STEPHENS, Circuit Judge.
This case is before us on petition for review of a decision of the Tax Court of the United States and involves a claimed allowance of a depletion deduction under Section 23(m)
of the Internal Revenue Act of 1939 to petitioner for certain government coal lands which he strip-mined pursuant to a contract with the United States Army. Except where otherwise stated in this opinion, the term “petitioner” refers to petitioner Emil Usibelli.
On April 5, 1946, special permission was granted by the Secretary of the Interior to the United States Army to mine coal from specified government land in Alaska. Unless otherwise terminated, the permit would expire six months after the cessation of hostilities in World War II as determined by Presidential proclamation or concurrent Congressional resolution. Under the terms of this permit the actual mining could be done either by the Army or by private parties under contract with the Army.
On July 1,1946, the Army entered into a one-year contract with petitioner (Emil Usibelli) to strip-mine coal on the specified government lands at Suntrana, Alaska, for supplying coal to the Army at Ladd Field, Alaska. The coal was to consist of 40,000 tons of mine run and 30,000 tons of lump nut to be placed on railroad cars at the mine, graded and screened. If the contract remained in effect throughout its term, petitioner was to be paid a total amount of $362,500, computed at $4.75 per ton of mine run, and $5.75 per ton of lump nut.
A minimum of 5,600 tons was to be delivered each month but the government could reduce the specified quantities to be delivered in the event its requirements should change, and the contract could be terminated in whole or from time to time in part whenever the contracting officer should determine such action to be in the best interest of the government.
Petitioner bid on and obtained a similar contract for the fiscal year 1948 under which he was to be paid $577,000, computed at $5.22 per ton of mine run and $6.22 per ton for lump nut and stoker coal. Petitioner conducted mining operations under the contracts during the taxable years 1947 and 1948.
In 1947 he filed a separate return with the Collector of Internal Revenue for the District of Washington in which he claimed a depletion deduction from his gross income of $1,476.69.
In 1948 petitioners, Emil Usibelli, and his wife, Rose Usibelli, filed a joint return in which they claimed a depletion deduction of $5,648.24. The Commissioner denied both deductions on the ground that petitioner had no such interest in the coal in place which he was mining for the Army as woiild entitle
him to a deduction for its depletion. The Tax Court upheld the Commissioner, and the taxpayers petition this court for a review of that decision.
At the outset it is well to have in mind that there is no contention that the coal in place would, or might, be depleted below the amount of coal to be extracted even if the contract should be allowed to remain in force until the total contractual tonnage had been extracted.
Section 23(m) of the Internal Revenue Act of 1939
provides in part:
“Deductions from gross income. In computing net income there shall be allowed as deductions
* -x- -x- * *
“(m) Depletion. In the case of mines, oil and gas wells, other natural deposits, and timber, a reasonable allowance for depletion and for depreciation of improvements, according to the peculiar conditions in each case * *
The amount of the depletion allowance for coal mines is contained in Section 114,
viz:
“ * -x. * (A) In general. The allowance for depletion under section 23 (m) shall be, in the case of coal mines, 5 per centum * * * of the gross income from the property during the taxable year, excluding from such gross income an amount equal to any rents or royalties paid or incurred by the taxpayer in respect of the property. * * * ”
These sections constitute recognition by Congress that extractive industries, unlike the manufacturing industries, look to their profits from the sale of a portion of their capital assets with the result that each sale results in a corresponding depletion in the remaining capital assets. The depletion deduction allowed by these sections is
not
to be construed, as petitioner contends, as a reward to those persons who actually mine the coal for the risks inherent in extraction. In common with industry generally those engaged in extraction of minerals on a for-hire basis receive their tax benefit through depreciation and obsolescence allowances,
and not through an allowance for the depletion of the mineral deposit on which they happen to be working.
