Martin v. Comm'r
Opinion
*290 Judgment entered for respondent.
MEMORANDUM OPINION
MARVEL, Judge: Pursuant to
Background
The parties submitted this case fully stipulated pursuant to
*291 During 1980, petitioner was married to Amilu Stewart (formerly Amilu Martin, formerly Amilu Rothhammer, and referred to herein as Amilu). 3 On April 15, 1981, petitioner and Amilu filed a joint Federal income tax return for 1980 (the 1980 joint return). Subsequently, respondent audited the 1980 joint return in connection with respondent's investigation of individuals involved in the Elektra Hemisphere tax shelters. 4
On December 6, 1983, during respondent's examination of the 1980 joint return, petitioner signed Form 872-A, Special Consent to Extend the Time to Assess Tax. On June 7, 1988, respondent*292 issued notices of deficiency to petitioner at his last known address in Suffolk, Virginia (the notice), and to Amilu at her address in Colorado Springs, Colorado (Amilu's notice). The U.S. Postal Service later returned the notice sent to petitioner in Suffolk, Virginia, marked "undeliverable as addressed, no forwarding order on file". Petitioner did not receive a copy of the notice. 5
On September 6, 1988, Jeffrey Berg, an attorney representing limited partners in the Elektra Hemisphere tax shelter litigation, filed a petition with this Court on behalf of petitioner and Amilu seeking a redetermination of their 1980 deficiency. 6 Mr. Berg attached to the petition a copy*293 of Amilu's notice. In
On November 20, 2000, respondent assessed income tax of $ 56,771 and interest of $ 456,023.09 and sent petitioner a notice of balance due. 7 On November 29, 2001, respondent issued a Final Notice -- Notice of Intent to Levy and Notice of Your Right to a Hearing. On December 14, 2001, petitioner timely submitted Form 12153, Request for a Collection Due Process Hearing, requesting a hearing under*294
On July 10, 2002, petitioner's counsel attended the hearing conducted by Appeals Officer Joann Mares. At the hearing, petitioner's counsel argued that the statutory limitations period for assessment (the limitations period) had expired before respondent assessed petitioner's 1980 income tax liability. Petitioner's counsel raised no other issues at the hearing. With respect to alternative collection methods, petitioner's counsel expressed interest in discussing an installment agreement at a later date if Appeals Officer Mares determined that the limitations period had not expired before respondent's assessment. Petitioner's counsel did not provide any financial information at the hearing or propose an actual installment agreement to Appeals Officer Mares.
On July 22, 2002, the Appeals Office issued a Notice of Determination Concerning Collection Action(s) Under
1. All legal and procedural requirements for the issuance of the Notice of Intent to Levy had been met.
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*290 Judgment entered for respondent.
MEMORANDUM OPINION
MARVEL, Judge: Pursuant to
Background
The parties submitted this case fully stipulated pursuant to
*291 During 1980, petitioner was married to Amilu Stewart (formerly Amilu Martin, formerly Amilu Rothhammer, and referred to herein as Amilu). 3 On April 15, 1981, petitioner and Amilu filed a joint Federal income tax return for 1980 (the 1980 joint return). Subsequently, respondent audited the 1980 joint return in connection with respondent's investigation of individuals involved in the Elektra Hemisphere tax shelters. 4
On December 6, 1983, during respondent's examination of the 1980 joint return, petitioner signed Form 872-A, Special Consent to Extend the Time to Assess Tax. On June 7, 1988, respondent*292 issued notices of deficiency to petitioner at his last known address in Suffolk, Virginia (the notice), and to Amilu at her address in Colorado Springs, Colorado (Amilu's notice). The U.S. Postal Service later returned the notice sent to petitioner in Suffolk, Virginia, marked "undeliverable as addressed, no forwarding order on file". Petitioner did not receive a copy of the notice. 5
On September 6, 1988, Jeffrey Berg, an attorney representing limited partners in the Elektra Hemisphere tax shelter litigation, filed a petition with this Court on behalf of petitioner and Amilu seeking a redetermination of their 1980 deficiency. 6 Mr. Berg attached to the petition a copy*293 of Amilu's notice. In
On November 20, 2000, respondent assessed income tax of $ 56,771 and interest of $ 456,023.09 and sent petitioner a notice of balance due. 7 On November 29, 2001, respondent issued a Final Notice -- Notice of Intent to Levy and Notice of Your Right to a Hearing. On December 14, 2001, petitioner timely submitted Form 12153, Request for a Collection Due Process Hearing, requesting a hearing under*294
On July 10, 2002, petitioner's counsel attended the hearing conducted by Appeals Officer Joann Mares. At the hearing, petitioner's counsel argued that the statutory limitations period for assessment (the limitations period) had expired before respondent assessed petitioner's 1980 income tax liability. Petitioner's counsel raised no other issues at the hearing. With respect to alternative collection methods, petitioner's counsel expressed interest in discussing an installment agreement at a later date if Appeals Officer Mares determined that the limitations period had not expired before respondent's assessment. Petitioner's counsel did not provide any financial information at the hearing or propose an actual installment agreement to Appeals Officer Mares.
