United States v. Richter

603 F.2d 744, 44 A.F.T.R.2d (RIA) 5508, 1979 U.S. App. LEXIS 12351
CourtCourt of Appeals for the Eighth Circuit
DecidedAugust 21, 1979
DocketNo. 79-1064
StatusPublished
Cited by2 cases

This text of 603 F.2d 744 (United States v. Richter) is published on Counsel Stack Legal Research, covering Court of Appeals for the Eighth 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. Richter, 603 F.2d 744, 44 A.F.T.R.2d (RIA) 5508, 1979 U.S. App. LEXIS 12351 (8th Cir. 1979).

Opinion

PER CURIAM.

This case is a consolidation of four appeals, taken by taxpayers Dale T. and Georgia S. Jackson (intervenors below), from the district court’s1 enforcement of four third-party summonses issued by the Internal Revenue Service (IRS). Appellants contend the district court erred in limiting their attempt to prove that IRS’s sole purpose for issuing the summonses was to prepare a criminal prosecution of appellants and that the summonses were thus issued in “bad faith” and should not have been enforced, under the rule of United States v. LaSalle National Bank, 437 U.S. 298, 98 S.Ct. 2357, 57 L.Ed.2d 221 (1978). For the reasons hereinafter given, we affirm.

In early 1978, Special Agent William D. Runge, an employee of the Intelligence Division (now renamed the Criminal Investigation Division) of IRS, was assigned to [746]*746determine the correct tax liability of the Jacksons for three previous years. In the course of this investigation, he issued a summons under section 7602 of the Internal Revenue Code2 to each of four financial institutions,3 requiring them to produce all records in their possession relating to the accounts, loans, or other financial transactions of taxpayers. As required by section 7609(a)(1) of the Code, Runge gave the Jacksons notice of these summonses. Pursuant to section 7609(b), taxpayers directed the financial institutions not to comply with the summonses and intervened in the subsequent enforcement proceedings brought by the government under sections 7402(b) and 7604(a).

Throughout this case, intervenors have argued that the summonses were invalid because the IRS issued them in “bad faith,” 1. e., solely for the purpose of gathering evidence for a criminal prosecution of the Jacksons. In order to garner proof of such a purpose, intervenors served a subpoena duces tecum on Agent Runge, requiring him to bring the complete IRS investigatory file to the summons enforcement hearing before the district court. Runge appeared at the hearing but did not produce the file, and the government moved to quash intervenors’ subpoena. Reserving ruling on the subpoena and motion to quash, the district court proceeded to take testimony on the government’s petition to enforce the summonses.

On direct examination, Runge testified: that the purpose of his investigation was to determine the Jacksons’ correct tax liabilities for the three years in question; that the records sought by the summonses had “potential tax consequences” and were relevant and necessary to his investigation; that he was authorized, as a special agent, to issue the summonses; and that the IRS did not have possession of any of the materials sought and had no means other than the summonses of obtaining the information. He also stated that, as of the date of the hearing, the IRS had not made a recommendation of criminal prosecution to the Department of Justice.

Intervenors’ counsel was permitted to cross-examine Runge on these matters, and explored at length the reasons for, and the nature of, the investigation. The district court did not, however, allow intervenors to ask Runge two particular questions: (1) whether he or his assistant during the investigation, Special Agent Patrick Finnessey, attempted to enter the Jacksons’ residence without their permission when they were not home; and (2) whether he or any other IRS agent under his direction conducted an automobile surveillance of the Jacksons. The government’s objections to these two questions as irrelevant were sustained. Intervenors’ counsel made offers of proof that the answer to each question would be yes, and that the information would be relevant because that “type of conduct ... is not employed by any government agency that is trying to conduct a civil tax liability investigation.” After Runge was excused, Agent Finnessey was called as a witness by intervenors and was asked the same two questions as Runge about unauthorized entry of the Jacksons’ residence and automobile surveillance of the Jacksons. Again, the government’s objections on the ground of relevancy were sustained, and intervenors made the same offers of proof. The hearing then ended.

Sometime after the hearing, the district judge obtained the IRS investigatory file and examined it in camera for any evidence [747]*747of institutional “bad faith” on the part of IRS. He found none.

On the basis of the evidence adduced at the hearing and the in camera inspection, the court concluded that intervenors had not met the burden of disproving a civil tax determination purpose, and that all the requirements for enforcement of an IRS summons, as set forth in United States v. LaSalle National Bank, supra, 437 U.S. at 318, 98 S.Ct. 2357, were met. Accordingly, the court entered a memorandum decision and order in each proceeding, granting the government’s motion to quash intervenors’ subpoena and enforcing the summonses. United States v. Richter, No. 78-1420C(4) (E.D.Mo. Dec. 28, 1978).4 Intervenors timely filed notices of appeal and obtained a stay of each order pending appeal. This court has consolidated the appeals.

For reversal, appellants contend that the district court erred in limiting their attempt to prove institutional “bad faith” on the part of IRS in issuing the summonses. Specifically, the court is alleged to have erred (1) by quashing appellants’ subpoena duces tecum, and (2) by preventing appellants from asking Agents Runge and Finnessey the two questions about attempted unauthorized entry of appellants’ home and surveillance of appellants. The argument is that, if the court had enforced their subpoena or had permitted the two questions, appellants would have been able to prove that IRS’s “institutional posture” was solely to gather evidence for criminal prosecution of appellants and that the summonses were thus issued in “bad faith” and should not have been enforced.

As noted above, the district court determined that the instant case was governed by United States v. LaSalle National Bank, 437 U.S. 298, 98 S.Ct. 2357, 57 L.Ed.2d 221 (1978), and on appeal neither party disputes this finding. The issue in LaSalle was whether the district court properly refused enforcement of two IRS summonses after finding that the special agent who issued them “ ‘was conducting his investigation solely for the purpose of unearthing evidence of criminal conduct . . . Id. at 304, 98 S.Ct. at 2361. In reversing the court of appeals’ affirmance of the district court, the Supreme Court agreed that a summons may not be issued under section 7602 in aid of a solely criminal investigation, but held that “whether an investigation has solely criminal purposes must be answered only by an examination of the institutional posture of the IRS” and not by the “personal intent” of the special agent. Id. at 316, 98 S.Ct. 2357 (emphasis added). The court also stated that “those opposing enforcement of a summons . . . bear the burden to disprove the actual existence of a valid civil tax determination or collection purpose by the Service.” Id.

In this case, appellants recognize that they bear the burden of proof and that their argument of a solely criminal purpose behind the summonses must address the “institutional posture" of the IRS, rather than the “personal intent” of Agent Runge.

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Related

United States v. Meininger
101 F.R.D. 700 (D. Nebraska, 1984)
United States v. Richter
603 F.2d 744 (Eighth Circuit, 1979)

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Bluebook (online)
603 F.2d 744, 44 A.F.T.R.2d (RIA) 5508, 1979 U.S. App. LEXIS 12351, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-richter-ca8-1979.