the IRS regarding its intent to forgive the non-trust fund tax liability or to allocate all the auction proceeds to the trust fund taxes. To the extent the IRS indicated the non-trust fund tax liability would be forgiven, that would certainly be a misrepresentation 1, but it does not rise to the level of affirmative misconduct 2.
There is no evidence that Allingham or Evans affirmatively represented to anyone at IIM that the best way to satisfy the trust fund tax liability was to auction IIM's assets. Brian testified that the decision to sell assets was that of the officers of IIM. See Brian Decl. ¶ 12. The IRS impressed upon Brian that the proceeds of the auction had to be paid directly to the IRS. At no time did the IRS indicate that the auction proceeds would be turned over to IIM. Moreover, there is no affirmative representation by the IRS regarding the allocation of the auction proceeds. With regard to IIM's written instructions to Allingham to allocate the proceeds to the trust fund taxes, such instructions were given to Allingham after the IRS had levied on the proceeds and the allocation was then fixed by IRS procedure. See Rev. Proc. 2002-26.
Based on the record currently before the Court, the Taxpayers are unable to show any affirmative misconduct on the part of the IRS, nor can the Court find a material issue of fact with regard to such issue. The Taxpayers' estoppel claim against the Government, therefore, fails as a matter of law.
B Reasonable and Detrimental Reliance
Reliance is undermined when it is based on oral advice, unconfirmed by a writing. Heckler v. Community Health Servs., 467 U.S. at 65; United States v. St. John's Gen. Hosp., 875 F.2d 1064, 1070 (3d Cir. 1989) (noting that the record was devoid of any reliable evidence to estop the government because the alleged misrepresentation was based on inadmissible hearsay, not written correspondence). Moreover, Courts have held that a private party's reliance on governmental actions or omissions is not reasonable if such acts or omissions are contrary to the law or beyond the agents' authority. The Third Circuit expressly ruled:
The acts or omissions of the officers of the government, if they be authorized to bind the United States in a particular transaction, will work estoppel against the government, if the officers have acted within the scope of their authority.
Ritter v. United States, 28 F.2d 265, 267 (3d Cir. 1928). See also Manloading & Mgmt. Assocs. v. United States, 461 F.2d 1299, 198 Ct. Cl. 628 (Ct. Cl. 1972); Walsonavich v. United States, 335 F.2d 96 (3d Cir. 1964). Courts are more likely to apply estoppel when the government's conduct involves a misrepresentation of fact, rather than a misrepresentation of law. Fredericks v. Comm'r, 126 F.3d at 444 (citations omitted). In this instance, where only a misrepresentation outside the authority of an IRS agent may exist, the Court finds any reliance by the Taxpayers upon the vague statements of the intentions of the IRS to be unreasonable.
Finally, to find that the Taxpayers suffered a detriment, the Court must consider whether the conduct attributed to the Government permanently deprived the Taxpayers of a benefit or right to which the Taxpayers were entitled, and in fact, caused the Taxpayers to change their position for the worse. Fredericks v. Comm'r, 126 F.3d at 445-446. One of the detriments Taxpayers contend they suffered was the selling of the assets and ceasing the operation of IIM as a going concern. As of the day of the auction, the total liability on the assessed taxes of IIM was over $400,000,00, and such assessment had become a lien on the assets of IIM, depriving the company of any equity in such assets. Therefore, at the time of the alleged representations regarding allocation of auction proceeds, the Government had a legal right to seize IIM's assets apply the proceeds of the sale of the assets to IIM's non-trust fund tax liability 3. Therefore, the Taxpayers' reliance on the alleged misrepresentations of Allingham and/or Evans did not deprive them of any legal right to which the Taxpayers were entitled absent the alleged misrepresentation.
V. CONCLUSION
Based on the foregoing, the Court finds that the Taxpayers' estoppel claim fails as a matter of law, and will grant the motion for summary judgment in favor of the Government. An appropriate order will follow.

Footnotes


1
IRS agents do not have the authority to forgive tax liabilities. Any forgiveness or compromise of tax liability must be affected in accordance with the provisions of Internal Revenue Code § 7122, 26 U.S.C. § 7122. A forgiveness of tax liability must be in writing and approved by the Secretary of the Treasury or his authorized delegate. United States v. Asmar, 827 F.2d at 913 n. 7. Because it is clear that an officer of the IRS has no authority to forgive or compromise a tax liability, a statement that the non-trust fund taxes would be forgiven was a misrepresentation.
2
Nor is the Court able to find that the Taxpayers reasonably relied to their detriment on such misrepresentation. In Heckler, the Supreme Court specifically stated that the general rule is "those who deal with the Government are expected to know the law and may not rely on the conduct of Government agents contrary to the law." Heckler v. Community Health Servs., 467 U.S. at 63; see also Federal Crop Insurance Corp. v. Merrill, 332 U.S. 380, 385 (1947).
3
Further, the Taxpayers admit that had they not auctioned the assets of IIM, the IRS would have levied on such assets and sold them at amounts much less than IIM was able to recoup through its auction. See Brian Decl. ¶ 23.

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Friday, September 25, 2009

Fraud penalty discussion

The Tarpo case has a good discussion of the factors considered for civil fraud. I do not blieve the civil fraud penalty under section 6663 should have been assessed under these facts under the "willfulness" requiement.


A "business trust" established by a couple, to which the husband contributed his computer programming sole proprietorship, and which paid the husband a salary, was treated as a vehicle for the improper assignment of the couple’s income, and was also treated as a grantor trust. The couple effectively retained total control over the assets and the income of the trust, and used a credit card attached to an offshore grantor trust which received all income of the business trust not otherwise paid to the husband as wages. . Accordingly, all income received by the business trust was taxable to the couple.

With respect to the deductions the couple claimed to offset their income, the couple did not maintain adequate records and had no other substantiation of such deductions The husband also failed to establish any capital loss carryforward he could use to offset short-term capital gains attributable to his separate day trading activities. Accordingly, almost all of the couple's claimed deductions were disallowed, and the husband's trading gains were computed without regard to any loss carryforward.
The husband, but not the wife, was subject to the Code Sec. 6663 fraud penalty with respect to the underpayment attributable to his actions in assigning his sole proprietorship income to the trust, for which he could not establish either reasonable cause or good faith. No evidence or argument was made with respect to any fraud on the part of the wife.

L. Tarpo and Marla J. Tarpo, et al. v. Commissioner., U.S. Tax Court, CCH Dec. 57,949(M), T.C. Memo. 2009-222, (Sept. 24, 2009)

U.S. Tax Court, Dkt. No. 10338-03; 10303-04; 12819-04, TC Memo. 2009-222, September 24, 2009.

JAMES L. TARPO AND MARLA J. TARPO, ET AL., 1 Petitioners v. COMMISSIONER OF INTERNAL REVENUE, Respondent.

MEMORANDUM FINDINGS OF FACT AND OPINION

HOLMES, Judge: James and Marla Tarpo wanted to protect as much of their income from taxation as they could. There's nothing wrong with that if done legally, but the Tarpos fell in with a specialist in abusive tax shelters. Following his advice, they put James's business into a trust, manufactured spurious deductions, and misreported large amounts of capital gains as capital losses—when they reported the transactions at all.
We wade through the available records to determine what the Tarpos owe and whether they should be penalized.

FINDINGS OF FACT

The Tarpos were a dual-income family during the years at issue—1999, 2000, and 2001. Most of their income came from James, a computer programmer who contracted his services to corporations in the name of his sole proprietorship, ATE Services. Although he had several clients during 1999-2001, he worked mostly for a corporation named MaxSys. MaxSys and most of James's other clients paid their invoices with checks made out to ATE Services. Marla Tarpo was an independent beauty consultant whose primary financial contribution during those years was the deductions in excess of income she reported on their joint tax return from her own unnamed sole proprietorship.

James Mattatall became a part of the Tarpos' life when a friend recommended his services, perhaps as early as 1997. Mattatall, as the Tarpos admitted they knew, is neither an attorney nor an accountant. He earned his living by setting up tax shelters for his clients. He is now out of that business: In 2004, the U.S. District Court in Los Angeles enjoined him from organizing, selling, or recommending tax shelters; or even from offering tax advice to clients. United States v. Mattatall, No. CV 03-07016 DDP (PJWx) (C.D. Cal., Aug. 17, 2004) (order granting plaintiff's motion for contempt and second amended injunction). Back in 1999, Mattatall recommended that the Tarpos create an elaborate scheme to route James's ordinary income into a trust, move it offshore, and then retrieve it with credit cards.

Here's how it was supposed to work:
• The Tarpos would create a “business trust,” naming Mattatall as the trustee and the Tarpos as managers. The Tarpos would get a separate mailing address for the trust to lend it credibility.
• James would then transfer ATE Services into the trust, thereby removing himself as the sole owner of his business and assigning all of the income earned from his business to the trust.
• The trust would give a portion of the income James earned back to him as wages.
• The stated beneficiary of the trust would be Prosper International, Ltd. (PIL), 2 an offshore company specializing in multilevel marketing schemes and low-cost foreign grantor trusts. Any money the trust didn't give back to James would go to PIL and be deposited in a foreign grantor trust established for the benefit of the Tarpos.
• PIL would then give the Tarpos a credit card that they could use, with the bills paid from the money in the foreign grantor trust.
In July 1999, the Tarpos created Paderborn Trust 3 with PIL as its sole beneficiary, and shortly thereafter leased a post office box at a Mailboxes, Etc. to be Paderborn's address. 4 They also “transferred” ATE Services to Paderborn by getting an employer identification number (EIN) for ATE Services and having Paderborn claim income reported under that EIN on a Schedule C attached to its tax return. 5 They then paid $2,000 to PIL to get a Freedom Card (also known as a Horizon MasterCard), and a PIL Plus Quick Start Trust (PIL Trust), which was an offshore trust specifically designed to eliminate income taxes. For an additional $200, PIL even provided the Tarpos with a foreign grantor for their foreign trust.
James received compensation from Paderborn, and any money that he didn't immediately get from Paderborn went into the PIL Trust. The Horizon MasterCard directly linked to the Trust, and the Trust used money deposited by Paderborn to pay the Tarpos' Horizon credit-card debt each month. The Tarpos were free to use the Horizon card however they wanted and only received an expense summary, never a bill.
The plan had one large hitch at the start. The Tarpos, unable to get a separate bank account set up for Paderborn until 2000, decided instead to deposit checks payable to ATE Services into their personal bank account just as they'd always done. One big exception was the checks from MaxSys, which the Tarpos cashed, depositing most of that cash into their personal account but keeping the rest. 6 Once they set up the Paderborn bank account, they began depositing all checks made out to ATE Services into it, though on at least one occasion Marla withdrew money from that account to pay the Tarpos' personal debts directly. Some money also sloshed between the Tarpos' Paderborn bank accounts over half a dozen times for no reason that we could discern.
Another of the Tarpos' big mistakes was the way that they reported their income and deductions. Each year, James prepared a Schedule C listing the income paid back to him from Paderborn, but he didn't list Paderborn anywhere on the form. Instead, he indicated that the money came through his own sole proprietorship, ATE Services, just as he always had. Both James and Marla also claimed extensive business deductions—without any records to substantiate them—which brought their taxable income down to almost nothing. They used the same tactic on Paderborn's tax return—again, without any substantiation—only there any remaining income was claimed as an income-distribution deduction 7 so that there was no taxable income. 8
James was also a very active day trader during these years, often buying and selling stocks hundreds of times per week. He did not keep any records of his bases in these stocks or his net gains and losses, and in fact he didn't even report these transactions on his 1999 and 2000 tax returns until he submitted amended returns in February 2003. 9 The Commissioner has conceded that the Tarpos are entitled to a $3,000 capital loss deduction for both 2000 and 2001. A major question is how much in capital gains or losses they had at the end of 1999.
Our finding on James's 1999 capital gains or losses has two parts—the loss carryforward and sale proceeds. Neither James nor the Commissioner was able to provide a precise accounting of the Tarpos' capital gains or losses for 1999, so we pieced together the information from what was in the record. James's 1999 amended return included a $34,794 short-term capital loss carryforward, but he offered no substantiation for it at trial. A taxpayer's returns alone do not substantiate deductions or losses because they are nothing more than a statement of his claims. Wilkinson v. Commissioner, 71 T.C. 633, 639 (1979); Roberts v. Commissioner, 62 T.C. 834, 837 (1974). To hold otherwise would undermine our presumption that the Commissioner's determination is correct. See Rule 142; Halle v. Commissioner, 7 T.C. 245, 247 (1946), affd. 175 F.2d 500 (2d Cir. 1949). We therefore find that James had no short-term capital loss carryforward to apply to his 1999 short-term capital gains.
We next turn to figuring out the sale proceeds from James's day trading in 1999. The Commissioner subpoenaed E*Trade Financial Corporation and obtained Forms 1099 listing all of James's trades in 1999. We entered the trades into a spreadsheet and calculated the gain or loss for each company he invested in and found the aggregate gain to be $91,709. The table below shows the gain or loss for each company. 10 James closed out his position in most of the companies by the end of 1999, but he still held shares in the italicized companies at the end of the year. Since we could not match the shares that were sold with their respective purchase date for such companies, we applied the so-called “FIFO Rule,” where the basis in the first lot or share that needs to be identified, on account of a sale, equals the basis of the earliest of those lots purchased. See sec. 1.1012-1(c), Income Tax Regs.
Company Sale Price Basis Gain/(Loss)
At Home $27,204.14 $25,671.15 $1,532.99
Advanced Fibre 11,553.46 12,096.15 (542.69)
Amazon 387,918.52 386,840.35 1,078.17
Applied Mic 15,154.54 13,194.95 1,959.59
Conexant Systems $95,655.69 $89,606.00 $6,049.69
Cyberian Outpost 145,361.71 144,499.60 862.11
E*Trade 368,554.48 355,703.58 12,850.90
Earthlink Network 41,808.70 43,314.90 (1,506.20)
Equity Residential 21,354.33 0.00 21,354.33
IKOS Systems 19,979.38 16,727.40 3251.98
KN Energy Peps 35,133.92 0.00 35,133.92
Netsilicon 20,545.70 17,977.40 2568.30
Purchasepro 33,795.26 38,559.85 (4,764.59)
RealNetworks 281,266.28 281,935.30 (669.02)
Sharper Image 16,729.49 11,207.45 5,522.04
Sportsline.com 16,459.54 17,364.90 (905.36)
Track Data 586.27 707.45 (121.18)
Uroquest Medical 2,266.50 0.00 2,266.50
VISX Delaware 96,743.15 90,956.00 5,787.15
TOTAL 1,638,071.06 1,546,362.43 91,708.63
In 2002, the Commissioner chose the Tarpos' 1999 return for audit. The Tarpos showed up with Mattatall, but didn't bring any of the requested documentation and didn't answer any questions. Instead, they simply handed the examiner affidavits attesting to the truth of the items claimed on their tax returns. They also brought amended tax returns for 1999 and 2000 which included previously unreported stock transactions as well as unreported dividends and interest.
In an effort to get some documentation other than the affidavits, the examiner set up another meeting. This time, Marla showed up alone with a box full of disorganized receipts. She again refused to answer any questions, so the examiner subpoenaed records from the Tarpos' banks, their brokers, and the companies that had used James's services. The Commissioner finally sent a notice of deficiency for 1999 in April 2003. It was signed by an IRS employee with the title Technical Services Territory Manager.
The Tarpos' conduct during the audit of their 1999 return sparked an audit of their 2000 and 2001 returns, which the Commissioner quickly extended to Paderborn's returns for those years. The Tarpos did not respond to any of the examiner's requests for information, and more third-party summonses followed.
In the notices of deficiency, the Commissioner disallowed all of the Tarpos' claimed deductions and set up a whipsaw position, attributing the same income to both Paderborn and the Tarpos. The notices of deficiency for the 2000 and 2001 tax years of both the Tarpos and Paderborn were also signed by the same IRS employee.
The Tarpos timely petitioned us for review of all three notices. The cases were tried together in Los Angeles, where the Tarpos resided when they filed their cases.
OPINION
I. Jurisdiction
The Tarpos open with a frivolous jurisdictional argument. They claim that the notices of deficiency are invalid because a “Technical Services Territory Manager” is not authorized to issue them. Statutory notices of deficiency are valid only if issued by the Secretary of the Treasury or his delegate. Kellogg v. Commissioner, 88 T.C. 167, 172 (1987); see also secs. 6212(a), 7701(a)(11)(B), (12)(A)(i). The Technical Services Territory Manager position is part of the Small Business/Self-Employed (SB/SE) division of the IRS. SB/SE Territory Managers were specifically delegated the authority to send notices of deficiency in Delegation Order No. 77 (Rev. 28), 61 Fed. Reg. 30937 (June 18, 1996) (effective May 17, 1996). That delegated authority was re-authorized in Delegation Order 4-8, Internal Revenue Manual pt. 1.2.43.2 (Feb. 10, 2004). There is no question that the IRS employee who signed the notices of deficiency had the authority to do so. We therefore hold that we have jurisdiction.
II. Validity of Paderborn Trust
The Commissioner views Paderborn as a fat target, and fires three weapons at it: arguments that Paderborn is a sham trust, that it is a grantor trust, and that Tarpo was just assigning his income to it. We begin by describing how Paderborn worked.
A. Operation of Paderborn
The purpose of the Paderborn/PIL Trust/Horizon MasterCard arrangement was to reduce or eliminate income taxes. By transferring ATE Services to Paderborn and calling James an independent contractor of ATE Services rather than its sole proprietor, James claims he could be paid a fixed amount which he could then offset with unreimbursed Schedule C expenses. Paderborn deducted what it paid to James as “contracted development.” Everything that remained in Paderborn at the end of the year was transferred to the PIL Trust, shipped from the United States, and placed in the hands of foreigners not subject to the Code. By using the Horizon MasterCard, which was paid directly by the PIL Trust, the Tarpos could access the money without repatriating it.
On paper, most of the earned income was reported somewhere. The money which would have been reported on James's Schedule C before the trusts were established was instead reported for 1999-2001 as follows:
1999
2000
2001
1
2
Since Paderborn had no separate bank account in 1999, everything that was designated as going to Paderborn was actually cashed by the Tarpos and deposited in their personal checking account. For the other years, anything noted as paid to Paderborn was actually deposited in Paderborn's checking account. Whenever PIL received money, it deposited that money into the PIL Trust.
B. Improper Income Assignment
A basic income tax principle is that a taxpayer is taxed on the income that he earns, and that income cannot be assigned to another. Commissioner v. Banks, 543 U.S. 426, 433-34 (2005); Lucas v. Earl, 281 U.S. 111, 114-15 (1930). When a taxpayer tries to assign the right to future income to another person, the IRS and courts ignore the attempt for tax purposes; the assignor pays all the taxes he would have paid had he not assigned the income. Banks, 543 U.S. at 433-34; see also Burnet v. Leininger, 285 U.S. 136 (1932) (can't escape tax on profits by assigning them); Wesenberg v. Commissioner, 69 T.C. 1005, 1010-11 (1978) (conveyance of earned income ineffective when taxpayer retains “ultimate direction and control over the earning of the compensation”).
Transferring ATE Services to Paderborn didn't actually change anything other than which taxpayer identification number the income was reported under. James still did all the business development, performed all the work, and signed all the timesheets. He was still the one earning the income, and it never left his control. At one point during the trial, James testified that he was assigning his income to Paderborn:
COURT: Okay. So what you were doing then, if I can understand this right, is you would go to a company like MACSIS [sic] or N.H. Services, you would contract with them, and then the idea was for you to assign the income to the Paderborn Trust?
JAMES TARPO: Right.
It doesn't get much simpler than that.
We therefore find that the Tarpos improperly assigned James's earned income to Paderborn. We must disregard Paderborn, and will treat James as ATE Services' sole proprietor.
C. Grantor Trust
The Commissioner also argues that Paderborn and PIL were grantor trusts. A grantor trust is created when a person contributes cash or property to a trust, but continues to be treated as owner of it at least in part. See secs. 671-679. The Code tells us to disregard such a trust as a separate taxable entity to the extent of the grantor's retained interest. Sec. 671; sec. 1.671-2(b), Income Tax Regs. And the grantor of a grantor trust is supposed to report his portion of the trust's income and deductions on his own tax return, not the trust's.
We find that the Tarpos retained ownership of all of the assets in Paderborn and the PIL Trust. Sections 674, 676, 677, and 679 11 state that the grantor will be treated as the owner of a trust when he keeps certain powers or takes certain actions. Here's a summary of what the Tarpos did that makes their trusts grantor trusts:
• A grantor may dispose of the trust's income without the approval or consent of an adverse party. Sec. 674(a). The Tarpos had unfettered access to all of Paderborn's assets as comanagers with signatory authority on the Paderborn bank account.
• A grantor can revest title over the property in himself. Sec. 676(a). The Tarpos could revest title of Paderborn assets in themselves at any time; Marla proved this when she purchased a cashier's check payable to James's broker, Computer Clearing Services, to pay off personal debt.
• A grantor trust's income can be distributed or accumulated for future distribution to the grantor or the grantor's spouse. Sec. 677(a). All of the money paid into Paderborn was paid back out to either the Tarpos directly or to PIL, which then distributed the money to the Tarpos via the Horizon card.
• The grantor directly or indirectly transfers property to a foreign trust. Sec. 679(a). The Tarpos transferred property directly to a foreign trust when they set up the PIL Trust, and they transferred property indirectly to the same trust every time Paderborn sent it money.
We therefore find in the alternative that Paderborn and the PIL Trust should be disregarded for income tax purposes as nothing more than grantor trusts. 12
III. Income and Deductions
Having decided that all Paderborn's income properly belongs to the Tarpos, we turn to figuring out what that income was. We then discuss the deductions claimed by both James and Marla on their respective Schedules C that might reduce the portion of that income that is taxable.
A. Income for 1999, 2000, and 2001
The Commissioner did not contest Marla's reported income for any of the years at issue, so we go straight to the question of what income James should have reported on his Schedule C. Since the Tarpos did not produce any records during the audit, the Commissioner relied on bank statements. Through these statements, he discovered the names of the companies that paid James for his services, and was able to find out exactly how much they paid ATE Services each year. From there, the Commissioner was able to compare the bank statements for the Tarpos, ATE Services, and Paderborn to determine where the money was going and how much the Tarpos were actually making. Summarizing the information in tabular form shows how much each client paid James:
1999
CLIENT AMOUNT
Alcon Laboratories, Inc. $8,840
Winsoft Inc. 5,400
USANA, Inc. 988
N.H. Resources, Inc. 15,115
MaxSys Technologies 21,710
Total 52,053
2000
CLIENT AMOUNT
MaxSys Technologies $110,663
Total 110,663
2001
CLIENT AMOUNT
MaxSys Technologies $87,141
Vektrek Electronic Sys 375
Total 87,516
By using these methods, the Commissioner determined that the Tarpos had gross income which should have been reported on James's Schedule C as follows:
1999 2000 2001
$52,053 $110,663 $87,516
We agree with the Commissioner and find that these totals are accurate. 13
B. Deductions for 1999, 2000, and 2001
Expenses are allowable if they are “ordinary and necessary,” but a taxpayer must keep records to show the connection between the expenses and his business. Sec. 162(a); Gorman v. Commissioner, T.C. Memo. 1986-344; sec. 1.6001-1(a), Income Tax Regs. If the taxpayer has no records, but we find he must have incurred some expenses, we can estimate the amounts of those expenses as long as there is something in the record to support the estimate (the Cohan rule). Williams v. United States, 245 F.2d 559, 560 (5th Cir. 1957); Cohan v. Commissioner, 39 F.2d 540, 543-44 (2d Cir. 1930). The Cohan rule does not apply to expenses that the Code lists in section 274(d); taxpayers have to meet special substantiation requirements for these listed expenses. Sec. 1.274-5T(a), Temporary Income Tax Regs., 50 Fed. Reg. 46014 (Nov. 6, 1985); Sanford v. Commissioner, 50 T.C. 823, 827-28 (1968), affd. 412 F.2d 201 (2d Cir. 1969).
The Tarpos claim a great many business expenses, including those claimed by Paderborn on its return. These include expenses we can estimate under the Cohan rule—cost of goods sold, depreciation, interest, supplies, business use of their home, cleaning, equipment, gifts, training, sales promotion—as well as section 274(d) items that we can't estimate under Cohan, like car-and-truck expenses, travel, and meals and entertainment. At no point during audit or pretrial discovery did the Tarpos provide any receipts or explanations for any of these items. During the trial itself, Marla didn't testify at all and James never testified about the disputed deductions.
All the Tarpos ever provided were unsupported affidavits swearing to the truth of each item on each tax return. They did this at Mattatall's suggestion, but as other Mattatall clients have discovered, self-serving affidavits are not substantiation. See Doudney v. Commissioner, T.C. Memo. 2005-267; Kolbeck v. Commissioner, T.C. Memo. 2005-253.
Since we have nothing on which to base any Cohan estimate, we hold that all but one of the Schedule C deductions claimed by the Tarpos are disallowed for lack of substantiation either because they are section 274(d) deductions subject to a higher substantiation standard, or because there was no evidence provided from which this Court could make a reasonable estimate of expenses. The one deduction which we will allow as an ordinary and necessary business expense under Cohan is the $108 licensing fee Marla incurred in 2000. We allow this one because we realize that a beauty consultant requires a license to operate and we are convinced that she actually paid the licensing fee.
IV. Penalties
A. Fraud Penalty
Section 6663 imposes a penalty equal to 75 percent of the underpayment when that underpayment is attributable to fraud. The Commissioner has the burden of proving fraud, and he has to prove by clear and convincing evidence that the taxpayer underpaid and that the underpayment was attributable to fraud. Sec. 7454(a); Rule 142(b); Miller v. Commissioner, T.C. Memo. 1989-461. If the Commissioner succeeds in proving that even part of the underpayment is due to fraud, then “the entire underpayment shall be treated as attributable to fraud, except with respect to any portion of the underpayment which the taxpayer establishes (by a preponderance of the evidence) is not attributable to fraud.” Sec. 6663(b).
The Commissioner easily passes the first part of this test. He proved there was an underpayment when he proved that the Tarpos didn't report the additional income they tried to assign to Paderborn.
But was a portion of that underpayment due to fraud? Fraud is the “willful attempt to evade tax,” and we make that determination by looking at the entire record of a case. Beaver v. Commissioner, 55 T.C. 85, 92 (1970). There are many factors which can indicate fraud, including:
• understatement of income
• inadequate records
• concealing assets
• failure to cooperate with tax authorities
• mischaracterizing the source of income
• implausible or inconsistent explanations of behavior.
See Spies v. United States, 317 U.S. 492 (1943); Bradford v. Commissioner, 796 F.2d 303 (9th Cir. 1986), affg. T.C. Memo. 1984-601; Meier v. Commissioner, 91 T.C. 273 (1988). Although James Tarpo exhibited each and every one of these factors, the most telling was his attempt to conceal assets offshore with PIL. The only plausible reason he had to set up such a foreign grantor trust, where the sole beneficiary was a company which James knew very little about, was to try to hide assets from the IRS to avoid paying taxes. We therefore find that, at least in respect to the income assigned to Paderborn, the Commissioner has proven fraudulent intent by clear and convincing evidence.
Since a portion of the underpayment is attributable to fraud, all of the underpayment will be subject to the fraud penalty unless the Tarpos can show by a preponderance of the evidence that some of the underpayment was not due to fraud. We find that James has met this burden in regard to the capital gains for 1999. We therefore hold that the underpayment attributable to his understating his capital gains is not subject to the fraud penalty. We also find that the Commissioner has met his burden of proof only with regard to James; he has not shown that Marla acted with fraudulent intent—about her intent there was no evidence or argument at all.
James asserts that he had reasonable cause for his return position and that he acted in good faith. Sec. 6664(c). He claims that the entire fiasco is Mattatall's fault, and that his good faith reliance on Mattatall reasonably caused him to act the way he did. While that excuse might work when a licensed and reputable tax professional offers the advice, it doesn't work here.
James never once asked for any credentials from Mattatall, and in fact admitted under oath that he knew Mattatall was neither an attorney nor an accountant. James also knew that the foreign trust setup was specifically created to hide the true ownership of assets and income from the IRS. We therefore find that James has not proved a defense to fraud.
B. Accuracy-related Penalty
Section 6662(a) and (b)(1) and (2) permits the imposition of an accuracy-related penalty equal to 20 percent of the underpayment when that underpayment is due to negligence or a substantial understatement. Because the Tarpos were negligent in their recordkeeping and showed intentional disregard of the tax rules and regulations even in their reporting of their capital gains and supposed expenses, we find that the entire underpayment not attributable to fraud is subject to the accuracy-related penalty.
The same defense of reasonable cause and good faith applies to this penalty, see sec. 6664(c), and the Tarpos must show they acted as reasonable and prudent people would, see Allen v. Commissioner, 925 F.2d 348, 353 (9th Cir. 1991), affg. 92 T.C. 1 (1989). This, we find, they failed to do. James didn't keep any regular records of his day-trading activities despite knowing that he would owe tax on any capital gains he made. He is business savvy and should have known better. And neither Tarpo claims to have kept any other sort of business records. Reasonable people usually keep records to show their entitlement to deductions or at least to track income and expenses. The Tarpos are either not acting reasonably or are not telling the truth. Either way, they do not have a credible defense to the accuracy-related penalty.
For the above reasons,
Decisions will be entered under Rule 155.

Thursday, September 24, 2009

Testimony provided to Oversight Subcommittee

http://waysandmeans.house.gov/hearings.asp?formmode=view&id=7965

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Statement of Alvin S. Brown

Chairman Lewis, Ranking Member Boustany, and Members of the Subcommittee on Oversight, I appreciate the opportunity to address Internal Revenue Service (IRS) operations now subject to its annual review. Mr. Chairman, I agree with your concern about IRS levies on Social Security income. The IRS often levies Social Security income without taking into account whether the taxpayer is left with money for food, housing, transportation and other necessary expenses. Under section 6343(a)(2)(D) of the IRS Code, the IRS is prohibited from any levy that creates an “economic hardship.[1]” My testimony deals with the larger topic of counterproductive IRS tax lien and tax levy practices. In many cases, these liens and levies not only cause economic hardship to individual and business taxpayers, they even have the perverse effect of decreasing tax revenue and, correspondingly, increasing the Tax Gap.

I am a tax attorney with the law firm of Alvin Brown & Associates[2] and the founder of The IRS Forum, www.IRSForum.org,[3] a 501(c)(3) educational organization. I had a 27 year career in the Office of the IRS Chief Counsel. I have been representing taxpayers throughout the U.S. and abroad specializing in IRS controversies for more than a decade. With this experience within and outside of the IRS, I have valuable insight on current IRS practices that negatively impact both the collection of revenue and economic growth. My testimony reflects my personal experiences with the IRS representing taxpayers before the IRS. I will support the following statements:

In many instances, IRS tax levies of salaries of taxpayers and gross income of businesses reduce the collection of tax revenue, destroy small businesses, cause the loss of jobs, and reduce tax compliance;
In many instances, IRS tax liens also reduce tax revenue, destroy small businesses, cause the loss of jobs and reduce tax compliance.
The Subcommittee’s annual review of the IRS fiscal year budget proposal, with testimony from the IRS Commissioner, while important, does not assure effective IRS oversight because the Subcommittee does not have access to sufficient data to independently evaluate the operations and activities of the IRS. Greater transparency of IRS operations and activities is necessary for effective oversight of the IRS. There is ample available data that could provide transparency of IRS practices in its administration of the tax law, but it has not yet been compiled in an accessible database.
The Subcommittee would be assisted in providing more effective IRS oversight if it could reference a data base of taxpayer complaints about IRS abuses of power, abuses of discretion, misapplication of law, and even misconduct. If the individual taxpayer complaints to Members of Congress were saved and combined, organized by issue, and uploaded into a permanent data base, the Subcommittee would have important data to provide needed IRS transparency and result in more effective IRS oversight. Such organized data are necessary to identify IRS positions and practices that have a negative impact on the economy and on the collection of tax revenue.
The National Taxpayer Advocate does not effectively use its authority to issue Taxpayer Assistance Offers under section 7811(a) to impede IRS abuses of power and abuses of discretion.
Counterproductive Tax Liens

Section 6321 of the Internal Revenue Code creates an unperfected (statutory) tax lien on taxpayers in cases where there is an unpaid tax debt. The IRS thereafter has the plenary discretion to file the Notice of Filing of Tax Lien (NFTL) in the public records. The NFTL is immediately picked up by the credit agencies in their credit reports. The tax lien will not be released until the tax debt is paid or otherwise discharged. The credit agencies keep a record of the tax lien on the taxpayer’s credit report during the period that the tax debt remains unpaid and for seven years after the tax debt is released or discharged. The NFTL has severe negative economic consequences on individual and business taxpayers often initially and long after any tax obligation is resolved.

The IRS criteria for filing tax liens is found in the Internal Revenue Manual (IRM) 5.12.2.4.1 (05-20-2005). The IRM requires a filing of a NFTL if the unpaid balance of assessment (UBA) is $5,000 or more. Even where a taxpayer has offered to pay in full the UBA in an Installment Agreement (including interest and penalties), the IRS mandates the filing of an NFTL.

A mandatory NFTL, in effect, is in conflict with the intent of Congress to make the NFTL discretionary. IRM 5.12.2.4.1 requires the NFTL without taking into account whether or not the tax lien will cause an economic hardship or reduce taxable revenue. My personal experience with IRS Revenue Officers is that they will file an NFTL even when they know it will cause irreparable economic harm to an individual or business taxpayer because they believe they are mandated to file the NFTL by the IRM despite the Congressional statute to the contrary.

The underlying tax policy for IRS tax liens is to protect the standing of the IRS as a creditor over other future creditors. That tax policy is not served where an individual taxpayer has limited assets, owns no real estate and has limited income that is only sufficient for reasonable and necessary living expenses. That tax policy is not served if the result of an NFTL is a large loss of current and future income for individual and business taxpayers.

An NFTL filed in the public records is devastating to individual taxpayers. We live at a time where there is immediate access to credit reports. Landlords will often not rent an apartment to a taxpayer with an NFTL. Increasingly, employers will not hire a taxpayer with an NFTL, and some employers will dismiss an existing employee with an NFTL. The reduction of taxable income caused by an unnecessary NFTL undercuts the ability of a taxpayer to pay his or her outstanding tax liability. For that reason, this IRS practice actually reduces revenue and expands the Tax Gap.

When an NFTL is filed on a business, current lenders often withdraw financing (e.g., account receivable factors), and the business will not be able to get credit for inventory and supplies. Business customers often terminate their business relationship immediately when they have notice that their supplier or service provider has an NFTL. The bad credit caused by an NFTL means that the business will lose the ability to borrow money to purchase inventory or borrow to invest in further business growth. An NFTL is one of the largest factors contributing to the demise of small businesses. When the business closes, there is a loss of business income, a loss of tax revenue and a loss of jobs.

In small-asset situations and in the case of pure service providers (e.g., consultants and other professionals), an NFTL has no effect or purpose other than to ruin the credit of the service business taxpayers. Insurance companies will not accept contracts from an insurance broker with an NFTL. Stock brokers will lose licenses as the result of an NFTL. The Department of Defense will not do business with an individual or a business with an NFTL and will also refuse to renew an existing contract. Without real estate or other large assets, the purpose for an NFTL, to give the IRS a security interest in assets, is not met. In these cases the NFTL causes a loss of employment, a loss of business income, creates economic hardship, and discourages tax compliance with a resulting negative impact on the Tax Gap. Taxpayers incurring economic hardship as the result of an NFTL may join the underground economy and not be tax compliant.

It is counterproductive to file tax liens on taxpayers who are willing to pay their tax debt in full, including interest and penalties in an Installment Agreement. In Installment Agreement cases, individuals and businesses are penalized with a mandatory NFTL even though they want to pay their outstanding tax debt in full because of the NFTL. A loss of business due to the NFTL diminishes the ability of a taxpayer to make the Installment Agreement payments.

If an NFTL is filed when an Offer in Compromise (OIC) for a business is under active consideration, the resulting loss of business income will correspondingly reduce the amount needed to pay the IRS to settle the outstanding business tax debt because business income is considered in the settlement calculations.

The economic damage caused by an unnecessary and economically counterproductive tax lien is inconsistent with the Mission Statement of the IRS to apply the tax law with “fairness” and with “integrity.” It is senseless for the IRM to mandate an NFTL without measuring whether the economic damage or hardship caused by the NFTL outweighs the benefit of the NFTL. There is no current legislative threshold or “safe harbor” to prevent an economically counterproductive NFTL. My comment in this matter only applies to situations where the NFTL is not justified. Obviously, there are situations where the NFTL is needed to protect the creditor status of the U.S.

An NFTL can be appealed under section 6320 and section 6630 for a collection due process or equivalency hearing. The problem is that these statutes do not offer NFTL relief; they merely provide collection alternatives such as the filing of an OIC or an Installment Agreement. There is an anomaly that section 6320 and section 6330 provide an opportunity to appeal an NFTL but no opportunity to ask for a tax lien withdrawal even if the tax lien is causing an economic hardship and a loss of income. Collection due process appeals under section 6330 provide no relief even when an NFTL is causing an economic hardship. The discretion of the IRS to withdraw a tax lien under section 6323(j) is rare and unusual. Although the National Taxpayer Advocate (NTA) has been granted the authority to stop a “significant hardship” under section 7811, that authority is underused, rare, unusual and difficult to achieve on any tax lien issue.

Section 7811(a)[4] of the Code permits the NTA to stop a “hardship” with a Taxpayer Assistance Order (TAO) as the result of the manner in which the internal revenue laws are being administered by the IRS. Notwithstanding, a TAO is not used on tax lien issues under the authority of the “hardship” language of section 7811. Instead the NTA involvement with tax lien issues is considered, if at all, for tax lien withdrawal requests under section 6323(j)(1)(D) with the consent of personnel at the centralized IRS lien office. The NTA defers to the IRS centralized lien offices to resolve tax lien withdrawal matters. The IRS consent to a tax lien withdrawal is rare and unusual (e.g., situations where there has been an error or mistake in filing the NFTL). The NTA does not use its authority under section 7811 to consider tax lien “hardships” and make determinations independent of the IRS centralized lien office in requests for lien withdrawals. The function of the NTA as an ombudsman on tax lien matters is inert and inconsistent with Congressional intent under section 7811 to use a TAO when there is a “significant hardship” and irreparable injury to taxpayers. I cannot think of greater irreparable harm than the loss of businesses, jobs and taxable revenue resulting from an NFTL when the interest of the U.S. as a creditor is economically insubstantial in contrast to the economic damage caused to individual and business taxpayers as is the case, for example, in pure service businesses.

