(In re John J.)John J. v. United States
(In re John J.)John J. v. United States
Opinion of the Court
Memorandum Decision
This case is before me on cross-motions for summary judgment. The bare-bones issue is dischargeability of taxes under section 523(a)(l)(B)(ii)
Jurisdiction
Jurisdiction over this matter lies under 28 U.S.C §§ 1334. Venue is proper under 28 U.S.C. § 1409. This matter is a core proceeding under 28 U.S.C. § 157(b)(2)(I).
Standards for Summary Judgment
The pendency of cross motions for summary judgment does not require that one of the motions be granted. 10A Charles Alan Wright, Arthur R. Miller & Mary Kay Kane, Federal Practice and Procedure § 2720 (3d ed. 1998). Each motion must be evaluated independently. Pursuant to Federal Rule of Civil Procedure 56, incorporated into the bankruptcy realm by Federal Rule of Bankruptcy Procedure 7056, summary judgment may be granted “if the pleadings, depositions, answers to interrogatories, and admissions on file, together with the affidavits, if any, show that there is no genuine issue as to any material fact and that the moving party is entitled to a judgment as a matter of law.”
Facts
The debtors did not file timely tax returns for the years 1989 and 1990, and did not seek any extensions of time to file.
With respect to 1990, essentially the same procedure was followed. The IRS began the delinquency investigation on May 29,*1992; completed the substitute for return on March 29, 1993; mailed the statutory notice of deficiency on May 22, 1993;
In the meantime, on May 22, 1993, John Miniuk attended an IRS-sponsored “non-filer” program designed to help non-filers get back on track. At the program, he was advised to file all of the missing returns, including the ones for the years that had already been assessed, because voluntary filing of missing returns is an IRS prerequisite for entering into an installment payment agreement. In July 1993, Mr. Miniuk sent a letter to the IRS stating that he would have all of his missing returns filed by August 1993. The Miniuks, however, did not file the returns in August of 1993. Instead, on June 22, 1994, they filed for Chapter 7 bankruptcy protection. The next day, on June 23, 1994, the Mi-niuks submitted their Form 1040 for 1989 to the IRS. A few weeks later, on July 13, 1994, they submitted their Form 1040 for 1990 to the IRS. The debtors received their Chapter 7 discharge on November 3, 1994 and believed their tax liability had been discharged. They were not aware that the tax debt had not been discharged until the IRS began sending them deficiency notices again.
Once the debtors realized that their tax liability had not been discharged, they contacted the IRS and agreed to an installment payment plan. The debtors made ten payments into the plan, from June of 1995 through March of 1996, and then defaulted on their payments. Shortly thereafter, the debtors sought a two-year forbearance from the IRS.
The debtors’ primary argument is that the returns they filed in 1994 should qualify as returns because they constitute an “honest and reasonable” attempt to satisfy the tax law.
The IRS’ position is that an assessment of taxes, made after the deficiency proceedings described above are complete, precludes a later-submitted Form 1040 from constituting a “return ... required to be filed” for purposes of section 523(a)(1)(B). The IRS argues that the Miniuks’ effort in filing a return four years late is not an honest attempt to comply with the tax laws, but rather was an effort to start the clock running so they could meet the time requirements of the Bankruptcy Code for discharging taxes. The IRS also argues that the plain language argument elevates the public policy goal of granting debtors a “fresh start” to a level above the equally significant public policy goal of maintaining a voluntary tax reporting system. The IRS supports this claim by pointing out that the Court of Appeals for the Sixth Circuit has upheld the IRS’s position on the basis that to hold otherwise inappropriately violates the integrity of the taxing system.
Analysis
A. Hindenlang
At the outset I will note that the Seventh Circuit has not made a dispositive
The Sixth Circuit began its discussion by pointing out that the Internal Revenue Code
The Sixth Circuit went on to state that the general purpose of section 528 is to prevent debtors from defrauding a wide variety of creditors and therefore, by implication, contains a good faith requirement. With respect to taxes, the court said that section 523(a)(l)(B)(ii) was designed with a two year waiting period to prevent debtors from postponing filing of tax returns until the eve of bankruptcy and then seeking discharge shortly thereafter. It said the two year period essentially gives the IRS notice and time to act before the tax debts can be discharged.