On July 22, 2002, the Appeals Office issued a Notice of Determination Concerning Collection Action(s) Under
1. All legal and procedural requirements for the issuance of the Notice of Intent to Levy had been met.
2. The limitations period had not expired prior to respondent's assessment of petitioner's 1980 income tax liability.
3. Petitioner did not offer collection alternatives; he refused to provide financial information or otherwise explore alternative collection methods at the hearing.
4. The proposed levy action balanced the need for efficient collection of taxes with the legitimate concern of the taxpayer that the collection action be no more intrusive than necessary and was appropriate under the circumstances.
On August 20, 2002, petitioner filed a timely petition with this Court appealing respondent's determination. In his petition, petitioner alleged that the limitations period had expired before respondent assessed petitioner's 1980 income tax liability. Specifically, petitioner claimed:
The Petition filed in [Martin I] was not a Petition "in
respect to the deficiency" for 1980 of Petitioner because he
did not authorize or ratify the filing of the Petition on his
*296 behalf and because the Petition as filed, and as amended within
the jurisdictional period, did not attach a copy of the
Statutory Notice of Deficiency issued to him individually at his
last known address.
In the alternative, if we conclude that the limitations period did not expire, petitioner contends that we should remand the case to Appeals for the discussion of collection alternatives. 8
Discussion
Following a hearing, the Appeals Office must make a determination whether the proposed levy action may proceed. In so doing, the Appeals Office is required to take into consideration the verification presented by the Secretary, the issues raised by the taxpayer, and whether the proposed collection action appropriately balances the need for efficient collection of taxes with a taxpayer's concerns regarding the intrusiveness of the proposed collection action.
If the taxpayer files a timely petition for judicial review, the applicable standard of review depends on whether the underlying tax liability is at issue. Where the underlying tax liability is properly at issue, the Court reviews any determination regarding the underlying tax liability de novo.
I. The Limitations Issue 9
for the period during which the Secretary is prohibited from
making the assessment 10 * * * (and in any event, if a
proceeding in respect of the deficiency is placed on the docket
of the Tax Court, until*299 the decision of the Tax Court becomes
final), and for 60 days thereafter.
Petitioner contends that the petition Mr. Berg filed and we dismissed in Martin I (hereinafter referred to as the petition) was an "erroneous filing", which did not place "a proceeding in respect of a deficiency" on our docket. Petitioner alleges two specific "filing errors" with respect to the petition: (1) Petitioner lacked knowledge of the filing and did not consent to it, and (2) the petition, although purportedly filed on both petitioner and Amilu's behalf, contained only a copy of Amilu's notice. According to petitioner, these "filing errors" rendered the petition a "nullity" or "materially defective", and, therefore, the filing of the petition did not suspend the limitations period.
A. The Effect of an Unauthorized Petition on the Limitations
Period
Petitioner contends that a petition filed without the taxpayer's authorization or ratification, and later dismissed, has "no effect on" the limitations period. According to petitioner, Mr. Berg was a "mere interloper" and, therefore, did not have the authority to bind petitioner to what was, in effect, an agreement*300 to extend the limitations period. In so arguing, petitioner compares the petition to a written agreement, such as a Form 872-A, that purports to extend the limitations period but, in fact, is signed by an unauthorized party. 11 We disagree with petitioner's characterization of both the petition and Mr. Berg for the reasons discussed below.
Congress originally enacted the predecessor to
*301 The decision dismissing the appeal may not be made until months
after the proceeding was begun and there is some question
whether in such cases the statute of limitations on assessment
is actually suspended during the pendency of the proceeding. It
is specifically provided in
period shall be suspended, if any proceeding is placed on the
docket of the Board, until the decision of the Board in respect
thereof becomes final and for 60 days thereafter. 12
H. Rept. 2, 70th Cong., 1st Sess. (1927), 1939-1 C.B. (Part 2) 384, 399-400; see also S. Rept. 960, 70th Cong., 1st Sess. (1928), 1939-1 C.B. (Part 2) 409, 431.
In
*303 Petitioner attempts to distinguish Eversole from the instant case on the basis of the improper party's relationship to the taxpayer. In
According to petitioner, we should apply instead the holding of
Unlike
Petitioner further contends that because Mr. Berg attached only Amilu's notice to the petition, the petition was not filed with respect to petitioner's share of the joint deficiency. As a result, petitioner asserts, the petition did not confer jurisdiction upon this Court and failed to suspend the limitations period. 15
*306 The two requirements for our jurisdiction in a deficiency case are a valid notice of deficiency issued by the Commissioner and a timely petition filed by the taxpayer.