Counterproductive tax levies

The tax policy of section 6343(a)(2)(D) to prevent or stop a levy in the case of an “economic hardship” is explicit and unqualified. Congress prohibits[5] a tax levy if the levy denies a family, food, housing transportation, medicine, health insurance, child care, court ordered payments, and other reasonable and necessary living expenses. Families in an “economic hardship” situation cannot be tax compliant. If there is a choice between food and taxes, the election will always be to feed the family. On the other hand, if taxpayers have sufficient assets and income for their necessary expenses, they are able to seek gainful employment and contribute to the tax revenue base. Taxpayers frequently quit their job when a levy on wages causes an economic hardship. My testimony today is that in almost every IRS levy of income, the IRS Revenue Officer levy invariably creates a taxpayer “economic hardship” within the meaning of section 6343(a)(2)(D) for two reasons: 1) levies on income from employment and levies on accounts receivable are continuous; and 2) the IRS sends the employer Publication 1494[6] which lists the amount exempt from income under section 6634[7]. The amounts exempt from levy under section 6664 are minimal amounts unrelated to the amounts that cannot be levied under section 6343(a)(2)(D). When employers receive Publication 1494 from the IRS, the employers erroneously believe that the levy is for all amounts that exceed the section 6634 limitations because the IRS does not also give employers instructions that will create a prohibited “economic hardship” precluded by section 6343(a)(2)(D). For this reason IRS continuous levies of wages will generally create a taxpayer “economic hardship” in conflict with the intent of Congress under section 6343(a)(2)(D). In these circumstances taxpayers often elect to work in the underground economy and avoid future tax compliance. These dire consequences result when the IRS refuses to follow the unqualified legislative mandate of section 6343(a)(2)(D). The willful failure to comply with the “economic prohibition” of 6343(a)(2)(D) is an “unlawful” act[8]. That unlawful act is not prohibited by either IRS management or the NTA.

Almost all businesses will fail if the IRS files a continuous levy on accounts receivable. Gross income is needed for taxes, payroll, and other administrative and operating expenses. A levy on gross income will usually force a business to discharge all employees and cease operations leaving an unpaid tax debt. A levy can be appealed but the business will normally be irreparably damaged before the three to six months it takes to schedule a levy appeal.

Levies on bank accounts can also be economically counterproductive. Although the bank account levies are one-time only levies and capture only the amount in the account at the time of the levy, levies can be made on the same account repeatedly at the discretion of the IRS Revenue Officer. In the case of a business bank account, the levy often takes money deposited for payroll, taxes and other necessary business administrative and operational expenses. A bank account levy on a business bank account can put it out of business resulting in a loss of jobs and taxable income.

The NTA and the IRS have taken the position that a business cannot have an “economic hardship” within the meaning of section 6343(a)(2)(D). This position apparently came from TD 9007 that published the final OIC regulations on July 23, 2002. TD 9997 states that the economic hardship standard of section 301.6343-1 on the regulations “specifically applies only to individuals.” The IRS position in TD 9007 is wrong because section 6343(a)(2)(D) does not distinguish between individual and business “economic hardship” and further because §301.6343-1(a) is expressly limited by the term in general. The “in general” preface does not exclude a business hardship. It is patently absurd for the IRS and the NTA to take a position that a business cannot have an economic hardship.

Levies can be appealed under section 6330 and that appeal, if made timely, will stop collection action. In the appeal, the Taxpayer can submit an OIC or an Installment Agreement as an alternative to the collection action. However, under section 6330(c)(2)(B), the underlying tax liability may not be raised as a basis for appeal unless the taxpayer did not receive a statutory notice of deficiency or did not otherwise have an opportunity to dispute the tax liability. The limitation to challenge the underlying liability in section 6330(c)(2)(B) is inconsistent with the fact that a taxpayer is always able to challenge the underlying tax liability in an OIC under the plain language of section 7122(a). Further, the IRS will permit “audit reconsideration.” The advantage of raising a liability issue under section 6330 is that the discretion of the IRS is subject to judicial review for “abuse of discretion” whereas there is no judicial review for an OIC.

Taxpayers are often not represented or underrepresented when tax assessments are made. I have frequently found tax issues that should have been raised had there been competent representation. In the best interest of helping individual and business taxpayers who may have an erroneous tax assessment that results in an inappropriate tax levy, taxpayers should be allowed to raise substantive issues in a section 6330 appeal even if there has been prior consideration of the substantive issues. Although section 6330(c)(2)(A)(iii) allows an OIC to be submitted, the IRS will not permit an OIC based on “doubt as to liability.” That limitation on IRS appeals of a tax levy is incorrect because the statute does not distinguish between the different types of OICs. Further, the language of section 6330(c)(2)(A)(iii) is not modified by the limitations of section 6330(c)(2)(B).

The NTA does not use its authority to issue a TAO in levy and tax lien hardship cases[9]. My office has literally filed hundreds of Forms 911, a request for a TAO, and no TAO has ever been issued in any of those cases even when the economic hardship caused by a levy is irreparable and clear “misconduct” within the meaning of 7214(a)(3). Instead the NTA attempts to orally persuade IRS Revenue Officers to stop levies that create an economic hardship. That advocacy style intervention does not always work when Revenue Officers and their managers refuse to release a levy even when they know the levy will close a business or cause an economic hardship to an individual. The refusal of the NTA to issue a TAO in “significant hardship” cases is in conflict with the legislative intent of Congress to use a TAO as a tool to intercede in those circumstances. The underutilized TAO has the obvious effect of reducing taxable revenue caused by closed businesses and lost jobs. In these instances the NTA does not stop clear IRS “misconduct.”

The problems described above in tax lien and tax levy hardship cases, and the resulting loss of tax revenue, can be ameliorated in large part if the NTA consents to use a TAO as intended by Congress under section 7811. Every Form 911 should result in an expeditious TAO if a TAO is justified at the discretion of the NTA to conform with the intent of Congress to have the NTA use its power as ombudsman for taxpayers. The NTA condones IRS misconduct if it does nothing to stop IRS misconduct on “economic hardship” issues precluded by 6343(a)(2)(D).

The Need for IRS “Transparency” to Facilitate IRS Oversight

My testimony today highlights the need for improved IRS transparency and oversight on a daily basis rather than at the time of the annual oversight review by the Subcommittee of the IRS fiscal year budget. The economically counterproductive activities of the IRS that I have identified in this testimony would likely not occur if visible to Congress, the media and the public.

The Internal Revenue Code quite properly limits disclosure of its interaction with a taxpayer[10]. The privacy of a taxpayer is protected by law. For this reason nobody knows what actions the IRS takes except the IRS, the taxpayer, the taxpayer’s representative, and in some cases the NTA. However, taxpayers can voluntarily reveal their IRS experiences with or without disclosing their identity.

“Transparency” - National Data Base - Voluntary Taxpayer Submissions

It is fair to say that every Member of Congress gets complaints about the IRS regularly. Constituents complain about IRS abuses of power, IRS misconduct, erroneous applications of law, and hardship. However, these data are not saved; becoming wasted data. The complaint traffic to the NTA is also wasted data. There is no national data base for IRS complaints. Obviously, the IRS will be hesitant to be overly aggressive on a tax matter or to engage in the counterproductive practices I have described if IRS actions were more transparent to the public, to the media, and to Congress.

The Subcommittee on Oversight will be able to execute its oversight function over the IRS more effectively if it has access to a national data base reflecting IRS interactions with taxpayers. Taxpayers throughout the U.S. voluntarily voice their IRS experiences constantly to all Members of Congress as well as to the members of this Subcommittee. That empirical data is available but it is neither organized nor saved. There is also no platform to upload that data to a combined data base. Such a national data base of taxpayer and constituent experiences, if collected, organized by issue and analyzed would give this Subcommittee and Congress the IRS transparency that is presently lacking.

The IRS Forum as a Vehicle to Provide IRS Transparency and Oversight

The IRS Forum has been approved by the IRS as a 501(c)(3) educational organization. The IRS Forum has a presence on the internet at www.irsforum.org to encourage the uploading of the experiences of taxpayers with the IRS. The sole purpose of this is to provide IRS transparency to facilitate oversight of the IRS.

The IRS Forum provides an internet portal for taxpayers to record and discuss their IRS experiences with other taxpayers who have suffered with the same or similar abusive experiences. Individual taxpayers will be able to facilitate positive changes in the IRS by joining with hundreds and thousands of other taxpayers with similar experiences and similar issues into a unified national voice of sufficient magnitude to get the attention of the media, top management of the IRS, and the Congress for constructive changes in the law and the administration of the tax law. Taxpayers are thereby empowered.

At the IRS Forum, with a platform to upload experiences, taxpayers can fully discuss their IRS experiences along with the factual and legal issues considered by the IRS. This transparency will put the spotlight on IRS practices and encourage the IRS to treat taxpayers with integrity and fairness.

In particular, the IRS Forum data base has important potential benefits for Members of Congress:

The IRS Forum will accumulate constituent data that would otherwise not be saved.
To the extent that constituents vent their IRS complaints directly to the IRS Forum, that action will free up more Member and staff time for their legislative responsibilities.
Actual case histories of IRS administrative and operational problems create “talking points” for tax simplification or tax reform.
Constituent problems and complaints about the IRS have far greater impact when they join with a larger group with similar issues at the IRS Forum.
Transparency of IRS operations enhances the ability of the Subcommittee on Oversight to identify IRS abuses of power, abuses of discretion, and misapplication of the law. For example, the tax lien and tax levy abuses discussed above would be identified from voluntary submissions of cases of these abuses by taxpayers to the national data base.
When the data hits critical mass, it will get the attention of the media, the public and Congress for possible corrective legislation.
When tax legislation is being considered, that data base in the IRS Forum could be searched for information and guidance.
· In addition, the transparency of the accumulative data will be educational for all taxpayers and constituents.

The non-partisan IRS Forum is not a commercial venture. There are no membership fees, and the IRS Forum does not accept advertising. The IRS Forum functions only as a non-profit educational organization on IRS positions and administrative practices.

The Immediate Goal of the IRS Forum: to provide assistance to the Congress in conducting oversight of the IRS by accumulating and making publicly available data regarding IRS practices. To facilitate the accumulation of that data, the members of the Subcommittee on Oversight, other Members of the House Committee on Ways and Means, and other members of the House and Senate are encouraged to refer constituent IRS complaint traffic to the IRS Forum. That cooperation would help in building a permanent institutional data base of taxpayer experiences with the IRS to facilitate IRS transparency and oversight.

Summary

I thank the Chairman and this Committee for receiving this testimony. From my personal experiences in dealing with the IRS on behalf of clients, I have identified IRS administrative practices dealing with tax liens and tax levies that reduce the collection of tax revenue, increase the Tax Gap, create economic hardship for taxpayers, contribute to a loss of jobs, result in business failures, and conflict with sound tax policy. Correction of these counterproductive practices by the IRS will operate as a “revenue raiser” that will assist in reducing the Tax Gap and have a positive impact on the economy.

I believe it is important for the NTA to change its procedures to use a TAO for every significant economic hardship. I have also made some suggestions to improve the rights of taxpayers in collection due process appeals and also broaden the issues that can be petitioned to the Tax Court.

IRS oversight by the Subcommittee will be significantly enhanced with improved IRS transparency from a permanent national data base with information voluntarily uploaded by taxpayers to the IRS Forum. With guidance from the Subcommittee, I am willing to modify the IRS Forum in any way that would help serve the non-partisan oversight objectives of the Subcommittee and the constituents of all Members of Congress. It is also helpful to the U.S. public to have a platform to learn about tax issues. The simple idea of a permanent data base on the internet managed by the IRS Forum is an elegant way to improve IRS transparency and oversight and serve its educational purposes. The IRS Forum can meet all of its educational objectives if Members of Congress elect to inform constituents, complaining about the IRS, that they can upload those experiences to the IRS Forum and gain the benefit of interacting with other taxpayers with similar issues and at the same time, help make the IRS transparent and also help make their experiences part of an important data base.

Given my long history of dealing with the IRS as a manager in the Office of the IRS Chief Counsel and also in representing taxpayers before the IRS, I would be pleased to make myself available to the Subcommittee and its staff on any of the issues discussed in this testimony, the IRS Forum, and on any other IRS matter including some suggestions for revenue raisers that can improve tax compliance.

Respectfully submitted,


Alvin S. Brown, Esq.

(703) 425-1400 ex 106

ab@irstaxattorney.com


--------------------------------------------------------------------------------

[1] Section 301.6342-1(b)(4)(i) of the Income Tax Regulations states the general rule that a levy creates an “economic hardship” if the levy, “in whole or in part will cause an individual taxpayer to be unable to pay his or her reasonable basic living expenses.”

[2] 9667B Main Street, Fairfax, VA 22031 (703) 425-1400 ab@irstaxattorney.com.

[3] The IRS Forum offers an internet platform for taxpayers to voluntarily upload their IRS experiences by issue. The objective of the IRS Forum is to provide IRS “transparency” with a national data base of actual taxpayer interactions with the IRS. A perpetual data base of taxpayer experiences with the IRS will provide educational insight on IRS operational and administrative practices.

[4] Under section 7811(a)(1)(A) the NTA has the authority to issue a Taxpayer Assistance Order if “the National Taxpayer Advocate determines the taxpayer is suffering or about to suffer a significant hardship as a result of the manner in which the internal revenue laws are being administered by the Secretary * * *.” Section 7811(a)(3)(D) a “significant hardship” includes “irreparable injury to, or a long-term adverse impact on, the taxpayer if relief is not granted.”

[5] Through section 301.6343-1(b)(4) of legislative regulations under 6343(a)(2)(D)

[6] Last published in 2007

[7] Section 6634 of the Code identifies property exempt from levy. The exclusion includes clothing, tools and other items including the minimum exclusion from income under section 6634(d). The small section 6634 exclusions from levy are unrelated to the “economic hardship” prohibition under 6343(a)(2)(D)

[8] Section 7214(a)(3) makes it an “unlawful act” when an IRS willfully fails to comply with a tax statute. Any unlawful act requires mandatory dismissal from the IRS and subject that employee to a fine of up to $10,000

[9] IRM 13.1.2.D (12-15-2007), requires a TAO in stalemate situations involving a “significant hardship.”

[10] Section 6103

return preparer fraud

The Cadet case illustrates the IRS use of undercover agents in examining tax return preparers. I have had clients who were under criminal examination attributable to undercover recordings and videos. Even if you file perfect tax returns, always remember that your new client can really be a probe by an IRS undercover agent.


USTC Cases, United States of America v. Joseph Cadet, Defendant., U.S. District Court, E.D. New York, 2009-2 U.S.T.C. ¶50,643, (Sept. 11, 2009)
U.S. District Court, East. Dist. N.Y.; 08-CR-458 (NGG), September 11, 2009.



The personal tax history of a tax preparer charged with aiding and assisting in the preparation of false tax returns was inadmissible. The individual’s uncharged conduct of failing to file personal tax forms was not sufficiently similar to filing returns containing false information on behalf of others. However, the government could introduce evidence of an undercover IRS agent’s interactions with the individual to show motive, intent, willfulness and absence of mistake. The evidence was not, however, admissible for the purpose of establishing a propensity to commit crimes or a modus operandi. Finally, the IRS agent’s expert testimony was relevant to show the tax consequences of the false or inflated deductions on his clients’ tax returns and materiality of falsehood to obtain a conviction. B



MEMORANDUM & ORDER
Garaufis, United States District Judge: Currently before the court are two motions in limine pertaining to the prosecution of Defendant Joseph Cadet (“Defendant” or “Cadet”). The Government seeks to introduce evidence of uncharged acts by the Defendant. (Gov't First Mot. in Limine (Docket Entry #30) (“Gov't Mot.”).) Defendant seeks to preclude this evidence and to preclude the testimony of IRS Agent Frank Stamm (“Agent Stamm”). (Letter as Def's Mot. in Limine To Preclude Evidence from His Trial (Docket Entry #31) (“Def. Mot.”).)

For the reasons set forth below, both the Government's motion and the Defendant's motion are GRANTED in part and DENIED in part.

I. EVIDENCE OF UNCHARGED ACTS
Defendant Cadet, a tax preparer, is charged with thirty-five counts of aiding and assisting the preparation of false tax returns in violation of 26 U.S.C. § 7206(2). The Government alleges that Defendant secured unwarranted tax refunds for his clients by claiming false or inflated deductions in preparing their tax returns. ( See Indictment (Docket Entry #1).) The Government seeks to introduce at trial evidence of Defendant's own personal tax history. It also seeks to present evidence of Defendant's interactions with an undercover agent. Defendant asks the court to preclude all of this evidence from being introduced at trial.

Rule 404(b) of the Federal Rules of Evidence prohibits the admission of evidence of the accused's “[o]ther crimes, wrongs, or acts” if the evidence is offered to show the accused acted in conformity with the prior bad acts. Such evidence may be admissible, however, if offered for a non-propensity purpose, “such as proof of motive, opportunity, intent, preparation, plan, knowledge, identity, or absence of mistake or accident.” Fed. R. Evid. 404(b); see United States v. Germosen, 139 F.3d 120, 127 (2d Cir. 1998) (noting that uncharged acts evidence can be admitted “for any purpose except to show criminal propensity”). Uncharged acts evidence offered to show knowledge or intent must be “sufficiently similar to the conduct at issue to permit the jury” to draw a reasonable inference of knowledge or intent from the prior act. United States v. Peterson, 808 F.2d 969, 974 (2d Cir. 1987). Similarity, and ultimately, the relevancy of the uncharged act evidence is measured by the degree to which “the prior act approaches near identity with the elements” of the charged offense. United States v. Aminy, 15 F.3d 258, 260 (2d Cir. 1994).

A. Defendant's Tax History
According to the Government, Defendant did not file a personal tax return for 2002, 2003, 2004, or 2005. (Gov't Mot. 3.) Nor did Defendant file returns for his business entities, Cordet Management and Canarsie Capital Group, for 2003, 2004, and 2005. ( Id.) Additionally, Defendant paid his employees by cash or personal check and did not report their earnings to the IRS. ( Id.) None of this conduct is charged in the Indictment. Defendant argues that this evidence is irrelevant and merely serves to cast him in a negative light before the jury, inviting the inference that he was “generally a cheater when it came to taxes.” (Def. Mot. 4.) The Government counters that it will use the evidence to prove that Cadet acted willfully in preparing the fraudulent tax returns and to show his intent to defraud the government. ( See Gov't Mot. 7.)

The court finds that evidence of Defendant's personal tax history is not admissible. Although the Government has identified a valid non-propensity purpose for offering the tax history evidence, Defendant's failure to file various tax forms is, at best, marginally relevant to the issue of whether Defendant willfully aided in the preparation of fraudulent tax returns. Failing to file one's personal tax forms lacks the requisite “substantial similarity” to filing forms containing false information on behalf of others. Peterson, 808 F.2d at 974. If the evidence instead showed that Defendant had filed his personal tax forms, but had claimed false deductions for himself, the similarity might be sufficient for admissibility. As it stands, however, the only real similarity here is that both involve tax forms. In other words, Defendant's tax history is relevant only to demonstrate that he “engaged in other misconduct with the Internal Revenue Service, thereby showing that [he] has a propensity to disregard tax law.” United States v. Reiss, No. CRIM.04-156 RAM/RLE, 2005 WL 2337917, at *3 (D. Minn. June 9, 2005) (holding evidence of untimely tax filings inadmissible under similar prosecution of tax preparer). This is exactly the sort of evidence that Rule 404(b) prevents from being presented to the finder of fact. The minimal probative value of Defendant's tax history on the issue of intent is substantially outweighed by the risk that the jury will infer from it that Defendant is “generally a cheater” when it comes to taxes. (Def. Mot. 4.) Thus, the evidence is inadmissible under Rule 403 in any event. See Fed. R. Evid. 403.

The Government relies heavily on United States v. Bok, 156 F.3d 157 (2d Cir. 1998), to suggest that Defendant's taxpaying record should be admissible to show intent. In Bok, the Second Circuit upheld the trial court's decision to allow the introduction of evidence of uncharged acts, such as the defendant's failure to file a state personal tax return for a given year. Bok, 156 F.3d at 165-66. But in that case, as in all the others cases cited in it, the defendant was charged with personal tax evasion, and thus his own personal taxpaying history was quite relevant to the issue of willfulness. Id. at 160. Such “near identity with the elements” of the charged offense is lacking here, where the charged offense involves a tax preparer fraudulently preparing tax returns for his clients. Aminy, 15 F.3d at 260. Accordingly, the evidence regarding Defendant's personal tax history is inadmissible at trial.

B. The Undercover Operation
In April 2006, an undercover IRS agent visited Defendant posing as a taxpayer who needed his tax return prepared. According to the Government, when Defendant initially prepared the agent's return, he informed the agent that the tax liability was more than $3,000 and offered to prepare the return again using “creative financing” for a higher fee. (Gov't Mot. 2.) The second return indicated a refund of over $2,400. ( Id.) Defendant's alleged preparation of a false return for the agent is not charged in the Indictment.

The Government seeks to introduce at trial evidence of the undercover agent's interactions with Defendant, including the testimony of the undercover agent, the recording of the meeting between the agent and Defendant, and documents produced as a result of that meeting. They argue that this similar act evidence is admissible to show Defendant's modus operandi, motive, and intent, as well as to corroborate the testimony of other fact witnesses, Defendant's clients. (Gov't Mot. 8-9.) Defendant objects under Rule 404(b) and claims that the evidence is irrelevant and prejudicial. (Def. Mot. 4.)

The court finds that evidence of Defendant's interactions with the undercover agent is admissible. Although this is an uncharged act, the Government offers the evidence for several proper non-propensity purposes, such as demonstrating motive, intent, and corroboration. See Germosen, 139 F.3d at 127. Furthermore, Defendant's alleged preparation of a false tax return for the agent is “sufficiently similar” to the charged conduct to make relevant to Defendant's mental state. See Peterson, 808 F.2d at 974. Both acts involve Defendant's preparation of false returns for others in exchange for a fee, and the Government claims that Defendant's conduct with the agent is identical to his conduct with his other clients. (Gov't Mot. 10.)

This uncharged act is relevant to several issues. The Government claims that Defendant will contest his willfulness as to the charged conduct by arguing that in preparing his clients' false returns, he either relied on inaccurate information provided by his clients or he made a mistake. In light of this defense, Defendant's interaction with the undercover agent is relevant for the purpose of proving knowledge, intent, and absence of mistake. See United States v. Oskowitz, 294 F. Supp. 2d 379, 382 (E.D.N.Y. 2003) (admitting undercover agent evidence against tax preparer for these purposes under similar circumstances). At trial, Defendant will likely challenge the credibility and testimony of his other taxpayer clients whose returns he prepared. Evidence of Defendant's interactions with the agent is admissible to corroborate the testimony of his other clients as to their interactions with Defendant. See id.; United States v. Everett, 825 F.2d 658, 660 (2d Cir. 1987) (“Under Rule 404(b) evidence of ‘other crimes’ has been consistently held admissible to corroborate crucial prosecution testimony.”).

The undercover agent evidence is not admissible, however, for the purpose of demonstrating the Defendant's modus operandi. To be admissible for this purpose, there must be similarities between the “idiosyncratic details” of the charged and uncharged act, giving rise to the inference of a pattern. United States v. Anglin, No. 98-CR-147 (RPP), 1998 WL 252078, at *2 (S.D.N.Y. May 19, 1998). The general similarity claimed by the Government - Defendant's asking for a higher fee in exchange for including false deductions - is not “so unusual and distinctive as to be like a signature.” Oskowitz, 294 F. Supp. 2d at 382 (quoting McCormick on Evidence, § 190 (15th ed.)). While this evidence is suggestive of a possible motive, it is not sufficiently particular to establish a modus operandi and is therefore not admissible for that purpose.

Despite the relevance of the undercover agent interactions, Defendant argues that the evidence should be excluded under Rule 403 because its probative value is “substantially outweighed by the danger of unfair prejudice.” Fed. R. Evid. 403. As discussed above, the evidence is highly probative of a number of disputed issues. Further, the risk of unfair prejudice is quite small. Defendant's interactions with the agent are no more “sensational or disturbing” than the charged offense. United States v. Pitre, 960 F.2d 1112, 1120 (2d Cir. 1992). In fact, the conduct at issue in nearly identical. Thus, the probative value of the evidence is not outweighed by the danger of unfair prejudice, and the evidence of Defendant's interactions with the undercover agent is admissible. In order to prevent any possible prejudice, the court will give a limiting instruction requiring the jury to consider this evidence only for the proper purposes discussed above. The court will instruct the jurors that they may not infer from this evidence that Defendant has the propensity to commit crimes.

II. TESTIMONY OF AGENT STAMM
The Government has provided notice that it intends to call Agent Stamm as a summary witness and an expert witness in the area of taxation and income tax computation. (Notice of Expert Witness (Docket #29).) Agent Stamm has been with the IRS since 1988 and has been a Grand Jury Agent, assigned to assist in criminal investigations and prosecutions, since 1992. According to the Government, Agent Stamm's function will be to explain to the jury the tax consequences of the information Defendant put in his clients' tax returns. Based on the testimony of the government's other fact witnesses as to any false or inflated deductions, Agent Stamm will compute the correct tax due on each witness's return. He will be called at the end of the Government's case in chief to testify as to the difference between the tax liability reported on each return and the actual tax due to the IRS. The Government intends for Agent Stamm to prepare summary charts based entirely on the testimony of trial witnesses in order to illustrate his conclusions for the jury. ( Id. at 1-2.)

Defendant objects to this testimony and these charts on the grounds that asking Agent Stamm to evaluate the testimony of other witnesses is improper expert testimony under Rule 702 and Daubert v. Merrell Dow Pharms., Inc., 509 U.S. 579 (1993). (Def. Mot. 1.) Defendant also claims that this evidence would impermissibly bolster the government's fact witnesses. ( Id.)

It is not at all unusual for an IRS agent to testify as an “expert summary witness” in cases involving tax crimes. United States v. Pree, 408 F.3d 855, 869 (7th Cir. 2005); see also United State v. Ratfield, No. 07-13537, 2009 WL 2502105, at *2 n.4 (11th Cir. Aug. 18, 2009) (collecting cases); United States v. Sherry, 100 F.3d 943, 943 (2d Cir. 1996) (describing expert summary witness testimony of IRS agent in prosecution of tax preparer). An IRS agent may testify as to his tax analysis based on his special expertise and on the facts provided by the testimony of other witnesses. See United States v. Moore, 997 F.2d 55, 58 (5th Cir. 1993). Defendant's arguments to the contrary misapprehend the role Agent Stamm will play at trial. Agent Stamm will not be permitted to opine on the credibility of other fact witnesses or in any way evaluate their testimony. Rather, based on the numerical facts provided by those witnesses, he will merely perform tax calculations. The numbers he uses and assumptions he makes will be subject to cross-examination, as will his calculations.

Defendant points to a Second Circuit case that identifies some difficulties that can arise when a case agent who was involved in an investigation is called as an expert witness at trial. See United States v. Dukagjini, 326 F.3d 45, 53 (2d Cir. 2002). However, these concerns are not implicated here as Agent Stamm was not involved as a case agent in Defendant's case. Agent Stamm will be testifying based only on the facts provided by other witnesses at trial, and not based on any personal knowledge of the facts.

Defendant also argues that Agent Stamm's testimony would be irrelevant under Rule 402, since the issues at trial will be whether material mistakes were made in preparing the returns and whether those mistakes were willful. (Def. Mot. 3.) According to Defendant, the exact amount by which taxes were underpaid is irrelevant and thus, recalculating the tax liability of each witness is a matter for the auditors, not for the jury. ( Id.) However, as Defendant himself points out, the Government must show material falsehoods in order to obtain a conviction. See 26 U.S.C. § 7206(2). The size of any unwarranted tax refund obtained by Defendant's clients as a result his tax preparation services directly relates to the issue of materiality. Thus, Agent Stamm's testimony regarding the ultimate tax consequences of any false or inflated deductions on Defendant's clients' tax returns is clearly relevant.

Accordingly, the court rejects Defendant's motion to preclude the summary witness and expert witness testimony of Agent Stamm. With respect to any summary charts used by Agent Stamm, the court will issue a limiting instruction to explain that the charts are not themselves substantive evidence.

III. CONCLUSION
As explained above, the Government's motion is GRANTED as it pertains to admission of evidence of the undercover operation, but DENIED with respect to admission of evidence of Defendant's tax history. Defendant's motion is GRANTED as it pertains to preclusion of evidence of Defendant's tax history, but DENIED with respect to preclusion of evidence of the undercover operation and of the testimony of Agent Stamm.

SO ORDERED.

Dated: Brooklyn, New York

September 11, 2009

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Wednesday, September 23, 2009

Unprofitable horse breeding held a for-profit business

A married couple was entitled to deduct losses from their horse breeding and boarding activity because, even though unprofitable, the activity was engaged in with the actual and honest objective of making a profit. Based on analysis of the factors found in Reg. §1.183-2(b), the court found that the manner in which the activity was conducted indicated that the taxpayers had the requisite profit objective. The taxpayers' recordkeeping was adequate for their purpose and they spent very substantial amounts of time and efforts in the horse activity. The taxpayers' estimate that preserving the value of their herd and the favorable zoning status of the property would eventually yield an overall profit also indicated their expectation of asset appreciation. In addition, their financial status indicated that they had the profit motive in conducting the horse activity since they did not have any substantial income aside from the husband's salary. Finally, the record showed that the taxpayers derived little personal pleasure from the horse activity.—




Marcia Trescott Helmick and Robert P. Helmick v. Commissioner., U.S. Tax Court, CCH Dec. 57,947(M), T.C. Memo. 2009-220, (Sept. 22, 2009)
U.S. Tax Court, Dkt. No. 13713-06, TC Memo. 2009-220, September 22, 2009.



Ps ran a horse-breeding and-boarding operation in which they kept and cared for as many as 60 horses on the same property as their personal residence. Ps had no full-time employees and did most of the work themselves, and they did not use the horses for personal pleasure. Ps intended to make a profit to supplement their income, but, over a number of years, they incurred a string of losses. The only substantial income Ps had from other sources was P-H's modest salary as a county employee, against which they applied the losses.

Held: On the basis of all the facts and circumstances, the horse-breeding and-boarding operation was an activity engaged in for profit under I.R.C. sec. 183 in the years 1993 to 2002.

MEMORANDUM FINDINGS OF FACT AND OPINION
GUSTAFSON, Judge: The Internal Revenue Service (IRS) issued to petitioners Marcia Trescott Helmick and Robert P. Helmick a statutory notice of deficiency on April 11, 2006, pursuant to section 6212, 1 showing the IRS's determinations of the following deficiencies in income tax and accompanying failure-to-file additions to tax and accuracy-related penalties under sections 6651(a)(1) and 6662, 2 respectively, for tax years 1997 to 2002:



The issue for decision is whether the Helmicks' horse-breeding and-boarding operation (hereinafter, the horse activity) was an activity engaged in for profit pursuant to section 183. We find that the Helmicks' horse activity was engaged in for profit.

FINDINGS OF FACT
Some of the facts have been stipulated and are so found. The stipulation of facts and supplemental stipulation of facts filed September 10, 2008, and the attached exhibits are incorporated herein by this reference. Trial of this case was held in Denver, Colorado, on September 10, 2008. Ms. Helmick and Mr. Helmick testified. Mr. Helmick, in particular, was a candid and credible witness. Ms. Helmick, though given to some overstatement (e.g., about the number of hours she worked and the quantum of records she maintained), was believable as to the gist of her testimony. 3 Respondent called no witnesses. At the time that they filed their petition, the Helmicks resided in Colorado.

Initial Horse Activity
In or around 1980, Ms. Helmick (then known as Marcia L. Trescott) and Richard E. Taylor acquired a roughly 1-1/2 to 2 acre parcel of real estate in a primarily residential neighborhood in Niwot, Colorado, a town in Boulder County about 9 miles from the city of Boulder, Colorado. She conducted a small horse activity on that property before her marriage to Mr. Helmick in the mid-1980s. After the Helmicks married, the property was transferred to Ms. Helmick and Mr. Helmick as tenants in common, and Mr. Helmick joined in the conduct of the horse activity on that property. Beginning no later than July 1986 and continuing through all the tax years at issue, the Helmicks' primary residence was a house located on the same property on which they conducted their horse activity.

The Helmicks' Horse Activity
The Helmicks' horse activity principally involved the breeding and boarding of horses. The Helmicks' boarding activity consisted of keeping horses belonging to third parties on their property, and caring for and feeding those horses for a fee. The Helmicks' horse-breeding activities consisted of acquiring purebred Arabian stallions and mares for the purpose of breeding them with each other in order to produce and raise offspring for sale. These breeding activities began in earnest in 1984 when Ms. Helmick purchased SS Bay Moun, a 2-year-old Arabian purebred stallion, for $30,000. Although Ms. Helmick had physical custody of SS Bay Moun, the horse's previous owners refused to transfer clear title. As a result, Ms. Helmick could not register the horse or its offspring as purebred Arabians, and the Helmicks lost some sales. In response, the Helmicks filed a lawsuit in 1985, which remained pending for 9 years, to obtain clear title to SS Bay Moun in order to register the horse and its offspring as purebred Arabians and thus to increase their value on the equine market. In 1994, at the conclusion of the litigation, the Helmicks acquired clear title to SS Bay Moun.

The Helmicks' horse activity began with a focus on breeding horses to create salable livestock, but that focus shifted to boarding horses when the Helmicks concluded that breeding was less profitable because of a perceived decline in sale prices for purebred Arabian horses in the 1980s and 1990s. The Helmicks also believed that boarding horses would become increasingly profitable for them because of their property's favorable zoning status, discussed below, which gave them a virtual monopoly on boarding horses in Niwot, Colorado.

From 1993 to 2002 Ms. Helmick typically spent her entire work week conducting the horse activity. Mr. Helmick, who worked full time as a land-use planner for Boulder and Larimer Counties, typically worked on the horse activity in early mornings and evenings, and on weekends. Conducting the horse activity involved, inter alia, buying and transporting hundreds of pounds of feed each week, mucking stalls, shoveling hay, caring for sick horses, and guiding pregnant mares through the birthing process. In fact, the Helmicks frequently had to watch over their pregnant mares during the night as well as the day. On occasion during the foaling season—which extended from January to April—the Helmicks would have to take turns staying awake at night to ensure that one of them checked on the mares at least once each hour. The strenuous nature of the work took its toll on the Helmicks. Mr. Helmick suffered from a bad back, which sometimes left him bedridden, and Ms. Helmick tore her shoulder.

The Helmicks never hired full-time employees, but they would occasionally hire part-time assistants—usually high school students—to help them with the horse activity. Mr. Helmick had a daughter (who was not Ms. Helmick's daughter) who was born in 1981 and of whom he had joint custody. However, the daughter did not live with Mr. Helmick and seldom stayed with him during the weekends when he had visitation rights, because she did not enjoy cleaning stalls or doing other work in connection with the horses. We find that Mr. Helmick's daughter did not spend a material amount of time working with or riding the horses.

The Helmicks' History of Other Employment and Business Ventures
From 1993 to 2002 Ms. Helmick was not otherwise employed or involved in business ventures aside from the horse activity. Furthermore, Ms. Helmick does not allege, nor does the record show, that she was ever involved in any other business ventures. 4

Mr. Helmick worked full time as a land-use planner for Boulder County from 1980 to 1994 and for Larimer County from 1995 through all of the tax years at issue. His salary for that job during 1998 to 2002 never exceeded $65,000. Neither he nor Ms. Helmick had any other substantial sources of income during 1993 to 2002. From 1995 to 1996 Mr. Helmick also ran his own part-time, private land-use consulting business, which he referred to as “Action Consulting”. This business had a total of six clients over its brief existence, but Mr. Helmick speculated at trial that because of the business's low overhead it was “probably” profitable. Mr. Helmick ultimately closed Action Consulting because he preferred the “regular paycheck and benefits” from his work with county governments to the uncertain cashflow associated with private consulting. Mr. Helmick does not allege, nor does the record show, that he was ever involved in any other business ventures.

The Helmicks' Property and Zoning Status
From 1997 to 2000 the number of horses (both owned and boarded) on the Helmicks' property in Niwot ranged from 40 to 60. At any given time during that period, the Helmicks owned between 40 and 70 percent of the horses on their property. Those horses were kept in a barn with 13 stalls inside and an outdoor arena for exercise. In or around 1994 the Helmicks made plans to improve their property by adding to their house and barn and constructing an indoor riding arena, and they took out a construction loan for that purpose. The Helmicks believed that these improvements and additions to their property would make their boarding activities—to which their focus was shifting—more profitable by lowering labor costs (because it is easier to clean indoor facilities than outdoor facilities where horses exercise, particularly during inclement weather) and by increasing the fees they could charge (because they could offer more amenities, like the indoor riding arena).

However, these improvements were delayed by an adverse determination by Boulder County, which held that the Helmicks were in violation of zoning law and would have to reduce the number of horses kept on their property. The Helmicks responded by engaging in a several-months-long campaign to challenge Boulder County's determination, which effort included soliciting clients and friends to testify on their behalf. Before 1997 they won the right to continue to have 40 horses on their property, which was then zoned as an equestrian center. However, the Helmicks were required to keep a minimum of 40 horses on their property to maintain its status as an equestrian center in their primarily residential neighborhood. If they kept fewer than 40 horses on the property, then the number of horses they were entitled to keep on their property would decrease correspondingly. Moreover, if the Helmicks completely failed to maintain their property's status as an equestrian center, then they would be permitted to keep only two horses. The zoning situation thus imposed on them, in effect, a downward ratchet that required them to maintain the size of their herd or incrementally lose their right to run the horse activity.

The Helmicks began construction on the additions to their house and barn and on the indoor riding arena in 1997 after winning their zoning dispute with Boulder County. However, because of a dispute with the contractor whom the Helmicks hired to construct the indoor riding arena, the proposed construction of that arena ceased in the late 1990s after the foundation was built, and the arena was never finished. The Helmicks sued the contractor and ultimately settled the lawsuit in 2001 for $5,000.

Expertise of the Helmicks and Their Advisers
The Helmicks were largely self-taught in the running of the horse activity, but by 1993, the Helmicks each had over 8 years of experience in breeding and boarding horses on their property. In addition, the record shows that Mr. Helmick was a member of the board of directors of various professional horse-breeding and-boarding associations—including the Colorado Horsemen's Council, and the Boulder County Horsemen's Association—at various times during 1993 to 2002.