After resolving those preliminaries, the Sixth Circuit turned to the heart of the matter, which in its view turned out to be a burden of proof issue. The lower courts in Hindenlang had decided that any facially valid return filed by the debtor shifted the burden of proving particularized evidence of dishonesty to the IRS. The Sixth Circuit disagreed. The court acknowledged that creditors must prove exceptions to discharge by a preponderance, and acknowledged that exceptions are strictly construed in favor of debtors. However, it held as a matter of law that a Form 1040 does not qualify as a return if it no longer serves any tax purpose or if it has no effect under the revenue code. Applying that standard to the facts, the court held that when a debtor does not respond to any deficiency notices and the IRS is forced to go through the time-consuming and expensive assessment process to determine an individual’s tax liability, the IRS has met its burden of showing that the debtor’s actions were not an honest or reasonable attempt to meet the requirements of the tax law.
Ultimately, the court said that if it did not find this way, a debtor who filed a tax
The Sixth Circuit did not declare that a return filed post-assessment could never satisfy the requirements of section 523(a)(l)(B)(ii). Instead, the court simply established that a fact-based inquiry would in most instances be necessary to resolve the dischargeability issue.
In the Ninth Circuit, an essentially fact-based inquiry has also been established for resolution of section 523(a)(1)(B) questions. Again, the facts of U.S.A. v. Hatton,
The bankruptcy court and a bankruptcy appellate panel agreed that the issue was whether the substitute for return the IRS prepared on debtor’s behalf, coupled with the installment agreement the debtor had signed, satisfied the section 523(a)(l)(B)(I) requirement that a “return” be filed. Both of these courts determined that the debtor’s “cooperation” with the IRS, including his partial performance under the installment agreement, “provided the equivalence of a required return”
The Ninth Circuit disagreed and in Hat-ton IP
B. The Miniuks’ Reliance on the Plain Language Theory
The reversal of the lower Hatton court makes a significant impact on the Miniuks’
The second case afforded much weight by the Miniuks is the Crawley
The third case cited by the Miniuks is Savage v. I.R.S.,
Though not cited in the Miniuks’ briefs, a second case decided by a colleague of mine on this court is Payne v. U.S.A.
C. IRS’ Use of the Late-Filed Returns
The Miniuks’ second argument asserts that because the IRS reduced their tax liability based on the returns they filed, there was a tax purpose for the returns. This argument appears to arise from a footnote in the Hindenlang case
Additionally, the Miniuks argue that they filed late returns for 1989, 1990, and 1994, but that the IRS is only contesting the 1989 and 1990 liabilities. They claim that from their perspective all three returns are the same, that they cannot understand the difference, and that they should not be held accountable for knowing the intricacies of IRS procedure. This argument has very little substance. The IRS has made clear that it is not contesting the 1994 liability only because it never completed an assessment for that year. According to the IRS, the format of the returns themselves is irrelevant. Its position is fairly straightforward and not especially confusing.
The Sixteenth Amendment
D. Walsh Presents an Alternative to Hindenlang for Resolution of the Issue
While my primary basis for resolution of this case is derived from the analysis expounded in Hindenlang, I also believe that the analysis in Walsh v. U.S.A.,
In Walsh, the debtor did not voluntarily file his Form 1040’s. The IRS proceeded to assessment and eventually garnished his wages. Three years later, the debtor went to an IRS office and was given assistance in preparing the missing returns, which he then filed on the appropriate IRS Form 1040’s.
The Walsh court looked at the forms filed by the debtor and determined that they were income tax returns under any dictionary definition and in common parlance. The court then turned to the Beard test and determined that the forms most certainly satisfied the first three prongs; i.e. the Form 1040’s 1) purported to be returns, 2) were executed under penalty of perjury, and 3) contained sufficient data to allow calculation of the tax. Upon attempting to apply the “honest and reasonable” prong, however, the court hit upon what it felt was an unnecessary snag. The court felt that examining the debtor’s intent at the time he filed what is obviously an income tax return, missed the whole point of section 523(a)(1)(B) and the IRS’ role in the assessment process.
The court reasoned that once the IRS completed the entire assessment process, any return filed by a debtor is simply no longer “required.” More pointedly, any action by a debtor after the assessment is complete is no longer voluntary in any sense, as the debtor, at that point, has forced the IRS into a costly investigation and is now being pursued by the IRS for collection. The court found this view of the phrase “return, if required” to be the most logical and held that, “once the tax obligation has been fixed and liquidated via assessment, the process is done and the return is no longer ‘required’ to further it.”