This Court has consistently followed a liberal policy with respect to treating as petitions documents timely filed by taxpayers and intended as petitions.
Petitioner insists that a separate notice of deficiency must be attached with respect to each taxpayer involved in a deficiency case. In support of his position, petitioner mistakenly relies on cases in which the petitions did not list all of the taxpayers' names or all of the taxable years at issue. See
Although this Court ultimately dismissed the petition in Martin I for other jurisdictional reasons, Mr. Berg's failure to attach the notice did not invalidate the petition with respect to petitioner and did not deprive us of jurisdiction. Consequently, the filing of the petition placed a proceeding with respect to petitioner's 1980 income tax deficiency*308 on our docket and suspended the limitations period.
For the first time on brief, petitioner argues in the alternative that we should remand the case to Appeals for the discussion of collection alternatives. Specifically, petitioner claims that he and Appeals Officer Mares made an "agreement" to later explore the possibility of an installment agreement if we concluded that the limitations period had not expired before respondent's assessment. Respondent opposes petitioner's request for the following reasons: (1) The issue is deemed conceded; and (2) petitioner "is entitled to only one hearing" under
A. Whether Petitioner Conceded the Installment Agreement
Issue
When appealing to this Court pursuant to
Respondent does not argue that the issue of an installment agreement never came up at the hearing. Rather, respondent argues that, because petitioner did not raise the installment agreement issue in his petition, the issue is deemed conceded. Respondent relies on
Although petitioner did not raise the installment agreement argument in his petition, petitioner may pursue the argument as long as his failure to provide respondent with notice of the argument did not prejudice respondent. See
Taxpayers are entitled to only one
In
*311 Petitioner bases his request for a remand on the alleged agreement he had with respondent to discuss an installment agreement after resolving the limitations period issue. Without addressing the alleged agreement, respondent asserts that the proper context for any alternative collection method discussion at this point is with "appropriate IRS personnel in accordance with the normal procedures for such matters", not at another
*312 At the hearing, Appeals Officer Mares gave petitioner's counsel the opportunity to discuss an installment agreement and provide the requisite financial information. Petitioner's counsel declined to discuss an installment agreement at that time and did not supply any financial information. Consequently, respondent determined that petitioner refused to explore collection alternatives at the hearing. We review respondent's determination for abuse of discretion.
Installment agreements are based on the taxpayer's current financial condition. See
*313 Petitioner has failed to demonstrate that the proposed levy action is inappropriate, another collection alternative is more appropriate, or some other relevant issue adversely affects respondent's proposed collection activity. We therefore conclude that respondent's determination to proceed by levy with the collection of petitioner's 1980 income tax liability was not an abuse of discretion.
We have considered the remaining arguments of both parties for results contrary to those expressed herein and, to the extent not discussed above, find those arguments to be irrelevant, moot, or without merit.
To reflect the foregoing,
Decision will be entered for respondent.
Footnotes
1. All section references are to the Internal Revenue Code in effect at all relevant times, and all Rule references are to the Tax Court Rules of Practice and Procedure.↩
2. In the stipulation of facts, petitioner objected to the relevancy and materiality of certain stipulations drawn from the findings of fact in a related case involving petitioner,
Martin v. Comm'r, T.C. Memo. 2000-187 (Martin I) , affd. on other grounds38 Fed. Appx. 980↩ (4th Cir. 2002) . We overrule petitioner's objections with respect to those stipulations incorporated herein, because we conclude that those stipulations are relevant to our discussion of the limitations issue.3. Petitioner and Amilu divorced in 1981.↩
4. Before 1980, petitioner and Amilu purchased a limited partnership interest in Winchester Oil, one of the Manhattan group partnerships, which were the subject of the Elektra Hemisphere tax shelter litigation in this Court. See
Krause v. Commissioner, 99 T.C. 132 (1992) , affd. sub nom.Hildebrand v. Commissioner, 28 F.3d 1024↩ (10th Cir. 1994) .5. Although petitioner did not receive the notice, Arthur Robb, petitioner's authorized representative pursuant to Form 2848, Power of Attorney and Declaration of Representative, received a copy. Respondent does not contend in this case that receipt of the notice by Mr. Robb qualified as receipt by petitioner for purposes of
sec. 6330(c)(2)(B)↩ .6. On Aug. 4, 1986, at petitioner's request, Mr. Berg had filed a petition for redetermination of petitioner's 1981 and 1982 income tax deficiencies.↩
7. The amount of the assessment was reduced by payments and credits totaling $ 140,944.67 to arrive at the balance due.↩
8. Petitioner raised this contention for the first time on brief.↩
9. Respondent does not contend that
sec. 6330(c)(2)(B) precludes us from considering this issue. Cf.Rodriguez v. Comm'r, T.C. Memo 2003-153↩ .10. The prohibited assessment period referred to in
sec. 6503(a)(1) includes the time during which the taxpayer may file a petition with this Court. Seesec. 6213(a)↩ .11.