The Helmicks were classified as amateur owners in the equine industry, i.e., they were not professionally qualified or compensated as horse trainers, and any training they performed was incidental to their breeding and boarding operation. The Helmicks were not veterinarians. However, the Helmicks consulted numerous veterinarians with respect to their horse activity. In particular, the Helmicks occasionally employed a veterinarian to inspect their mares to determine the appropriate time to breed them in order to increase the likelihood of conceiving a mare instead of a stallion, because at the time, mares would fetch a higher price on the equine market. In the late 1980s the Helmicks discontinued the use of veterinarians for this purpose to save themselves and their clients the cost of veterinarian's fees. By that time Mr. Helmick had become proficient enough to inspect the mares himself and achieve a success rate of influencing the sex of the colt that was lower than the veterinarian's rate but still above the norm.

The Helmicks' Books and Records
Ms. Helmick was responsible for the bookkeeping for the horse activity. She did not prepare any contemporaneous business plans or financial statements for the horse activity. However, Mr. Helmick would give the receipts generated by the horse activity to Ms. Helmick, and after they had accumulated for some time, she would enter them into a Quicken or QuickBooks program on their computer. In response to pointed questions, Ms. Helmick's testimony was equivocal on whether she made her Quicken entries promptly or delayed doing so for months or years. We therefore find that Ms. Helmick delayed making her Quicken entries for months or years after she received the receipts from Mr. Helmick. The Helmicks used Quicken to generate summaries of their income and expenses for, inter alia, preparing their Forms 1040, U.S. Individual Income Tax Return, and dealing with IRS audits.

At trial the Helmicks did not present the receipts as evidence to corroborate their income or expenses for the tax years at issue. However, the Helmicks introduced evidence of their practice of saving their receipts and creating computer-generated records therefrom in the form of the Quicken summaries of their source and use of funds for all six of the tax years at issue, and we find their testimony, corroborated with those summaries, to be credible. However, they did not show that they kept sufficiently current with their Quicken entries to enable them to determine at any given moment the amount of their current deficit.

Losses From the Helmicks' Horse Activity
The Helmicks' horse activity generated losses every year at least after Mr. Helmick became involved with the activity in late 1984 or 1985. On Schedules F, Profit or Loss From Farming, attached to their Forms 1040 for the six years at issue (1997-2002) and the five previous years (1992-96), the Helmicks deducted a string of losses from their horse activity, as listed below, totaling approximately $400,000 (and averaging about $36,000 per year).

However, for purposes of evaluating the Helmicks' profit motive for persisting in the horse activity, those losses may be somewhat misleading in two respects. First, the Schedule F expenses that gave rise to those reported losses included a portion of the mortgage interest expense and tax that the IRS's notice of deficiency allowed as additional itemized expenses. The Helmicks would have incurred these expenses, and could have deducted them, whether or not they had engaged in the horse activity. Second, the Schedule F expenses included depreciation on assets that the Helmicks had previously purchased and which therefore did not represent current costs of running the activity. On the one hand, the prospect of claiming the tax benefit of such depreciation could be a tax-related, non-profit-related motive for undertaking the activity. But on the other hand, a person who already owned the asset might well disregard depreciation in making a decision as to whether he could hope to turn a profit from the activity and as to how long he could afford to incur losses before turning the corner. In this case the evaluation of the Helmicks' profit motive should include a reckoning of the actual out-of-pocket, marginal loss generated by the horse activity that reduces the Schedule F losses by the depreciation, taxes, and interest. When that reduction is made, the marginal loss of the activity is shown to have been on average about $27,000 per year,


1Because the 1997 Form 1040 is not in the record, we use the 1998 depreciation figure as an approximation.


Post-Suit Year Operation of the Horse Activity
The Helmicks married in the mid-1980s and remained married through all of the tax years at issue. However, the Helmicks separated in 2003, and their divorce was accompanied by contentious litigation. In the course of that litigation, some of the Helmicks' assets were divided. On October 2, 2007, the divorce court ordered Ms. Helmick to vacate the house and property in Niwot, where she and Mr. Helmick had lived together and conducted the horse activity. Neither of the parties alleges, nor does the record show, the exact date on which the Helmicks concluded their horse activity. However, the record does show that the Helmicks' separation in 2003 and subsequent litigation precipitated the end of that activity.

At trial Ms. Helmick testified that the receipts that she and Mr. Helmick saved to substantiate their income and expenses from the horse activity should still be located in the house in Niwot. Ms. Helmick also testified that those receipts are inaccessible to her because she would be arrested if she returned to the house in violation of the divorce court's order. However, Mr. Helmick testified with equal conviction that he had been unable to find the receipts after he “went through the house with a fine-toothed comb.” Mr. Helmick also testified that he had “no knowledge of where * * * [the receipts] are” today, but he is certain that they must have existed “because * * * [the Helmicks] constructed the tax returns from those records.” On the basis of the Helmicks' testimony, we find that the Helmicks unintentionally lost their receipts in the disruption of the horse activity that resulted from their divorce.

Notice of Deficiency
The Helmicks failed to timely file their Forms 1040 for tax years 1997 through 2002, because they believed there was no tax due for those years, as a result of the losses from their horse activity. However, the Helmicks did eventually file those forms late with the IRS over the course of 2003, reporting losses from the horse activity and claiming net operating loss carryovers generated by the horse activity in previous years. 5 On April 11, 2006, the IRS mailed the Helmicks a notice of deficiency for tax years 1997 through 2002, which disallowed the losses from their horse activity as so-called hobby losses from an activity not engaged in for profit pursuant to section 183. The notice of deficiency also disallowed net operating loss deductions carried forward from their horse activity for the tax years at issue and tax years 1993 to 1996, and determined failure-to-file additions to tax and accuracy-related penalties under sections 6651(a)(1) and 6662. In response to the notice of deficiency, the Helmicks petitioned this Court, pursuant to section 6213(a), to redetermine their deficiencies.

OPINION

At issue is the Helmicks' entitlement to deductions for tax years 1997 to 2002 arising from their horse activity during tax years 1993 to 2002. 6 A taxpayer who is carrying on a trade or business may deduct ordinary and necessary expenses incurred in connection with the operation of the business. Sec. 162(a). However, a taxpayer generally may not deduct expenses incurred in connection with a hobby or other non-profit activity to offset taxable income from other sources. Sec. 183(a). 7 We find that the Helmicks' horse activity, though unprofitable, was engaged in with the intention of making a profit during tax years 1993 to 2002. Although their intention to make the activity eventually profitable was objectively unreasonable, it was their genuine subjective intention. By the time of the years in issue, the Helmicks had invested so much time and effort in this failing activity that they could see no way out except to somehow make the thing work. No other possible purpose explains their willingness to persist in an activity that had become so frustrating and unpleasant. Therefore, the Helmicks are entitled to deduct their expenses and net operating losses from that activity for those years.

A. Burden of Proof
Generally, the Commissioner's determinations set forth in a notice of deficiency are presumed correct, and the taxpayer bears the burden of showing the determinations are in error. Rule 142(a); Welch v. Helvering, 290 U.S. 111, 115 (1933). Since the IRS determined that the Helmicks' horse activity was not engaged in for profit, that determination is presumed correct, and the Helmicks have the burden to prove otherwise.

B. Activities Not Engaged In for Profit
Section 183(c) defines an “activity not engaged in for profit” as “any activity other than one with respect to which deductions are allowable for the taxable year under section 162 or under paragraph (1) or (2) of section 212.” An activity constitutes a “trade or business” within the meaning of section 162—and it escapes the limitation of section 183—if the taxpayer's actual and honest objective is to realize a profit. Osteen v. Commissioner, 62 F.3d 356, 358 (11th Cir. 1995), affg. in part and revg. in part T.C. Memo. 1993-519. The expectation of profit need not have been reasonable; however, the taxpayer must have entered into the activity, or continued it, with the objective of making a profit. Hulter v. Commissioner, 91 T.C. 371, 393 (1988); sec. 1.183-2(a), Income Tax Regs (26 C.F.R.). Whether the requisite profit objective exists is determined by looking at all the surrounding facts and circumstances. Keanini v. Commissioner, 94 T.C. 41, 46 (1990); sec. 1.183-2(b), Income Tax Regs. Greater weight is given to objective facts than to a taxpayer's mere statement of intent. Thomas v. Commissioner, 84 T.C. 1244, 1269 (1985), affd. 792 F.2d 1256 (4th Cir. 1986); sec. 1.183-2(a), Income Tax Regs.

The stereotypical abusive scenario involving horse breeding is the wealthy businessman who runs a real business during the week—with business records, income projections, accountability to banks and investors, and so on—and owns a “gentleman's farm” as a weekend retreat where he keeps horses for the recreation of himself and his family and friends. He dabbles in breeding horses, with no expectation of ever making a profit, so that he can deduct the expenses of his horses and thereby have Uncle Sam subsidize the weekend farm. However, some horse-related operations are actually engaged in for profit. See, e.g., Miller v. Commissioner, T.C. Memo. 2008-224. The Helmicks' horse activity does not fit the stereotypical abusive scenario; instead they engaged in the horse activity with a motive to make a profit, and they are therefore entitled to deduct their losses.

Section 1.183-2(b), Income Tax Regs., provides a list of factors to be considered in the evaluation of a taxpayer's profit objective: (1) The manner in which the taxpayer carries on the activity; (2) the expertise of the taxpayer or his advisers; (3) the time and effort expended by the taxpayer in carrying on the activity; (4) the expectation that assets used in the activity may appreciate in value; (5) the success of the taxpayer in carrying on other similar or dissimilar activities; (6) the taxpayer's history of income or losses with respect to the activity; (7) the amount of occasional profits, if any, from the activity; (8) the financial status of the taxpayer; and (9) elements of personal pleasure or recreation. This list is nonexclusive, and the number of factors for or against the taxpayer is not necessarily determinative. Rather, all facts and circumstances must be taken into account, and more weight may be given to some factors than to others. Id.; see Dunn v. Commissioner, 70 T.C. 715, 720 (1978), affd. 615 F.2d 578 (2d Cir. 1980).

We now address these nine factors.

C. Analysis of the Helmicks' Horse Activity
1. Manner in Which the Activity Is Conducted

The fact that a taxpayer carries on the activity in a business-like manner and maintains complete and accurate books and records may indicate a profit objective. Sec. 1.183-2(b)(1), Income Tax Regs. A change of operating methods, adoption of new techniques, or abandonment of unprofitable methods in a manner consistent with an intent to improve profitability may also indicate a profit objective. Id. Respondent emphasizes the Helmicks' failure to prepare contemporaneous business plans or financial statements, which in some circumstances might indeed be a sign that a serious profit objective is lacking. However, respondent concedes that the Helmicks retained their receipts from the horse activity and subsequently entered them into a Quicken or QuickBooks program on their computer. The record shows that the Helmicks kept records in an unprofessional and disorganized manner that would have satisfied no prospective investor, but the Helmicks were not seeking or accounting to any investor. For the Helmicks it was enough to know that the business was not turning a profit (not yet, as they thought of it), and their shoebox record keeping was adequate for their purpose.

While the Helmicks had no written business plan for their horse activity, the evidence established that they did have a rudimentary plan, which was to weather their current losses while maintaining the value of their herd and keeping at least 40 horses on their property in order to preserve that property's favorable zoning status as an equestrian center. See Phillips v. Commissioner, T.C. Memo. 1997-128 (holding that a business plan need not be in written form and can be evidenced by the taxpayer's actions). This zoning status gave the Helmicks a virtual monopoly on boarding horses in Niwot, Colorado, and they hoped eventually to exploit this competitive advantage for a profit by shifting their focus from horse breeding to boarding. In line with this plan, the Helmicks sought to lower their labor costs and increase the boarding fees they could charge by significantly improving their boarding facilities. In 1997 the Helmicks began to construct an indoor riding arena as well as additions to their house and barn. Respondent correctly notes that the indoor riding arena was never completed. However, the Helmicks did construct the foundation for the indoor riding arena, and the project ceased only because of a dispute with the contractor they hired to build that arena. The record shows that the Helmicks were sincere about upgrading their facilities.

Respondent disputed the adequacy of the Helmicks' books and records for substantiation of their expenses under section 6001. The Helmicks' practice of merely retaining their receipts and subsequently quantifying them was indeed informal. However, the practice was sufficient to keep the Helmicks apprised of their cash on hand and expenses, which in turn was sufficient for their purpose of weathering their current losses to achieve monopoly profits in the future.

As respondent correctly notes, the Helmicks did not present the receipts as evidence to corroborate their income or expenses for the tax years at issue. However, “[i]t is well established that the Tax Court may permit a taxpayer to substantiate deductions through secondary evidence where the underlying documents have been unintentionally lost or destroyed.” Davis v. Commissioner, T.C. Memo. 2006-272 (citing Boyd v. Commissioner, 122 T.C. 305, 320-321 (2004), Malinowski v. Commissioner, 71 T.C. 1120, 1125 (1979), Furnish v. Commissioner, T.C. Memo. 2001-286, Joseph v. Commissioner, T.C. Memo. 1997-447, and Watson v. Commissioner, T.C. Memo. 1988-29). As is set out above, the Helmicks unintentionally lost their receipts from the horse activity in the course of Ms. Helmick's relocation and the litigation that arose from their divorce. Thus, the Helmicks will be permitted to substantiate their expenses from that activity through secondary evidence. We find the Helmicks' testimony that they retained their receipts from the horse activity and subsequently entered them into the computer database of their Quicken program—corroborated with printouts of Quicken summaries of their source and use of funds derived from those receipts—to be credible. We therefore hold that the Helmicks kept adequate records to substantiate their expenses from the horse activity for tax years 1993 to 2002.

Notably, the Helmicks spent 9 years, from 1985 to 1994, suing for clear title to SS Bay Moun, the purebred Arabian stallion they purchased to jumpstart their horse-breeding activity. The Helmicks always had the possession and use of the horse, and they always enjoyed any pleasure that such possession and use might bring. However, without a clear title, neither the horse nor its offspring could be registered or sold as purebred Arabians. This caused the Helmicks to lose sales, because registered horses are more valuable on the equine market. Thus, it necessarily follows that the lawsuit to register SS Bay Moun was motivated not by personal pleasure but by a desire to increase profits and weighs in favor of the Helmicks. See Miller v. Commissioner, T.C. Memo. 2008-224 (listing registration of horses as a fact that weighed in favor of finding that a horse breeder carried on his activity in a business-like manner).

We conclude that this factor—the manner in which the activity is conducted—is mixed: partly in respondent's favor, but overall in the Helmicks' favor, indicating that they had the requisite profit objective.

2. Expertise of the Taxpayers and Their Advisers

A taxpayer's expertise, research, and study of an activity, as well as his consultation with experts, may indicate a profit objective. Sec. 1.183-2(b)(2), Income Tax Regs. By 1993 the Helmicks had modest relevant expertise: Each had over 8 years of experience in breeding and boarding horses on their property, and Mr. Helmick had served on the board of directors of various professional horse-breeding and-boarding associations. In addition, the Helmicks hired veterinarians to assist them with their horse breeding from time to time, and Mr. Helmick became proficient at horse breeding by observing their practices. Respondent acknowledges all of these facts but still contends that the Helmicks failed to demonstrate that they consulted “economic experts or developed any personal economic expertise” in the business of horse breeding and boarding. It is true that the record does not show that the Helmicks consulted “economic experts”. However, Mr. Helmick's tangential expertise as a career land-use planner enabled him to recognize generally the value of the favorable zoning status of the Helmicks' property—and fueled his hope to leverage that status into monopoly profits.

We conclude that this factor—expertise—is neutral for assessing whether the Helmicks had the requisite profit objective.

3. Time and Effort Expended

The fact that the taxpayer devotes much of his personal time and effort to carrying on an activity, particularly if the activity does not have substantial personal or recreational aspects, may indicate a profit objective. Sec. 1.183-2(b)(3), Income Tax Regs. As respondent concedes, the mere fact that the Helmicks kept and cared for over 40 horses on their property proved the Helmicks spent some time and effort in their horse activity—particularly in light of the fact that the Helmicks never hired any full-time employees. The record shows much more than respondent concedes. Ms. Helmick was not otherwise employed from 1993 to 2002 and typically spent her entire work week in the conduct of the horse activity. Mr. Helmick also credibly testified to the fact that he devoted his early mornings, his evenings, and his weekends to the conduct of the horse activity. The Helmicks clearly spent very substantial amounts of time in the horse activity. This time was spent not riding horses or attending horse shows but rather performing the dawn-to-dusk labor—often grueling and strenuous labor—of mucking stalls, shoveling hay, caring for sick horses, and guiding mares through the birthing process. The Helmicks' estimates of the hours they spent seem overstated, but they also seem sincere, reflecting the fact that their work was exhausting and—as profits failed to materialize—discouraging. We attribute their exaggerations not to deliberate dishonesty but to a lack of perspective that resulted from their immersion in taxing and disappointing toil.

We conclude that this factor—time and effort—is strongly in the Helmicks' favor and indicates that they had the requisite profit objective.

4. The Expectation That Assets May Appreciate in Value

A taxpayer's expectation that assets used in the activity may appreciate in value and generate an overall profit may indicate a profit objective. Sec. 1.183-2(b)(4), Income Tax Regs. An overall profit is present if net earnings and appreciation are sufficient to recoup the losses sustained in the “intervening years” between a given tax year and the time at which future profits were expected. See Bessenyey v. Commissioner, 45 T.C. 261, 274 (1965), affd. 379 F.2d 252 (2d Cir. 1967). Respondent correctly notes that the Helmicks' horse activity sustained losses from no later than 1985 through at least 2002, but respondent seems to assume that the requisite profit motive as of any given year must involve an expectation that even all past losses will be recouped, so that the activity will have generated a net profit over its entire course. This position distorts the notion of profit motive for purposes of section 183.

If a natural disaster caused the death of 90 percent of a rancher's herd and resulted in a catastrophic loss that could never be recouped, but the rancher thereafter expected to generate an overall prospective profit by breeding and selling the remaining 10 percent of his herd on a foregoing basis, then he could not be said to lack a profit objective after the disaster merely because he would never recoup the prior loss. Likewise, even assuming arguendo that the Helmicks could never recoup their losses from years prior to 1997, if they expected to generate an overall profit from 1997 onward, then they cannot be said to lack a profit objective with respect to those later years merely because they would never recoup their losses from years prior to 1997. Rather, the Helmicks meet their burden as to any year for which they show that they expected eventually to recoup losses sustained in the “intervening years” (to use the phrase from Bessenyey) between the current year and the hoped-for profitable future. Thus, we must determine, as of each of the relevant years, whether the Helmicks expected their horse activity to generate an overall profit between that year and the time at which future profits were expected.

The Helmicks' long-term goal was to profit from (i) creating a self-perpetuating herd of purebred Arabian horses that would increase in value over time, and (ii) maintaining their property's favorable zoning status as an equestrian center in the middle of an otherwise residential neighborhood. In determining whether the possibility of an overall profit is present, we take into account the appreciation of both the herd and the zoning status, because they were both assets that were used in the horse activity. 8

Respondent correctly notes that “a vague and unauthenticated notion” that assets used in the Helmicks' horse activity were appreciating in value does not constitute a bona fide expectation that appreciation would be sufficient to recoup the losses sustained during the intervening years. La Musga v. Commissioner, T.C. Memo. 1982-742. However, the Helmicks credibly testified that if they had liquidated their entire herd, they would have suffered a “monstrous loss”. Furthermore, the favorable zoning status of the Helmicks' property was contingent on keeping at least 40 horses on that property. If the Helmicks liquidated their herd and ceased to keep horses on their property, then they would lose that zoning status. While the Helmicks are not appraisers, their estimate that preserving the value of their herd and the favorable zoning status would eventually yield an overall profit was plausible and—more pertinent here—was their genuine subjective assessment of the value that their horse activity was generating and would continue to generate.

We conclude that this factor—expectation that assets may appreciate—is in the Helmicks' favor and indicates that they had the requisite profit objective.

5. The Taxpayers' Success in Similar or Dissimilar Activities

Even if an activity is unprofitable, the fact that a taxpayer has previously converted similar activities from unprofitable to profitable enterprises may indicate a profit objective with respect to the current activity. Sec. 1.183-2(b)(5), Income Tax Regs. The Helmicks do not allege, nor does the record show, that either of them was ever involved in a similar and profitable business venture. From 1995 to 1996 Mr. Helmick ran a part-time, private land-use consulting business that had at total of six clients over its brief existence. However, the record does not show whether this business was profitable. Nor does it show any similarities between that business and the horse activity.

We conclude that this factor—success in similar or dissimilar activities—is in respondent's favor.

6. History of Income or Loss

An important consideration is the taxpayer's history of income or losses related to the activity. Sec. 1.183-2(b)(6), Income Tax Regs. A record of substantial losses over several years may be indicative of the absence of a profit motive. Golanty v. Commissioner, 72 T.C. 411, 426 (1979), affd. without published opinion 647 F.2d 170 (9th Cir. 1981). In the tax years at issue, and in prior years, the Helmicks claimed an impressive string of losses from their horse activity on their Forms 1040. In the eleven years from 1992 through 2002, the Helmicks claimed a total of over $400,000 of losses.

Section 1.183-2(b)(6), Income Tax Regs., provides that a series of losses during the startup phase of an activity may not necessarily be an indication that the activity is not engaged in for profit. However, this Court has recognized that the startup phase of an American horse-breeding activity is 5 to 10 years. Engdahl v. Commissioner, 72 T.C. 659, 669 (1979). Since the Helmicks ran their horse activity for no less than 8 years before 1993 and 12 years before the tax years at issue, we conclude that their horse activity was not in its startup phase and this exception does not apply.

We conclude that this factor—history of income or loss—is in respondent's favor.

7. Amount of Occasional Profits

The amount and frequency of occasional profits earned from the activity may indicate a profit objective. Sec. 1.183-2(b)(7), Income Tax Regs. Respondent correctly notes that the Helmicks' horse activity sustained an unbroken string of losses from no later than 1985 through at least 2002. See id. Moreover, the record does not show that the Helmicks' horse activity was ever profitable.

We conclude that this factor—occasional profits—is in respondent's favor.

8. Financial Status of the Taxpayers

A lack of income from sources other than the activity in question may indicate a profit objective. In contrast, substantial income from sources other than the activity in question, particularly if offset by substantial tax benefits, may indicate the activity is not engaged in for profit. Sec. 1.183-2(b)(8), Income Tax Regs. The Helmicks did not have any substantial income aside from Mr. Helmick's salary as a land-use planner for Boulder and Larimer Counties, which never exceeded $65,000 during 1998 to 2002. In fact, even without the losses from the horse activity, the Helmicks' total taxable income during that period would never have exceeded $50,000 in any year, and their marginal tax rate would never have exceeded 28 percent. 9

It is true, as respondent notes, that section 183 does not apply just to “wealthy individuals”, Ranciato v. Commissioner, T.C. Memo. 1996-67; and taxpayers with modest tax liabilities can have a motive to shelter those liabilities. However, “the wealth of an individual is a fact to consider in determining the applicability of section 183.” Id. The Helmicks' income tax liability would have been higher without the claimed losses from the horse activity, and the tax deficiencies calculated by the IRS for the six years in issue total just over $40,000. However, the Helmicks' middle-class status meant that they could not afford to maintain the horse activity simply for pleasure if there was no hope of future profit. The Helmicks were not wealthy individuals whose unprofitable activities would suggest an effort to shelter unrelated income with anticipated losses. We do not find it credible that the Helmicks would keep and care for 40 to 60 horses on their property for the purpose of sheltering the modest salary of a public servant.

We conclude that this factor—financial status—is in the Helmicks' favor and indicates that they had the requisite profit objective.

9. Elements of Personal Pleasure

The absence of personal pleasure or recreation relating to the activity in question may indicate a profit objective. Sec. 1.183-2(b)(9), Income Tax Regs. Respondent contends that the Helmicks “concede that they took personal pleasure in their horse breeding and boarding activity.” First, as respondent correctly notes, “[t]he mere fact that a taxpayer derives personal pleasure from a particular activity does not, per se, demonstrate a lack of profit motive.” Miller v. Commissioner, T.C. Memo. 2008-224.

Second, respondent supports his contention that the Helmicks took personal pleasure in their horse activity with snippets of their testimony that are not fair to their context. In particular, respondent notes that “Mr. Helmick liked ‘rubbing the nose of a nice, warm, furry creature’.” Mr. Helmick made that statement in the context of explaining his profit objective and the hard physical nature of keeping and caring for a herd of horses:

the business was intended to ultimately supplement the income, not to dodge paying taxes.

And, yes. I guess I enjoyed it at times. You know, rubbing the nose of a nice, warm, furry creature is good. The number of days I was laid up with a bad back or other things from moving all that feed are clearly probably not items of personal pleasure.

On the basis of the record and the testimony cited by respondent, we find that the Helmicks derived little personal pleasure from the horse activity. The record does not show that riding horses was the Helmicks' hobby. Nor does the record show that the Helmicks used their horses to entertain family or friends. In fact, Mr. Helmick's daughter often declined to visit him during the weekends in order to avoid working with the horses.

Ultimately, respondent contends that the Helmicks kept and cared for dozens of horses on their property—without the help of any full-time employees—solely for their personal pleasure. Respondent further contends that the Helmicks contested Boulder County's adverse determination that their horse activity violated zoning law only so that they could continue to enjoy taking care of those horses. If the Helmicks had paid a staff to handle the day-to-day chores of the horse activity, and they had merely visited the horses, it might be credible to assert that they enjoyed maintaining a large herd. However, we cannot find on the facts that the Helmicks derived so much pleasure from the company of purebred Arabian horses that they were willing to spend all of their free time and lose thousands of dollars every year to maintain a herd on the same property as their personal residence. Even if the Helmicks had failed to maintain their property's zoning status as an equestrian center, they would still have been entitled to keep two horses on their property. If pleasure had been the goal, then keeping and caring for 2 horses—rather than 40—would seem to have been preferable.

We conclude that this factor—elements of personal pleasure—is in the Helmicks' favor and indicates that they had the requisite profit objective.

Conclusion
We conclude that the Helmicks engaged in their horse activity during tax years 1993 to 2002 with the actual and honest objective of making a profit, and that section 183 is inapplicable in this case. 10

To reflect the foregoing,

Decision will be entered for petitioners.


Footnotes

1 Unless otherwise indicated, all citations of sections refer to the Internal Revenue Code of 1986 (26 U.S.C.), as amended, and all citations of Rules refer to the Tax Court Rules of Practice and Procedure.

2 Respondent concedes that the $2,133.50 failure-to-file addition to tax under section 6651(a)(1) for 2001 was overstated by $150 in the notice of deficiency and seeks an addition of only $1,983.50 for that year. Respondent concedes that the $1,614.75 failure-to-file addition to tax under section 6651(a)(1) for 2002 was overstated by $1,291 in the notice of deficiency and seeks an addition of only $323.75 for that year. Respondent concedes that the $1,925.40 accuracy-related penalty under section 6662 for 2001 was overstated by $120 in the notice of deficiency and seeks a penalty of only $1,805.40 for that year.

3 For purposes of disputing Ms. Helmick's credibility, respondent asks the Court to take judicial notice of a document that she filed in bankruptcy court, in which she stated that, after the trial in this case, the Court “ruled from the bench * * * that the IRS was wrong to have attempted, at any time, to characterize the farm as a hobby”; but respondent points out that there is no such ruling in the trial transcript of this case. However, the Court did speak to the parties off the record, observing that the Helmicks' horse activity did not appear to be a mere “hobby”, and that the disallowance of section 183 (though sometimes referred to as the “hobby loss” provision) reaches more than hobbies and disallows losses unless the activity is entered into for profit. Ms. Helmick's statement does not accurately characterize the Court's actual comment, but it is not (as respondent argues) an “outright fabrication”.

4 Ms. Helmick alleged that she entered the business of horse breeding and boarding through her “business associations” with “rural equine residential real estate”. However, she did not allege that she was involved in a real estate business, nor did she describe what that business might entail.

5 The Helmicks' Forms 1040 bear apparent discrepancies, but they seem to show that, as of the beginning of the year 1997, the Helmicks had accumulated net operating losses of $28,792, available to be carried forward and used as deductions. Schedule 1 to the notice of deficiency bears a similar figure of $29,762, and we assume this to be the correct figure. The schedules attached to the Helmicks' Forms 1040 for 1998 through 2002 seem to reflect that those forms include claimed deductions of net operating loss carryforwards; but in that respect they seem to be in error: If the Helmicks' Schedule F losses are allowed for the six years in issue, then for the five years 1997, 1998, 1999, 2000, and 2002, their Forms 1040 reflected overall net losses after subtracting from their wage income and tax refund income (a) their Schedule F losses, (b) their itemized deductions, and (c) their exemptions. Those net losses so computed were $1,930 in 1998, $4,131 in 1999, $5,103 in 2000, and $11,375 in 2002. Using figures from Schedule 1 to the IRS's notice of deficiency, similar results are obtained by subtracting “Net Operating Loss Deduction” from “Taxable income as Shown in return as Filed”. The return for 1997 is not in the record, but using the figures from Schedule 1 in the notice of deficiency, the net loss for 1997 was $15,275. Thus, the Helmicks did not need to deduct any NOL carryforwards in order to have zero taxable income in those five years. The one exception was 2001, in which they did apparently need an NOL deduction of $17,161 in order to have zero taxable income. The net losses from 1997 through 2000 total $26,439, and if carried forward they would be sufficient to offset the 2001 income. Thus, if the Helmicks' Schedule F losses are allowable, as we find they are, then the suit-year losses are sufficient to eliminate all their taxable income for all of the years in suit, and carryforwards from the pre-suit years 1992 to 1996 are immaterial.

6 Only tax years 1997 to 2002 are at issue. However, it is well settled that we may determine the correct amount of a net operating loss for a tax year not at issue (whether or not the assessment of a deficiency for that year is barred) as a preliminary step in determining the correct amount of a net operating loss carryover to a tax year at issue. See sec. 6214(b); Lone Manor Farms, Inc. v. Commissioner, 61 T.C. 436, 440 (1974) (citing ABKCO Indus., Inc. v. Commissioner, 56 T.C. 1083, 1088-1089 (1971), affd. 482 F.2d 150 (3d Cir. 1973)), affd. without published opinion 510 F.2d 970 (3d Cir. 1975).

7 Section 183(a) provides generally that if an activity is not engaged in for profit, no deduction attributable to that activity shall be allowed except as provided in section 183(b).

8 The regulations provide that “all the facts and circumstances” must be taken into account to determine the activity or activities of the taxpayer. Sec. 1.183-1(d)(1), Income Tax Regs. Because of the close nexus between the horse activity and the zoning status, i.e., the zoning status was both dependent on and necessary for the conduct of the activity, there is no doubt that the zoning status was an asset used in the activity—not in a separate real estate investment activity. See Keanini v. Commissioner, 94 T.C. 41, 46 (1990).

9 The notice of deficiency shows that, according to the IRS's computations, the Helmicks' highest taxable income was in 2002, in the amount of $49,733. Married individuals filing jointly with taxable income in that amount had a marginal tax rate of 28 percent in the years in issue. See sec. 1(a).

10 Since we hold that section 183 is inapplicable in this case and the Helmicks are entitled to deductions for their losses from their horse activity, it follows that the Helmicks are not liable for the failure-to-file additions to tax and the accuracy-related penalties that the IRS determined in its notice of deficiency under sections 6651(a)(1) and 6662.

Labels:

Tuesday, September 22, 2009

Examination of 2008 tax returns will begin soon

The 6694 issues will surface when the 2008 returns hit the audit cycles. But that will be at the end of this year. Good luck all!

Below is the Lee case that is on a different subject. Reliance on an accountant was not 'reasonable cause."


Lee Thomas v. Commissioner., U.S. Tax Court, T.C. Summary Opinion 2009-146, (Sept. 21, 2009)
Docket No. 142-08S. Filed September 21, 2009.

[ Code Sec. 6651]
Tax Court: Summary opinion: Penalties: Failure to timely file: Reasonable cause.–

An individual was liable for an addition to tax under Code Sec. 6651(a)(1) because he did not timely file his tax return and did not have reasonable cause for such failure. The individual had relied on his accountant to request any necessary extension of time and to file his return, but the accountant did not file the return until the taxpayer contacted him to check on the return's status. Reliance on the accountant was not reasonable cause for untimely filing. Boyle, SCt, 85-1 ustc ¶13,602, followed.


PURSUANT TO INTERNAL REVENUE CODE SECTION 7463(b), THIS OPINION MAY NOT BE TREATED AS PRECEDENT FOR ANY OTHER CASE.




ARMEN, Special Trial Judge: This case was heard pursuant to the provisions of section 7463 of the Internal Revenue Code in effect when the petition was filed. 1 Pursuant to section 7463(b), the decision to be entered is not reviewable by any other court, and this opinion shall not be treated as precedent for any other case.

Respondent determined deficiencies in petitioner's Federal income taxes for 2004 and 2005 of $1,658 and $20,268, respectively, and an addition to tax for 2005 of $5,067 for failure to timely file a tax return.

After concessions, 2 the only issue remaining for decision is whether petitioner is liable for the addition to tax for failure to timely file under section 6651(a)(1) for 2005. We hold that petitioner is liable for the addition to tax.

Background
Some of the facts have been stipulated, and they are so found. We incorporate by reference the parties' stipulation of facts and accompanying exhibits.

Petitioner resided in the State of Kentucky when the petition was filed.

Petitioner's Form 1040, U.S. Individual Income Tax Return, for 2005 was completed by his accountant. The accountant had been handling petitioner's taxes for about 15 years. Petitioner, through his accountant, requested and was granted an extension of time to file his Federal income tax return for 2005. The return due date was thereby extended from April 15 to October 15, 2006. Petitioner's 2005 tax return was filed February 24, 2007.

Petitioner's newspaper business closed its doors during 2004. In 2005 petitioner continued to wrap up the newspaper's business matters, and he also entered a new line of work; namely, truck driving.

After the extension to file was granted and before the return was filed, petitioner and his accountant had little or no communication. Petitioner was frequently on the road, and he assumed that his accountant had requested a subsequent extension to file. 3

In February 2007 petitioner contacted his accountant regarding the 2005 tax return. The accountant informed petitioner that the tax return was prepared and awaiting his signature and had been prepared for some time. Petitioner then drove to the accountant's office and signed the return on February 21, 2007. 4

Discussion
Section 7491(c) provides that the Commissioner bears the burden of production with respect to an addition to tax. To meet this burden, the Commissioner must introduce evidence indicating that it is appropriate to impose the relevant addition to tax. Higbee v. Commissioner, 116 T.C. 438, 446 (2001). Once the Commissioner meets this burden, the taxpayer bears the burden to produce evidence regarding reasonable cause. Id. at 446-447. Respondent has met his burden.

Section 6651(a)(1) imposes an addition to tax for failure to file a return by its due date. The addition equals 5 percent for each month or fraction thereof that the return is late, not to exceed 25 percent. Id. To escape the addition to tax, the taxpayer must prove that such failure was due to reasonable cause and not due to willful neglect. Id.

The term “willful neglect” may be read as meaning conscious, intentional failure or reckless indifference. United States v. Boyle, 469 U.S. 241, 245 (1985). Respondent does not contend that petitioner's failure to file was willful or reckless; therefore, we consider only whether petitioner had reasonable cause for failing to meet the deadline.

A showing of reasonable cause requires taxpayers to demonstrate they exercised “ordinary business care and prudence” but were nevertheless unable to file the return within the prescribed time. Id. at 246; sec. 301.6651-1(c)(1), Proced. & Admin. Regs. However, the failure to timely file “a tax return is not excused by the taxpayer's reliance on an agent, and such reliance is not ‘reasonable cause’” for late filing under section 6651(a)(1). United States v. Boyle, supra at 252 (taxpayers have a personal and nondelegable duty to timely file a return; reliance on an accountant does not provide reasonable cause for an untimely filing).

Petitioner agrees that the 2005 tax return was not timely filed. Nevertheless, he argues against the addition to tax on the basis that he relied on his accountant to inform him when the return was prepared. Moreover, petitioner assumed that his accountant had requested an additional extension of time to file.

Although we are sympathetic to petitioner's position, given his reliance on his accountant, we are constrained to sustain respondent's determination on this issue. Thus, petitioner is liable for the addition to tax under section 6651(a)(1).

Conclusion
We have considered all of the arguments made by petitioner, and, to the extent that we have not specifically addressed them, we conclude that they do not support a holding contrary to that reached herein.

To reflect the foregoing,

Decision will be entered under Rule 155.


Footnotes

1 Unless otherwise indicated, all subsequent section references are to the Internal Revenue Code in effect for the year in issue, and all Rule references are to the Tax Court Rules of Practice and Procedure.

2 Petitioner conceded that he is liable for the deficiency determined by respondent for 2004 of $1,658. The parties agreed that for 2005, petitioner is entitled only to a loss of $6,962 rather than the $268,533 loss claimed on Schedule E, Supplemental Income and Loss, of the 2005 tax return.

3 Sec. 6081(a) authorizes the IRS to grant a “reasonable extension of time for filing any return”. Except in the case of a taxpayer who is abroad, no extension shall be for more than 6 months. Id.

4 As a paid preparer, the accountant also signed the return; his signature was accompanied by the date Aug. 30, 2006.

Labels:

Monday, September 21, 2009

TIGTA oversight of tax return preparers

2009ARD 138-2

Treasury Inspector General For Tax Administration (TIGTA) report: Tax return preparers: Identification numbers


TREASURY INSPECTOR GENERAL FOR TAX ADMINISTRATION
Inadequate Data on Paid Preparers Impedes Effective Oversight
July 14, 2009

Reference Number: 2009-40-098

This report has cleared the Treasury Inspector General for Tax Administration disclosure review process and information determined to be restricted from public release has been redacted from this document.

Redaction Legend :

1 = Tax Return/Return Information

Phone Number | 202-622-6500

Email Address | inquiries@tigta.treas.gov

Web Site | http://www.tigta.gov

July 14, 2009

MEMORANDUM FOR COMMISSIONER, SMALL BUSINESS/SELF EMPLOYED DIVISION

FROM: Michael R. Phillips /s/ Michael R. Phillips

Deputy Inspector General for Audit

SUBJECT: Final Audit Report - Inadequate Data on Paid Preparers Impedes Effective Oversight (Audit # 200840037)

This report presents the results of our review to determine whether the Internal Revenue Service (IRS) has complete, accurate, and reliable data on tax return preparers for efficient and effective tax administration. This audit was conducted as part of our Fiscal Year 2009 Annual Audit Plan.