I agree with Walsh and would also find the Miniuks’ debt nondischargeable under its rationale.
Conclusion
Applying the foregoing analysis to the facts at hand, I believe the IRS has set forth a stronger argument and is entitled to summary judgment. The facts bear out
While the bankruptcy courts are somewhat split on the issue before me, the weight of authority of the Sixth and Ninth Circuits tips the balance in favor of the IRS’ position rather than the Miniuks’. The courts finding for the IRS conclude that the plain meaning rule does not take into consideration the legislative history of section 523(a)(1)(B), nor the absurd result that a debtor who times things properly and files a meaningless return can be rewarded for non-compliance with the tax laws, while a debtor who does not file the meaningless return will not see his taxes discharged. It appears that the plain meaning rule allows even the least credible of debtors to escape on a technicality. Additionally, while the public policy of the Bankruptcy Code is to give a fresh start to an honest unfortunate, compliance with the Internal Revenue Code and the integrity of the tax system are equally important public policy positions. The plain meaning analysis pays little heed to that aspect of the issue.
In choosing to follow the Hindenlang line of cases, I am adopting a fact-based test which requires some showing of good faith on the part of a debtor, but does not set up a bright-line pre/post assessment standard. I believe adoption of the plain meaning analysis could ultimately force the IRS to be less lenient in accepting installment agreements or requests for forbearance because of the likelihood of abuse. The Miniuks asked the IRS for a two year forbearance. That amount of time allowed them to fit into the technical time-frame set out by the Bankruptcy Code for dischargeability of taxes. After the forbearance period ended, the Miniuks did not make any payments under the installment plan they had previously agreed to, and they continued to resist the IRS’s attempts at collection. Then, after the statutory six-year period for filing a second Chapter 7 finally expired, the Miniuks did in fact file a second Chapter 7 case to have their tax debt discharged. As noted, the two-year provision of section 523(a)(l)(B)(ii) is essentially a notice period for the IRS that allows the IRS to begin proceedings to collect taxes.
In short, I find that the returns filed by the Miniuks were not an honest and reasonable attempt at compliance with the tax laws. On the contrary, when the Miniuks
For the reasons stated herein, the motion of the Internal Revenue Service for summary judgment is GRANTED, and the Miniuks’ cross motion for summary judgment is DENIED. This Opinion will serve as findings of fact and conclusions of law pursuant to Federal Rule of Bankruptcy Procedure 7052. A separate judgment will be entered pursuant to Federal Rule of Bankruptcy Procedure 9021.
. Section 523(a)(l)(B)(ii) reads as follows:
"(a) A discharge under section 727 ... does not discharge an individual debtor*534 from any debt—
(1) for a tax ...
(B) with respect to which a return, if required—
(ii) was filed after the date on which such return was last due, under applicable law or under any extension, and after two years before the date of the filing of the petition ...”
. 11 U.S.C. § 101-1330.
. Fed. R. Bankr.P. 7056
. The debtors also failed to file a return for 1992, but the IRS is not disputing discharge-ability of that liability because the IRS had not yet done an assessment for that year.
. The Debtors' complaint alleges that they never received notice of the assessments. Evidence submitted by the IRS, including John Miniuk's own deposition testimony, squarely meets and convincingly refutes this claim. Therefore, unless otherwise noted, I will conclude that debtors received proper notice and were well aware of their delinquent position with respect to the IRS.
. Under 26 U.S.C. 6020(b) the IRS is authorized to prepare and file an income tax return on behalf of an individual if that individual fails to do so himself. The IRS may utilize whatever information it has available, or that it can obtain through testimony or otherwise. A return filed pursuant to this procedure is called a substitute for return.
. This notice of deficiency was returned to the IRS by the post office with no forwarding address available. However, the IRS sent a notice of assessment in November 1993 and three more notices of balance due in December 1993, January 1994, and February 1994 which were not returned. The Miniuks then provided updated address information to the IRS in February 1994.
. Mr. Miniuk submitted into evidence an affidavit, signed on August 26, 2002, that states that he lost his job in 1996 and upon his request the IRS granted him a forbearance. However, in his deposition testimony given on January 6, 2003, Mr. Miniuk says that he changed jobs in 1996 and began working for Phillips Chevrolet in Frankfort, Illinois, where is still employed to date. He makes no mention of being unemployed for any significant length of time in his deposition.