Sec. 6501(c)(4) authorizes extension agreements between the Secretary and the taxpayer. Pursuant tosec. 6903 , the taxpayer may authorize a third party to act as his representative and enter an agreement to extend the limitations period. SeeBalkissoon v. Commissioner, T.C. Memo. 1992-223 , affd.995 F.2d 525↩ (4th Cir. 1993) .12. References to the "Board" are to the Board of Tax Appeals, the predecessor of this Court.↩
13. One such case on which we relied was
Am. Equitable Assurance Co. v. Helvering, 68 F.2d 46 (2d Cir. 1933) , affg.27 B.T.A. 247 (1932) . Responding to a similar challenge to the limitations period, the Court of Appeals for the Second Circuit concluded that "the mere placing on the docket of the Board of a proceeding in respect to the deficiency" suspended the limitations period.Id. at 47↩ . The Court of Appeals for the Second Circuit reasoned that "Congress did not intend to have the time a proceeding was pending before the Board counted any more when the decision was a dismissal for want of jurisdiction than when it was not." Id.14. We note that petitioner's position on this issue is also unacceptable from a policy perspective for several reasons. First, the petition in Martin I was pending in this Court for more than a decade before petitioner moved to dismiss it, by which time, according to his theory, the assessment period had run. Disabling the assessment and collection of tax in that fashion is clearly not what Congress intended. See
O'Neill v. United States, 44 F.3d 803, 806 (9th Cir. 1995) . Second, a strong presumption of authority is afforded to counsel when filing a petition in this Court. SeeRule 33 ;Gray v. Commissioner, 73 T.C. 639, 646-647↩ (1980) .15. We have already rejected this argument as it relates to our jurisdiction in a prior proceeding involving petitioner and respondent that arose out of Martin I. In
Rothhammer v. Commissioner, T.C. Memo. 2001-46 , petitioner unsuccessfully sought litigation costs undersec. 7430 . Petitioner contended that Mr. Berg's failure to attach the notice, as required byRule 34(b)(8) , deprived this Court of jurisdiction. Petitioner cited cases, as he does now, in which the taxpayers' original petitions failed to name certain taxpayers or include all tax years for which the Commissioner made a determination. We found that, in contrast to the petitions filed in those cases, the petition Mr. Berg filed named petitioner and clearly contested petitioner's 1980 income tax deficiency. Accordingly, in Rothhammer, we rejected petitioner's argument.On brief, respondent discussed our decision in Rothhammer but did not specifically argue that petitioner is collaterally estopped from raising the issue again in this proceeding. Even if respondent intended the discussion of Rothhammer as a collateral estoppel argument, respondent did not raise it as a defense in the pleadings, and we therefore deem it waived. See
Rule 39 ;Sundstrand Corp. v. Commissioner, 96 T.C. 226, 349↩ (1991) .16. On the basis of evidence in the record, we find it unlikely that petitioner's failure to raise the collection alternatives issue in the pleadings unduly surprised respondent or prevented respondent from submitting any necessary, additional evidence. In the stipulation of facts, respondent stipulated that consideration of an installment agreement "was deferred pending the resolution of the statute of limitations issue." On petitioner's Form 12153, Request for a Collection Due Process Hearing, submitted as an exhibit, he claimed to "[retain] the right to request collection arrangements other than collection by levy if any liability is determined to be valid." Additionally, after the hearing, in the notice of determination, also submitted as an exhibit, Appeals Officer Mares discussed petitioner's counsel's refusal to consider an installment agreement at the hearing. Appeals Officer Mares noted that petitioner's counsel would not discuss the installment agreement "because she [believed] the assessment was barred by statute" and concluded that "[petitioner] declined an offer to explore collection alternatives to the proposed collection action."↩
17. For an example of cases that we remanded to the Appeals Office, see
Keene v. Comm'r, 121 T.C. __ , 121 T.C. 8, 2003 U.S. Tax Ct. LEXIS 21(2003) , andHarrell v. Comm'r, T.C. Memo 2003-271↩ .18. We note that the legislative history of
sec. 6330 provides in part that "A taxpayer could apply for consideration of new information, make an offer-in-compromise, request an installment agreement, or raise other considerations at any time before, during, or after the Notice of Intent to Levy hearing." H. Conf. Rept. 105-599, at 266(1998), 1998-3 C.B. 755↩, 1020 (emphasis added).19. We also note that, for purposes of this proceeding, petitioner did not introduce into evidence any information regarding his financial condition that would suggest a remand is appropriate. See
Wells v. Comm'r, T.C. Memo. 2003-234↩ .
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