Impact on the Taxpayer
More than one-half of all tax returns filed are prepared by paid preparers. However, the IRS cannot determine the population of preparers or if the preparers are compliant with their own tax obligations, as well as compliant with all tax laws and regulations. Tax return preparers have a significant effect on taxpayer compliance. A unique identifying number to control each preparer and an effective management information system are necessary for the IRS to facilitate tax administration and provide effective oversight of preparers.

Synopsis
Management information on paid preparers is incomplete and inconsistent. The IRS maintains significant data on paid preparers, but it is not feasible to use the data to track, monitor, or control preparers' activities and compliance because preparers use multiple identifying numbers when dealing with the IRS, data on preparers are decentralized to more than 20 different systems, and the systems are not integrated.

Our analyses of tax returns prepared by preparers and submitted in Calendar Year 2008 1 showed preparers used approximately 1.1 million unique identifying numbers and prepared more than 80 million tax returns. Many of these may not be paid preparers because almost one-half of these tax returns were filed by preparers who filed fewer than six tax returns.

One of the IRS' key objectives in its 2009-2013 Strategic Plan is to ensure that preparers adhere to professional standards and follow the law. Currently, the IRS does not have a sufficient management information system to effectively achieve this goal, including a control to require that preparers have one unique identifying number. Test results from a statistical sample of 139 preparers demonstrated many of the challenges the IRS would face in attempting to identify the population of preparers and determine if they are regulated and compliant with their own tax obligations, as well as with all tax laws and regulations.

Multiple identifying numbers were used by 93 (67 percent) of 139 preparers.

The names of the 139 preparers in various systems were inconsistent 45 percent of the time.

There were inconsistencies in 24 percent of the preparers' street addresses listed in the various systems, while telephone numbers varied 40 percent of the time.

In 10 instances, IRS records showed the preparers were attorneys, although our research completed on State web sites showed only 2 preparers were members of that States' Bar Associations. Seven preparers were listed in the IRS records as both an attorney and Certified Public Accountant; we only verified that one held both designations.

Seven (5 percent) of the 139 preparers in the statistical sample were not compliant with their own tax obligations. Three preparers had delinquent tax returns; five owed taxes. There are currently no Federal laws or regulations requiring a preparer to be compliant with his or her own tax obligations before preparing tax returns for others.

Furthermore, nine preparers sampled used invalid identifying numbers on the tax returns they prepared. 2 These tax returns were submitted on paper. A review of ****(1)**** of the nine 3 paper tax returns showed ****(1)****

Recent Treasury Inspector General for Tax Administration reports have addressed issues surrounding preparer management information, which included recommendations requiring preparers to use unique identifying numbers. 4 Currently, it is not feasible to effectively identify preparers and enforce the preparer requirements to sign tax returns and provide identifying numbers. Requiring a unique identifying number for all preparers would help provide the standardization the IRS needs to identify the preparer population and enforce tax laws and regulations. Developing a management information system around its current internal systems, with the ability to determine the designations of preparers, would allow the IRS to develop business rules to control, track, and monitor preparers.

Recommendations
We recommended that the Commissioner, Small Business/Self-Employed Division, revise the target completion date for its study on requiring preparers to use a single identification number when filing tax returns. This will ensure the IRS has a means to control and track preparer activities by the 2011 Filing Season. The Commissioner should develop a method to enforce Internal Revenue Code Section (§) 6695(c) that imposes a penalty on preparers who do not provide an identification number on tax returns they prepare. Finally, the Commissioner should develop a comprehensive data management system that allows the IRS, at a minimum, to determine the population of preparers by eliminating discrepancies and duplicates between systems. This system should include business rules that would allow the IRS to control, track, and monitor preparers' activities.

Legislative Recommendation
Establish a requirement that paid preparers be compliant with their own Federal tax filing requirements in order to be allowed to prepare tax returns for others for a fee.

Response
IRS management agreed with two recommendations and agreed in principle with two other recommendations. In its response to this report, the IRS stated that it has recently launched the Tax Return Preparer Review that is expected to cover a broad range of areas related to paid preparers. By the end of this calendar year, the IRS intends to propose a comprehensive set of recommendations designed to better leverage the tax return preparer community with the IRS' dual goals of increasing taxpayer compliance and ensuring uniform and high ethical standards of conduct for tax preparers.

Relating to specific recommendations, IRS management agreed to develop a method to enforce Internal Revenue Code § 6695(c) that imposes a penalty on preparers who do not provide an identification number on tax returns they prepare. Management also agreed with our recommendation to develop a comprehensive data management system that allows the IRS, at a minimum, to determine the population of preparers by eliminating discrepancies and duplicates between systems. They added, however, that they were not in a position at this time to independently recommend a specific methodological approach to this issue.

IRS management agreed in principle that tax preparers should use a single identification number when filing tax returns. They also agreed in principle to require paid preparers to be compliant with their own Federal tax filing requirements. Management stated that the Tax Return Preparer Review team will be addressing these issues. Management also responded to a recommendation related to amending Internal Revenue Code § 6695(c) to impose a penalty on preparers who do not provide the required single identifying numbers when preparing tax returns; however, based on prior discussions with the IRS, we had agreed to remove this recommendation. The IRS stated that it can accomplish this without a legislative change. Management's complete response to the draft report is included as Appendix V.

Copies of this report are also being sent to the IRS managers affected by the report recommendations. Because this report contains a legislative recommendation, we will provide a copy to the Assistant Secretary of the Treasury for Tax Policy. Please contact me at (202) 622-6510 if you have questions or Michael E. McKenney, Assistant Inspector General for Audit (Returns Processing and Account Services), at (202) 622-5916.

Table of Contents
Background
Results of Review
Management Information on Paid Preparers Is Incomplete and Inconsistent

Five Percent of Preparers Were Not Compliant With Their Own Tax Obligations

Recommendation 1:

The Internal Revenue Service Does Not Have a Sufficient Data Management System to Control Preparers to Allow It to Achieve Its Strategic Goals

Recommendation 2:

Recommendations 3 through 4:

Appendices
Appendix I - Detailed Objective, Scope, and Methodology

Appendix II - Major Contributors to This Report

Appendix III - Report Distribution List

Appendix IV - Internal Revenue Code Preparer Penalties

Appendix V - Management's Response to the Draft Report

Abbreviations
IRS
Internal Revenue Service




E-file (E-filed)
Electronically file or Electronically filed




PTIN
Preparer Tax Identification Number




TIGTA
Treasury Inspector General for Tax Administration


Background
Paid preparers can be self-employed or may work for accounting firms, large tax preparation services, or law firms and include the following:

Licensed professionals, such as attorneys and Certified Public Accountants. These licensed professionals are regulated by the State licensing authority.

Enrolled agents. These professionals pass an IRS examination or present evidence of qualifying experience as a former IRS employee and have been issued an enrollment card. Enrolled agents are the only taxpayer representatives who receive their right to practice from the Federal Government.

Unenrolled or unlicensed preparers. These individuals range from those who might receive extensive training to those with little or no training. Currently, only three States—California, Maryland, and Oregon—have requirements for unenrolled paid preparers. In these States, unenrolled paid preparers must register with State agencies and meet continuing education requirements.

Every year, more than one-half of all taxpayers pay someone else to prepare their income tax returns. In Calendar Year 2008, the Internal Revenue Service (IRS) processed approximately 86.9 million individual Federal income tax returns prepared by paid preparers. This is up more than 4 percent from the nearly 83 million tax returns prepared by paid preparers that the IRS processed in Calendar Year 2007. Currently, there are no national standards that a preparer is required to satisfy before selling tax preparation services to the public. Anyone, regardless of training, experience, skill, or knowledge, is allowed to prepare Federal income tax returns for others for a fee.

State regulation of paid preparers focuses on licensed practitioners, and with the exception of California, Maryland, and Oregon, most States allow anyone to be a paid preparer regardless of education, training, or licensure. Unenrolled paid preparers are not required to demonstrate a minimum competency in tax law, nor are they required to satisfy any continuing education requirements in order to prepare Federal tax returns.

Paid preparers authorized to represent taxpayers in matters before the IRS are called practitioners and include attorneys, Certified Public Accountants, and Enrolled Agents. Practitioners can legally represent taxpayers; therefore, they can serve as a conduit to the IRS on account-related matters. Examples include preparing and filing documents, communicating with the IRS, and representing taxpayers at meetings.

The IRS Office of Professional Responsibility regulates, for example, attorneys, Certified Public Accountants, and Enrolled Agents who practice before the IRS.

Practice is defined broadly in Treasury Department Circular 230 5 as comprehending all matters connected with a presentation to the IRS relating to a taxpayer's rights, privileges, or liabilities under laws or regulations administered by the IRS.

Preparers can also be Electronic Return Originators. Electronic Return Originators originate the electronic submission of income tax returns to the IRS. An Electronic Return Originator electronically submits income tax returns that are either prepared by the Electronic Return Originator firm or collected from taxpayers. Applicants to the Electronic Filing Program must pass certain IRS checks, including limited criminal background checks. Participants are also monitored.

This review was performed at the Detroit Computing Center in Detroit, Michigan, the Office of Professional Responsibility in Washington, D.C., the Wage and Investment Division Headquarters in Atlanta, Georgia, and the Small Business/Self-Employed Division in Lanham, Maryland, during the period July 2008 through February 2009. This review focused on preparers of individual tax returns [i.e., U.S. Individual Income Tax Return (Form 1040)] and did not include preparers of corporate, partnership, or estate income tax returns. We conducted this performance audit in accordance with generally accepted government auditing standards. Those standards require that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objective. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objective. Detailed information on our audit objective, scope, and methodology is presented in Appendix I. Major contributors to the report are listed in Appendix II.

Results of Review
Management Information on Paid Preparers Is Incomplete and Inconsistent
Because more than one-half of all tax returns filed are prepared by paid preparers, tax return preparers have a significant effect on taxpayer compliance. Although the IRS maintains extensive data on paid preparers, it is not feasible to use the data to track, monitor, or control preparers' activities and compliance because preparers use multiple identifying numbers when dealing with the IRS, data on preparers are decentralized to more than 20 different systems, and the systems are not integrated.

Foremost, the IRS cannot determine the population of preparers, which tax returns they prepared, or which taxpayers they represent. Additionally, it cannot determine if the preparers are compliant with their own tax obligations, as well as compliant with all tax laws and regulations.

Government Accountability Office standards require that there be sufficient management to effectively control operations and make decisions and should be an integral component of a system of internal controls. A unique identifying number to control each preparer and an effective management information system are necessary for the IRS to better facilitate tax administration and provide effective oversight of preparers.

The IRS does not currently require paid preparers to have a unique identifying number
The IRS maintains multiple lists, databases, and systems that contain preparer information; however, there are no data standards among these to easily match preparer information and preparers are not required to use one identifying number. In-depth analyses and judgmental decisions are required to match information on preparers from the various systems.

The IRS requires paid preparers to sign the tax returns they prepare and to identify themselves using either their Social Security Numbers or Preparer Tax Identification Numbers (PTIN). 6 If they are self-employed or a member of a firm, they are also to provide their Employer Identification Numbers. 7

Figure 1 shows that there were approximately 1.1 million unique identifying numbers used to file the 80.5 million tax returns submitted by paid preparers in Calendar Year 2008. 8

Figure 1: Treasury Inspector General for Tax Administration's (TIGTA) Attempt to Determine the Population of Preparers Who Submitted Tax Returns in Calendar Year 2008
Identification Number Used
Number of Tax Returns
Identifying Numbers
Unique Identifying Numbers


Employer Identification Number Only
3,076,291
32,690
32,690


PTIN Only
6,738,446
65,061



PTIN and Employer Identification Number
49,789,637
287,905



Unique Preparer Tax Identification Numbers


340,643


Social Security Number Only
4,835,614
79,118



Social Security Number and Employer Identification Number
14,768,352
127,935



Unique Social Security Numbers


202,206



Total of All Unique Paid Preparers


575,539


Prepared Fewer Than Six Tax Returns 9
989,248
626,202
555,896


No Identifying Number
330,909





Totals
80,528,497
1,218,911
1,131,435


Source: Our analysis of the IRS' Individual Return Transaction File . 10

9 Preparers who had prepared a low volume of tax returns may not be paid preparers.

10 The Returns Transaction File contains all edited, transcribed, and error-corrected data from the U.S. Individual Income Tax Returns (Form 1040 series) and related forms for the current processing year and 2 prior years.


However, these may not be unique preparers. For example, Preparer John S. Doe could use multiple numbers-his Social Security Number to file some tax returns and his PTIN to file others. Additionally, he may not use any identifying number and he may sign the tax return using variations of his name, for example, John Doe, John S. Doe, or J. Doe.

Trying to identify the total number of unique preparers requires significant resources to collect preparer identifying numbers and other information from each IRS system, compare the information collected to identify discrepancies between the systems, and ultimately make a judgmental decision on which set of identifying numbers define a unique preparer.

No identifying numbers were provided on 330,909 tax returns filed by preparers in Calendar Year 2008.

The IRS also does not validate preparers' identifying numbers (i.e., the Employer Identification Numbers, PTINs, or Social Security Numbers) listed in the paid preparers section of tax returns when processing them. Furthermore, no identifying numbers were provided on 330,909 tax returns. It is currently not practical to verify preparers' identifying numbers. The IRS allows preparers to use multiple numbers and it would have to access multiple systems to verify the numbers. This would delay the processing of tax returns.

Furthermore, tax returns filed without identifying numbers are not rejected because processing tax returns is a priority for the IRS. There is no law or regulation to reject or delay the processing of a tax return when no preparer identification number is provided. The Internal Revenue Code, however, does impose penalties on preparers who do not sign the tax returns or provide an identifying number. The penalty for failure to sign the tax return or furnish an identifying number on the tax return is $50 per failure up to a maximum of $25,000.

Some individuals may not be paid preparers and were excluded from the statistical sample
Almost one-half of the preparers with identifying numbers (555,896 of 1,131,435) submitted fewer than 6 tax returns in Calendar Year 2008 and were not included in the statistical sample. Twenty-seven percent (301,616 of 1,131,435) of these preparers provided only their Social Security Numbers.

Also, since these preparers had prepared a low volume of tax returns, they may not be paid preparers. For example, friends or relatives might have helped the taxpayers prepare their tax returns and mistakenly completed the preparer section of the tax form. They should not have completed this section of the tax return since they are not paid preparers.

Six percent of the preparers provided invalid identifying numbers
From a random sample of 139 preparers, 11 9 preparers (6 percent) could not be identified because the identifying numbers were invalid. Additionally, since the tax returns were submitted on paper, the names of the preparers were not recorded on the Individual Return Transaction File. When paper tax returns are transcribed, the names of the preparers are not included in the transcriptions.

A review of ****(1)**** of the nine 12 paper tax returns ****(1)**** Since the IRS does not validate the information entered in the “Paid Preparer's Use Only” section of tax returns or transcribe the names of the preparers when the returns are submitted on paper, it was not possible to identify these preparers.

Preparers' names and other identifying information are inconsistent among IRS systems
We selected a statistical sample of 139 preparers to analyze the information the IRS maintains on tax return preparers. Figure 2 shows the various combinations of identifying numbers used by the 139 preparers sampled. Ninety-three (67 percent) of the 139 preparers sampled were identified in various IRS systems using multiple identifying numbers.

Figure 2: Preparers Sampled Used Multiple Identifying Numbers to Prepare Tax Returns
Identification Number Used
Number of Preparers


Employer Identification Number Only
1


PTIN Only
8


PTIN and Employer Identification Number
15


Social Security Number Only
12


Social Security Number and Employer Identification Number
10


Various Combinations of Employer Identification Numbers, PTINs, and Social Security Numbers
93


Total
139


Source: Our analysis of the IRS' various systems for the sample of preparers.


Three (2 percent) of the 139 preparers who used their Employer Identification Numbers also entered their Employer Identification Numbers as their preparer identifying number. For example, Employer Identification Number 12-3456789 was altered and entered as the Social Security Number 123-45-6789.

Additionally, between the systems reviewed, the names of the 139 preparers sampled were inconsistent 45 percent of the time. For example, in one system preparer information consisted of a first name, middle initial, and last name, but in another system only the last name was provided with the initials instead of the first and/or middle name. Twenty-four names (17 percent) were not listed on any of the IRS systems we researched. Furthermore, there were inconsistencies in 24 percent of the preparers' street addresses listed in the various systems, while telephone numbers varied 40 percent of the time. For 82 addresses (59 percent) and 37 telephone numbers (27 percent), we could not determine if differences existed because not enough information was present.

Preparer designations cannot be determined using only IRS internal data
Power of Attorney and Declaration of Representative (Form 2848)

Under penalties of perjury, the representative must declare on Form 2848 that he or she is not currently under suspension or disbarment from practice before the IRS, is aware of regulations contained in Circular 230, and is authorized to represent the taxpayer(s) for tax matter(s) as one of the following:

1) Attorney.

2) Certified Public Accountant.

3) Enrolled Actuary.

4) Enrolled Agent.

5) Enrolled Retirement Plan Agent.

6) Family Member.

7) Full-Time Employee.

8) Officer.

9) Student Attorney.

10) Student Certified Public Accountant.

11) Unenrolled Return Preparer.

We could not determine from IRS internal sources which preparers were practitioners (regulated). Other than data obtained from the tax returns filed by preparers, the IRS maintains only the following on paid preparers:

Preparers it regulates - Electronic Return Originators and Enrolled Agents.

Preparers when they are either authorized to represent taxpayers in front of the IRS or receive information, such as taxpayer account information or notices, from the IRS on behalf of taxpayers.

Practitioners who have allegations of misconduct or have had disciplinary actions taken against them.

The IRS maintains a database, the Centralized Authorization File, of individuals who complete a Power of Attorney and Declaration of Representative (Form 2848) and submit it to the IRS so they can represent taxpayers in tax matters before the IRS. This Centralized Authorization File contains the name, complete address, and telephone number(s) of the representative, as well as an assigned Centralized Authorization File number, if one is assigned. It also contains the representative's declaration stating he or she is 1 of 11 designations.

Figure 3 compares the designations of preparers per IRS records with the results of our research of preparer information captured in various IRS systems and State Internet web sites.

Figure 3: Comparison of Preparer Designations per IRS Records and TIGTA Research
Designations
IRS Records
TIGTA Research
Percentage per TIGTA Research


Attorney
3
1
.7%


Attorney and Certified Public Accountant
7
1
.7%


Certified Public Accountant
25
31
22%


Enrolled Agent
5
5
4%


No Designation Found in IRS Records/Unregulated
99
101
73%


Total
139 13
139
100%


Source: The IRS' Centralized Authorization File and Enrolled Practitioner Program System, 14 and our research of State Internet web sites.

13 Sixty-one (44 percent) of 139 of the preparers were also Electronic Return Originators.

14 The Enrolled Practitioner Program System is used by the Office of Practitioner Enrollment, an entity of the Office of Professional Responsibility, to control Enrolled Agents.


In 10 instances, the Centralized Authorization File showed the preparers were attorneys. However, research completed on State web sites showed only two preparers were members of that States' Bar Associations. Seven preparers were listed in the Centralized Authorization File as both an attorney and Certified Public Accountant. We only verified that one held both designations. Resolving the discrepancies would require analyzing the Forms 2848 and conducting additional research to determine if the discrepancies were caused by employee input error, taxpayer and/or representative misunderstanding, or misrepresentation by the representative.

The IRS relies heavily on its employees to review the accuracy of a taxpayer representative declaration and forward identified irregularities for the appropriate disciplinary action(s). Field employees, such as Revenue Officers, should verify the accuracy of information on declaration forms when they accept them, but Centralized Authorization File employees do not verify the information before accepting the authorizations to represent taxpayers before the IRS.

Verifying designations manually is resource intensive. It is not clear whether automating the verification of designations would be feasible and/or cost effective. It would require interfacing with State Licensing Boards.

Using current IRS systems, it is possible to identify the tax returns prepared by preparers and identify those preparers who have been granted authorizations to represent taxpayers before the IRS
Although the 139 preparers sampled used multiple identifying numbers, we were able to determine how many and which tax returns were prepared by each of the preparers. The 139 preparers in our sample prepared almost 36,000 tax returns, of which 83 percent were electronically filed ( e-filed ) returns. Twelve (9 percent) of the 139 preparers sampled have current authorizations on the Centralized Authorization File.

The probability of correctly identifying preparers and the tax returns they prepare increases if the tax return is e-filed . To participate in the e-file Program, individuals are required to apply to the IRS and include their Social Security Numbers along with other addresses and professional designations. If they pass certain suitability checks, they are provided a unique Electronic Filing Identification Number that allows them to participate in the e-file Program.

All data in the “Paid Preparer's Use Only” portion of tax returns are captured when a tax return is e-filed . Figure 4 provides an excerpt of paid preparer identifier requirements on the Form 1040.

Figure 4: Excerpt From Form 1040, Paid Preparer Identifier Requirements
Figure 4 was removed due to its size. To see Figure 4, please go to the Adobe PDF version of the report on the TIGTA Public Web Page.

When tax returns are submitted on paper and the return indicates it was prepared by a paid preparer, IRS employees input only a Preparer Code and transcribe the following three data fields: 1) PTIN or Social Security Number; 2) the Employer Identification Number; and 3) the telephone number. The name of the preparer is not transcribed nor is the name of the firm or if the preparer is self-employed. This makes it more difficult to identify the preparer if any of the identifying numbers are incorrect or illegible.

The 12 preparers sampled who have current authorizations on the Centralized Authorization File appear to represent 223 taxpayers. In addition, it appears that some taxpayers have more than one representative per tax period. In Fiscal Year 2004, the TIGTA reported that the Centralized Authorization File is not always accurate. 15 The records often contained incomplete or incorrect information. Therefore, to be certain that each authorization is current and that taxpayers had authorized more than one representative per tax period, we would have to test the accuracy of the Centralized Authorization File or examine each authorization. Resources did not permit us to conduct this additional research at this time.

Five Percent of Preparers Were Not Compliant With Their Own Tax Obligations
Seven (5 percent) of the 139 preparers sampled were not compliant with their own tax obligations; 5 owed taxes.

Seven (5 percent) of the 139 preparers sampled were not compliant with their own tax obligations, from not filing a return to not paying taxes owed.

****(1)****

3 had not filed a Tax Year 2006 return, ****(1)****

3 had not paid all taxes owed and were in delinquency status.

These preparers prepared more than 2,000 tax returns, of which 605 returns (29 percent) were submitted on paper. Total income on the tax returns by these preparers ranged from no income to more than $100,000, with the majority less than $38,000. Three of the preparers claimed to be self-employed. ****(!)****

There are currently no Federal laws or regulations requiring a preparer to be compliant with his or her own tax obligations before preparing tax returns for others
In most States, anyone can be a paid preparer regardless of education, training, or licensure. In some States, hairdressers and home inspectors must be licensed before they perform their services, but there is no such requirement for tax return preparers.

Although there are no national standards that preparers are required to satisfy before selling tax preparation services to the public, all paid preparers are subject to Internal Revenue Code penalties, civil and criminal. 16 For example, civil penalties apply if paid preparers do not sign the tax returns they prepare, do not provide the taxpayers with copies of the tax returns, or deliberately understate a taxpayer's tax liability. Criminal penalties apply when a paid preparer willfully prepares or makes a false statement regarding a false or fraudulent tax return or knowingly provides fraudulent tax returns to the IRS.

In addition, practitioners governed by Circular 230 are subject to disciplinary actions if they fail to file a required Federal tax return or evade assessment or payment of Federal tax. This can prevent a practitioner from representing the taxpayer in tax matters before the IRS, but not from preparing tax returns for others.

In a Fiscal Year 2006 audit, we reported that the IRS had no method to identify practitioners who were not compliant with their own tax obligations. 17 In a Fiscal Year 2009 audit, we reported that the Office of Professional Responsibility was unaware of a significant number of licensed tax practitioners who were assessed penalties, sentenced in a criminal proceeding, or enjoined for tax shelter violations. 18 As a result, these tax practitioners were still eligible to represent taxpayers before the IRS.

One of the IRS' objectives in its Strategic Plan 2009-2013 is to ensure that all tax practitioners, tax preparers, and other third parties in the tax system adhere to professional standards and follow the law. Currently, the IRS does not have a sufficient management information system to effectively achieve this goal, including the control requiring that preparers have one unique identifying number.

Legislative Recommendation
Recommendation 1: Establish a requirement that paid preparers be compliant with their own Federal tax filing requirements in order to be allowed to prepare tax returns for others for a fee.

Management's Response: IRS management agreed in principle that paid preparers should be compliant with their own Federal tax filing requirements. Compliance checks are already performed by the Office of Professional Responsibility during the enrolled agent admission and renewal processes and by the Wage and Investment Division prior to acceptance of a preparer into the Electronic Return Originator Program. The Commissioner's Tax Return Preparer Review team will be making recommendations by the end of the year, in part, on how to ensure uniform and high ethical standards of conduct and competence for preparers. Accordingly, the IRS is not in a position at this time to independently recommend that such a requirement be established.

Office of Audit Comment: In its response, the IRS stated that it has recently launched the Tax Return Preparer Review that is expected to cover a broad range of areas related to paid preparers. By the end of this calendar year, the IRS intends to propose a comprehensive set of recommendations designed to better leverage the tax return preparer community with the IRS' dual goals of increasing taxpayer compliance and ensuring uniform and high ethical standards of conduct for tax preparers. Therefore, we agree that the IRS will be in a better position at that time to independently recommend that such a requirement be established.

The Internal Revenue Service Does Not Have a Sufficient Data Management System to Control Preparers to Allow It to Achieve Its Strategic Goals
In Fiscal Year 2008, the IRS began implementing a Return Preparer Strategy. The IRS states that the Return Preparer Strategy incorporates service, education, outreach, and enforcement activities that are based on data-driven decisions; recognizes the importance of feedback (both internal and external); and is supported by effective and efficient technology. The Strategy includes the following objectives:

The Practitioner Information and Classification System was to interface with 22 existing IRS systems, in addition to interfacing with applications from States and other Federal Government agencies.
Enhance knowledge management to better understand and respond to preparer needs, preferences, and behaviors.

Explore alternative compliance strategies with the goal of improving coverage of return preparers.

Develop new research initiatives to identify fraudulent return preparers and other areas of potential abuse and noncompliance by return preparers.

Create a data management strategy that connects return preparer information on an IRS-wide basis.

The Office of Professional Responsibility investigated the need for a database that could control and monitor all paid preparers, both practitioners and unregulated preparers. IRS officials stated that an initial estimate to create a single database to control preparers was $100,000. However, after research was done, a new direction was taken, and in January 2007 a $48 million data management system (called the Practitioner Information and Classification System) was proposed. This proposed System would integrate 22 existing IRS systems, connecting preparer return information on an IRS-wide basis. The proposed System was a centralized database of preparer information and would have created automated mechanisms to ensure that return preparers are adhering to professional standards of conduct and following the law. Developers stated that the system would facilitate quick and easy identification of return preparer trends, issues, and tax return filing histories. Because the estimated costs to develop and maintain the system for 10 years were $48 million, the system was not approved for development.

The Office of Professional Responsibility recently purchased a commercial computer software application for about $175,000 that will replace the Enrolled Practitioner Program System and is currently being configured to meet the needs of the Office of Professional Responsibility. The new application will control Enrolled Agents, Enrolled Retirement Plan Agents, and Enrolled Actuaries and will track enforcement cases of all Circular 230 practitioners. IRS officials stated that all preparers could be controlled on this system, but major modifications to the system would be required.

One of the IRS' key objectives in its current strategic plan is to ensure that preparers adhere to professional standards and follow the law
Currently, the IRS does not have a sufficient management information system to effectively achieve this goal, including a control to require that preparers have one unique identifying number. Test results from our sample of 139 preparers demonstrated many of the challenges the IRS would face in attempting to identify the population of preparers, determine if they are regulated and the taxpayers they represent, and if they are compliant with their own tax obligations. This information resides on various IRS systems, but because preparers do not have a unique identifying number and the systems are not integrated, the data are not useable to control, track, and monitor preparers.

A reliable management information system is vital for the IRS to achieve this goal. Additionally, systemic and management controls are necessary to help ensure the validity, completeness, and accuracy of system data. A management information system with related controls would enable IRS management to effectively monitor preparer activities and would be useful to identify preparers and issues for outreach and enforcement actions.

For example, from our statistical sample, we project that there are about 498,289 paid preparers who prepared and filed tax returns processed in Calendar Year 2008. Of these, approximately:

Eighty-three percent of all tax returns prepared by preparers in our sample were e-filed, compared to about 60 percent of all individual tax returns e-filed.
73 percent appear to be unregulated (i.e., are not attorneys, Certified Public Accountants, or Enrolled Agents). Unregulated preparers prepared about 65 percent of the tax returns.

39 percent are self-employed and prepared 48 percent of the tax returns.

37 percent were employed by a commercial chain and prepared 29 percent of the tax returns.

The 139 preparers sampled prepared almost 36,000 tax returns. Figure 5 provides a comparison of the number of tax returns for our sample of 139 preparers by comparing regulated to unregulated, self-employed to other employment statuses, and chain to independent preparer.

Figure 5: Comparison of the Number of Tax Returns Prepared for the 139 Preparers in Our Statistical Sample
Category of Preparer
Total Number of Tax Returns Prepared
Percentage of Total Returns Prepared
Percentage of Tax Returns E-Filed


Regulated
12,447
35%
81%


Unregulated
23,479
65%
84%


Total Tax Returns
35,926
100%



Self-Employed
17,200
48%
78%


Other Employment Status
18,726
52%
88%


Total Tax Returns
107,778
100%



Chain
10,534
29%
95%


Independent
25,392
71%
78%


Total Tax Returns
251,482
100%



Source: Our analysis of the IRS Return Transaction File.


Additionally, regulated preparers and preparers not affiliated with a commercial chain prepared most of the tax returns with income more than $100,000. Commercial chain preparers prepared the least number of tax returns with income more than $100,000. Figure 6 breaks down taxpayer income for the 139 preparers by the same categories as Figure 5.

Figure 6: Comparisons of Taxpayer Income for the 139 Preparers in Our Statistical Sample
Category of Preparer
No Income
$1 to $14,999
$15,000 to $38,646
$38,647 to $74,999
$75,000 to $99,999
$100,000 and More
Total


Regulated
227
2,249
2,891
3,404
1,434
2,242
12,447


Unregulated
439
6,881
9,009
5,054
1,244
852
23,47979


Total Tax Returns Prepared




2,360,4266


Self-Employed
335
3,902
5,555
4,365
1,444
1,599
17,200


Other Employment Status
331
5,228
6,345
4,093
1,234
1,495
18,726


Total Tax Returns Prepared




35,926


Chain
159
3,653
4,203
1,841
407
271
10,534


Independent
507
5,477
7,697
6,617
2,271
2,823
25,392


Total Tax Returns Prepared




35,926


Source: Our analysis of the IRS Return Transaction File.


Paid tax return preparers are a critical component and stakeholder in tax administration and represent an important intermediary between taxpayers and the IRS. They are also an important component in IRS efforts to close the tax gap. The tax return preparer community provides a unique opportunity to affect taxpayer behavior and compliance with the tax laws.

Recent TIGTA reports have addressed the issues surrounding preparer management information and a unique preparer number
Since Fiscal Year 2006, the TIGTA has been reporting that a unique identifying number for preparers would benefit the IRS. In a March 2006 audit report, we recommended the IRS develop a method of uniquely identifying representatives on the Centralized Authorization File that does not require representatives to use Social Security Numbers on Form 2848. 19 The IRS agreed and responded that it would coordinate with the Department of the Treasury to develop a method to uniquely identify representatives on the IRS Centralized Authorization File. To date, a unique identifying number for practitioners has yet to be developed.

In September 2008, we reported that the IRS had limited information on preparers and that a unique identification number would enable the IRS to better use its current databases to identify and evaluate preparers' compliance. 20 The IRS agreed to study this issue by July 2010.

In February 2009, we reported that with its current processes the IRS cannot determine how many complaints against tax return preparers it receives, how many complaints are worked, and the total number of multiple complaints against a specific firm or preparer. 21 We recommended and the IRS agreed to develop a database(s) or tracking system to efficiently control the complaints.

Requiring the use of PTINs could help the IRS move forward in its preparer strategy
The Practitioner Information and Classification System was to provide the IRS with an automated multi-functional system. However, IRS officials stated that its development required significant additional funding. Currently, Enrolled Agents, preparers with PTINs, and Electronic Return Originators are controlled on two IRS systems. Preparers with PTINs and Electronic Return Originators are controlled on the Third Party Data Store, 22 while Enrolled Agents are controlled on the Enrolled Practitioner Program System (soon to be controlled on a new system). These two systems automate the application process, including renewals, and maintain an inventory of preparers.

In Fiscal Year 2003, the IRS attempted to use the Centralized Authorization File to determine the paid preparer population. The IRS resorted to using the names of preparers from the database to match with third-party data, external to the IRS, to identify Social Security Numbers to conduct matches against its internal databases. As a result, the IRS had to qualify the use of the data. Currently, when reporting the population of unregulated preparers, the IRS uses ranges.

Requiring that all preparers use a unique identifying number would allow the IRS, for example, to use the PTIN application process and the Third Party Data Store to control all preparers and provide it with a means to identify the population of preparers. The Application for Preparer Tax Identification Number (Form W-7P) could be updated to include a preparer designation. System controls, much like those for Enrolled Agents or Electronic Return Originators, could be considered to verify the information on the Form W-7P. See Figure 7 for an excerpt of the Form W-7P.

Figure 7: Form W-7P
Figure 7 was removed due to its size. To see Figure 7, please go to the Adobe PDF version of the report on the TIGTA Public Web Page.

Since Fiscal Year 2005, the IRS' strategic plans have included an objective to ensure that accountants, attorneys, and other tax practitioners adhere to professional standards and follow the law. Since Fiscal Year 2006, the TIGTA has identified concerns that could prevent the IRS from effectively achieving this objective. Yet, it is still not feasible for the IRS to efficiently identify all preparers or enforce the requirement to sign the tax returns and or provide identifying numbers. Requiring a PTIN for all preparers would help provide the standardization the IRS needs to identify the preparer population and enforce the Internal Revenue Code. Using the PTIN application process would provide the IRS with the ability to determine the designations of preparers and to build business rules to control, track, and monitor preparers using its internal systems.

Recommendations
The Commissioner, Small Business/Self-Employed Division, should:

Recommendation 2: Revise the target completion date for its study on requiring preparers to use a single identification number when filing tax returns. This will ensure the IRS has a means to control and track preparer activities by the 2011 Filing Season—the current date of July 2010 could delay implementation beyond the 2011 Filing Season.

Management's Response: The IRS agreed in principle that preparers should use a single identification number when filing tax returns. The issue of PTINs for use by tax return preparers is on the Department of the Treasury 2008-2009 Priority Guidance Plan. The Department of the Treasury and the IRS are looking at the issue of requiring all paid return preparers to obtain and use a single identification number when preparing tax returns as part of that guidance project. The IRS is not proceeding with the study because this issue is being addressed through priority guidance. It will formally request cancellation of the feasibility study corrective action from our prior audit. 23 Further, the Tax Return Preparer Review discussed in Recommendation 1 is expected to encompass this issue as part of the Commissioner's comprehensive recommendations. The IRS will provide a copy of the guidance once it is published.

Office of Audit Comment: In its response, the IRS stated that it has recently launched the Tax Return Preparer Review that is expected to cover a broad range of areas related to paid preparers, including the issue that preparers should use a single identification number when filing tax returns. Therefore, we agree that the IRS should cancel the feasibility study corrective action. We will review the guidance once it is published.

Recommendation 3: Develop a method to enforce Internal Revenue Code Section (§) 6695(c) that imposes a penalty on preparers who do not provide an identification number on tax returns they prepare.

Management's Response: The IRS agrees with this recommendation. The Director, Examination, Small Business/Self-Employed Division, will commission a cross-functional team to study the issue and to make recommendations on a plan to both educate paid preparers about their responsibilities under Internal Revenue Code § 6109 and a plan to enforce compliance by imposing Internal Revenue Code § 6695(c) when warranted.

Recommendation 4: Develop a comprehensive data management system that allows the IRS, at a minimum, to determine the population of preparers by eliminating discrepancies and duplicates between systems. This system should include business rules that would allow the IRS to control, track, and monitor preparers' activities.

Management's Response: The IRS agrees with this recommendation. The IRS stated that a comprehensive method to identify and track the population of tax return preparers is needed. The Tax Return Preparer Review discussed in Recommendation 1 is expected to encompass this issue as part of the Commissioner's comprehensive recommendations. Accordingly, the IRS is not in a position at this time to independently recommend a specific methodological approach to this issue.

Appendix I
Detailed Objective, Scope, and Methodology
Our overall objective was to determine whether the IRS has complete, accurate, and reliable data on tax return preparers for efficient and effective tax administration. To accomplish our objective, we:

I. Determined what oversight the IRS provides paid preparers and what data the IRS maintains on paid preparers by meeting with various IRS officials.

II. Determined if the IRS has sufficient accurate and reliable data on paid preparers.

A. Using the Individual Returns Transaction File, 24 determined that 83.8 million tax returns were submitted by preparers in Calendar Year 2008 through July 12, 2008. We removed approximately 3.3 million tax returns prepared by Volunteer Income Tax Assistance or Tax Counseling for the Elderly programs, resulting in 80.5 million tax returns. We grouped the tax returns by preparer identifying numbers and removed any duplicate numbers, which resulted in 1.1 million unique preparers.

B. Using the Individual Return Transaction File, we selected taxpayer accounts and verified the accuracy of the Individual Return Transaction File tax accounts by researching the IRS Integrated Data Retrieval System. 25 Personnel in our Data Center Warehouse performed run-to-run balancing 26 by comparing record counts in all logs showing that data were extracted from the IRS files to the location of data stored at the TIGTA Data Center Warehouse.

C. Using attribute sampling with a 95 percent confidence level, 5 percent precision, and 10 percent error rate, we selected a sample of 139 preparers and determined that 28 (20 percent) could not be identified and/or prepared fewer than 6 tax returns. Nine of the 28 preparers could not be identified because the identifying numbers were invalid. To help ensure the statistical sample included only those preparers with the most likelihood of being paid preparers, we:

1. Identified and eliminated 555,896 preparers who prepared fewer than 6 tax returns. We chose six as the criteria because the National Taxpayer Advocate has previously defined a Federal Tax Return Preparer as someone, other than an attorney, Certified Public Accountant, or Enrolled Agent, who prepares more than five Federal tax returns in a calendar year.