In order that persons investing in mineral deposits could fairly recover their investment, Congress originally provided that the cost of the asset (in the instant case, the coal in place) be recovered over the expected life of the mine, and where the mine had been acquired prior to 1913, allowed the value as of March 1, 1913, to be so recovered. During the first World War the need for increased exploitation of natural resources resulted in the allowance by the Revenue Act of 1918, 40 Stat. 1057, of the value of the deposit “at the date of the discovery”. Discovery depletion served the purpose of allowing the discoverer of a new mineral deposit to recover not only his actual costs but also the much larger appreciated value of the property at the time its profitability was established.
The practical difficulty inherent in the administration of each of these methods for depletion allowance is that of fairly determining the value of the mineral deposit when such determination rests upon factors extremely difficult of accurate ascertainment such as the size and quality of the deposit, the market conditions relative to the sale of the product, and the fair rate of return to be allowed on the capital investment. Since without extraction there is no depletion, the ideal solution to the problem was to devise a method whereby depletion would depend directly upon actual production. This was ultimately accomplished as in the present
Act
by determining the average percentage of the gross income from each mineral which was actually being allowed under the former methods, and allowing that average of the gross income from extraction as a depletion deduction from the gross income of entitled persons. In the case of coal, the applicable deduction under the statute here in force was set at 5%
of the gross income attributable to the extraction of the coal.
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STEPHENS, Circuit Judge.
This case is before us on petition for review of a decision of the Tax Court of the United States and involves a claimed allowance of a depletion deduction under Section 23(m)
of the Internal Revenue Act of 1939 to petitioner for certain government coal lands which he strip-mined pursuant to a contract with the United States Army. Except where otherwise stated in this opinion, the term “petitioner” refers to petitioner Emil Usibelli.
On April 5, 1946, special permission was granted by the Secretary of the Interior to the United States Army to mine coal from specified government land in Alaska. Unless otherwise terminated, the permit would expire six months after the cessation of hostilities in World War II as determined by Presidential proclamation or concurrent Congressional resolution. Under the terms of this permit the actual mining could be done either by the Army or by private parties under contract with the Army.
On July 1,1946, the Army entered into a one-year contract with petitioner (Emil Usibelli) to strip-mine coal on the specified government lands at Suntrana, Alaska, for supplying coal to the Army at Ladd Field, Alaska. The coal was to consist of 40,000 tons of mine run and 30,000 tons of lump nut to be placed on railroad cars at the mine, graded and screened. If the contract remained in effect throughout its term, petitioner was to be paid a total amount of $362,500, computed at $4.75 per ton of mine run, and $5.75 per ton of lump nut.
A minimum of 5,600 tons was to be delivered each month but the government could reduce the specified quantities to be delivered in the event its requirements should change, and the contract could be terminated in whole or from time to time in part whenever the contracting officer should determine such action to be in the best interest of the government.
Petitioner bid on and obtained a similar contract for the fiscal year 1948 under which he was to be paid $577,000, computed at $5.22 per ton of mine run and $6.22 per ton for lump nut and stoker coal. Petitioner conducted mining operations under the contracts during the taxable years 1947 and 1948.
In 1947 he filed a separate return with the Collector of Internal Revenue for the District of Washington in which he claimed a depletion deduction from his gross income of $1,476.69.
In 1948 petitioners, Emil Usibelli, and his wife, Rose Usibelli, filed a joint return in which they claimed a depletion deduction of $5,648.24. The Commissioner denied both deductions on the ground that petitioner had no such interest in the coal in place which he was mining for the Army as woiild entitle
him to a deduction for its depletion. The Tax Court upheld the Commissioner, and the taxpayers petition this court for a review of that decision.
At the outset it is well to have in mind that there is no contention that the coal in place would, or might, be depleted below the amount of coal to be extracted even if the contract should be allowed to remain in force until the total contractual tonnage had been extracted.