. The "honest and reasonable" language is prong four of a four-part test, derived from two U.S. Supreme Court cases, Germantown Trust Co. v. Commissioner, 309 U.S. 304, 60 S.Ct. 566, 84 L.Ed. 770 (1940), and Zellerbach Paper Co. v. Helvering, 293 U.S. 172, 55 S.Ct. 127, 79 L.Ed. 264 (1934), and culled into being by the tax court in Beard v. Commissioner, 82 TC 766, 1984 WL 15573 (1984). The test, generally called the Beard test, has become the most widely accepted test for deciding if a filed document constitutes a return. The test says that in order for a document to qualify as a return it must:
1) purport to be a return
2) be executed under penalty of perjury
3) contain sufficient data to allow calculation of the tax
4)represent an honest and reasonable attempt to satisfy the requirements of the tax law.
Cases under section 523(a)(l)(B)(ii) tend to have the first three. It is typically the "honest and reasonable” prong that is not satisfied.
. Crawley v. U.S.A. (In re Crawley), 244 B.R. 121 (Bankr.N.D.Ill. 2000).
. U.S.A v. Nunez (In re Nunez), 232 B.R. 778 (9th Cir. BAP 1999).
. Savage v. I.R.S. (In re Savage), 218 B.R. 126 (10th Cir. BAP 1998).
. U.S.A. v. Hindenlang (In re Hindenlang), 164 F.3d 1029 (6th Cir. 1999).
. Id.
. 26 U.S.C. § 1 et seq.
.See note 9.
. Hindenlang, 164 F.3d at 1035.
. 216 B.R. 278 (9th Cir. BAP 1997).
. U.S.A v. Hatton (In re Hatton), 216 B.R. 278, 283 (9th Cir. BAP 1997).
. U.S.A. v. Hatton (In re Hatton), 220 F.3d 1057, 1061 (9th Cir. 2000).
. Id., at 1061.
. U.S.A. v. Nunez (In re Nunez), 232 B.R. 778 (9th Cir. BAP 1999).
. Id. at 783.
. Hetzler v. U.S.A., 262 B.R. 47 (Bankr.D.N.J. 2001).
. Id. at 53.
. Moroney v. U.S.A. (In re Moroney), 2002 WL 31777588 (E.D.Va. 2002).
. Crawley v. U.S.A. (In re Crawley), 244 B.R. 121 (Bankr.N.D.Ill. 2000).
. Crawley, at 127.
. Savage v. I.R.S. (In re Savage), 218 B.R. 126 (10th Cir. BAP 1998).
. Payne v. U.S.A. (In re Payne), 283 B.R. 719 (Bankr.N.D.Ill. 2002).
. See footnote seven in U.S.A. v. Hindenlang, wherein the Sixth Circuit left open the possibility that a debtor could prove either 1) that the return did fulfill some tax purpose, or 2) that the untimely filing was in fact an honest and reasonable attempt to fulfill the reporting requirements.
. The Hindenlang court was also quick to state that even a showing of legitimate tax purpose would not be a foolproof method for insuring dischargeability. It pointed out that such a showing might still not be enough to overcome an IRS showing that the filing was not an honest and reasonable attempt at compliance.
. U.S. Const. amend. XVI.
. Commissioner of Internal Revenue v. Lane-Wells, Co., 321 U.S. 219, 223, 64 S.Ct. 511, 88 L.Ed. 684 (1944).
. Walsh v. U.S.A. (In re Walsh), 260 B.R. 142, 148-149 (Bankr.D.Minn. 2001).
. Walsh v. U.S.A. (In re Walsh), 260 B.R. 142 (Bankr.D.Minn. 2001).
. The court did not disagree with the Beard test in toto. Rather, it felt that the Beard test should not be utilized except in the same context as it was formulated for. In Beard, the issue concerned an IRS form that had been so completely physically altered that it was no longer recognizable as the form it purported to be. In Walsh, there was no physical alteration of the form and the court felt that Beard was not applicable to the case before it.
.Walsh, 260 B.R. 142 at 151.
. Hindenlang, at 1032.
Reference
- Full Case Name
- In re John J. and Beatrice MINIUK, Debtors. John J. and Beatrice Miniuk v. United States
- Cited By
- 1 case
- Status
- Published