2. Identified and eliminated 330,909 tax returns submitted with no preparer identifying number.


D. From the population of 575,539 preparers, we selected a random stratified statistical sample of 139 preparers, using a 95 percent confidence Level, 5 percent precision, and 10 percent error rate. Using the IRS' Centralized Authorization File, Enrolled Practitioner Program System, Returns Transaction File, and the Third Party Data Store, we attempted to identify the following for the 139 preparers:

1. The names of the preparers.

2. The identification number(s) of the preparers (i.e., Employer Identification Number, PTIN or Social Security Number).

3. Their designations (i.e., if they are an attorney, Certified Public Accountant, Electronic Return Originator, or Enrolled Agent).

4. Those taxpayers represented by the preparers and for what tax periods.

5. The current compliance and/or enforcement actions for each preparer.

6. The number of tax returns each preparer filed in Calendar Year 2008.




Appendix II
Major Contributors to This Report
Michael E. McKenney, Assistant Inspector General for Audit (Returns Processing and Account Services)

Augusta R. Cook, Director

Frank Jones, Audit Manager

Wilma Figueroa, Acting Audit Manager

Jerry Douglas, Lead Auditor

Tanya Adams, Senior Auditor

Pam DeSimone, Senior Auditor

Sharon Shepherd, Senior Auditor

Andrea Hayes, Auditor

Geraldine Vaughn, Auditor

James Allen, Information Technology Specialist

Martha Stewart, Information Technology Specialist

Appendix III
Report Distribution List
Commissioner C

Office of the Commissioner - Attn: Chief of Staff C

Deputy Commissioner for Services and Enforcement SE

Commissioner, Wage and Investment Division SE:S

Commissioner, Small Business/Self-Employed Division SE:S

Deputy Commissioner, Small Business/Self-Employed Division SE:S

Deputy Commissioner, Wage and Investment Division SE:W

Director, Office of Professional Responsibility SE:OPR

Director, Customer Assistance, Relationships, and Education, Wage and Investment Division SE:W:CAR

Director, Examination, Small Business/Self-Employed Division SE:S:E

Director, Strategy and Finance, Wage and Investment Division SE:W:S

Chief, Program Evaluation and Improvement, Wage and Investment Division SE:W:S:PRA:PEI

Director, Examination Policy, Small Business/Self-Employed Division SE:S:E:EP

Chief Counsel CC

National Taxpayer Advocate TA

Director, Office of Legislative Affairs CL:LA

Director, Office of Internal Control OS: CFO:CPIC:IC

Director, Office of Program Evaluation and Risk Analysis RAS:O

Audit Liaison: Chief, Program Evaluation and Improvement, Wage and Investment Division SE:W:S:PRA:PEI

Appendix IV
Internal Revenue Code Preparer Penalties

Code Section
Description
Penalty


6694(a)
Understatement of taxpayer's liability due to an unreasonable position
Greater of $1,000 per tax return or 50 percent of the income derived


6694(b)
Understatement of taxpayer's liability due to willful or reckless conduct
Greater of $5,000 per tax return or 50 percent of the income derived


6695(a)
Failure to provide copy of return to taxpayer
$50 per failure up to a maximum of $25,000


6695(b)
Failure to sign return
$50 per failure up to a maximum of $25,000


6695(c)
Failure to furnish identifying number
$50 per failure up to a maximum of $25,000


6695(d)
Failure to retain a copy or list of returns filed
$50 per failure up to a maximum of $25,000


6695(e)
Failure of employers to file correct information on each tax preparer employed
$50 per failure up to a maximum of $25,000


6695(f)
Negotiation of taxpayer's refund check
$500 per check


6695(g)
Failure to be diligent in determining Earned Income Tax Credit eligibility
$100 per failure


6701
Aiding and abetting understatement of tax liability
$1,000 per person per period


6713
Improper disclosure or use of return information
$250 per disclosure or use up to a maximum of $10,000


7206
Willful preparation of or making a false statement regarding a false or fraudulent return or other document
Up to $100,000, or up to 3 years' imprisonment, or both, together with the costs of prosecution


7207
Knowingly providing fraudulent returns or other documents to the IRS
Up to $10,000, or up to 1 year of imprisonment, or both


7216
Knowingly or recklessly disclosing or using return information
Up to $1,000, or up to 1 year of imprisonment, or both, together with the costs of prosecution


7407
Authority to enjoin income tax preparers
Civil action may be taken; preparer could lose the right to prepare tax returns


Source: Internal Revenue Code.


Appendix V
Management's Response to the Draft Report
The response was removed due to its size. To see the response, please go to the Adobe PDF version of the report on the TIGTA Public Web Page.


Footnotes

1 These data were extracted for tax returns prepared by tax preparers and submitted to the IRS for Calendar Year 2008 through July 12, 2008.

2 Two samples of 139 preparers were selected. The nine were from the first sample. See Appendix I for details of the sampling methodology.

3 We requested the nine tax returns from the IRS but received only ****(1)****

4 Information on the Centralized Authorization File Is Often Not Accurate or Complete (Reference Number 2004-10-148, dated August 25, 2004) and Most Tax Returns Prepared by a Limited Sample of Unenrolled Preparers Contained Significant Errors (Reference Number 2008-40-171, dated September 3, 2008).

5 Regulations Governing the Practice of Attorneys, Certified Public Accountants, Enrolled Agents, Enrolled Actuaries, Enrolled Retirement Plan Agents, and Appraisers before the Internal Revenue Service [(Treasury Department Circular No. 230 (revised 4-2008)].

6 A PTIN is used by a preparer who does not want to disclose his or her Social Security Number on tax returns he or she prepares. It is a nine-character alpha/numeric issued by the IRS beginning with the letter "P" followed by eight numeric digits.

7 An Employer Identification Number is a unique nine-digit number used to identify a taxpayer's business account on IRS records. The IRS also requires that paid preparers enter their firms' information, if the preparers are part of a firm.

8 These data were extracted for tax returns prepared by tax preparers and submitted to the IRS for Calendar Year 2008 through July 12, 2008, and subsequent references to Calendar Year 2008 tax returns include only tax returns submitted to the IRS through July 12, 2008.

11 Two samples of 139 preparers were selected. The nine were from the first sample. See Appendix I for details of the sampling methodology.

12 We requested the nine tax returns from the IRS but received only ****(1)****

15 Information on the Centralized Authorization File Is Often Not Accurate or Complete (Reference Number 2004-10-148, dated August 25, 2004).

16 See Appendix IV for a list of Internal Revenue Code penalties applicable to paid preparers.

17 The Office of Professional Responsibility Can Do More to Effectively Identify and Act Against Incompetent and Disreputable Tax Practitioners (Reference Number 2006-10-066, dated March 31, 2006).

18 Tax Practitioners Promoting Abusive Tax Shelters Are Still Able to Represent Taxpayers Before the Internal Revenue Service (Reference Number 2009-10-039, dated February 20, 2009).

19 The Office of Professional Responsibility Can Do More to Effectively Identify and Act Against Incompetent and Disreputable Tax Practitioners (Reference Number 2006-10-066, dated March 31, 2006).

20 Most Tax Returns Prepared by a Limited Sample of Unenrolled Preparers Contained Significant Errors (Reference Number 2008-40-171, dated September 3, 2008).

21 The Process Taxpayers Must Use to Report Complaints Against Tax Return Preparers Is Ineffective and Causes Unnecessary Taxpayer Burden (Reference Number 2009-40-032, dated February 24, 2009).

22 The Third Party Data Store is an IRS system used to record and monitor the information on e-Providers. E-providers include Electronic Return Originators and others who use various IRS electronic services.

23 Most Tax Returns Prepared by a Limited Sample of Unenrolled Preparers Contained Significant Errors (Reference Number 2008-40-171, dated September 3, 2008).

24 The Returns Transaction File contains all edited, transcribed, and error-corrected data from the U.S. Individual Income Tax Returns (Form 1040 series) and related forms for the current processing year and 2 prior years.

25 IRS computer system capable of retrieving or updating stored information; it works in conjunction with a taxpayer's account records.

26 Run-to-run balancing is an audit control system, consisting of programs, procedures, and files whose primary function is to account for the number of records passed between applications programs.



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title Treasury Inspector General For Tax Administration (TIGTA) Report: Inadequate Data on Paid Preparers Impedes Effective Oversight (Reference Number: 2009-40-098)
search-title Government Ruling: Treasury Inspector General For Tax Administration (TIGTA) Report: Inadequate Data on Paid Preparers Impedes Effective Oversight (Reference Number: 2009-40-098), 2009ARD 138-2, (Jul. 21, 2009)
primary-class ruling/ruling
language http://psi.oasis-open.org/iso/639/#eng
region United States [http://wk-us.com/meta/regions/#US]
publisher http://wk-us.com/meta/publishers/#CCH
publishing-status new
publishing-dates available-date:
modified-date:
revised-date:
sort-date: 2009-07-21

key-phrase Treasury Inspector General For Tax Administration (TIGTA) report
key-phrase Tax return preparers
key-phrase Identification numbers
document-transformation-history SOURCE-CRC: 4178203719
G2I-VERSION: Group2Interchange-RELEASE-03-14-0007
G2I-TRANSFORMATION-DATE: 2009-08-15
I2A-VERSION: I2A-03-15-0003
I2A-TRANSFORMATION-DATE: 2009-08-16

wkrul:metadata document-number 2009ARD 138-2 [primary-citation]
issuing-body [http://wk-us.com/meta/issuing-bodies/#UNKNOWN]
document-date , precision: day
2009-07-21
official-history filed 2009-07-21, precision: day
2009-07-21

Labels:

Saturday, September 19, 2009

7206 return preparer fraud

An individual’s conviction for aiding or assisting in the preparation of false or fraudulent tax returns was consistent with the charges contained in the indictment. Claiming deductions for a nonexistent partnership was a violation of Code Sec. 7206(2). Even if the taxpayer could have taken the deduction in another form, a Code Sec. 7206(2) violation occurred when the individual willfully attributed a deduction to and filed a return on behalf of an entity that he knew did not exist. Further, the testimony of a government witness was relevant to show that the individual’s actions were an actual plan of fraud, not a mistake or misunderstanding. While it was highly prejudicial, the individual was unable to discredit the witness. A number of other witnesses testified that the deductions claimed were not related to any business and the individual did not inquire about the business purpose for any particular expense. This evidence was also relevant. The fact that the IRS might have approved some of their tax returns had no relevance to the fraudulent nature of the actual returns


United States of America, Plaintiff v. Timothy J. Mitts, Defendant., U.S. District Court, W.D. Kentucky, 2009-2 U.S.T.C. ¶50,632, (Aug. 14, 2009)

MEMORANDUM OPINION AND ORDER
Heyburn II, District Judge: On June 13, 2008, a jury found Timothy Mitts (“Defendant”) guilty of 18 counts of aiding or assisting in the preparation of false or fraudulent tax returns in violation of 26 U.S.C. §7206(2). Since his sentencing on July 6, 2009, Defendant has filed numerous motions contesting his conviction. The most serious of these is that the jury convicted him of crimes inconsistent with the indictment charged. Defendant also argues for a new trial on the grounds that the Court precluded him from entering evidence that some of the deductions on the tax forms he helped prepare were allowable, albeit claimed for the wrong reason. 1 Finally, Defendant argues that the Court erred in several ways, primarily by allowing the testimony of Duane Howell and by allowing the government to use this and other testimony improperly.
The Court takes these arguments very seriously and has considered them carefully. Ultimately, none raise doubts as to the fairness of the trial or correctness of the result.
I.
Defendant's arguments regarding constructive amendment and variance are somewhat unclear. Defendant seems to argue that while claiming deductions from a sham transaction for a legitimate partnership is an offense under 26 U.S.C. §7206(2), claiming deductions for a partnership that does not exist is not an offense under that section. He then argues that convicting him for aiding in the preparation of deductions for nonexistent partnerships constituted a constructive amendment of the indictment. The Court has found no law to support this argument. Instead, this Court has no doubt that to claim deductions for a nonexistent partnership constitutes a fraud as to a material matter on a tax return and, thus, is one way to violate §7206(2). See United States v. Helmsley [ 91-2 ustc ¶50,455], 941 F.2d 71, 93 (2nd Cir. 1990).
The indictment alleged that Defendant assisted in preparing returns:
“which were false and fraudulent as to material matters, in that the tax returns misrepresented and under-reported taxes owed by said taxpayers, resulting in whole or in part from certain business deductions and expenses, including but not limited to partnership losses, business expenses, and other ordinary losses; whereas the defendant then and there knew and believed the taxpayers whose names appear on the returns set forth below were not entitled to those business deductions and expenses, and therefore, owed substantially more taxes for the years specified.”
The jury instructions in turn required the jury to find “the defendant aided or assisted in, procured, counseled, or advised the preparation or presentation of the personal income tax return or business tax return referenced in [the indictment] that was false or fraudulent as to a material matter” in order to find the Defendant guilty. The instructions also required the jury to find that Defendant did so willfully and with knowledge in order to convict.
Here the indictment included all the elements of the offense of aiding or assisting in the preparation of a false tax return. The jury received no instructions regarding offenses other than those contained within the indictment, and the conduct specified within the indictment constituted an offense under the statute. Thus, reading the indictment and the jury instructions demonstrates that the jury convicted Defendant of the charges actually set forth in the indictment, not some other crime not contained in the indictment.
II.
Defendant argues that he should have been allowed to present evidence that the deductions would have otherwise been allowable. In essence, he claims that while he assisted in preparing returns that attributed certain deductions to partnerships that did not exist, so long as the taxpayer could have taken the deduction in some other form, he did not violate §7206(2). Defendant's argument, however, has no legal merit. Merely by willfully attributing a deduction to an entity Defendant knew did not exist, and thus was not entitled to take any deductions, Defendant violated §7206(2). Helmsley [ 91-2 ustc ¶50,455], 941 F.2d at 93 (2nd Cir. 1990) (“In the context of Section 7206(2) 'false and fraudulent' may mean mischaracterizing deductions as well as overstating them.”); U.S. v. Bliss [ 84-2 ustc ¶9563], 735 F.2d 294, 301 (8th Cir. 1984). Therefore, any evidence that the fraudulent tax return did not result in an actual tax loss is not a defense to an alleged violation of §7206(2).
In theory, as defense to charges, Defendant might argue that he believed that the partnerships either existed or existed constructively. Other than Defendant's own testimony, none of the testimony actually supported such a theory. And, the jury did not appear to give any credence to this suggestion. The evidence was absolutely clear that Defendant assigned deductions to nonexistent partnerships and even filed tax returns on behalf of them. This evidence constituted overwhelming evidence of guilt on the charges contained in the indictment.
III.
Defendant objects to various evidentiary rulings and the government's use of that evidence at trial.
The testimony of Duane Howell was relevant to show that Defendant's actions were not due to some mistake or misunderstanding, rather due to an actual plan of fraud which Howell taught. Of course, this testimony was highly prejudicial, but, if believed, it was not unfairly so. Defendant had every opportunity to discredit Howell. However, as to this specific testimony, he was unable to do so.
The government brought forth a number of the taxpayers to testify that the partnerships that Defendant claimed did not exist and that the deductions claimed were generally not related to any business. Also, their testimony made clear that Defendant did not inquire about the business purpose for any particular expense. This testimony was relevant in every respect. On Defendant's motion, the Court limited the amount of it.
Defendant makes an argument that he was unable to discover or use records showing that the Internal Revenue Service had approved many of the tax returns in question. However, that the IRS may have approved some of the returns has no relevance to the fraudulent nature of the actual returns. Therefore, even if Defendant did not obtain these materials, which is not clear at all, he was not deprived of any evidence which might have helped his defense.
Defendant has raised many issues concerning his prosecution and conviction. However, none of them suggest the violation of his fundamental constitutional rights or for that matter any unfairness. The Court was most solicitous in allowing many (probably too many) extensions of time prior to sentencing and by providing Defendant with assistance of counsel, even against Defendant's protests. Defendant has had over a year during which to prepare for his sentencing and incarceration. The Court sees no reason under the law to permit his release during the appeals.
Being otherwise sufficiently advised,
IT IS HEREBY ORDERED that Defendant's motion to vacate the verdict is DENIED.
IT IS FURTHER ORDERED that Defendant's motion for a new trial is DENIED.

Thursday, September 17, 2009

Discharge of indebtedness reporting requirement

TD 9461,T.D. 9461,Internal Revenue Service, (Sep. 17, 2009)


DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1

[ TD 9461 ]

RIN 1545-BH99

Information Reporting for Discharges of Indebtedness

AGENCY: Internal Revenue Service (IRS), Treasury.

ACTION: Final regulations and removal of temporary regulations.

SUMMARY: This document contains final regulations relating to information returns for cancellation of indebtedness by certain entities under section 6050P of the Internal Revenue Code. The final regulations will avoid premature information reporting from certain businesses and will reduce the number of information returns required to be filed. The final regulations will impact certain businesses required to file information returns under the existing regulations.

DATES: Effective Date : These regulations are effective on [ INSERT DATE OF PUBLICATION OF THIS DOCUMENT IN THE FEDERAL REGISTER ] .

Applicability Date : For dates of applicability, see §1.6050P-1(h) .

FOR FURTHER INFORMATION CONTACT: Barbara Pettoni at (202) 622-4910 (not a toll-free number).

SUPPLEMENTARY INFORMATION:

Background
This document contains amendments to the Income Tax Regulations (26 CFR part 1) under section 6050P relating to information reporting for cancellation of indebtedness by certain entities. In general, section 6050P requires certain entities to file information returns with the IRS, and to furnish information statements to debtors, reporting discharges of indebtedness of $600 or more. The amendments in this document will avoid premature reporting of cancellation of indebtedness income by reducing the information reporting burden on certain entities that were not originally within the scope of section 6050P . The amendments will also protect debtors from receiving information returns that prematurely report cancellation of indebtedness income from such entities.

Final and temporary regulations ( TD 9430 ) were published in the Federal Register (73 FR 66539) on November 10, 2008. On the same date, a notice of proposed rulemaking (REG-118327-08) cross-referencing to temporary regulations was published in the Federal Register (73 FR 66568). A correction to final and temporary regulations (73 FR 75326) and a correcting amendment (73 FR 75326) to the regulations were published in the Federal Register on December 11, 2008. Only one commenter responded to the proposed regulations, presenting oral comments at a public hearing on the proposed regulations at the IRS on March 13, 2009, as well as written comments. After considering these oral and written comments, the IRS and the Treasury Department are adopting the proposed regulations without change and removing the corresponding temporary regulations.

Explanation of Comments
The sole commenter agrees with the amendments in the proposed regulations to reduce the information reporting burden on certain entities that were not originally within the scope of section 6050P and thereby avoid premature reporting of cancellation of indebtedness income. The commenter, however, requested additional guidance on several other areas addressed in the existing regulations under section 6050P including: (1) the meaning of “stated principal” as used in §1.6050P-1(c) and (d)(3) when applied to transactions involving entities that acquire a loan from another person; (2) what information, if any, must be provided to a debtor prior to filing Form 1099-C, “Cancellation of Debt”; (3) what constitutes significant bona fide collection activity under §1.6050P-1(b)(2)(iv)(A) ; and (4) how to report the discharge of a debt that has been reduced to judgment. These other areas are beyond the scope of the proposed regulations and are therefore not addressed in these final regulations. The Treasury Department and the IRS will consider the concerns raised in these comments in determining whether to issue additional guidance under section 6050P .

No revisions were made to the proposed and temporary regulations or the corrections to those regulations. Accordingly, this Treasury decision adopts the proposed regulations without substantive change and removes the corresponding temporary regulations.

Special Analyses
It has been determined that this Treasury decision is not a significant regulatory action as defined in Executive Order 12866. Therefore, a regulatory assessment is not required. It also has been determined that section 553(b) of the Administrative Procedure Act (5 U.S.C. chapter 5) does not apply to these regulations, and because the regulation does not impose a collection of information on small entities, the Regulatory Flexibility Act (5 U.S.C. chapter 6) does not apply. Pursuant to section 7805(f) of the Internal Revenue Code, the notice of proposed rulemaking preceding this regulation was submitted to the Chief Counsel for Advocacy of the Small Business Administration for comment on its impact on small business.

Drafting Information
The principal author of these regulations is Barbara Pettoni, Office of Associate Chief Counsel (Procedure and Administration).

List of Subjects in 26 CFR Part 1
Income tax, Reporting and recordkeeping requirements.

Adoption of Amendments to the Regulations
Accordingly, 26 CFR part 1 is amended as follows:

PART 1—INCOME TAXES
Paragraph 1. The authority citation for part 1 is amended by removing the entry for §1.6050P-1T to read in part as follows:

Authority: 26 U.S.C. 7805 * * *

Par. 2. Section 1.6050P-0 is amended as follows:

1. The introductory text is revised.

2. The entry for §1.6050P-1(b)(2)(v) is added.

3. The entry for §1.6050P-1T is removed.

The revisions and addition read as follows:

§1.6050P-0 Table of contents .
This section lists the major captions that appear in §§1.6050P-1 and 1.6050P-2.

§1.6050P-1 Information reporting for discharges of indebtedness by certain entities.
* * * * *

(b) * * *

(2) * * *

(v) Special rule for certain entities required to file in a year prior to 2008.

* * * * *

Par. 3. Section 1.6050P-1 is amended by revising paragraphs (b)(2)(i)(H), (b)(2)(v) and (h)(1) to read as follows:

§1.6050P-1 Information reporting for discharges of indebtedness by certain entities.
* * * * *

(b) * * * (2) * * *

(i) * * *

(H) In the case of an entity described in section 6050P(c)(2)(A) through (C), the expiration of the non-payment testing period, as described in §1.6050P-1(b)(2)(iv) .

* * * * *

(v) Special rule for certain entities required to file in a year prior to 2008 . In the case of an entity described in section 6050P(c)(1)(A) or (c)(2)(D) required to file an information return in a tax year prior to 2008 due to an identifiable event described in paragraph (b)(2)(i)(H) of this section, and who failed to so file, the date of discharge is the first event, if any, described in paragraphs (b)(2)(i)(A) through (G) of this section that occurs after 2007.

* * * * *

(h)* * *(1) In general . The rules in this section apply to discharges of indebtedness after December 21, 1996, except paragraphs (e)(1) and (e)(3) of this section, which apply to discharges of indebtedness after December 31, 1994, except paragraph (e)(5) of this section, which applies to discharges of indebtedness occurring after December 31, 2004, and except paragraphs (b)(2)(i)(H) and (b)(2)(v) of this section, which apply to discharges of indebtedness occurring after November 10, 2008.

* * * * *

Par. 4. Section 1.6050P-1T is removed.

Linda E. Stiff

Deputy Commissioner for Services and Enforcement.

Approved: August 28, 2009

Michael F. Mundaca

Acting Assistant Secretary of the Treasury (Tax Policy).

Labels:

Tuesday, September 15, 2009

Prostitute deductions - sex therapy

. Tax Court, Dkt. No. 14785-07, TC Memo. 2009-204, September 14, 2009.

A taxpayer was denied a medical expense deduction for amounts paid to prostitutes and for medical text and pornographic materials. Citing several books and magazine articles, the taxpayer argued of the positive health effects of sex therapy. However, Reg. §1.213-1(h) specifically provides that a taxpayer is not entitled to a medical expense deduction for any illegal operation or treatment. Moreover, since his doctor did not prescribe a treatment for any medical condition, the taxpayer’s payments were nondeductible personal expenses. Because the taxpayer was a tax attorney for 40 years, he had no reasonable basis to claim the deduction and was liable for the accuracy-related penalty for substantial understatement of tax


MEMORANDUM FINDINGS OF FACT AND OPINION

GOEKE, Judge: Respondent determined the following income tax deficiencies and penalties:
Penalty
Year Deficiency Sec. 6662(a)

2004 $12,656 $2,531
2005 8,835 1,767
The issues for decision are: (1) Whether petitioner is entitled to claimed medical expense deductions in 2004 and 2005 in amounts greater than those allowed by respondent; and (2) whether petitioner is liable for the section 6662 1 accuracy-related penalty for 2004 and 2005. For the reasons stated herein, we find that petitioner is not entitled to deductions in amounts greater than that allowed by respondent and is liable for the accuracy-related penalties.
FINDINGS OF FACT
Petitioner is a lawyer admitted to practice in New York State. Petitioner resided in New York at the time he filed his petition.
During 2004 and 2005 petitioner frequented prostitutes in New York. Petitioner did not visit these prostitutes as part of a course of therapy prescribed by his doctor, nor did petitioner ask his doctor to prescribe any sort of sex therapy. Petitioner kept track of these visits in a journal. The journal included the date, the name of the “service provider”, and the amount. Petitioner did not discuss these visits with his doctors afterwards to determine their impact on his health.
During 2004 and 2005 petitioner purchased pornography and books and magazines on sex therapy. Petitioner also recorded the dates and amounts of the purchases in his journal.
Petitioner timely filed his Forms 1040, U.S. Individual Income Tax Return, for 2004 and 2005. For 2004 petitioner claimed medical expense deductions of $76,314 on his Schedule A, Itemized Deductions. For 2005 petitioner claimed medical expense deductions on his Schedule A of $49,203. Both the 2004 and 2005 returns included attachments to the respective Schedules A. The attachments provided further detail on the costs that went into petitioner's claimed medical expense deductions. However, the descriptions were not specific but provided only vague descriptions of the types of costs petitioner was claiming as deductions.
Respondent issued a notice of deficiency to petitioner on June 21, 2007. The notice disallowed $73,934 of petitioner's $76,314 claimed medical expense deductions for 2004 and $47,024 of petitioner's $49,203 claimed medical expense deductions for 2005.
The $73,934 disallowed by respondent for 2004 included: (1) $2,368 for medical books, magazines, videos, and pornographic material; (2) $65,934 for prostitutes; and (3) $5,632 in bank and finance charges incurred in connection with loans used to pay for the claimed medical expenses. Petitioner and respondent stipulated that petitioner provided receipts totaling $1,455.20 of the $2,368 for books, magazines, videos, and pornographic materials; however, the actual receipts were not entered into evidence.Petitioner concedes that he is not entitled to deduct the $5,632 in bank and finance charges.
The $47,024 disallowed for 2005 included: (1) $5,005 for books, magazines, videos, and pornographic materials; and (2) $42,152 for prostitutes. Petitioner and respondent stipulated that petitioner provided receipts for $2,325.58 of the claimed $5,005 for medical books, magazines, videos, and pornographic materials; however, the actual receipts were not entered into evidence.
On June 28, 2007, petitioner filed a petition with this Court challenging respondent's determinations. A trial was held on October 27, 2008.
OPINION
I. Medical Expense Deductions
The Commissioner's determinations in a notice of deficiency are presumed correct, and the taxpayer bears the burden of proving, by a preponderance of the evidence that these determinations are incorrect. Rule 142(a)(1); Welch v. Helvering, 290 U.S. 111, 115 (1933). Tax deductions are a matter of legislative grace, and a taxpayer has the burden of proving that he is entitled to the deductions claimed. Rule 142(a)(1); INDOPCO, Inc. v. Commissioner, 503 U.S. 79, 84 (1992); New Colonial Ice Co. v. Helvering, 292 U.S. 435, 440 (1934). The burden of proof on factual issues that affect a taxpayer's liability for tax may be shifted to the Commissioner where the “taxpayer introduces credible evidence with respect to * * * such issue.” Sec. 7491(a)(1). Petitioner does not claim that the burden shifts to respondent under section 7491(a). In any event, petitioner has failed to establish that he has satisfied the requirements of section 7491(a)(2). On the record before us, we find that the burden of proof does not shift to respondent under section 7491(a).
Section 213(a) permits a deduction for a taxpayer's medical and dental expenses that were paid and not compensated for by insurance, to the extent the expenses exceed 7.5 percent of the taxpayer's adjusted gross income. Section 213(d)(1) provides in pertinent part that the term “medical care” means amounts paid “for the diagnosis, cure, mitigation, treatment, or prevention of disease, or for the purpose of affecting any structure or function of the body”. Section 1.213-1(e)(1)(ii), Income Tax Regs., provides that amounts expended for illegal operations or treatments are not deductible and that deductions allowed under section 213 will be confined strictly to expenses incurred primarily for the prevention or alleviation of a physical or mental defect or illness.
To substantiate these expenses, the taxpayer must furnish the name and address of each payee and the date and amount of each payment. Sec. 1.213-1(h), Income Tax Regs. If requested by the Commissioner, the taxpayer must also furnish a statement or itemized invoice identifying the patient, the type of service rendered, and the specific purpose of the expense. Id.


The issue for decision is whether petitioner is entitled to deduct amounts paid to prostitutes and for medical texts and pornographic materials. Respondent argues that petitioner is not entitled to deduct amounts paid to prostitutes because such payments were illegal and petitioner has not provided substantiation as required by section 1.213-1(h), Income Tax Regs. Respondent argues that petitioner is not entitled to a deduction for amounts paid for books on sex therapy and pornographic material because those amounts were incurred for petitioner's general welfare, not pursuant to a doctor's prescription or for a specific medical condition.

Petitioner does not argue that section 213 and the regulations thereunder allow a deduction for these costs. Rather, petitioner points to book and magazine articles about the positive health effects of sex therapy and argues that we should allow him a deduction despite the illegality of his conduct or the fact that petitioner's doctor did not prescribe this treatment.

We agree with respondent that petitioner is not entitled to deduct the amounts at issue. Patronizing a prostitute is illegal in the State of New York. See N.Y. Penal Law sec. 230.04 (McKinney 2008). N.Y. Penal Law sec. 230.02 (McKinney 2008) provides that a person is patronizing a prostitute when he:

(1) Pursuant to a prior agreement pays a fee for another person's having engaged in sexual conduct with him; (2) agrees to pay a fee pursuant to an understanding that in return such person or a third person will engage in sexual conduct with him; or (3) solicits or requests another person to engage in sexual conduct in return for a fee. Section 1.213-1(e)(1)(ii), Income Tax Regs., provides that a taxpayer is not entitled to a deduction for any illegal operation or treatment.Petitioner's payments to various prostitutes were personal expenses not prescribed by a doctor and not intended to treat a medical condition. Petitioner is not entitled to deductions for these amounts.
Petitioner is likewise not entitled to deductions for amounts paid for books and magazines on sex therapy and pornography. The purchases were not for the treatment of a medical condition but were instead personal items. Sec. 1.213-1(e)(1)(ii), Income Tax Regs.
II. Accuracy-Related Penalty

We next determine whether petitioner is liable for an accuracy-related penalty. Section 6662(a) and (b)(2) provides that taxpayers will be liable for a penalty equal to 20 percent of the portion of the underpayment of tax attributable to a substantial understatement of income tax. Section 6662(d)(1)(A) provides that a substantial understatement of income tax exists if the amount of the understatement exceeds the greater of (1) 10 percent of the tax required to be shown on the return, or (2) $5,000. Section 7491(c) provides that the Commissioner bears the burden of production respecting an individual's liability for the penalty. As discussed above, we have upheld respondent's determinations of deficiencies in petitioner's income tax; respondent has thus met his burden of showing a substantial understatement.
Section 6662(d)(2)(B)(ii) provides that the amount of the understatement is to be reduced by that portion of the understatement which is attributable to any item if the relevant facts affecting the item's tax treatment are adequately disclosed on the return or in a statement attached to the return and there is a reasonable basis for the tax treatment of such item by the taxpayer. If an item is adequately disclosed and there is a reasonable basis for its tax treatment, that item is treated as having been reported properly on the return, and the understatement of tax is computed without regard to that item. See sec. 1.6662-4(e)(1), Income Tax Regs. Section 1.6662-4(e)(2), Income Tax Regs., provides that an item will not be treated as adequately disclosed if a taxpayer does not have a reasonable basis for the position as defined in section 1.6662-3(b)(3), Income Tax Regs. Section 1.6662-3(b)(3), Income Tax Regs., provides that reasonable basis is a relatively high standard that is significantly higher than not frivolous. A return position that is merely arguable does not satisfy the reasonable basis standard. Id. A taxpayer can have a reasonable basis if the position is reasonably based on one or more authorities listed in section 1.6662-4(d)(3)(iii), Income Tax Regs., which includes the Internal Revenue Code, temporary and final regulations, revenue procedures and revenue rulings, and court decisions.


The section 6662 penalty is inapplicable to the extent the taxpayer had reasonable cause for the understatement and acted in good faith. Sec. 6664(c)(1). The determination of whether the taxpayer acted with reasonable cause and in good faith is made on a case-by-case basis, taking into account the relevant facts and circumstances. Sec. 1.6664-4(b)(1), Income Tax Regs. “Circumstances that may indicate reasonable cause and good faith include an honest misunderstanding of fact or law that is reasonable in light of all of the facts and circumstances, including the experience, knowledge, and education of the taxpayer.” Id. Generally, the most important factor is the extent of the taxpayer's efforts to assess the proper tax liability. Id. An honest misunderstanding of fact or law that is reasonable in the light of the experience, knowledge, and education of the taxpayer may indicate reasonable cause and good faith. Remy v. Commissioner, T.C. Memo. 1997-72.
Petitioner did not have reasonable cause or a reasonable basis for claiming the deductions at issue. Petitioner has been an attorney for 40 years and specialized in tax law. Petitioner should have known that his visits to prostitutes in New York were illegal and that section 213, the regulations thereunder, and caselaw do not support his claimed deductions. Accordingly, petitioner is liable for the section 6662 penalty.
To reflect the foregoing,
Decision will be entered for respondent.

Labels:

Monday, September 14, 2009

failure to file

IRS Letter Ruling 200937025,CCA 200937025,Internal Revenue Service, (Jun. 5, 2009)


LTR Report Number 1698, September 16, 2009, IRS REF: Symbol: CC:PA:01:MEHara-POSTF-153704-08


TO: Area Counsel, Great Lakes & Gulf Coast (Denver) (Tax Exempt & Government Entities)

FROM: James Gibbons, Chief, Branch 1 (Procedure & Administration)

SUBJECT: Imposition of Section 6651(f) Fraudulent Failure to File Penalty and pay over Trust Fund Penalties

ATTN: Christopher Fawcett

This Chief Counsel Advice responds to your request for assistance. This advice may not be used or cited as precedent.

ISSUES
1. May the Service impose an I.R.C. § 6651(f) penalty for fraudulent failure to file on a corporation for the acts of its sole shareholders and officers?

2. Whether it is appropriate to assert the Fraudulent Failure to File Penalty under I.R.C. § 6651(f) on Corporation A under the facts of this case.

3. What other penalties might be imposed on Corporation A in addition to or as an alternative to I.R.C. § 6651(f)?

CONCLUSIONS
1. The Service may impose an I.R.C. § 6651(f) penalty for fraudulent failure to file on a corporation for the acts of its sole shareholders and officers?

2. It may be appropriate to assert the Fraudulent Failure to File Penalty under I.R.C. § 6651(f) under the facts of this case.

3. Other penalties might be imposed on Corporation A in addition to or as an alternative to I.R.C. § 6651(f), including the failure to file penalty under I.R.C. § 6651(a), the failure to deposit penalty under I.R.C. § 6656, and the failure to collect and pay over tax under I.R.C. § 6672.

FACTS
Corporation A was formed in Year 1 and is a C corporation. Shareholder B and Shareholder C (husband and wife) are 100% shareholders of Corporation A and are president and secretary of Corporation A respectively. Corporation A employed workers in its business from Year 2 through Year 11. For all quarters under audit, Year 6 through Year 10, Corporation A paid wages to its employees. Both Shareholder B and Shareholder C are employees of Corporation A and were paid wages for the tax years at issue.

Corporation A withheld federal income taxes, FICA (social security and Medicare) taxes and issued Forms W-2s to employees reflecting that such taxes had been withheld, but not that they had been paid. Corporation A filed employment tax returns with State D for the Year 1 through Year 5 tax years; however, Corporation A did not pay any trust fund taxes for the Year 6 through Year 10 tax years, nor did the company file Forms 940, Employer's Annual Federal Unemployment (FUTA) Tax Return, or Forms 941, Employer's Quarterly Federal Tax Return, for the years at issue.

During the years at issue, Corporation A had ample funds with which to pay over the trust fund taxes, but chose to use those funds to pay for the personal expenditures of Shareholder B and Shareholder C, including expenses relating to the purchase of land, two automobiles, a watercraft, flooring and kitchen counter tops for Shareholder B and Shareholder C's residence; payments to a related company owned by Shareholder B's father; and payments to lease a third automobile.

With the knowledge that the withholdings had not been paid over to the federal government, Shareholder B's and Shareholder C's claimed federal income tax withholdings on their personal income tax returns and received refunds. Although this case has over the years been assigned to four different revenue agents, Shareholder B and Shareholder C also refused to cooperate with revenue agents assigned to the examination of Corporation A and failed to attend scheduled meetings. Because Shareholder B and Shareholder C failed to show or have cancelled their appointments, they have not been interviewed and have not provided any defenses.

In response to a summons enforcement action, Corporation A submitted delinquent Form 941 returns along with copies of Form W-3s and Form W-2s for Year 8, Year 9, and Year 10. Corporation A, however, failed to remit taxes withheld from employees and also failed to remit the employer's share of FICA taxes for Year 6, Year 7, Year 8, Year 9 and Year 10. As of the writing of this memo, Corporation A has not filed Forms 940 for Year 6, Year 7, Year 8, Year 9, and Year 10.

LAW AND ANALYSIS
Attributing Fraudulent Intent of Officers to the Corporation:
“[A] corporation can act only through its officers and … it does not escape responsibility for acts of its officers performed in its capacity. Corporate fraud necessarily depends upon the fraudulent effect of the corporate officer.” Hi-Q Personnel, Inc. v. Commissioner , 132 T.C. No. 13 [CCH Dec. 57,806 ], slip op. at 22 (May 4, 2009), citing Federbush v. Commissioner , 34 T.C. 740, 749 (1960) [CCH Dec. 24,292 ], aff'd, 325 F.2d 1 (2d Cir. 1963). See also DiLeo v. Commissioner, 96 T.C. 858, 875 (1991) [CCH Dec. 47,423 ]. “Also, fraud of a sole or dominant shareholder can be attributed to the corporation. Sam Kong Fashions, Inc. v. Commissioner , T.C. Memo. 2005-157, 89 TCM 1503, 1511 [CCH Dec. 56,077(M) ], citing, Gold Bar, Inc. v. Commissioner , T.C. Memo. 2000-211 [CCH Dec. 53,948(M) ]. Accordingly, the Service may impose an I.R.C. § 6651(f) penalty for fraudulent failure to file on a corporation for the acts of its sole shareholders and officers. Consequently, in order to determine whether to Corporation A acted with fraudulent intent, the Service should examine the conduct of Shareholder B and Shareholder C.