Section 23(m) of the Internal Revenue Act of 1939
provides in part:
“Deductions from gross income. In computing net income there shall be allowed as deductions
* -x- -x- * *
“(m) Depletion. In the case of mines, oil and gas wells, other natural deposits, and timber, a reasonable allowance for depletion and for depreciation of improvements, according to the peculiar conditions in each case * *
The amount of the depletion allowance for coal mines is contained in Section 114,
viz:
“ * -x. * (A) In general. The allowance for depletion under section 23 (m) shall be, in the case of coal mines, 5 per centum * * * of the gross income from the property during the taxable year, excluding from such gross income an amount equal to any rents or royalties paid or incurred by the taxpayer in respect of the property. * * * ”
These sections constitute recognition by Congress that extractive industries, unlike the manufacturing industries, look to their profits from the sale of a portion of their capital assets with the result that each sale results in a corresponding depletion in the remaining capital assets. The depletion deduction allowed by these sections is
not
to be construed, as petitioner contends, as a reward to those persons who actually mine the coal for the risks inherent in extraction. In common with industry generally those engaged in extraction of minerals on a for-hire basis receive their tax benefit through depreciation and obsolescence allowances,
and not through an allowance for the depletion of the mineral deposit on which they happen to be working.
In order that persons investing in mineral deposits could fairly recover their investment, Congress originally provided that the cost of the asset (in the instant case, the coal in place) be recovered over the expected life of the mine, and where the mine had been acquired prior to 1913, allowed the value as of March 1, 1913, to be so recovered. During the first World War the need for increased exploitation of natural resources resulted in the allowance by the Revenue Act of 1918, 40 Stat. 1057, of the value of the deposit “at the date of the discovery”. Discovery depletion served the purpose of allowing the discoverer of a new mineral deposit to recover not only his actual costs but also the much larger appreciated value of the property at the time its profitability was established.
The practical difficulty inherent in the administration of each of these methods for depletion allowance is that of fairly determining the value of the mineral deposit when such determination rests upon factors extremely difficult of accurate ascertainment such as the size and quality of the deposit, the market conditions relative to the sale of the product, and the fair rate of return to be allowed on the capital investment. Since without extraction there is no depletion, the ideal solution to the problem was to devise a method whereby depletion would depend directly upon actual production. This was ultimately accomplished as in the present
Act
by determining the average percentage of the gross income from each mineral which was actually being allowed under the former methods, and allowing that average of the gross income from extraction as a depletion deduction from the gross income of entitled persons. In the case of coal, the applicable deduction under the statute here in force was set at 5%
of the gross income attributable to the extraction of the coal. Although providing a more workable method of administration, the granting of an arbitrary deduction of a percentage of gross income in no way altered the basic theory that the deduction be allowed to the owner of wasting assets as compensation for that part of his assets which are used up in production.
This theory is fundamental in determining those entitled to the deduction, since basically a taxpayer must possess a sufficient economic interest in the mineral being produced in order to avail himself of the deduction. This principle was succinctly stated by the Supreme Court in Kirby Petroleum Co. v. Commissioner, 1946, 326 U.S. 599, 603, 66 S.Ct. 409, 411, 90 L.Ed. 343:
«* * * [0]nly a taxpayer with an economic interest in the asset, here the oil, is entitled to the depletion. Palmer v. Bender, 287 U.S. 551, 557, 53 S.Ct. 225, 226, 77 L.Ed. 489; Thomas v. Perkins, 301 U.S. 655, [659], 57 S.Ct. 911, 913, 81 L.Ed. 1324. By this is meant only that under his contract he must look to the oil in place as the source of the return of his capital investment. * * The test of the right to depletion is whether the taxpayer has a capital investment in the oil in place which is necessarily reduced as the oil is extracted. See Anderson v. Helvering, 310 U.S. 404, 407, 60 S. Ct. 952, 954, 84 L.Ed. 1277.”
Because of the high cost of exploiting and developing mineral deposits on a commercial basis, the practice in the extractive industry is for owners of mineral bearing lands to lease or grant mineral rights in their lands to professional exploiters who may operate the lease themselves or may sublease or grant mineral rights in their lands to professional exploiters who may operate the lease themselves or may sublease or assign it to others for actual production. The ultimate operator therefore is often connected with the owner only by a chain of predecessors in interest, each of whom may retain some interest in the mineral through over-riding royalties or participating interests.
