United States v. Davey

543 F.2d 996
CourtCourt of Appeals for the Second Circuit
DecidedSeptember 27, 1976
DocketNos. 1089, 1298, Dockets 76-6040, 76-6042
StatusPublished
Cited by47 cases

This text of 543 F.2d 996 (United States v. Davey) is published on Counsel Stack Legal Research, covering Court of Appeals for the Second Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
United States v. Davey, 543 F.2d 996 (2d Cir. 1976).

Opinion

MANSFIELD, Circuit Judge:

Upon this appeal and cross-appeal growing out of the efforts of the Internal Revenue Service (“IRS”) to require a taxpayer, The Continental Corporation (“Continental”), to produce certain data in connection with the auditing of its tax returns, the central issue is whether the IRS may by summons issued pursuant to § 7602 of the Internal Revenue Code, 26 U.S.C. § 7602,1 compel the taxpayer to produce a computer tape comprising part of its financial record-keeping system, as distinguished from print-outs or duplicates of the tape. We hold that the IRS is entitled to the original tapes, with no strings attached or conditions imposed, and that the order of the Southern District of New York should be modified accordingly.

Continental is a billion dollar insurance holding company subject to the “large case” audit program of the IRS. Its records of expenses and losses are transferred from original vouchers, invoices, and other source documents onto punched computer cards, which are then used to produce the magnetic tapes in question. From these tapes, the taxpayer creates print-outs in a form that provides support for records required by state insurance department regulations. The taxpayer saves the tapes pursuant to Revenue Ruling 71-20, 1971-1 Cum.Bull. 392,2 promulgated in order to facilitate IRS audits of companies with computer-based record-keeping systems.

In connection with its audit of taxpayer’s consolidated tax returns for calendar years 1971 and 1972, the IRS requested 37 reels of these tapes. The taxpayer refused to produce them. Thereupon the IRS served a summons on Geoffrey Davey, Continental’s Secretary, directing him to produce the tapes.3 When Davey refused to comply on [999]*999the ground that the summons imposed an unnecessary burden on the taxpayer and offered instead to furnish print-out sheets made from the tape, the IRS brought this action against him in the Southern District of New York, 404 F.Supp. 1283, for enforcement of its summons. Judge Henry F. Werker ordered enforcement but, because of the possibility that the tapes might be erased, destroyed, or lost while in the possession of the IRS, placed two conditions on his order: (1) that the examination be limited to duplicates of the requested tapes, and (2) that the IRS bear the cost of duplication.

The IRS here appeals the conditions imposed on enforcement of its summons and the taxpayer cross-appeals the enforcement itself. We hold that the IRS was entitled to unconditional enforcement of its original summons.

DISCUSSION

The threshold question is whether, with or without conditions, the IRS had a statutory authority to compel production of the tapes. The taxpayer argues first that § 7602 of the Internal Revenue Code does not authorize a summons for the production of such tapes. It contends that the language of that section, which allows the Service to compel production of “such books, papers, records, or other data . as may be relevant or material to such inquiry,” is limited to visible and legible records. We disagree.

Section 7602 is intended to allow the IRS access to all relevant or material records and data in the taxpayer’s possession. It places no limit or condition on the type or form of the medium by which the record subject to summons is kept and nothing in the language or background of the section suggests that such a limitation was intended. The purpose was to enable the IRS to get at the taxpayer’s records, in whatever form- they might be kept. The standard is not the form of the record but whether it might shed light on the accuracy of the taxpayer’s returns. See Foster v. United States, 265 F.2d 183, 186-87 (2d Cir.), cert. denied, 360 U.S. 912, 79 S.Ct. 1297, 3 L.Ed.2d 1261 (1959). In this era of developing information-storage technology there is no conceivable reason to adopt a construction that would immunize companies with computer-based record-keeping systems from IRS scrutiny. Such would not be in keeping with Congress’ intention in enacting the section.

Continental’s reliance upon United States v. Russo, 480 F.2d 1228 (6th Cir. 1973), cert. denied, 414 U.S. 1157, 94 S.Ct. 915, 39 L.Ed.2d 109 (1974), and United States v. DeGeorgia, 420 F.2d 889 (9th Cir. 1969), is misplaced. Those cases hold merely that computer print-outs qualify as records under the Federal Business Records Act, 28 U.S.C. § 1732(a), which creates a business records exception to the hearsay rule. They are therefore irrelevant. Similarly, the fact that Rule 34 of the Federal Rules of Civil Procedure was amended in 1970 to list “data compilations,” a term that has been interpreted to include tapes, see Adams v. Dan River Mills, Inc., 54 F.R.D. 220, 222 (W.D.Va.1972), among discoverable “documents,” offers no support for taxpayer’s contention. The Advisory Committee Note to that amendment indicates that the amendment was merely intended to clarify the scope of the rule, not to change it. We have found no authority prior to the amendment holding that computer tapes were not discoverable under the rule.

We therefore hold that the language of § 7602 is sufficiently broad to encompass records or data stored in the form of computer tapes.

The taxpayer next argues that the tapes requested here are not “relevant or material” to the IRS audit of its tax returns. The 37 reels of tape in question contain general expense information for 1972 and loss payment and expense information for 1971 and 1972. The subject matter of the tapes would therefore appear to be central to any audit of taxpayer’s returns for 1971 and 1972 and certainly “relevant” and “material.” The taxpayer nevertheless contends that it does not have [1000]*1000a computerized accounting system, that the computer tapes merely constitute “intermediate processing tools” used to assist it in the preparation of its financial records, that the IRS is requesting the tapes for convenience in processing, not for their informational content, which has been made available to the IRS in the form of print-out sheets, and that § 7602 cannot be used to compel a taxpayer to make the Service’s auditing tasks easier, such as by preparing or creating documents not in existence or summarizing information already made available. We agree that § 7602 does not require preparation or production of records not yet in existence, see. United States v. Brown, 536 F.2d 117 (6th Cir. 1976).

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543 F.2d 996, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-davey-ca2-1976.