I.R.C. § 6651(f) Fraudulent Failure to File
Section 6651(a)(1) of the Internal Revenue Code (Code) imposes a penalty on a taxpayer that fail to file any required return by the due date for filing that return (determined with regard to any extension for filing), unless a taxpayer shows that such failure is due to reasonable cause and not to willful neglect. The penalty for a failure to timely file a return under Code Section 6651 applies to withholding tax returns, including Form 941. Treas. Reg. § 31.6071(a)-1(e), Rev. Rul. 72-161, 1972-1 C.B. 397, Charlotte's Office Boutique, Inc. v. Commissioner , T.C. Memo. 2004-43 [CCH Dec. 55,551(M) ]. Where the failure to file such a return is due to fraud, I.R.C. § 6651(f) increases this penalty from 5 percent to 15 percent of the amount of tax required to be shown on the return if the failure does not exceed one month, and 15 percent for each additional month, not exceeding 75 percent in the aggregate.

The taxpayer bears the burden of showing that the delinquency was due to reasonable cause and not willful neglect. I.R.C. § 6651(a)(1); Treas. Reg. § 301.6651-1(c); United States v. Boyle, 469 U.S. 241, 245 (1985) [ 85-1 USTC ¶13,602 ]. The Service must prove fraud by clear and convincing evidence. I.R.C. § 7454(a); Bradford v. Commissioner , 796 F.2d 303, 307 (9th Cir. 1986) [ 86-2 USTC ¶9602 ]; Clayton v. Commissioner , 102 T.C. 632, 646 (1994) [CCH Dec. 49,784 ]. The same factors used to evaluate the imposition of the fraud penalty under former I.R.C. § 6653(b) and under I.R.C. § 6663 are used in evaluating the addition to tax for fraud under I.R.C. § 6651(f). Clayton , 102 T.C. at 653. In determining whether a failure to file a return is fraudulent under I.R.C. § 6651(f), the Service must show (1) an underpayment of tax, and (2) at least a portion of the underpayment was due to fraud. Sherrer v. Commissioner , T.C.Memo 1999-122 [CCH Dec. 53,336(M) ], aff'd in an unpublished opinion, 2001-1 U.S.T.C. (CCH) ¶ 50,280 (9th Cir. 2001)).

The Ninth Circuit defines fraud as an “intentional wrongdoing on the part of the taxpayer with the specific intent to avoid a tax known to be owing.” Edelson v. Commissioner , 829 F.2d 828, 833 (9th Cir. 1987) [ 87-2 USTC ¶9547 ]; Bradford , 796 F.2d at 307. Powell v. Granquist , 252 F.2d 56, 60 (9th Cir. 1958) [ 58-1 USTC ¶9223 ]. The existence of fraud is a question of fact, but intent may be inferred from circumstantial evidence. Alexander Shokai, Inc. v. Commissioner , 34 F.3d 1480, 1487 (9th Cir. 1994) [ 94-2 USTC ¶50,460 ]; Laurins v. Commissioner , 889 F.2d 910, 913 (9th Cir. 1989) [ 89-2 USTC ¶9636 ]; Powell , 252 F.2d at 61. Circumstantial evidence may include “any conduct, the likely effect of which would be to mislead or conceal.” United States v. Walton , 909 F.2d 915, 926 (6th Cir. 1990) [ 90-2 USTC ¶50,429 ] ( quoting Spies v. United States , 317 U.S. 492, 499 (1943) [ 43-1 USTC ¶9243 ]).

Courts rely on a nonexclusive list of “badges of fraud” from which fraudulent intent may be inferred. These badges include (1) failure to file tax returns, (2) understatement of income, (3) failure to cooperate with tax authorities, (4) inadequate records, (5) implausible or inconsistent explanations of behavior, (6) concealment of assets, (7) engaging in illegal activities, (8) failing to make estimated tax payments, and (9) filing a false tax return. See e.g. Alexander Shokai , 34 F.3d at 1487; Laurins , 889 F.2d at 913; Bradford , 796 F.2d at 307; Powell v. Granquist , 146 F. Supp. 308, 310 (D. Or. 1956) [ 56-2 USTC ¶10,065 ], aff'd, 252 F.2d 56 (9th Cir. 1958). While no single factor is necessarily sufficient to establish fraud, the existence of several indicia may constitute persuasive circumstantial evidence of fraud. Petzoldt v. Commissioner , 92 T.C. 661, 700 (1989) [CCH Dec. 45,566 ].

Failure to file alone is not sufficient to establish fraudulent intent, but rather will be considered in conjunction with other acts and may constitute persuasive evidence of fraudulent intent where the failure to file occurs over an extended period of time. Sherrer , 77 TCM at 1803, Kotmair v. Commissioner , 86 T.C. 1253, 1260 (1986) [CCH Dec. 43,122 ]; Stoltzfus v. U.S. , 398 F.2d 1002, 1005 (3d Cir. 2968) [ 68-2 USTC ¶9499 ]. Prior filing evidences knowledge of the duty to file. Petzholdt v. Commissioner , 92 T.C. 661, 701 (1989) [CCH Dec. 45,566 ].

Badges of Fraud
Failure to File Returns
It may be appropriate to assert the fraudulent failure to file penalty under I.R.C. § 6651(f) under the facts of this case. First, there is an intentional failure or refusal to file returns over an extended period of time. Beginning in Year 6, Corporation A stopped filing its employment and corporate tax returns. This non-filing behavior continued for five years. Corporation A filed returns for previous years and filed employment tax returns with State D. Those filings show that Shareholder A and Shareholder B were aware of the filing responsibilities and yet still failed to file for a five year period.

Lack of Cooperation
Besides the failure to file returns for a series of years, there are other and independent evidence of fraudulent intent. Although the case has been assigned to four different revenue agents since it was initiated in Year 11, Shareholder B and Shareholder C have not cooperated with any of them. Because they have failed to appear for or cancelled appointments, they have not been interviewed or presented any defenses.

Shareholders Utilized Trust Fund Moneys for Personal Benefit
Shareholder A and Shareholder B claimed income tax withholding on their personal income tax while knowing that the trust fund taxes had not been paid over to the government. These personal expenditures include expenses relating to the purchase of land, two automobiles, a watercraft, flooring and kitchen counter tops for Shareholder B and Shareholder C's residence; payments to a related company owned by Shareholder B's father; and payments to lease a third automobile.

Filing a False Tax Return
In addition to using trust fund money for their own benefit, by claiming income tax withholding on Shareholder B's and Shareholder C's personal income tax return, and receiving refunds, despite knowingly never paying over the trust fund taxes, the Shareholders have filed false tax returns. We believe this is a factor that may constitute an additional badge of fraud, since they are the sole shareholders and are officers of Corporation A.

Penalties in Addition to § 6651(f)
I.R.C. § 6651(a)(1) and (a)(2)
Where the failure to file cannot be attributed to fraud, I.R.C. § 6651(a) imposes a penalty for the failure to file quarterly returns and pay the required withholding tax. These penalties may be imposed where the failures result from willful neglect and not reasonable cause. A preference for paying other creditors of the corporation constitutes willful neglect. United States v. Leuschner , 336 F.2d 246, 247-248 (9th Cir. 1964) [ 64-2 USTC ¶9742 ] (citing Bloom v. United States , 272 F.2d 215 (9th Cir. 1959) [ 59-2 USTC ¶9772 ].

I.R.C. § 6656 Failure to Make Deposits
I.R.C. § 6656 authorizes the imposition of an addition to tax not to exceed 15 percent for the failure to deposit employment taxes with an authorized depository unless such failure is due to reasonable cause and not willful neglect. In order to avoid the penalty, a taxpayer must make an affirmative showing of all the facts alleged as a reasonable cause in a written statement containing a declaration that it is made under penalties of perjury. This penalty may be imposed in conjunction with the penalties under I.R.C. § 6651.

I.R.C. § 6672 Failure to Collect and Pay Over Tax
An employer is required to withhold Federal income tax and Federal Insurance Contributions Act (FICA) taxes from employees. In addition, the employer is required to pay FICA taxes equivalent to the amount withheld from the employee and to pay Federal Unemployment Tax Act (FUTA) taxes on the employees wages, pursuant to I.R.C. §§ 3111 and 3301. When the person responsible for collection and payment of such taxes willfully fails to pay over withheld trust fund taxes, a penalty equal to the amount of the delinquent trust fund taxes may be assessed pursuant to I.R.C. § 6672(a).

CASE DEVELOPMENT, HAZARDS AND OTHER CONSIDERATIONS
Fraud is determined on a facts and circumstances basis, *****

This writing may contain privileged information. Any unauthorized disclosure of this writing may undermine our ability to protect the privileged information. If disclosure is determined to be necessary, please contact this office for our views.

Please call (202) 622-4910 if you have any further questions.

CLARISSA C. POTTER, Acting Chief Counsel.

James Gibbons, Chief, Branch 1 (Procedure & Administration

Labels:

Friday, September 11, 2009

disclosure of transactions involving GST tax

IRS has released proposed regulations providing rules for disclosure of listed transactions and transactions of interest regarding the generation-skipping transfer (GST) tax. Proposed Reg. §26.6011-4 would provide rules for purposes of the GST tax that would require the disclosure of listed transactions and transactions of interest by certain taxpayers on their federal tax returns under Code Sec. 6011. Under the proposal, if a transaction is identified as a listed transaction or transaction of interest by the IRS in published guidance and such a transaction involves the GST tax, the transaction must be disclosed in a manner consistent with the instructions in the published guidance.
The proposed rules provide that any transaction purporting to reduce or eliminate the GST tax must be disclosed as a listed transaction or a transaction of interest. The IRS and Treasury Department have no current plans to identify any such transactions. Related clarifying amendments are also proposed for the regulations under Code Secs. 6111 and 6112.
The IRS has also proposed regulations that modify and clarify the rules regarding the list maintenance requirements of material advisors for reportable transactions under Code Sec. 6112. Before a material advisor must make the list described in Reg. §301.6112-1(b) available to the IRS, the material advisor will have 30 calendar days (or a greater period if specifically described in published guidance designating a reportable transaction) to prepare the list after the list maintenance requirement first arises with respect to a reportable transaction. A request for a list made during this period will be treated as having been made on the day after the period ends. Additionally, a group of material advisors may designate by written agreement one material advisor from the group to maintain the required list. The existence of such an agreement, however, does not affect the IRS's ability to request the list from any party to the agreement, or the obligation of any party receiving a request from the IRS to furnish the list as required.
Written or electronic comments and requests for a public hearing must be received by Thursday, December 10, 2009.
Proposed Regulations, NPRM REG-136563-07

September 11, 2009

DEPARTMENT OF THE TREASURY

Internal Revenue Service

26 CFR Parts 26 and 301

[REG-136563-07]

RIN 1545-BG89

Generation-Skipping Transfers (GST) Section 6011 Regulations and Amendments to the Section 6112 Regulations

AGENCY: Internal Revenue Service (IRS), Treasury.

ACTION: Notice of proposed rulemaking.

SUMMARY: This document contains proposed regulations that provide rules relating to the disclosure of listed transactions and transactions of interest with respect to the generation-skipping transfer tax under section 6011 of the Internal Revenue Code (Code), conforming amendments under sections 6111 and 6112, and rules relating to the preparation and maintenance of lists with respect to reportable transactions under section 6112. The regulations affect taxpayers participating in listed transactions and transactions of interest and material advisors to such transactions. The proposed regulations also contain rules under section 6112 that affect material advisors to reportable transactions. These regulations provide guidance regarding the length of time a material advisor has to prepare the list that must be maintained after the list maintenance requirement first arises with respect to a reportable transaction. These regulations also clarify guidance regarding designation agreements.

DATES: Written or electronic comments and requests for a public hearing must be received by [INSERT DATE 90 DAYS AFTER PUBLICATION OF THIS DOCUMENT IN THE FEDERAL REGISTER] .

ADDRESSES: Send submissions to: CC:PA:LPD:PR (REG-136563-07), room 5203, Internal Revenue Service, PO Box 7604, Ben Franklin Station, Washington, DC. 20044. Submissions may be hand delivered Monday through Friday between the hours of 8 a.m. and 4 p.m. to CC:PA:LPD:PR (REG-136563-07), Courier's Desk, Internal Revenue Service, 1111 Constitution Avenue NW., Washington, DC., or sent electronically, via the Federal eRulemaking Portal at www.regulations.gov (IRS-REG-136563-07).

FOR FURTHER INFORMATION CONTACT: Concerning the proposed regulations, Charles D. Wien, (202) 622-3070; concerning the submissions of comments and requests for hearing, Oluwafunmilayo (Funmi) Taylor, (202) 622-7180 (not toll-free numbers).

SUPPLEMENTARY INFORMATION:



Paperwork Reduction Act

The collections of information contained in this notice of proposed rulemaking have been reviewed and approved by the Office of Management and Budget in accordance with the Paperwork Reduction Act (44 U.S.C. 3507) under control number 1545-1686. Responses to these collections of information are mandatory. An agency may not conduct or sponsor, and a person is not required to respond to, a collection of information unless the collection of information displays a valid OMB control number assigned by the Office of Management and Budget.

On August 3, 2007, the IRS published final regulations under §301.6112-1 (TD 9352; 72 FR 43154). These regulations propose to modify those regulations.

The estimated annual burden per recordkeeper for the collection of information in §301.6112-1T is 100 hours and the estimated number of recordkeepers is 500.

Comments concerning the accuracy of these burden estimates and suggestions for reducing these burdens should be sent to Internal Revenue Service , Attn: IRS Reports Clearance Officer, SE:W:CAR:MP:T:T:SP, Washington, DC. 20224, and to the Office of Management and Budget , Attn: Desk Officer for the Department of Treasury, Office of Information and Regulatory Affairs, Washington, DC. 20503.

Books and records relating to these collections of information must be retained as long as their contents may become material in the administration of any internal revenue law. Generally, tax returns and return information are confidential, as required by 26 U.S.C. 6103.



Background

This document proposes to amend 26 CFR part 26 to provide rules for purposes of the generation-skipping transfer tax that require the disclosure of listed transactions and transactions of interest by certain taxpayers on their Federal tax returns under section 6011. This document also proposes to modify and clarify some of the rules under 26 CFR part 301 relating to the disclosure obligations of material advisors under section 6111 and the list maintenance requirements of material advisors with respect to reportable transactions under section 6112.

On July 31, 2007, the IRS and Treasury Department issued final regulations under section 6011 (TD 9350; 72 FR 43146), 6111 (TD 9351; 72 FR 43157) and 6112 (TD 9352; 72 FR 43154) (the July 2007 regulations) that were published in the Federal Register on August 3, 2007. In the July 2007 regulations, the IRS and Treasury Department amended 26 CFR parts 20, 25, 31, 53, 54, and 56 to provide that certain taxpayers would be required to disclose transactions of interest, in addition to listed transactions, on their Federal tax returns under section 6011. These regulations propose to amend 26 CFR part 26 to add similar rules under section 6011 for the tax on generation-skipping transfers. The July 2007 regulations also amended 26 CFR part 301 to provide rules relating to the obligation of material advisors to prepare and maintain lists with respect to reportable transactions under section 6112. These proposed regulations make minor clarifications and modifications to the rules under section 6112.



Explanation of Provisions

The regulations should encompass transactions that purport to reduce or eliminate the generation-skipping transfer tax as listed transactions or transactions of interest and require the disclosure of these transactions under section 6011. Although these regulations are being proposed, the IRS and Treasury Department do not have plans to identify any such transaction at this time. Clarifying amendments are being made to the regulations under sections 6111 and 6112 as a result of the generationskipping transfer tax rules proposed under section 6011.

The IRS and Treasury Department are proposing to amend the regulations under section 6112 to provide that, before a material advisor must make available to the IRS the list as described in §301.6112-1(b), the material advisor will have a specified period of time to prepare the list after the list maintenance requirement first arises with respect to a reportable transaction. The specified period of time for a material advisor to prepare a list will be 30 calendar days or a period greater than 30 calendar days as may be specifically described in the published guidance designating a transaction as a reportable transaction. A request for a list under section 6112 made during the list preparation time period will be treated as having been made on the day after the list preparation time period ends.

In addition, the regulations make clarifications to the rules regarding designation agreements. A group of material advisors to a reportable transaction may designate by written agreement one material advisor from the group to maintain the list required under section 6112. The existence of a designation agreement, however, does not affect the ability of the IRS to request the list from any party to the designation agreement, or the obligation of any party receiving a request from the IRS to furnish the list as required under section 6112 and the related regulations.



Special Analyses

It has been determined that this notice of proposed rulemaking is not a significant regulatory action as defined in Executive Order 12866. Therefore, a regulatory assessment is not required. It has also been determined that section 553(b) of the Administrative Procedure Act (5 U.S.C. chapter 5) does not apply to these regulations. It is hereby certified that the collection of information in these regulations will not have a significant economic impact on a substantial number of small entities. This certification is based on the fact that most of the material advisors affected by these regulations are not small entities and for those material advisors that are small entities most of the information is already required under the current regulations. Also, the collection of information referenced in these regulations has been approved under OMB control number 1545-1686. The clarification and new information required by these proposed regulations add little or no new burden to those existing requirements. Therefore, a Regulatory Flexibility Analysis under the Regulatory Flexibility Act (5 U.S.C. chapter 6) is not required. Pursuant to section 7805(f) of the Code, this notice of proposed rulemaking will be submitted to the Chief Counsel for Advocacy of the Small Business Administration for comment on its impact on small business.



Comments and Requests for a Public Hearing

Before these proposed regulations are adopted as final regulations, consideration will be given to any written comments (a signed original and eight (8) copies) or electronic comments that are submitted timely to the IRS. The IRS and Treasury Department request comments on the clarity of the proposed rules, how they can be made easier to understand, and the administrability of the rules in the proposed regulations. All comments will be available for public inspection and copying. A public hearing will be scheduled if requested in writing by any person that submits timely written or electronic comments. If a public hearing is scheduled, notice of the date, time, and place for the public hearing will be published in the Federal Register .



Drafting Information

The principal author of these regulations is Charles D. Wien, Office of the Associate Chief Counsel (Passthroughs and Special Industries). However, other personnel from the IRS and Treasury Department participated in their development.



List of Subjects



26 CFR Part 26

Estate taxes, Reporting and recordkeeping requirements.



26 CFR Part 301

Employment taxes, Estate taxes, Excise taxes, Gift taxes, Income taxes, Penalties, Reporting and recordkeeping requirements.



Proposed Amendments to the Regulations

Accordingly, 26 CFR parts 26 and 301 are proposed to be amended as follows: PART 26 --GENERATION-SKIPPING TRANSFER TAX REGULATIONS UNDER THE TAX REFORM ACT OF 1986

Paragraph 1. The authority citation for part 26 is amended to read in part as follows:

Authority: 26 U.S.C. 7805 * * *

Section 26.6011-4 also issued under 26 U.S.C. 6011 * * *

Par. 2. Section 26.6011-4 is added to read as follows:



§26.6011-4 Requirement of statement disclosing participation in certain transactions by taxpayers .

(a) In general . If a transaction is identified as a listed transaction or a transaction of interest as defined in §1.6011-4 of this chapter by the Commissioner in published guidance, and the listed transaction or transaction of interest involves a tax on generation-skipping transfers under chapter 13 of subtitle B of the Internal Revenue Code, the transaction must be disclosed in the manner stated in such published guidance.

(b) Effective/applicability date . This section applies to listed transactions and transactions of interest entered into on or after the date these regulations are published as final regulations in the Federal Register .



PART 301 --PROCEDURE AND ADMINISTRATION

Par. 3. The authority citation for part 301 continues to read in part as follows:

Authority: 26 U.S.C. 7805 * * *

Par. 4. Section 301.6111-3 is amended as follows:

1. Paragraphs (b)(2)(i)(A) and (b)(3)(i)(B) are amended by adding the language "26.6011-4," after each occurrence of "25.6011-4,".

2. Paragraphs (c)(2) and (c)(13) are amended by adding the language "26.6011-4," after "25.6011-4,".

3. Paragraph (i)(1) is revised.

The revision reads as follows:



§301.6111-3 Disclosure of reportable transactions.

* * * * *

(i) Effective/applicability date --(1) In general . This section applies to transactions with respect to which a material advisor makes a tax statement on or after August 3, 2007. However, this section applies to transactions of interest entered into on or after November 2, 2006, with respect to which a material advisor makes a tax statement under this section on or after November 2, 2006. Paragraphs (b)(2)(i)(A), (b)(3)(i)(B), (c)(2), and (c)(13) of this section apply to transactions with respect to which a material advisor makes a tax statement under this section after the date these regulations are published as final regulations in the Federal Register . Paragraph (h) of this section applies to ruling requests received on or after November 2, 2006. Otherwise, the rules that apply on or before the date these regulations are published as final regulations in the Federal Register are contained in this section in effect prior to the date these regulations are published as final regulations in the Federal Register (see 26 CFR part 301 revised as of April 1, 2009).

* * * * *

Par. 5. Section 301.6112-1 is amended as follows:

1. Paragraph (b)(1) is revised.

2. Paragraphs (c)(3) and (c)(12) are amended by adding the language "26.6011-4," after "25.6011-4,".

3. Paragraphs (f) and (g) are revised.

The revisions read as follows:



§301.6112-1 Material advisors of reportable transactions must keep lists of advisees, etc.

* * * * *

(b) * * * (1) In general . A separate list must be prepared and maintained for each reportable transaction. However, one list must be maintained for substantially similar transactions. A material advisor will have 30 calendar days from the date the list maintenance requirement first arises (see §301.6111-3(b)(4) and paragraph (a) of this section) with respect to a reportable transaction to prepare the list that must be maintained under this section with respect to that transaction. The Commissioner in his discretion also may provide in published guidance designating a transaction as a reportable transaction a list preparation time period greater than 30 calendar days. If a list is requested under this section during the list preparation time period, the request for the list will be treated as having been made on the day after the list preparation time period ends. A list must be maintained in a form that enables the IRS to determine without undue delay or difficulty the information required in paragraph (b)(3) of this section. The Commissioner in his discretion may provide in published guidance a form or method for maintaining or furnishing the list.

* * * * *

(f) Designation agreements . If more than one material advisor is required to maintain a list of persons for a reportable transaction, in accordance with paragraph (b) of this section, the material advisors may designate by written agreement a single material advisor (the designated material advisor) to maintain the list or a portion of the list. A designation agreement does not relieve material advisors from their obligation to maintain the list in accordance with paragraph (b) of this section or to furnish the list to the IRS in accordance with paragraph (e)(1) of this section, but a designation agreement may allow one material advisor to maintain the list on behalf of the other material advisors who are a party to the designation agreement. A material advisor is not relieved from the requirement of this section because a material advisor is unable to obtain the list from any designated material advisor, any designated material advisor did not maintain a list, or the list maintained by any designated material advisor is not complete. The existence of a designation agreement does not affect the ability of the IRS to request the list from any party to the designation agreement. The IRS may request the list from any party to the designation agreement, and the party receiving the request must furnish the list to the IRS in accordance with paragraph (e)(1) of this section, regardless of whether the list was maintained by another party pursuant to the terms of a designation agreement.

(g) Effective/applicability date . In general, this section applies to transactions with respect to which a material advisor makes a tax statement under §301.6111-3 on or after August 3, 2007. However, this section applies to transactions of interest entered into on or after November 2, 2006, with respect to which a material advisor makes a tax statement under §301.6111-3 on or after November 2, 2006. Paragraphs (b)(1), (c)(3), (c)(12), and (f) of this section apply to transactions with respect to which a material advisor makes a tax statement under §301.6111-3 after the date these regulations are published as final regulations in the Federal Register . Otherwise, the rules that apply on or before the date these regulations are published as final regulations in the Federal Register are contained in this section in effect prior to the date these regulations are published as final regulations in the Federal Register (see 26 CFR part 301 revised as of April 1, 2009).

Linda E. Stiff,

Deputy Commissioner for Services and Enforcement.

Labels:

Thursday, September 10, 2009

TEFRA Partnership procedures

Chief Counsel Notice CC-2009-027

September 1, 2009

Department of the Treasury


Internal Revenue Service



Office of Chief Counsel




Notice

CC-2009-027

August 21, 2009

Subject: Frequently Asked Questions Regarding The Unified Partnership Audit And Litigation Procedures Set Forth In Sections 6221-6234


Cancel Date : Effective until further notice




PURPOSE

This notice addresses frequently asked questions regarding the unified partnership audit and litigation procedures set forth in I.R.C. §§ 6221-6234 (the "TEFRA partnership procedures").



BACKGROUND

Although partnerships do not pay Federal income taxes they are required to file annual information returns reporting the partners' distributive shares of tax items. I.R.C. §§ 701 and 6031. The partners report their distributive shares of the tax items on their respective Federal income tax returns. I.R.C. §§ 701-704. To remove the substantial administrative burden occasioned by duplicative audits and litigation, and to provide consistent treatment of partnership tax items among partners in the same partnership, Congress enacted the unified partnership audit and litigation procedures as part of the Tax Equity and Fiscal Responsibility Act of 1982, Pub.L. No. 97-248, sec. 401, 96 Stat. 648. Petaluma FX Partners, LLC v. Commissioner , 131 T.C. No. 9, 2008 WL 4682543, *4 (2008).

Under the TEFRA partnership procedures, prior to assessing the tax liability of the partners, the Internal Revenue Service determines the tax treatment of partnership items in a partnership-level proceeding. I.R.C. §§ 6221 and 6225. Determinations at the partnership level are binding upon all direct and indirect partners of the partnership. Sente Inv. Club P'ship of Utah v. Commissioner , 95 T.C. 243, 247-250 (1990). In the absence of a partnership-level proceeding, the Service is bound by the partnership items as reported on the partnership return. Roberts v. Commissioner , 94 T.C. 853, 862 (1990).

Section 6231(a) provides that the TEFRA partnership procedures apply to any partnership except for partnerships with ten or fewer partners, all of which are: individuals who are not nonresident aliens; C corporations; or estates of deceased individuals. Thus, if any partner is a pass-thru entity, then the partnership is subject to the TEFRA partnership procedures regardless of the number of partners. 1 I.R.C. § 6231(a)(1)(B); Treas. Reg. § 301.6231(a)(1)-1(a)(2). The Service generally determines, based upon the partnership's information return, whether the TEFRA partnership procedures are applicable to the reported tax year. 2 I.R.C. §§ 6231(g) and 6233.

The Service must notify partners of when the audit of the partnership has begun (a notice of beginning of administrative proceeding or the "NBAP"), and of proposed adjustments to the partnership's information return, if any (a notice of final partnership administrative adjustment or the "FPAA"). I.R.C. § 6223. During the ninety-day period after the mailing of the notice of FPAA, the tax matters partner (the "TMP") may file a petition for judicial review. I.R.C. § 6226(a). If the TMP does not file a petition within that ninety-day period, any notice partner or any five percent group (section 6231(a)(11)) may, within sixty days after the close of the TMP's ninety-day period, file a petition for judicial review. 3 I.R.C. § 6226(b).

Partnership items flow through, appearing in the computation of the taxable income of the partners and affecting nonpartnership items on a partner's tax return. I.R.C. §§ 6230(a)(1) and 6231(a)(4)-(a)(6); Treas. Reg. § 301.6231(a)(5)-1; Petaluma FX Partners, LLC , 131 T.C. No. 9, 2008 WL 4682543, *5. There are two types of affected items: those that require only a computation of the tax immediately assessable; and those that require partner-level determinations made through a notice of deficiency. I.R.C. § 6230(a); Treas. Reg. § 301.6231(a)(6)-1; Petaluma FX Partners, LLC , 131 T.C. No. 9, 2008 WL 4682543, *4.



ANSWERS TO FREQUENTLY ASKED QUESTIONS



(A) Partnership Items



1. What is a partnership item?

A partnership item is any item required to be taken into account for the partnership's taxable year under any provision of Subtitle A of the Code, to the extent that regulations provide that it is more appropriately determined at the partnership level rather than at the partner level. I.R.C. § 6231(a)(3). These items include, but are not limited to: the partnership aggregate and each partner's share of items of income, gain, loss, deduction or credit of the partnership; the amount and type of any partnership liabilities; optional adjustments to the basis of partnership property pursuant to a section 754 election; and the amount of contributions to the partnership. Treas. Reg. § 301.6231(a)(3)-1. They also include the accounting practices, and the legal and factual determinations that underlie the determination of other partnership items. Treas. Reg. § 301.6231(a)(3)-1(b).



2. Should the Service determine a partner's outside basis at the partnership level?

Outside basis, which is a partner's basis in the partner's partnership interest, is relevant when: a partnership distributes to a partner that partner's share of the partnership's loss; the partnership distributes cash or property to a partner; or a partner sells that partner's partnership interest. I.R.C. §§ 704(d), 731, 732, 741 and 1001.

Most, but not all, of the component items of outside basis are partnership items, including: the basis of contributions to the partnership; distributions from the partnership; the partner's share of nontaxable income, taxable income, losses and deductions; and the partner's share of partnership liabilities. I.R.C. § 705; Treas. Reg. § 301.6231(a)(3)-1; Nussdorf v. Commissioner , 129 T.C. 30, 42-44 (2007).

Partner-level determinations include, in the absence of a section 754 election by the partnership, the cost to purchase the partnership interest or the transferor's basis in the partnership at the time of acquisition by gift, bequest, transfer or exchange. Dial USA, Ltd. v. Commissioner , 95 T.C. 1, 4 (1990). See Petaluma FX Partners, LLC , 131 T.C. No. 9, 2008 WL 4682543, *10; IRM 8.19.1.6.9.4(f), Issues With Both Partnership and Partner Level Elements .

If, however, the Service determines, at the partnership level, that the partnership was a sham, ( i.e. , that no partnership exists), then that determination includes a determination that outside basis, for each partner, for that taxable year, was zero. 4 Petaluma FX Partners, LLC , 131 T.C. No. 9, 2008 WL 4682543, *9-*11. There would be no partner-level factual determinations left to be made to calculate outside basis because, as a matter of law, there can be no basis in a nonexistent partnership. Id.



3. Should the Service determine at the partnership level that, under section 465, the partner's distributive share of losses exceeds the partner's amount at risk?

Regarding section 465, the Service must make determinations at both the partnership level and at the partner level. See IRM 8.19.1.6.9.4(2)(d), Issues With Both Partnership and Partner Level Elements . Partnership-level items include the partners' shares of partnership liabilities and the character of the liabilities as recourse or nonrecourse. See Id. Partner-level items include any arrangements with third parties insulating the partner from loss, and whether a partner is a related party under section 465(b)(3). See Id.; Hambrose Leasing 1984-5 Ltd. P'ship v. Commissioner , 99 T.C. 298, 308-309 (1992) (whether partners protected against loss is a partner-level issue); Roberts v. Commissioner , 94 T.C. 853, 861-863 (1990) ("The existence and effect of the side agreements at issue are not items that a TEFRA partnership must account for under subtitle A in their books, records, or returns.").



4. Is the section 1446 withholding tax a partnership item?

Yes. Section 1446 is a provision of Subtitle A more appropriately determined at the partnership level than at the partner level. Thus, examinations with respect to section 1446 are subject to the TEFRA partnership procedures. I.R.C. § 6231(a)(3); Treas. Reg. § 301.6231(a)(3)-1(a)(1)(v).



5. How does the Service determine, for purposes of section 165(c), the profit motive of the partnership?

For purposes of section 165(c), the Service determines the profit motive of the partnership by reference to the state of mind of the general partner(s) acting on the partnership's behalf. See Brannen v. Commissioner , 722 F.2d. 695, 705 n.10 (11th Cir. 1984) ("[T]he tax court properly looked to the general partner's actions in determining whether the partnership, as an entity, was operated in a business-like manner."); Garcia v. Commissioner , 96 T.C. 792, 797 (1991).



(B) Notices



1. Who is entitled to notice of partnership-level audit proceedings?

The Service must mail the NBAP and the notice of FPAA to: the TMP; all notice partners; and the designated representative of any section 6223(b)(2) notice group. I.R.C. §§ 6223(a), (b). Failure to issue the requisite notice triggers either conversion of the partner's partnership items to nonpartnership items or the availability of an election to do so. I.R.C. § 6223(e). See Wind Energy v. Commissioner , 94 T.C. 787, 789-794 (1990).



2. Is the partnership entity a party to partnership-level audit and litigation proceedings?

No. The partnership entity is not a party to the partnership-level audit or litigation proceeding. Chef's Choice Produce, Ltd. v. Commissioner , 95 T.C. 388, 395 (1990). The partners whose tax liabilities will be affected by the outcome of a partnership-level proceeding are the parties in interest in any partnership-level audit or litigation proceeding. Id. The dissolution or termination of the partnership entity does not affect the partnership-level proceedings. Id.



3. How do the partners designate a TMP?

The designation of a TMP for a specific taxable year is made or terminated only as provided in Treas. Reg. § 301.6231(a)(7)-1. I.R.C. § 6231(a)(7). A court appointing a new TMP for litigation purposes is not subject to that regulation. See Tax Court Rule 250.



4. To what addresses should the Service mail notices?

The Service may use the names, addresses and profits interests shown on: the partnership return; any written statement filed by any person with the Service at least thirty days before the Service mails the notice to the TMP; and any updates by the Service itself, ( e.g. , the partner's last known address). I.R.C. §§ 6223(c)(1) and (c)(2); Treas. Reg. § 301.6223(c)-1. The Service should, for protective purposes, send duplicate copies of the notice to any conflicting addresses.

The Service should mail generic notices to "THE TAX MATTERS PARTNER" at the address of the partnership. I.R.C. § 6223(a); Treas. Reg. § 301.6223(a)-1. The Service should also mail the notices to the designated TMP at the TMP's address.



5. Which partners are notice partners?

If the partner has a one percent, or more, interest in the profits of the partnership, or if the partnership has one hundred or fewer partners, then the partner is a notice partner entitled to the NBAP and the notice of FPAA. I.R.C. § 6223(b)(1).



6. May multiple partnership years be included in the same NBAP and FPAA?

If all partners remain the same over multiple tax years, then the Service may address those multiple tax years in a single NBAP and a single FPAA. I.R.C. §§ 6223, 6103(h)(4).



7. What is a notice group?

Section 6223(b)(2) provides that, upon request, the Service must mail the NBAP and the notice of FPAA to the designated member of a group of partners that, in the aggregate, has a five percent or greater interest in the profits of the partnership. A section 6223(b)(2) notice group is distinct from a section 6231(a)(11) "five percent group," which, under section 6226(b)(1), may petition for judicial review of an FPAA. See PCMG Trading Partners XX, L.P. v. Commissioner , 131 T.C. No. 14, 2008 WL 5191382, *4 (2008) (five percent group petition).



8. How do failures of the TMP affect TEFRA partnership audit and litigation proceedings?

The failure of the TMP, a pass-thru partner, the representative of a notice group or any other representative of a partner to perform any act required by the TEFRA partnership procedures does not affect the applicability of any TEFRA partnership proceeding or adjustment. I.R.C. § 6230(f).



9. Must the FPAA include an explanation of adjustments made therein?

Yes. The FPAA must include a sufficient explanation of the grounds for adjustment to avoid the burden of proof shifting to the Service. I.R.C. § 7522; Shea v. Commissioner , 112 T.C. 183, 197 (1999). The "Remarks" section of the FPAA should provide the explanation or incorporate by reference a separate document entitled "Explanation of Adjustments." The Service should send the same FPAA to all partners entitled to notice. See I.R.C. § 6223(a).

The Service may issue an FPAA that determines that partnership items, as reported on the partnership return, are correct. Harbor Cove Marina Partners P'Ship v. Commissioner , 123 T.C. 64, 78 (2004). Partners may petition a "no change" FPAA. For example, partners may seek additional deductions.



10. What is the limitations period for issuing an FPAA?

There is no statute of limitations for issuing an FPAA. The Service may adjust partnership items arising in a year for which all periods of assessment have expired as long as the adjustments affect a partner year ( e.g. , an NOL carryforward) for which the assessment period has not expired. I.R.C. §§ 6226(c) and (d)(1)(A); Kligfeld Holdings v. Commissioner , 128 T.C. 192, 202-207 (2007). Cf. Bob Hamric Chevrolet, Inc. v. United States , 849 F.Supp. 500, 512 (W.D. Tex. 1994) ("When a partnership loss, deduction or credit allocated to a partner in one year carries over or back to other taxable years at the partner level, such carryover or carry back is an affected item."). See Bahar v. United States , No. 08 Civ. 4738 (WHP), 2009 WL 1285946, *4 (S.D.N.Y. May 4, 2009).



11. If a subsidiary corporation is a partner in a TEFRA partnership, what is the effect of the bankruptcy of the parent corporation?

If a partner is a subsidiary corporation, then the parent corporation will generally be a partner pursuant to section 6231(a)(2)(B). See Rev. Rul. 2006-11. Upon the filing of a petition in Bankruptcy Court naming the parent corporation as a debtor, the Service will treat as nonpartnership items the parent corporation's partnership items; however, the Service will continue to treat as partnership items the partnership items of the subsidiary corporation and other nonbankrupt subsidiary corporations in the consolidated filing group. I.R.C. § 6231(c); Treas. Reg. § 301. 6231(c)-7. See Treas. Reg. § 301.6231(a)(2)-1(a)(4)(iii); IRM 4.31.7.6.4.1, Parent/Subsidiary .



(C) Petitions



1. Who is considered a party to a section 6226 action?

A partner, not the partnership entity, files a petition for readjustment of partnership items. I.R.C. § 6226. Thus, the petitioner is the partner, not the partnership. Chef's Choice Produce, Ltd. , 95 T.C. at 395-396; Barbados #6 Ltd. v. Commissioner , 85 T.C. 900, n.1 (1985). Court filings in TEFRA partnership cases should never refer to the partnership as "the petitioner" or refer to "the petitioning partnership". The partnership name in the caption reflects the aggregate nature of the proceedings, not that the partnership is the petitioner. 5 See Tax Court Rules 240(d) and 247.

The Service and the Tax Court will treat each partner with an interest in the outcome of the petition as a party to the action. I.R.C. § 6226(c); Tax Court Rule 247. Partners include any individual or entity whose income tax liability under Subtitle A of the Code is determined, in whole or in part, by taking into account, directly or indirectly, partnership items of the partnership. I.R.C. § 6231(a)(2).