On the other hand, the owner or one of his successors
in interest may conduct the operation himself by employing a contractor to carry on the actual extractive operations. Attempts by the courts to identify the interests of the parties to these varied relationships have given rise to the tenuous distinctions with which the tax aspect of this field is fraught. Mr. Justice Frankfurter voiced this in his dissenting opinion in Burton-Sutton Oil Co. v. Commissioner, supra [328 U.S. 25, 66 S.Ct. 868], viz:
“Nothing better illustrates the gossamer lines that have been drawn by this Court in tax cases than the distinction made in the Court’s opinion between Helvering v. Elbe Oil Land Co., 303 U.S. 372, 58 S.Ct. 621, 82 L.Ed. 904, and this case. To draw such distinctions, which hardly can be held in the mind longer than it takes to state them, does not achieve the attainable certainty that is such a desideratum in tax matters * *
Obviously then not every person engaged in the extraction of a mineral can claim a depletable interest. For instance, mining as defined in the statutes applicable herein
includes not merely the extraction of the coal from the ground but in addition its cleaning, breaking, sizing and loading for shipment which are processes normally performed by mine owners or operators in order to obtain the commercially marketable product. Subsequent amendments
additionally included so much of the transportation of the ore (whether or not by common carrier) from the point of extraction from the ground to the plants or mills in which the ordinary treatment processes are applied, as is not in excess of 50 miles, and even then if necessary transportation for a greater distance might be included.
Certainly, the individual miners cannot be said to possess a depletable interest in the mineral even though their jobs depend upon its continued availability. Nor can the railroad transporting the coal to the breaker, or the contractor operating the breaker, claim a sufficient economic interest to warrant a depletion deduction even though exhaustion of the mineral deposit would drastically curtail their revenue. Such persons may be said to derive an economic advantage from the continued extraction of the coal,
“But the phrase ‘economic interest’ is not to be taken as embracing a mere economic advantage derived from production, through a contractual relation to the owner, by one who has no capital investment in the mineral deposit.”
The question of whether any given taxpayer engaged in the extractive industries has, under the facts of his particular case, a depletable interest in the mineral in place, is difficult and depends for its answer upon the varied incidents of the contractual relation under which he works. In making this determination, various tests have been applied by the courts and by the department.
Prime among these tests is whether the extractor looks for his compensation to the severance and sale of the mineral or whether his compensation is dependent upon the personal covenant of those with whom he has contracted. In the former case his interest is obvious but if there is no sale of the mined mineral or no share thereof in kind
he receives no compensation.
Secondary tests include such factors as the amount of control the contractor has over the amount and time of production, the disposal and sale of surplus production, the length of the term of the contract and whether the operator has substantially retained the right to terminate the contract at will. A long term firm contract ordinarily vests a depletable interest in the contractor.
On the other hand, a short term contract terminable at will which bars the contractor from control of production are indications of a hiring
and vests no depletable interest.
However these tests are but evidentiary of the decisive question: Has the taxpayer-miner an economic interest or
a mere economic advantage by his contract?
The parties here do not dispute the law or the criteria mentioned and this case was tried by the Tax Court on a stipulation of facts.
We review the applicable decisions in brief in the margin.
In the instant case, during the taxable years in question, petitioner operated the Suntrana lands on a year to year basis. The government could in its discretion terminate the contract'. Petitioner had no control over the productive output of the mines being limited to the production of a specified amount of coal. Compensation was set at $362,500 for 1947 and $577,000 for 1948, and was payable in strict accordance with the schedule of supplies at a specified amount per ton dependent upon the grade of coal. Title to the coal at all times remained in the United States. The coal came from its lands and was used by it. Petitioner took no title to it and accordingly petitioner’s contention that the coal was sold to the Army is untenable. There was no sale and no gross proceeds in which petitioner could share. Petitioner’s gain depended, not as is contended by him upon the severance and sale of the coal but upon the covenant of the United States government to pay him a certain sum for services performed. This sum was in no way affected by fluctuation of market price.
It is our opinion from the logic of the circumstances and from a reasonable relation of the instant facts in the applicable decisions including the Tax Court decision here on review, that petitioner by the contract acquired an economic advantage but no economic interest in the coal in place, hence he is not entitled to a depletion allowance.
Affirmed.