For purposes of discovery, the Tax Court regards nonparticipating partners as third parties. See Tax Court Rule 75(b) (third-party deposition of a partner).



2. What is a participating partner?

Participating partners include the partner that filed the petition and partners that have filed, in accordance with Tax Court Rule 245, a notice of election to intervene or a notice of election to participate. Tax Court Rule 247(b).

Whenever Tax Court Rules require that the Service file a paper with the Tax Court, the Service must serve copies of that paper upon all participating partners and the TMP. Tax Court Rule 246(c).



3. Should the Service identify partners at the partnership-level?

Yes. The identification of the partners is a partnership item. Katz v. Commissioner , 335 F.3d 1121, 1128-1129 (10th Cir. 2003); Blonien v. Commissioner , 118 T.C. 541, 551-552 (2002).

But see Grigoraci v. Commissioner , T.C. Memo. 2002-202, 2002 WL 1835711, *5-*7 ("Under the circumstances of this case, we hold that a determination that the partners of record were not the true and actual partners is not a 'partnership item' ... ."); Hang v. Commissioner , 95 T.C. 74, 82 (1990) ("[T]he determination of whether income should be reallocated from a shareholder of record to someone who is not a shareholder of record is more appropriately determined at the shareholder level."); Alpha I, L.P. ex rel. Sands v. United States , 86 Fed.Cl. 126, 134 (2009).

In light of this uncertainty, the Service should determine the identities of partners at the partnership level because, even if the court determines the issue must be resolved at the partner level, section 6229(d) will likely suspend the statute of limitations. Duplicative protective nonpartnership procedures may be necessary in some circumstances.



4. May the petitioner, or petitioner's counsel, prevent contact with other partners?

No. For purposes of contact, the petitioner (even if the TMP) does not represent the other partners, and petitioner's counsel represents only those on behalf of whom an entry of appearance is made. See I.R.C. § 6224(a) ("Any partner has the right to participate in any administrative proceeding relating to the determination of partnership items at the partnership level."); Tax Court Rule 75 (third-party deposition of a partner).



5. Should the Service move to dismiss a petition filed during the section 6226(a) ninety-day period by someone other than the TMP?

If any person other than the valid TMP files a petition during the section 6226(a) ninety-day period, then the Service should determine whether there is a valid TMP willing to ratify the petition by filing an amended petition in the name of the proper party. If ratification is unavailable, then the Service should prepare either a Tax Court Rule 250 motion to appoint a TMP to ratify the petition, or a motion to dismiss the action for lack of jurisdiction under section 6226(a). See Montana Sapphire Assoc., Ltd. v. Commissioner , 95 T.C. 477, 483 (1990) ("We do not believe that it is appropriate to dismiss the petition under these circumstances without first giving (1) the partnership the opportunity to advise the Court of the name of a person to be appointed TMP and (2) the TMP the opportunity of ratifying the original petition."); CCDM 35.3.7.2(5), Jurisdictional Motions . If the petitioner is a notice partner or a section 6231(a)(11) five percent group, then the court may treat the petition as filed on the last day of the section 6226(b) sixty-day petition period. I.R.C. § 6226(b)(5).

Courts have upheld section 6226(a) TMP petitions despite the failure to comply with the regulations regarding designation of the TMP. See Mishawaka Prop. Co. v. Commissioner , 100 T.C. 353, 367 (1993) ("Whether we imply ratification by the partner who was qualified to be the TMP or by a majority of the partners who could have designated a TMP, the result would be the same."); Chomp v. Commissioner , 91 T.C. 1069, 1078 (1988) ("As stated above, the question is whether Pearl was duly authorized to file the petition in this case, not whether he properly notified respondent.").



6. Should the Service move to dismiss a petition filed during the section 6226(b) sixty-day period by someone other than a notice partner or a five-percent group?

If the section 6226(b) petitioner is not a notice partner or a section 6231(a)(11) five-percent group, then the Service should seek ratification by any notice partner or five-percent group before filing a motion to dismiss for lack of jurisdiction under section 6226(b). See CCDM 35.3.7.2(5), Jurisdictional Motions . But see Gov't Arbitrage Trading Co. v. Commissioner , T.C. Memo. 1994-136, 1994 WL 102638, *3 (denying opportunity to obtain ratification).



7. Why does the caption identify as TMP the petitioner who filed during the section 6226(b) sixty-day period?

Tax Court Rule 240(d) requires that, if the petitioning partner is the TMP, then the caption should identify the petitioning partner as such regardless of when the petition was filed.



8. Do the FPAA and the Answer limit the court's jurisdiction in a section 6226 action?

No. Section 6226(f) provides that, regardless of whether the Service raised adjustments in the FPAA, the Answer or in any other manner, the court has jurisdiction to determine: all partnership items of the partnership for the partnership taxable year to which the notice of FPAA relates; the proper allocation of the partnership items among the partners; and the applicability of any penalty, addition to tax or additional amount that relates to an adjustment to a partnership item. The purpose of the Answer in a section 6226 action is to place the court and the parties on notice of disputes. See PAA Mgmt., Ltd. v. Commissioner , 962 F.2d 212, 218 (2nd Cir. 1992).



9. Does the court, in a partnership-level proceeding, have jurisdiction to abate interest under section 6404?

No. In a partnership-level proceeding, the court's jurisdiction does not extend to abatement of interest under section 6404. See I.R.C. §§ 6226(f) and 6231(a)(3); Treas. Reg. § 301.6231(a)(3)-1; Alpha I, L.P. ex rel. Sands v. United States , 86 Fed. Cl. 126, 134 (2009) ("[T]he language of 26 U.S.C. § 6226(f), providing for jurisdiction over any 'additional amount which relates to an adjustment to a partnership item,' 26 U.S.C. § 6226(f), refers solely to the application of penalties, [citations omitted]."); Affiliated Equip. Leasing II v. Commissioner , 97 T.C. 575, 577-578 (1991) ("[S]ection 6621(c) interest is not a 'partnership item' and is not within the Court's scope of review in a partnership level proceeding.").



(D) Assessment



1. When may the Service assess penalties?

For partnership taxable years ending after August 5, 1997, the Service determines at the partnership level the applicability of any penalty, addition to tax or additional amount that relates to an adjustment to a partnership item. I.R.C. § 6221. The Service and the court consider partnership-level defenses by reference to the actions and state of mind of the managing partner. Stobie Creek Inv., LLC v. United States , 82 Fed.Cl. 636, 703 (2008). See Klamath Strategic Inv. Fund ex rel. St. Croix Ventures v. United States , No. 07-40861, 2009 WL 1353118, * 8 (5th Cir. May 15, 2009); Tigers Eye Trading, LLC v. Commissioner , T.C. Memo. 2009-121, 2009 WL 1475159, *10 (2009). But see Clearmeadow Investments, LLC v. United States , No. 05-1223 T, 2009 WL 1784247, *7-*9 (Ct. Cl. June 17, 2009) (court lacks jurisdiction at partnership level to consider applicability of reasonable cause exception to the section 6664(c) gross valuation misstatement penalty). The Tax Court has held that the Service may assess penalties that relate to partnership items, without issuing a notice of deficiency, even if the underlying deficiency or the penalty itself requires partner-level determinations. Domulewicz v. Commissioner , 129 T.C. 11, 23 (2007), appeal docketed , No. 08-1676 (6th Cir. May 20, 2008). See also section 6230(a)(2); Treas. Reg. § 301.6231(a)(6)-1(a)(3); Tigers Eye Trading, LLC , T.C. Memo. 2009-121, 2009 WL 1475159, *24. Partners may raise partner-level defenses to a penalty (those that are personal to the partner, or that are dependent on the partner's separate return) only through a refund action. Treas. Reg. § 301.6221-1(d); I.R.C. § 6230(c)(4); Tigers Eye Trading, LLC , T.C. Memo. 2009-121, 2009 WL 1475159, *10. If the penalties relate to affected items, then protective duplicative assessment procedures may be required. See Chief Counsel Notice 2009-011, Protective Assessments of Affected Items in TEFRA Partnership Cases .



2. How does a partner challenge an assessment?

If the Service has assessed a computational adjustment without a notice of deficiency, then a partner may challenge the assessment only after making payment. I.R.C. §§ 6230(a), (c) and (d); I.R.C. § 6511(g). If the Service determines that it made an error in the computation, and if the taxpayer has not yet paid the tax liability, the Service may abate the assessment, in whole or in part, under section 6404. See I.R.C. § 6404.

If the Service has issued a statutory notice of deficiency, then, under section 6213(a), the partner has ninety days to petition the deficiency in Tax Court. Otherwise, the partner can pay the deficiency and seek a refund under section 7422.



3. What is the notice of computational adjustment?

For purposes of section 6230(c)(2), the Service is deemed to have sent to the partner a "notice of computational adjustment" when it sends to the partner Form 4549, Income Tax Examination Changes , showing the adjustments making the partner's tax return consistent with partnershiplevel determinations and the subsequent change to tax liability. See IRM 8.19.1.6.9.7(3), Computational Adjustments.



4. When may the Service issue an affected item notice of deficiency?

The Service should not issue an affected item notice of deficiency before the conclusion of a partnership-level proceeding regarding partnership items that affect the items in the notice of deficiency. GAF v. Commissioner , 114 T.C. 519, 524-528 (2000).



5. What is a Munro stipulation?

In Munro v. Commissioner , 92 T.C. 71 (1989), the Tax Court held that, in determining whether a deficiency attributable to nonpartnership items exists, the Service must ignore partnership items that are included on a taxpayer's return and subject to a separate and ongoing TEFRA partnership proceeding. The Munro stipulation is an agreement between the Service and a taxpayer providing: that, for purposes of computing the deficiency, the Service has treated the taxpayer's partnership items, which are subject to an ongoing TEFRA partnership proceeding, as if correctly reported on the taxpayer's return; and the Service can assess, at the conclusion of a TEFRA partnership-level proceeding, any change to the non-TEFRA deficiency liability caused by resolution of that TEFRA partnership-level proceeding ( e.g. , a change to the non-TEFRA deficiency liability attributable to an increased tax bracket). In the absence of the stipulation, in accordance with Munro , the Service would have to include the tax bracket increase as part of the non-TEFRA deficiency. For oversheltered returns, section 6234 supersedes the Munro procedures. See CCDM 35.2.1.1.16, TEFRA: Munro Stipulation for Deficiency Cases .



6. May the Service, without issuing an FPAA, adjust partnership and affected items on a partner's tax return?

Yes. If a partner fails to report the partner's share of partnership items in the same manner as reported on the partnership return, and if that partner fails to notify the Service of the inconsistency, then the Service may assess the difference without issuing an FPAA. I.R.C. § 6222(c). A notice of deficiency is necessary only if a partner-level determination is required. I.R.C. § 6230(a)(2).



(E) Statute of Limitations



1. What is the relationship between section 6501 and section 6229?

Section 6501(a) provides the period of limitations within which the Service may assess any tax imposed by Title 26 of the United States Code, including tax attributable to partnership and affected items. Section 6229(a) provides that each partner's section 6501 assessment period for tax attributable to partnership and affected items will not expire before the date that is three years after the later of: the date on which the partnership return for the taxable year was filed or the last day for filing the return for that year (determined without regard to extensions). Thus, section 6501 may provide a longer period of limitations than the minimum period for assessment under section 6229. Rhone-Poulenc Surfactants & Specialties, L.P. v. Commissioner , 114 T.C. 533, 542-543 (2000). See also Curr-Spec Partners, L.P. v. Commissioner , No. 08-60815, 2009 WL 2437764, * 3 (5th Cir. 2009); AD Global Fund, LLC v. United States , 481 F.3d 1351, 1354-1355 (Fed. Cir. 2007); Andantech L.L.C. v. Commissioner , 331 F.3d 972, 976-977 (D.C. Cir. 2003).



2. If a TMP is an entity, who signs the consent to extend the period for assessing tax attributable to partnership and affected items?

A TMP may extend the period for assessing tax attributable to partnership and affected items with respect to all partners. I.R.C. § 6229(b)(1)(B). If a TMP is a partnership or a limited liability company, the Service must determine who has authority under State law to sign for the TMP entity. See IRM 4.31.2.6.4(2), Persons Empowered to Sign A Consent .

Consider, for example, partnership X. For tax year A, partnership X has designated as its TMP Y LLC. Z corporation is Y LLC's sole member-manager and, under State law, has authority to bind Y LLC. John is Z's chief financial officer and, under State law, has authority to bind Z corporation. John should sign the consent to extend the limitations period for tax year A for partnership X as follows: Y LLC, Tax Matters Partner of X, by Z Corporation, Manager of Y LLC, by John, CFO.

For tax years beginning before June 28, 2002, if a subsidiary in a consolidated filing group is the TMP of a partnership, then the Service should obtain the signature of an officer of the subsidiary and, for protective purposes, an officer of the parent. See Treas. Reg. § 1.1502-77A(a) and (e) for rules to identify the proper corporation to sign the statute extension as the parent corporation. For tax years beginning on or after June 28, 2002, if a subsidiary in a consolidated filing group is the TMP of a partnership, then the signature of only the TMP subsidiary is required on any statute extension signed by the TMP on behalf of the partners of the partnership. See Treas. Reg. § 1.1502-77(a)(3)(v); IRM 4.31.2.6.4(3) and (4), Persons Empowered to Sign A Consent .



3. May partners secretly replace the TMP before the TMP signs the consent to extend the assessment period for tax attributable to partnership and affected items?

No. If the Service does not know, and has no reason to know, of the designation of a new TMP, the partners are estopped from arguing that the properly designated former TMP lacked authority to sign a consent form. The Service must be able to rely on the acts of a properly designated TMP. San Gabriel Energy v. Commissioner , T.C. Memo. 1994-150, 1994 WL 122102, * 4- * 5 (1994).



4. May anyone other than the TMP sign a consent to extend the period for assessing tax attributable to partnership and affected items?

Yes. If the partnership has authorized, in writing, a person other than the TMP to enter into an agreement, such as a consent to extend the limitations period, that person also may extend the partnership or affected item assessment period with respect to all partners. I.R.C. § 6229(b)(1)(B). The partnership may authorize a person other than the TMP by filing with the Service, under Treas. Reg. § 301.6229(b)-1, a statement signed by all persons who were general partners (or, in the case of an LLC, member-managers) at any time during the year or years for which the authorization is effective.

If it is too late to obtain a new consent, the Service should consider whether the partnership agreement serves as a written authorization for the person who has already signed a consent. Cambridge Research and Dev. Group v. Commissioner , 97 T.C. 287, 301-302 (1991).

The TMP's power of attorney, pursuant to Form 2848, may sign an extension on behalf of the TMP. The preference, however, is to have the TMP personally sign significant documents. See IRM 4.31.2.2.5,(1)(b), Power of Attorney Appointed by the Tax Matters Partner .

If the valid designation of a TMP is uncertain, then the Service should, for protective purposes, obtain from each partner a consent to extend the assessment period for tax attributable to partnership and affected items using Form 872-I or successor forms. Form 872-I expressly refers to partnerships and affected items as required by section 6229(b)(3). See Ginsburg v. Commissioner , 127 T.C. 75, 89 (2006).

For tax years beginning before June 28, 2002, the Service should obtain the signature of an officer of the parent corporation regardless of whether the subsidiary or the parent is the partner. For tax years beginning on or after June 28, 2002: if the partner is a common parent of a consolidated group, the Service should obtain the signature of an officer of the parent corporation; but, if the partner is a subsidiary corporation, both the subsidiary and the parent of the consolidated group should sign the consent to extend the assessment period. See Treas. Reg. §§ 1.1502-77(a)(2)(iv) and (a)(6)(iii) (for tax years beginning on or after June 28, 2002); Treas. Reg. §§ 1.502-77A(a) and (e) (for tax years beginning before June 28, 2002); IRM 4.31.2.6.3(3)(c) and (d), Extension of Investor Statute for TEFRA and Non-TEFRA Items ; IRM 25.6.22.6.2.1(6)(l), Subsidiary of Consolidated Group as a Partner in a TEFRA Partnership (Forms 872-I and 872-IA) .



5. Does fraud affect the assessment period for tax attributable to partnership and affected items?

Yes. If any partner has, with intent to evade tax, signed or participated in the preparation of a partnership return that includes a false or fraudulent item, then: regarding the signing or participating partners, the Service may assess at any time any tax imposed by Subtitle A of the Code that is attributable to any partnership or affected item for the partnership taxable year to which the return relates; and regarding all other partners, the section 6229(a) assessment period is extended from three years to six years. I.R.C. § 6229(c)(1). Compare I.R.C. § 6229(c)(1) with I.R.C. § 6501(c)(1) ("In the case of a false or fraudulent return with the intent to evade tax, the tax may be assessed ... at any time.").



6. Does a partnership's omission from gross income affect the assessment period for tax attributable to partnership and affected items?

Yes. If any partnership omits from gross income more than twenty five percent of the amount of gross income stated on its return, then the section 6229(a) assessment period is extended from three years to six years for all partners. I.R.C. §§ 6229(c)(2). Both the definition of gross income and the adequate disclosure provision of section 6501(e)(1)(a) are encompassed in section 6229(c)(2). Rhone-Poulenc Surfactants & Specialties , 114 T.C. at 540-551; CC & F Western Ltd. Partnership v. Commissioner , T.C. Memo. 2000-286, 2000 WL 1276708, at * 3, aff'd , 273 F.3d 402 (1st Cir. 2001).

The Ninth Circuit in Bakersfield Energy Partners, L.P. v. Commissioner , No. 07-74275, 2009 WL 16776896, (9 th Cir. June 17, 2009), held that it was bound by Colony, Inc v. Commissioner , 357 U.S. 28, 33 (1958), and thus, an overstatement of basis cannot constitute an omission from gross income for purposes of the six-year period of limitations. On July 30, 2009, the Federal Circuit similarly held in Salman Ranch, Ltd v. United States , No. 2008-5053, reversing and remanding 79 Fed. Cl. 189, 193-200, that section 6501(e)(1)(A) is not applicable to an alleged overstatement of basis. But see Home Concrete & Supply, LLC v. United States , 599 F.Supp.2d 678, 690 (E.D.N.C. 2008) (overstatement of basis can constitute an omission from gross income for purposes of the six-year period of limitations); Brandon Ridge Partners v. United States , No. 8:06-cv-1340-T-24MAP, 100 A.F.T.R.2d 2007-5347, * 2007-5351- * 2007-5353 (M.D.Fla. 2007) (same). All cases with this issue must be coordinated with the Office of the Associate Chief Counsel (Procedure and Administration).



7. Does a partnership's failure to file a return affect the assessment period for tax attributable to partnership and affected items?

Yes. If a partnership fails to file a return for a tax year, the Service may assess at any time any tax attributable to a partnership or affected item arising in that year. I.R.C. § 6229(c)(3). For this purpose, a section 6020(b) substitute return is not a partnership return. I.R.C. § 6229(c)(4).



8. Does the mailing of an FPAA affect the assessment period for tax attributable to partnership and affected items?

Yes. The mailing of an FPAA to the TMP suspends the assessment period for tax attributable to partnership or affected items: for the period in which a partner may file a petition for readjustment and for one year thereafter; and if a partner files a petition, until the decision of the court is final and for one year thereafter. I.R.C. § 6229(d).

Section 7481 provides the date upon which a Tax Court decision is final. Quick v. Commissioner , 110 T.C. 172, 182 (1998). For purposes of section 6229(d), the principles of section 7481(a) also determine the date on which a decision of a United States district court or the Court of Federal Claims is final. I.R.C. § 6230(g). Thus, the appeal period (ninety days in Tax Court and sixty days in district court and the Court of Federal Claims) affects the computation of the date the decision becomes final. I.R.C. § 7483; FED. R. APP. P. 4(a)(1)(B) and 13(a)(1).



9. Does the partnership's failure to identify a partner affect the assessment period for tax attributable to partnership and affected items?

Yes. If the partnership return does not provide the name, address and taxpayer identification number of a partner, and if either the Service has mailed the FPAA before the expiration of the section 6229(a) assessment period or the partner has failed to comply with section 6222(b), then, regarding that partner, the assessment period for any tax imposed by Subtitle A of the Code that is attributable to any partnership or affected item for the partnership taxable year of the partnership return will not expire before the date that is one year after the date upon which the name, address and taxpayer identification number of the partner are furnished to the Service pursuant to Treas. Reg. § 301.6223(c)-1. I.R.C. § 6229(e); Treas. Reg. § 301.6229(e)-1.



(F) Settlement



1. May the Service settle disputes regarding partnership items with partners?

Yes. Section 6224(c)(1) allows a partner to enter into a settlement agreement determining with finality the correct treatment of partnership items for a partnership taxable year. Section 6224(c)(2) provides other partners the right to request settlement terms for the partnership taxable year that are consistent with the previously executed settlement agreement.

The partnership items of a partner for a partnership taxable year become nonpartnership items as of the date the partner and the Service, or the Department of Justice, enter into a settlement agreement with respect to partnership items. I.R.C. § 6231(b)(1)(C). Settlement agreements that convert partnership items of a partner for a partnership taxable year into nonpartnership items include: Form 870-P, Settlement Agreement for Partnership Adjustments ; Form 870-PT, Settlement Agreement for Partnership Items and Partnership Level Determinations as to Penalties, Additions to Tax and Additional Amounts ; 6 Form 870-L, Settlement Agreement for Partnership Adjustments and Affected Items ; Form 870-LT, Settlement Agreement for Partnership Items and Partnership Level Determinations as to Penalties, Additions to Tax and Additional Amounts, and Agreement for Affected Items ; Form 906, Closing Agreement on Final Determination Covering Specific Matters ; 7 and correspondence between a partner and the Department of Justice that includes an offer and acceptance of a settlement agreement resolving all disputed partnership items. Neither the entry of a court decision, nor a stipulation of settled issues, converts the partnership items of a partner for a partnership taxable year into nonpartnership items. I.R.C. § 6231(b).

If the settlement agreement does not leave any partnership items in dispute, then the period for assessing the agreed items shall not expire before one year after the date of the conversion of the partnership items into nonpartnership items under section 6231(b)(1)(C). I.R.C. § 6229(f). A partner may consent to extend the assessment period for tax attributable to the converted items or items affected thereby; however, neither the TMP, nor any person authorized by the partnership in writing to enter into an extension agreement, may consent, with respect to all partners, to extend the section 6229(f) minimum assessment period. See I.R.C. § 6229(b); IRM 4.31.2.6.6(1), Items Becoming Nonpartnership Items. Furthermore, a partner for whom a settlement agreement has converted that partner's partnership items into nonpartnership items will no longer be a party to a section 6226 action regarding those partnership items and will no longer be bound by any court decision therein. I.R.C. § 6226(d)(1)(A); Tax Court Rule 247(a).



2. If a partner enters into a settlement agreement with the Department of Justice, must that partner settle separately with the Service?

The United States Attorney General has authority to settle cases referred to the Department of Justice. I.R.C. § 7122(a). Thus, if a partner enters into a settlement agreement with the Department of Justice, a separate settlement with the Service is not necessary to the extent that it is limited to the years and matters that were referred to DOJ. In contrast, if the settlement covers other years or matters that were not referred to DOJ, then a separate settlement with the Service is required because DOJ does not have authority to settle those years or matters. As a practical matter, however, even when DOJ has settlement authority, DOJ normally coordinates settlements with the Office of Chief Counsel.



3. How does a settlement agreement with a pass-thru partner affect the indirect partners?

A settlement agreement entered into by a pass-thru partner binds an indirect partner regarding the indirect partner's interest in the partnership held through the pass-thru partner, unless the indirect partner has been identified as provided in section 6223(c)(3). I.R.C. § 6224(c)(1); Treas. Reg. § 301.6224(c)-2(a). No additional language is necessary to bind the indirect partner. Id. The agreement binds the indirect partner regarding only partnership-level determinations; the indirect partner has not waived any other restriction on assessment or partner-level defenses. I.R.C. § 6224(c)(1). See IRM 8.19.3.9.2(5) and (6), Who May Bind ; IRM 8.19.5.11(3), Case Closings --Appeals Processing Services .

Treas. Reg. § 301.6224(c)-2(b) identifies who may sign a settlement agreement on behalf of the pass-thru partner. If the entity is a limited liability company, then a manager of the LLC, under State law, must sign, regardless of whether the LLC is subject to the TEFRA partnership procedures.



4. Does the TMP have authority to bind all partners to a settlement agreement?

If the partnership has more than one hundred partners, and if the TMP enters into a settlement agreement expressly binding other partners, then that agreement binds any partner that: has less than a one percent interest in the profits of the partnership; is not part of a section 6223(b)(2) notice group; and has not filed with the Service a section 6224(c)(3)(B) statement that the TMP lacks such authority. 8 I.R.C. § 6224(c)(3). The agreement binds the nonnotice partner regarding only partnership-level determinations; the nonnotice partner has not waived any other restriction on assessment or partner-level defenses. I.R.C. §§ 6224(c)(1) and (3). See Treas. Reg. § 301.6224(c)-1(a); IRM 4.31.2.2.8(4), Securing Agreements from the TMP and the Partners .



5. If a partner is a member of a consolidated group, then who signs the settlement agreement?

If a partner is a member of a consolidated group, the identity of the persons who sign a settlement agreement depends on, at a minimum, the following variables: whether the partner is a parent or subsidiary corporation, whether the settlement agreement involves tax years beginning on or after June 28, 2002, and whether the partner is the TMP of the TEFRA partnership. See Treas. Reg. § 1.1502-77A(a) (for tax years beginning before June 28, 2002); Treas. Reg. §§ 1.1502- 7(a)(2)(iv), (a)(3)(v) and (a)(6)(iii) (for tax years beginning on or after June 28, 2002).

For identification of who must sign the settlement agreement for each combination of variables, see IRM 8.19.3.8.6(2)-(7), Who Must Sign Agreements .



6. Must the Service give the TMP notice of each settlement agreement?

Under Tax Court Rule 248(c), the Service must notify the TMP of all partner settlements occurring after the case has become docketed. The Service must serve on the TMP a statement identifying: the parties to the settlement; the date of the agreement; the year(s) to which the agreement relates; and the terms of the agreement as to each partnership item and the allocation of the partnership items among the partners. Within seven days of receiving that statement, the TMP must serve a copy of the statement upon all parties to the action. Tax Court Rule 248(c). The Service must also promptly file with the Tax Court a notice of settlement or consistent agreement with a participating party. Id. This affords the Tax Court and participating partners notice of which partners remain as participating partners under section 6226(d)(1)(A) and Tax Court Rule 247. The TMP forwards the settlement terms to the other partners allowing them to exercise their section 6224(c)(2) right to a consistent agreement. Tax Court Rule 248(c); Court of Federal Claims Appendix F, Rule 7; Monti v. Commissioner , 223 F.3d 76, 79-85 (2nd Cir. 2000). See Treas. Reg. § 301.6223(g)-1(b)(1)(iv). Section 6103(h)(4) authorizes the disclosure of information regarding settlements to the TMP because the settling partner was a party to the administrative or court proceeding and the remaining partners have a right to know of the settlement because of their right to a consistent agreement under section 6224(c)(2).



7. If a TMP is willing to settle adjustments to partnership items on behalf of the partnership, how does the Service close the section 6226 action?

Tax Court Rule 248(a) provides that a stipulation consenting to the entry of decision, executed by the TMP and filed with the Tax Court, binds all parties. See also Court of Federal Claims Appendix F, Rule 7. The signature of the TMP constitutes a certification by the TMP that no party objects to entry of decision. 9 Id. See CCDM Exhibit 35.11.1-188, TEFRA: Rule 248(a) Decision per Settlement --Tabular Format-TEFRA Partnership . As discussed above, all partners for the subject taxable year are parties except those who have already entered into settlement agreements or whose partnership items have otherwise converted, under section 6231(b)(1), into nonpartnership items. I.R.C. §§ 6226(c) and (d)(1)(A); Tax Court Rule 247. See IRM 8.19.3.14.3, Settlement with Partners of Docketed TEFRA Entities ; CCDM 35.8.6.1.1(1), Rule 248(a) --Decision Documents .



8. If the Service enters into settlement agreements with all participating partners, then how does the Service close the section 6226 action?

Tax Court Rule 248(b) provides that if all participating partners ( see Tax Court Rule 247(b)) have settled or do not object to entry of decision, then, after the expiration of the time within which to file a notice of election to intervene or to participate, the Service shall submit to the court a proposed decision document and motion for entry of decision. See also Court of Federal Claims Appendix F, Rule 7. Unlike a Tax Court Rule 248(a) decision, the TMP does not certify that no party objects when the Tax Court Rule 248(b) procedures are utilized.

The proposed decision must be in the form prescribed by Tax Court Rule 155 ( i.e. , the proposed decision should not contain any stipulation or signature line for the parties, etc.). See CCDM 35.8.6.1.2(1), Rule 248(b) --Decision Documents . In addition, the certificate of service should reflect service on both the TMP and all participating partners. Tax Court Rule 246.

Within three days from the date on which the Service files the motion for entry of decision, the Service must serve on the TMP a certificate showing the date on which the Service's motion was filed with the Tax Court. Tax Court Rule 248(b). That certificate is in addition to, and distinct from, the Tax Court Rule 246 certificate of service. Tax Court Rule 246. The Tax Court Rule 248(b) certificate may take any form ( e.g. , a letter captioned "Certificate of Date of Filing") and is not filed with the Tax Court.

Within three days after receiving the Tax Court Rule 248(b) certificate, the TMP must serve upon all nonparticipating partners the Tax Court Rule 248(b) certificate, a copy of the motion, a copy of the proposed decision, and a copy of Tax Court Rule 248. Tax Court Rule 248(b). Any nonparticipating partner objecting to the Service's motion must file a motion for leave to participate. If, within sixty days from the date on which the Service filed its motion, no nonparticipating partner files a motion to participate, then the Tax Court may enter the proposed decision.

Please direct questions regarding this notice to Procedure and Administration Branch 6 at (202) 622-7950, or Branch 7 at (202) 622-4570. All cases with an overstatement of basis as an omission from gross income for purposes of the six-year period of limitations must be coordinated with the Office of the Associate Chief Counsel (Procedure and Administration).


/s/



Deborah A. Butler



Associate Chief Counsel



(Procedure and Administration)


1 Section 6231(a)(9) defines "pass-thru partner" to include trusts. Section 408(a) provides, for purposes of section 408, that the term "individual retirement account" (IRA) means a trust and that the bank is the trustee. Therefore, if an IRA is a partner in a partnership, the small partnership exception does not apply and the partnership will be subject to the TEFRA partnership procedures.

2 No court has ruled on the application of the TEFRA partnership procedures to a partnership return providing there is only one partner that has elected out of the small partnership exception. Thus, the Service should follow both TEFRA and non-TEFRA partnership procedures, moving to dismiss any partnership-level litigation on the ground that the TEFRA partnership procedures do not apply because the contents of the return demonstrate that it is not a "partnership return" under section 6233.

3 The total time period in which a partner may petition the FPAA may be more than one hundred fifty days due to weekends and holidays. See I.R.C. § 7503 (time for performance of acts where last day falls on Saturday, Sunday or legal holiday).

4 The determination that a partnership was not a partnership for a taxable year is a partnership-level determination that must be included in the "Remarks" section of the FPAA incorporating by reference the attached "Explanation of Adjustments" . Petaluma FX Partners, LLC v. Commissioner , 131 T.C. No. 9, 2008 WL 4682543, *6 (2008). See Treas. Reg. § 301.6233-1 ( "Any final partnership administrative adjustment or judicial determination resulting from a proceeding under subchapter C with respect to such taxable year may include a determination that the entity is not a partnership for such taxable year as well as determinations with respect to all items of the entity that would be partnership items, as defined in I.R.C. § 6231(a)(3) and the regulations thereunder, if such entity had been a partnership in such taxable Year ... ." ).

5 Section 6226 and Tax Court Rules 240 through 251 contemplate only a single petitioner.

6 The Form 870-PT does not resolve partner-level defenses to penalties determined at the partnership level. Thus, the taxpayer may file a refund claim to raise partner-level defenses to those penalties under section 6230(c). See Treas. Reg. § 301.6221-1(d).

7 Delegation Order 4-19 identifies who, from the Service, may sign these forms.

8 The signature must be that of the tax matters partner rather than that of the tax matters partner's counsel. I.R.C. § 6224(c)(3). See IRM 4.31.2.2.5(1)(a), Power of Attorney Appointed by the Tax Matters Partner .

9 The signature must be that of the tax matters partner rather than that of the tax matters partner's counsel. See Tax Court Rule 248(a); and IRM 4.31.2.2.5(1)(b), Power of Attorney Appointed by the Tax Matters Partner . Typically, both sign.


NON: ADC01 2009ARD168-6 http://tax.cchgroup.com/network&JA=LK&fNoSplash=Y&&LKQ=GUID%3A86c66c16-ae2b-323e-825f-8ffe9c525f3a&KT=L&fNoLFN=TRUE& ADC01 #4846 [ADC01 ]

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Wednesday, September 9, 2009

save this case

Andrew I. Walzer v. Commissioner.

Dkt. No. 30073-07 , TC Memo. 2009-200, September 8, 2009.





Can you believe it? The IRS did not try to assess the civil fraul penalty in the Walzer case. A day trader was liable for additions to tax under Code Sec. 6651(a)(1) because he did not have reasonable cause for his failure to file income tax returns for the tax years in which he received income. The taxpayer's claim that he did not know that he had to file returns was incredible since his father who was a retired accountant advised him to hire an accountant to help him prepare his returns. Moreover, the taxpayer who has an MBA is not an unsophisticated taxpayer. Additions to tax for failure to pay estimated tax under Code Sec. 6654(b)(1) were sustained since the taxpayer had tax liabilities but did not make any estimated tax payments.

You should save this case to show to the IRS anytime they want to assess a civil fraud penalty for non-filing or even understatement of income issues.


MEMORANDUM FINDINGS OF FACT AND OPINION



VASQUEZ, Judge: Respondent determined deficiencies in Federal income taxes and additions to tax for petitioner's 2001 and 2002 tax years as follows:





Additions to Tax

Sec. 6651(a)(2)
Year Deficiency Sec. 6651(a)(1) 1 Sec. 6654

2001 $1,263,403 $284,265.68 -- $50,490.24

2002 1,326,288 298,414.80 -- 44,320.74

1 The sec. 6651(a)(2) addition to tax is 0.5 percent of the
amount of income tax required to be shown on the return
commencing on the due date of the return and accruing for each
month or fraction thereof during the failure to pay, not
exceeding 25 percent in the aggregate.





After concessions by both parties, the issues for decision are: (1) Whether petitioner is liable for the additions to tax pursuant to section 6651(a)(1) 1 for 2001 and 2002; and (2) whether petitioner is liable for the additions to tax pursuant to section 6654 for 2001 and 2002.





FINDINGS OF FACT



Some of the facts have been stipulated and are so found. The stipulation of facts and the attached exhibits are incorporated herein by this reference. At the time he filed the petition, petitioner resided in New York.



During 1996 petitioner began actively trading securities. By 2001 and 2002 petitioner was engaging in day trading, conducting hundreds of trades. During the years in issue petitioner ran a marking supplies business called Glo-Mark. 2 Glo-Mark was a longtime family business that had recently struggled but was still profitable. In May 2001 Glo-Mark was evicted from its factory. After the eviction petitioner moved the Glo-Mark equipment to a house he owned. Despite advice from petitioner's father, who was a retired accountant, to seek an accountant for help with preparing petitioner's tax returns, petitioner did not hire anyone. Petitioner has an MBA degree from New York University.



Petitioner failed to file Federal income tax returns for 2001 and 2002. Additionally, petitioner did not pay any Federal income tax for 2001 or 2002. On November 13, 2006, the Internal Revenue Service prepared substitute returns for petitioner for tax years 2001 and 2002. Petitioner also failed to file a Federal income tax return for 2000.



During 2001 petitioner received gross proceeds from the sale of securities of $3,279,144. The proceeds resulted in a net short-term capital gain for petitioner of $137,451.36, and a net long-term capital loss of $97,128.26. The parties agree that during the years in issue petitioner was not in the trade or business of selling securities and was not entitled to deduct his expenses from the sale of securities on a Schedule C, Profit or Loss From Business. Petitioner also received $15,869 of dividend income, $220 of interest income, and $62,814.52 of gross proceeds from the sale of marking supplies from his family's business.



During 2002 petitioner received dividend income of $18,578, interest income of $54, and gross proceeds from the sale of securities of $3,483,750. Petitioner had a net short-term capital loss from the sale of securities of $194,374.74 and a net long-term capital loss of $81,606.40.





OPINION



Generally, the Commissioner's determinations set forth in the notice of deficiency are presumed correct, and the taxpayer bears the burden of showing the determinations are in error. Rule 142(a); Welch v. Helvering, 290 U.S. 111, 115 (1933). Section 7491(a), however, shifts the burden of proof to the Commissioner with respect to a factual issue affecting the tax liability of a taxpayer who meets certain conditions.



Petitioner has neither claimed nor shown that he satisfiedthe requirements of section 7491(a) to shift the burden of proof to respondent with regard to any factual issue affecting the deficiencies in his taxes. Accordingly, petitioner bears the burden of proof. See Rule 142(a).



Section 7491(c) provides that the Commissioner will bear the burden of production with respect to the liability of any individual for additions to tax. "The Commissioner's burden of production under section 7491(c) is to produce evidence that it is appropriate to impose the relevant penalty, addition to tax, or additional amount". Swain v. Commissioner, 118 T.C. 358, 363 (2002); see also Higbee v. Commissioner, 116 T.C. 438, 446 (2001). The Commissioner, however, does not have the obligation to introduce evidence regarding reasonable cause or substantial authority. Instead, the taxpayer bears the burden of proof with regard to these issues. Higbee v. Commissioner, supra at 446-447.





A. Section 6651(a)(1) Addition to Tax



Section 6651(a)(1) imposes an addition to tax for failure to file a return on the date prescribed (determined with regard to any extension of time for filing), unless the taxpayer can establish that such failure is due to reasonable cause and not due to willful neglect. See United States v. Boyle, 469 U.S. 241, 245 (1985). A Federal income tax return made on the basis of a calendar year must be filed on or before April 15 following the close of the calendar year, unless the due date is extended. Sec. 6072(a). The parties have stipulated that petitioner did not file his returns by April 15, 2002, for tax year 2001, and April 15, 2003, for tax year 2002, and that petitioner did not request an extension to file for either year. On November 13, 2006, respondent prepared substitute returns for petitioner for both 2001 and 2002. Accordingly, respondent has met his burden of production on this issue.



Petitioner claimed his failure to file timely for 2001 and 2002 was due to reasonable cause and not willful neglect because he did not know that he had to file returns. During the years in issue petitioner traded securities, trading sometimes two or three times a day. 3 Petitioner testified that in 2001 he had trading gains of approximately $40,000. In addition, petitioner ran Glo-Mark, a longtime family business that, despite being evicted from its factory, still earned a profit. Petitioner testified that he was overwhelmed with the impending eviction and with finding a new place to locate the company's equipment. Petitioner sought advice from his father, a retired accountant. Petitioner's father told petitioner to hire an accountant to aid him in preparing his tax return. Petitioner did not heed his father's advice and made no effort to prepare his tax return for either year in issue. In addition, petitioner has an MBA degree from New York University and is not an unsophisticated taxpayer. Petitioner argues he assumed that he did not have to file tax returns, despite having profits from both Glo-Mark and his personal trading activities.



Petitioner's failure to file was not due to reasonable cause; it was due to willful neglect. Accordingly, we sustain respondent's determination that petitioner is liable for the additions to tax pursuant to section 6651(a)(1) for 2001 and 2002.





B. Section 6654(a) Addition to Tax



Section 6654(a) imposes an addition to tax "in the case of any underpayment of estimated tax by an individual". The amount of the underpayment is the excess of the "required installment" over the amount (if any) of the installment paid on or before the due date of the installment. Sec. 6654(b)(1). The amount of the required installment is 25 percent of the required annual payment. Sec. 6654(d)(1)(A). The required payment is equal to the lesser of: (1) 90 percent of the tax shown on the return for that year (or if no return is filed, 90 percent of the tax for that year), or (2) if the individual filed a return for the preceding year, 100 percent of the tax shown on that return. See Wheeler v. Commissioner, 127 T.C. 200, 211-212 (2006), affd. 521 F.3d 1289 (10th Cir. 2008). Since petitioner filed no return for 2000 or 2001, the "required annual payment" for each year is 90 percent of the tax for each year in issue. See sec. 6654(d)(1)(B). Petitioner has stipulated that he did not pay any tax in 2001 or 2002, much less make any estimated tax payments. Accordingly, respondent has met his burden of production.



Petitioner offered no credible evidence related to this issue. No section 6654(e) exception applies. Accordingly, we sustain respondent's determination that petitioner is liable for the addition to tax pursuant to section 6654(a) for 2001 and 2002.



In reaching all of our holdings herein, we have considered all arguments made by the parties, and, to the extent not mentioned above, we conclude they are irrelevant or without merit.



To reflect the foregoing,



Decision will be entered under Rule 155.


1 Unless otherwise indicated, all section references are to the Internal Revenue Code, and all Rule references are to the Tax Court Rules of Practice and Procedure.

2 Glo-Mark is a company that uses a machine to make a mark on fabric that glows under black light lamps to mark where buttons and button holes are to go.

3 As previously mentioned, petitioner concedes that he was not in the trade or business of securities trading.

Labels:

Tuesday, September 8, 2009

New Rev. Proc on cancellation of indebtedness income

The IRS has issued guidance setting forth the exclusive procedures for making a Code Sec. 108(i) election to defer recognizing discharge of indebtedness income (COD income). The guidance also requires taxpayers making the election to provide additional information on returns beginning with the tax year following the tax year for which the taxpayer makes the election and describes the time and manner of providing this additional information. The IRS intends to issue additional guidance under Code Sec. 108(i) that may include regulations addressing matters in this guidance and taxpayers should be aware that these regulations may be retroactive. The guidance is effective for reacquisitions of applicable debt instruments in tax years ending after December 31, 2008. Under a transition rule, the IRS will treat a Code Sec. 108(i) election as effective if a taxpayer files an election with the taxpayer's federal income tax return filed on or before September 16, 2009, using any reasonable procedure to make the election. However, an election that does not comply with the new requirements will not be effective unless the taxpayer on or before November 16, 2009, files an amended return for the tax year of the election and complies with such requirements. A taxpayer that files an election on or before September 16, 2009, may modify that election by filing an amended return on or before November 16, 2009.


Rev. Proc. 2009-37 , I.R.B. 2009-36, August 17, 2009.


SECTION 1. PURPOSE

.01 This revenue procedure provides the exclusive procedures for taxpayers to make an election to defer recognizing discharge of indebtedness income ("COD income") under § 108(i) of the Internal Revenue Code.

.02 This revenue procedure also requires taxpayers making the § 108(i) election to provide additional information on returns beginning with the taxable year following the taxable year for which the taxpayer makes the election. This revenue procedure describes the time and manner of providing this additional information.

.03 The Internal Revenue Service and Treasury Department intend to issue additional guidance under § 108(i) that may include regulations addressing matters in this revenue procedure. Taxpayers should be aware that these regulations may be retroactive. See § 7805(b)(2). This revenue procedure may be modified to provide procedures consistent with additional guidance.



SECTION 2. BACKGROUND

.01 Section 108(i), Generally. Section 108(i) was added to the Code by § 1231 of the American Recovery and Reinvestment Tax Act of 2009, Pub. L. No. 111-5, 123 Stat. 338. In general, § 108(i) provides that, at the election of a taxpayer, COD income realized in connection with a reacquisition after December 31, 2008, and before January 1, 2011, of an applicable debt instrument is includible in gross income ratably over a 5-taxable-year inclusion period, beginning with the taxpayer's fourth or fifth taxable year following the taxable year of the reacquisition. Generally, if a taxpayer makes a § 108(i) election and reacquires (or is treated as reacquiring) the applicable debt instrument generating the COD income for a new debt instrument with original issue discount ("OID"), then interest deductions for this OID also are deferred, as provided in § 108(i)(2). The OID deferral rule, however, does not apply if the amount of OID is less than a de minimis amount, as determined under § 1273(a)(3) and § 1.1273-1(d) of the Income Tax Regulations. The OID deferral rule in § 108(i)(2) applies at the entity level for a pass-through entity. For example, a partnership (and therefore its partners) may not deduct currently the OID described in § 108(i)(2)(A)(i). A taxpayer must take into account any item of income or deduction deferred under § 108(i), and not previously taken into account, in the taxable year in which certain events occur (such as the liquidation of the taxpayer and upon other events specified in administrative guidance). See § 108(i)(5)(D). The rule regarding acceleration of deferred COD income and OID deductions also applies in the case of certain dispositions by persons holding ownership interests in pass-through entities. Section 108(i)(5)(D)(ii). For purposes of § 108(i), regulated investment companies (as defined in § 851(a)) and real estate investment trusts (as defined in § 856(a)) are not pass-through entities .

.02 Applicable Debt Instrument. Section 108(i)(3)(A) defines the term "applicable debt instrument" to mean any debt instrument issued by a C corporation or by any other person in connection with the conduct of a trade or business by that person. The term "debt instrument" means any bond, debenture, note, certificate, or any other instrument or contractual arrangement constituting indebtedness within the meaning of § 1275(a)(1). Section 108(i)(3)(B). For purposes of § 108(i), in the case of an intercompany obligation (as defined in § 1.1502-13(g)(2)(ii)), an applicable debt instrument includes only an instrument for which COD income is realized upon the instrument's deemed satisfaction under § 1.1502-13(g)(5).

.03 Reacquisition. Section 108(i)(4)(A) defines the term "reacquisition" to mean, with respect to any applicable debt instrument, any acquisition of the debt instrument by the debtor that issued (or is otherwise the obligor under) the debt instrument, or a person related to the debtor under § 108(e)(4). The term "acquisition" includes an acquisition of the debt instrument for cash or other property, the exchange of the debt instrument for another debt instrument (including an exchange resulting from a modification of the debt instrument), the exchange of the debt instrument for corporate stock or a partnership interest, the contribution of the debt instrument to capital, and the complete forgiveness of the indebtedness by the holder of the debt instrument. See § 108(i)(4)(B). The term "acquisition" also includes an indirect acquisition within the meaning of § 1.108-2(c) if a direct acquisition of the debt instrument would qualify for an election under § 108(i). For example, if a corporation acquires debt of a partnership that the partnership issued in connection with its trade or business, and the partnership and corporation become related within six months of the corporation's acquisition of the debt, the indirect acquisition is an acquisition for which an election under § 108(i) may be made.

.04 General Requirements for the Section 108(i) Election. Section 108(i)(5)(B) provides, in general, that a taxpayer makes the § 108(i) election by including a statement that clearly identifies the applicable debt instrument with the return of tax imposed for the taxable year in which the reacquisition of the instrument occurs. (For purposes of this revenue procedure, a return of tax or income tax return includes an information return, and a taxpayer includes a person that files an information return.) The statement must include the amount of income to which § 108(i)(1) applies and other information the Service may prescribe. Once made, a § 108(i) election is irrevocable and, except as provided in section 7 of this revenue procedure, may not be modified.

.05 Section 108(i) Elections Made by Pass-through Entities. In the case of COD income realized by a pass-through entity from the reacquisition of an applicable debt instrument, the pass-through entity makes the § 108(i) election. Section 108(i)(5)(B)(iii).

.06 Additional Information on Subsequent Years' Returns. Section 108(i)(7) authorizes the Service to issue guidance necessary or appropriate for applying § 108(i), including requiring reporting the election and other information on returns of tax for subsequent taxable years.

.07 Exclusivity. Section 108(i)(5)(C) provides that if a taxpayer elects to apply § 108(i) to an applicable debt instrument, § 108(a)(1)(A), (B), (C), and (D) do not apply to COD income deferred under § 108(i).

.08 Allocation of Deferred COD Income on Partnership Indebtedness. Section 4.04(3) of this revenue procedure describes how a partnership may elect under § 108(i) to defer a portion of the COD income realized from the reacquisition of an applicable debt instrument. If a partnership elects to defer all or any portion of COD income realized from the reacquisition of an applicable debt instrument, all of the COD income with respect to that debt instrument, without regard to § 108(i), is allocated to the partners in the partnership immediately before the reacquisition in the manner in which the income would be included in the distributive shares of these partners under § 704 and the regulations thereunder, including § 1.704-1(b)(2)(iii). Each partner's share of this COD income is the partner's COD income amount ("COD income amount"). The partner's COD income amount that is deferred under § 108(i) is the partner's deferred amount ("deferred amount"). The partner's COD income amount that is not deferred and is included in the partner's distributive share of partnership income for the taxable year of the partnership in which the reacquisition occurs is the partner's included amount ("included amount").

.09 Partner's Deferred § 752 Amount. A decrease in a partner's share of a partnership liability resulting from the reacquisition of an applicable debt instrument that is not treated as a current distribution of money to the partner under § 752 by reason of § 108(i)(6) is the partner's deferred § 752 amount ("deferred § 752 amount"). A partner's deferred § 752 amount may not exceed the lesser of (i) the partner's deferred amount or (ii) gain that the partner would recognize in the year of reacquisition under § 731 as a result of the reacquisition absent § 108(i)(6). To determine the amount of gain the partner would recognize under clause (ii) of the preceding sentence, the amount of any deemed distribution of money under § 752(b) resulting from the decrease in the partner's share of a reacquired applicable debt instrument that is treated as an advance or draw of money under § 1.731-1(a)(1)(ii) is determined as if no COD income resulting from the reacquisition of the applicable debt instrument is deferred under § 108(i). See Rev. Rul. 92-97, 1992-2 C.B. 124, and Rev. Rul. 94-4, 1994-1 C.B. 195. A partner's deferred § 752 amount is treated as a distribution of money to the partner under § 752 at the same time, and to the extent remaining in the same amount, as the partner recognizes the COD income deferred under § 108(i).

.10 Allocation of Deferred COD Income on S Corporation Indebtedness. For purposes of § 108(i), an S corporation's COD income deferred under § 108(i) is shared pro rata only among those shareholders that are shareholders of the S corporation immediately before the reacquisition transaction.

.11 Deferred COD Income, Earnings and Profits, and Alternative Minimum Taxable Income.

(1) In general. The Service and Treasury Department intend to issue regulations regarding the computation of a corporation's earnings and profits with respect to COD income and OID deductions that are deferred under § 108(i). These regulations generally will provide that deferred COD income increases earnings and profits in the taxable year that it is realized and not in the taxable year or years that the deferred COD income is includible in gross income. OID deductions deferred under § 108(i) generally will decrease earnings and profits in the taxable year or years in which the deduction would be allowed without regard to § 108(i). COD income and OID deductions that are deferred increase or decrease adjusted current earnings under § 56(g)(4) in the taxable year or years that the income or deduction is includible or deductible in determining taxable income. See § 1.56(g)-1(c)(1).

(2) Exceptions for certain special status corporations. The Service and Treasury Department intend to issue regulations providing that in the case of regulated investment companies and real estate investment trusts, COD income deferred under § 108(i) generally increases earnings and profits in the taxable year or years in which the deferred COD income is includible in gross income and not in the year that the deferred COD income is realized. OID deductions deferred under § 108(i) generally decrease earnings and profits in the taxable year or years that the deferred OID deductions are deductible.

.12 Extension of Time to Make Election. Under § 301.9100-1 of the Procedure and Administration Regulations, the Service may grant an extension of time to make a regulatory election. An election is a regulatory election if the due date is prescribed by regulation or other published guidance of general applicability. Section 301.9100-2(a) provides an automatic 12-month extension from the due date for making certain regulatory elections.



SECTION 3. SCOPE

This revenue procedure applies to taxpayers that realize COD income from a reacquisition after December 31, 2008, and before January 1, 2011, of an applicable debt instrument, as provided in § 108(i).



SECTION 4. ELECTION PROCEDURES

.01 In General.

(1) A taxpayer within the scope of this revenue procedure makes the § 108(i) election by --

(a) Attaching a statement meeting the requirements of section 4.05 of this revenue procedure to the taxpayer's timely filed (including extensions) original federal income tax return for the taxable year in which the reacquisition of the applicable debt instrument occurs, and

(b) If applicable, satisfying the additional requirements of section 4.07, 4.08, 4.09, or 4.10 of this revenue procedure.

(2) The Service grants an automatic extension of 12 months from the due date prescribed in section 4.01(1)(a) of this revenue procedure for making the § 108(i) election. The rules that apply to an automatic extension under § 301.9100-2(a) apply to this automatic extension.

.02 Section 108(i) Elections Made by Members of Consolidated Groups. The common parent of a consolidated group makes the § 108(i) election on behalf of all members of the group. See § 1.1502-77(a).

.03 Aggregation Rule. A taxpayer within the scope of this revenue procedure may treat two or more applicable debt instruments that are part of the same issue and that are reacquired during the same taxable year as one applicable debt instrument for purposes of this revenue procedure. A pass-through entity may not treat two or more applicable debt instruments as one applicable debt instrument under this section 4.03 if the owners and their ownership interests in the pass-through entity immediately prior to the reacquisition of each applicable debt instrument are not identical.

.04 Partial Elections.

(1) A taxpayer within the scope of this revenue procedure may make an election for any portion of COD income realized from the reacquisition of any applicable debt instrument. Thus, for example, if a taxpayer realizes $100 of COD income from the reacquisition of an applicable debt instrument, the taxpayer may elect under § 108(i)(1) to defer only $40 of the $100 of COD income. The taxpayer may exclude from income the portion of COD income that the taxpayer does not elect to defer under § 108(i) ($60 in this example) under § 108(a)(1)(A), (B), (C), or (D), if applicable.

(2) A taxpayer is not required to make an election for the same portion of COD income arising from each applicable debt instrument that it reacquires, but may make an election for different portions of COD income arising from different applicable debt instruments (whether or not part of the same issue). Thus, for example, if a taxpayer realizes $100 of COD income from the reacquisition of an applicable debt instrument (Instrument A) and $100 of COD income from the reacquisition of a different applicable debt instrument (Instrument B), the taxpayer may elect to defer all or a portion of the COD income associated with Instrument A and none or a different portion of the COD income associated with Instrument B.

(3) A partnership that elects to defer less than all of the COD income realized from the reacquisition of an applicable debt instrument may determine, in any manner, the portion, if any, of a partner's COD income amount that is the partner's deferred amount and the portion, if any, of a partner's COD income amount that is the partner's included amount. Thus, for example, one partner's deferred amount may be zero while another partner's deferred amount may equal that partner's COD income amount (or any portion thereof). A partner may exclude from income the partner's included amount under § 108(a)(1)(A), (B), (C), or (D), if applicable. The provisions of this section 4.04(3) apply for purposes of § 108(i) only and are not intended as an interpretation of or a change to existing law under § 704.

.05 Contents of Election Statement. A statement meets the requirements of this section 4.05 if the statement --

(1) Label. States "Section 108(i) Election" across the top.

(2) Required information. Provides, for each applicable debt instrument the reacquisition of which generates COD income that the taxpayer is electing to defer under § 108(i) --

(a) The name and taxpayer identification numbers, if any, of the issuer or issuers of the applicable debt instrument;

(b) A general description of the applicable debt instrument (including the issue and maturity dates) and, in the case of any person other than a C corporation, a general description of the person's trade or business to which the applicable debt instrument is connected;

(c) A general description of the reacquisition transaction or transactions generating the COD income (including the date(s) of the transaction(s));

(d) The total amount of COD income for the applicable debt instrument that results from the reacquisition (in the case of a partnership, the aggregate of the partners' COD income amounts) and a general description of the manner in which this amount is calculated;

(e) The amount of COD income for the applicable debt instrument that the taxpayer is electing to defer under § 108(i);

(f) In the case of a partnership, a list of partners that have a deferred amount, their identifying information and each partner's deferred amount; and in the case of an S corporation, a list of shareholders with COD income deferred under § 108(i), their identifying information and each shareholder's share of the S corporation's deferred COD income; and

(g) In cases in which a new debt instrument is issued or deemed issued in exchange for the applicable debt instrument (including exchanges under § 108(e)(4), § 108(i)(2)(B), and § 1.1001-3), the issuer's name, the issuer's taxpayer identification number, if any, a general description of the new debt instrument and whether the new debt instrument has OID, and if the new debt instrument has OID, a schedule of the OID that the issuer expects to accrue each taxable year on the instrument and the amount of OID that the issuer expects to defer under § 108(i)(2) each taxable year.

.06 Supplemental information. The statement described in section 4.05 of this revenue procedure may specify for each applicable debt instrument an amount greater than the amount identified in section 4.05(2)(e) of this revenue procedure that the taxpayer elects to defer under § 108(i) in the event the Service subsequently concludes that the taxpayer understated the amount of COD income described in section 4.05(2)(d) of this revenue procedure. This additional amount of COD income the taxpayer elects to defer may be described as the entire additional COD income, or as a percentage of any additional COD income. If the taxpayer is a partnership, the partnership must specify each partner's share of the partnership's additional COD income that would be deferred (the partner's additional deferred amount), which the partnership may describe for each partner as the partner's entire share of the partnership's additional COD income or as a percentage of the partner's share of the partnership's additional COD income. If the taxpayer is an S corporation, the S corporation must specify each shareholder's share of the S corporation's additional COD income that would be deferred, which the S corporation may describe for each shareholder as the shareholder's entire share of the S corporation's additional COD income or as a percentage of the shareholder's share of the S corporation's additional COD income. In the case of partnerships and S corporations, the additional COD income and the portion of additional COD income that would be deferred are allocated or determined as provided in sections 2.08, 2.10 and, if applicable, 4.04(3) of this revenue procedure, respectively, as if the additional COD income was realized.

.07 Additional Requirements for Certain Partnerships Making a § 108(i) Election. The rules of this section 4.07 apply to partnerships other than partnerships described in section 4.10 of this revenue procedure.

(1) Information filing on Schedule K-1 (Form 1065 and Form 1065-B). For the taxable year in which the § 108(i) election is made, the partnership must report on the Schedule K-1 (Form 1065 or Form 1065-B), Partner's Share of Income, Deductions, Credits, etc., in the manner specified in the instructions to the forms, for each partner § 108(i) information on an aggregate basis for all applicable debt instruments for which a § 108(i) election is made. Partnerships reporting § 108(i) information on the 2008 Schedule K-1 (Form 1065 or Form 1065-B) must report for each partner on an aggregate basis for all applicable debt instruments for which a § 108(i) election is made:

(a) The partner's deferred amount that the partner must include in income in the current taxable year under § 108(i)(1) or § 108(i)(5)(D)(i) or (ii), in box 11 ("other income") using code F for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B);

(b) The partner's share of the partnership's OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(2)(A)(ii) or § 108(i)(5)(D)(i) or (ii), in box 13 ("other deductions") using code W for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B);

(c) The partner's deferred amount that has not been included in income in the current or prior taxable years, in box 20 ("other information") using code X for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B);

(d) The partner's share of the partnership's OID deduction deferred under § 108(i)(2)(A)(i) that has not been deducted in the current or prior taxable years, in box 20 ("other information") using code X for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B);

(e) The partner's deferred § 752 amount that is treated as a distribution of money to the partner under § 752 in the current taxable year, in box 20 ("other information") using code X for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B); and

(f) The partner's deferred § 752 amount remaining as of the end of the current taxable year, in box 20 ("other information") using code X for Schedule K-1 (Form 1065) or in box 9 ("other") using code U for Schedule K-1 (Form 1065-B).

(2) Election information statement provided to partners. The partnership must attach to the Schedule K-1 (Form 1065 or Form 1065-B) provided to each partner for the taxable year in which the § 108(i) election is made a statement satisfying the requirements of this section 4.07(2). The partnership should not attach these statements to the Schedules K-1 that are filed with the Service, but must retain these statements, and each partner must retain that partner's statement, in their respective books and records. A statement meets the requirements of this section 4.07(2) if the statement --

(a) Label. States "Section 108(i) Election Information Statement for Partners" across the top.

(b) Required information. Clearly identifies for each applicable debt instrument to which an election under § 108(i) applies --

(i) The partner's COD income amount, the partner's deferred amount, and the partner's included amount;

(ii) The partner's deferred amount that the partner must include in income in the current taxable year under § 108(i)(5)(D)(i) or (ii);

(iii) The partner's share of the partnership's OID deduction deferred under § 108(i)(2)(A)(i) in the current taxable year;

(iv) The partner's share of the partnership's OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(5)(D)(i) or (ii);

(v) The partner's share of each liability of the partnership described in section 4.05(2)(g) of this revenue procedure;

(vi) The partner's share of the decrease in the partnership liability that results from the reacquisition of the applicable debt instrument;

(vii) The partner's share of the decrease in the partnership liability that results from the reacquisition of the applicable debt instrument that is treated as a distribution of money to the partner under § 752 in the current taxable year;

(viii) The partner's deferred § 752 amount as described in section 2.09 of this revenue procedure;

(ix) The partner's additional deferred amount as described in section 4.06 of this revenue procedure; and

(x) The date of the reacquisition transaction generating the COD income.

(c) If a partner fails to provide the written statement required by section 4.07(3) of this revenue procedure, the partnership must indicate that the amounts described in section 4.07(2)(b)(vii) and (viii) of this revenue procedure cannot be calculated because the partner did not provide the information necessary to report these amounts.

(3) Partner reporting requirements. The partnership must make reasonable efforts prior to making a § 108(i) election to secure from each partner with a deferred amount for which it does not have the information necessary to compute the partner's basis in its partnership interest (and its deferred § 752 amount as described in section 2.09 of this revenue procedure) a written statement signed under penalties of perjury that includes this information. Each partner with a deferred amount must provide this written statement to the partnership within 30 days of the date of request by the partnership. A partner's failure to comply with this reporting requirement does not invalidate the partnership's election under § 108(i) for an applicable debt instrument only if the partnership makes reasonable efforts before making the § 108(i) election to obtain the written statement from the partner and otherwise complies with the requirements of section 4 of this revenue procedure. If a partner provides its written statement under this section 4.07(3) after the partnership has provided to the partner the Section 108(i) Election Information Statement for Partners, the partnership must provide to the partner a revised Section 108(i) Election Information Statement for Partners reporting the information required under section 4.07(2)(b)(vii) and (viii) of this revenue procedure and report the partner's deferred § 752 amount on the partner's Schedule K-1 (Form 1065 or Form 1065-B) in subsequent taxable years.

.08 Additional Requirements for an S Corporation Making a § 108(i) Election.

(1) Information filing on Schedule K-1 (Form 1120S). For the taxable year in which the § 108(i) election is made, the S corporation must report on the Schedule K-1 (Form 1120S), Shareholder's Share of Income, Deductions, Credits, etc., in the manner specified in the instructions to the forms, for each shareholder § 108(i) information on an aggregate basis for all applicable debt instruments for which a § 108(i) election is made. S corporations reporting § 108(i) information on the 2008 Schedule K-1 (Form 1120S) must report for each shareholder, on an aggregate basis for all applicable debt instruments for which a § 108(i) election is made, the shareholder's share of the Scorporation's:

(a) COD income deferred under § 108(i) that the shareholder must include in income in the current taxable year under § 108(i)(1) or § 108(i)(5)(D)(i) or (ii), in box 10 ("other income") using code E;

(b) OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(2)(A)(ii), or § 108(i)(5)(D)(i) or (ii), in box 12 ("other deductions") using code S;

(c) COD income deferred under § 108(i) that has not been included in income in the current or prior taxable years, in box 17 ("other information") using code T; and

(d) OID deduction deferred under § 108(i)(2)(A)(i) that has not been deducted in the current or prior taxable years, in box 17 ("other information") using code T.

(2) Election information statement provided to shareholders. The S corporation must attach to the Schedule K-1 (Form 1120S) provided to each shareholder for the taxable year in which the § 108(i) election is made, a statement satisfying the requirements of this section 4.08(2). The S corporation should not attach these statements to the Schedules K-1 that are filed with the Service, but must retain these statements, and each shareholder must retain that shareholder's statement, in their respective books and records. A statement meets the requirements of this section 4.08(2) if the statement --

(a) Label. States "Section 108(i) Election Information Statement for Shareholders" across the top.

(b) Required information. Clearly identifies for each applicable debt instrument to which an election under § 108(i) applies, the shareholder's share of the S corporation's --

(i) COD income that the S corporation elects to defer under § 108(i);

(ii) COD income deferred under § 108(i) that the shareholder must include in income in the current taxable year under § 108(i)(5)(D)(i) or (ii);

(iii) OID deduction deferred under § 108(i)(2)(A)(i) in the current taxable year;

(iv) OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(5)(D)(i) or (ii); and

(v) Additional COD income that would be deferred as described in section 4.06 of this revenue procedure.

.09 Section 108(i) Elections Made on Behalf of Certain Foreign Corporations. The controlling domestic shareholder(s) (or common parent of the controlling domestic shareholder(s), if applicable) of a controlled foreign corporation or a noncontrolled § 902 corporation not otherwise required to file a return of tax may make the § 108(i) election on behalf of the foreign corporation by satisfying the requirements of § 1.964-1(c)(3). Each controlling domestic shareholder must attach a statement identifying the foreign corporation and satisfying the requirements of section 4.05 of this revenue procedure and, if applicable, section 4.06 of this revenue procedure, to its federal income tax return for the taxable year ending within or with the taxable year of the foreign corporation for which the § 108(i) election is made.

.10 Section 108(i) Elections Made By Certain Foreign Partnerships. The rules of this section 4.10 apply to a foreign partnership making a § 108(i) election that is not otherwise required to file a federal partnership return ("nonfiling foreign partnership"). See § 1.6031(a)-1(b).

(1) A nonfiling foreign partnership making the election must attach a statement satisfying the requirements of section 4.05 of this revenue procedure and, if applicable, section 4.06 of this revenue procedure, to a partnership return satisfying the requirements of § 1.6031(a)-1(b)(5) it files with the Service. In addition, a nonfiling foreign partnership must include in the information required in section 4.05(2)(d) and (e) of this revenue procedure the aggregate amounts for all partners as well as the aggregate amounts for all U.S. persons (as defined in § 7701(a)(30)) and controlled foreign corporation(s) that are partners with deferred amounts in the nonfiling foreign partnership ("affected partners").

(2) The nonfiling foreign partnership must make the election, in accordance with § 1.6031(a)-1(b)(5), by the date provided in section 4.01(1)(a) of this revenue procedure, as if it had a filing obligation for the taxable year in which the reacquisition of the applicable debt instrument occurs.

(3) For each affected partner, the partnership must file with the Service a Schedule K-1 (Form 1065) and report on the Schedule K-1 (Form 1065) for the affected partner as provided in section 4.07(1) of this revenue procedure. Except for this § 108(i) information, the partnership need not complete Part III of the Schedule K-1 (Form 1065). The partnership must provide a copy of the respective Schedule K-1 (Form 1065) to each affected partner and must also attach to the Schedule K-1 (Form 1065) provided to each affected partner a statement satisfying the requirements of section 4.07(2) of this revenue procedure by the date provided in section 4.01(1)(a) of this revenue procedure. The partnership should not attach any statement described in section 4.07(2) of this revenue procedure to the Schedules K-1 that are filed with the Service. However, the partnership must retain the statements provided to the affected partners, and each affected partner must retain that partner's statement, in their respective books and records.

(4) The partnership and each affected partner must satisfy the requirements of section 4.07(3) of this revenue procedure.



.11 Protective § 108(i) Election.

(1) In general. A taxpayer may make a protective election under § 108(i) for an applicable debt instrument if the taxpayer concludes that a particular transaction does not result in the realization of COD income, reports the transaction on its federal income tax return in a manner consistent with the taxpayer's conclusion, and would be within the scope of this revenue procedure if the taxpayer's conclusion were incorrect. If the Service at any time determines the taxpayer's conclusion that the particular transaction does not result in the realization of COD income is incorrect, the taxpayer's protective election is treated as a valid, irrevocable election under § 108(i). Thus, if a taxpayer makes a protective election, the Service subsequently may require the taxpayer to report COD income deferred pursuant to the valid and irrevocable protective election even if the statute of limitations has expired for the year in which the COD income was realized and the protective election was made. A taxpayer makes a protective election by attaching a statement satisfying the requirements of this section 4.11(1) to the taxpayer's original federal income tax return within the period described in section 4.01(1)(a) of this revenue procedure. The taxpayer also must attach the election to its federal income tax return in each of the 8 or 9 taxable years, as applicable, following the taxable year of the election. A statement meets the requirements of this section 4.11(1) if the statement --

(a) States "Section 108(i) Protective Election" across the top;

(b) Provides the information required under section 4.05(2)(a), (b), and (c) of this revenue procedure;

(c) Provides that the amounts described in sections 4.05(2)(d) and (e) of this revenue procedure are zero; and

(d) Provides the information described in section 4.06 of this revenue procedure.

(2) Statements provided to shareholders and partners.

(a) For each applicable debt instrument, a partnership or S corporation that makes a protective election must attach to the Schedule K-1 (Form 1065, Form 1065-B, or Form 1120S) it provides each of its partners or shareholders, as the case may be, for the taxable year in which the protective election is made a statement containing the information described in section 4.11(1)(b) of this revenue procedure (an S corporation need not provide its shareholders with the date(s) of the transaction(s) that would constitute the reacquisition transaction or transactions) and the partner's or shareholder's share of the additional COD income that would be deferred as described in section 4.11(1)(d) of this revenue procedure.

(b) The partnership or S corporation should not attach the statements described in this section 4.11(2) to the Schedules K-1 that are filed with the Service but must retain these statements, and each partner and shareholder must retain that partner's or shareholder's statement, in their respective books and records.



.12 Election-Year Reporting by Tiered Pass-Through Entities.

(1) A partnership required to file a U.S. partnership return other than under § 1.6031(a)-1(b)(5), or an S corporation, that receives a Schedule K-1 (Form 1065 or Form 1065-B) reflecting its share of any items listed in section 4.07(1) of this revenue procedure, must report on the Schedules K-1 (Form 1065, Form 1065-B, or Form 1120S) to its partners or shareholders, as the case may be, each partner's or shareholder's share of those items (an S corporation only reports to its shareholders the items described in section 4.07(1)(a) through (d) of this revenue procedure).

(2) If a partnership described in section 4.12(1) of this revenue procedure receives a statement described in sections 4.07(2) or 4.10(3) of this revenue procedure or this section 4.12(2), it must provide each of its partners a statement containing the partner's share of each of the items listed on each statement received by the partnership, including the information described in section 4.07(2)(b)(x) of this revenue procedure. If an S corporation receives a statement described in sections 4.07(2) or 4.10(3) of this revenue procedure or this section 4.12(2), it must provide each of its shareholders a statement containing the shareholder's share of each of the items listed on each statement received by the S corporation that are described in section 4.07(2)(b)(i), (ii), (iii), (iv) and (ix) of this revenue procedure. The partnership or S corporation must attach this statement or statements to the Schedule K-1 (Form 1065, Form 1065-B, or Form 1120S) that it provides to each of its partners or shareholders, as the case may be, for the taxable year of the partnership or S corporation. The partnership or S corporation should not attach these statements to the Schedules K-1 that are filed with the Service but must retain these statements, and each partner and shareholder must retain that partner's or shareholder's statement, in their respective books and records.

(3) A partnership that receives a statement described in this section 4 identifying its COD income amount with respect to an applicable debt instrument must allocate its COD income amount, without regard to § 108(i), to the partners in the partnership immediately before the reacquisition transaction in the manner in which the income would be included in the distributive shares of these partners under § 704 and the regulations thereunder, including § 1.704-1(b)(2)(iii). The partnership may determine in any manner the portion, if any, of a partner's COD income amount that is the partner's deferred amount and the portion, if any, of a partner's COD income amount that is the partner's included amount. No partner's deferred amount with respect to an applicable debt instrument may exceed its COD income amount with respect to the applicable debt instrument, and the aggregate of deferred amounts of its partners with respect to an applicable debt instrument must equal the partnership's deferred amount with respect to the applicable debt instrument. The partnership allocates amounts described in section 4.06 of this revenue procedure under this section 4.12(3) as if the additional COD income was realized.

(4) The deferred § 752 amount for partners in a partnership making a § 108(i) election is calculated only for the partnership's direct partners. No further adjustment to the deferred § 752 amount is made to reflect the basis or other attributes of partners that are indirect partners in the partnership.

(5) If an S corporation receives a statement described in this section 4 identifying its COD income amount, deferred amount, included amount or additional COD income that would be deferred with respect to an applicable debt instrument, these amounts are shared pro rata only among those shareholders that are shareholders in the S corporation immediately before the reacquisition transaction.

(6) This paragraph 4.12(6) provides the rules for Category 1 and Category 2 filers of Form 8865, Return of U.S. Persons With Respect to Certain Foreign Partnerships, as defined in the instructions for Form 8865, if the foreign partnership, for which the Category 1 or Category 2 filer has a filing requirement, receives a Schedule K-1 (Form 1065 or Form 1065-B) reflecting the partnership's share of any items listed in section 4.07(1) of this revenue procedure, or a statement described in sections 4.07(2) or 4.10(3) of this revenue procedure (because the foreign partnership owns an interest directly or indirectly in another partnership in which an election was made under § 108(i) with respect to that foreign partnership's distributive share from the other entity).

(a) For each partner for whom the Category 1 filer is required to complete a Schedule K-1 (Form 8865) (which includes the Category 1 filer itself), the Category 1 filer must:

(i) Include the information described in section 4.07(1) of this revenue procedure in the Schedule K-1 (Form 8865) that the Category 1 filer files with the Service and completes for the partner;

(ii) Produce a statement containing the partner's share of the items listed on each statement received by the partnership; and

(iii) Attach the statement described in section 4.12(6)(a)(ii) of this revenue procedure to each Schedule K-1 (Form 8865) that it is required to provide to a partner of the foreign partnership.

(b) A Category 2 filer must include its share of the information described in section 4.07(1) on the Schedule K-1 (Form 8865) that it is required to complete. Category 2 filers also must complete a statement containing their share of the items listed on each statement received by the partnership.

(c) The Category 1 and Category 2 filers should not attach the statements described in sections 4.12(6)(a)(ii) and 4.12(6)(b) of this revenue procedure, respectively, to the Schedules K-1 that are filed with the Service. However, Category 1 filers must retain the statements they complete and each partner must retain its own statement, in their respective books and records.

(7) If as a result of § 108(i)(5)(D)(ii), a partner of a partnership described in section 4.12(1) of this revenue procedure or a shareholder of an S corporation described in section 4.12(1) of this revenue procedure must recognize items deferred under § 108(i), the partnership or S corporation must report these items on the Schedule K-1 (Form 1065, Form 1065-B, or Form 1120S) and statements provided to the partner or shareholder pursuant to section 4.12(1) and (2) of this revenue procedure. Similar rules apply to Category 1 and Category 2 filers (Form 8865) described in section 4.12(6) of this revenue procedure.

(8) The provisions of section 4.12(2), (3), (5) and (6) of this revenue procedure also apply to a statement received that is described in section 4.11(2) of this revenue procedure, except that the information that must be provided are those items described in section 4.11(1)(b) of this revenue procedure (an S corporation need not provide its shareholders with the date(s) of the transaction(s) that would constitute the reacquisition transaction or transactions) and the share of the partner or shareholder in the amounts described in section 4.11(1)(d) of this revenue procedure.



SECTION 5. REQUIRED INFORMATION STATEMENT

.01 Annual Information Statements. Pursuant to § 108(i)(7)(B), a taxpayer that makes an election under § 108(i) (except for a protective election under section 4.11(1) of this revenue procedure) must attach a statement meeting the requirements of section 5.02 of this revenue procedure to its federal income tax return for each taxable year beginning with the taxable year following the taxable year for which the taxpayer makes the election and ending with the first taxable year in which all items deferred under § 108(i) have been recognized.

.02 Contents of Statement. A statement meets the requirements of this section 5.02 if the statement --

(1) Label. States "Section 108(i) Information Statement" across the top;

(2) Required information. Clearly identifies for each applicable debt instrument to which an election under § 108(i) applies --

(a) COD income deferred under § 108(i) that is included in income in the current taxable year under § 108(i)(1);

(b) COD income deferred under § 108(i) that is included in income in the current taxable year under § 108(i)(5)(D), including a description and date of the acceleration event described in § 108(i)(5)(D);

(c) COD income deferred under § 108(i) that has not been included in income in the current or prior taxable years (in the case of a partnership, the aggregate of the partners' deferred amounts that have not been included in income in the current or prior taxable years, and in the case of an S corporation, the S corporation's COD income deferred under § 108(i) that has not been included in income in the current or prior taxable years);

(d) OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(2)(A)(ii);

(e) OID deduction deferred under § 108(i)(2)(A)(i) that is allowable as a deduction in the current taxable year under § 108(i)(5)(D); and

(f) OID deduction deferred under § 108(i)(2)(A)(i)