Materials Development Corp. v. Commissioner of Revenue
Materials Development Corp. v. Commissioner of Revenue
Opinion of the Court
Materials Development Corporation (taxpayer) appeals from a decision of the Appellate Tax Board that dismissed the taxpayer’s appeal from the Commissioner of Revenue’s refusal to abate interest on overdue payroll withholding taxes. The circumstances were as follows:
For the first quarter of 1989, the taxpayer filed a timely return reporting a total payroll tax owed for the period (including a prior quarter adjustment) of $9,525.17, previous payments of $450.51, and a balance due of $9,074.66. This was not paid with the return; and if normal procedures had been followed, the Department of Revenue in due course — usually one or two months — would have sent the taxpayer a notice of assessment
The taxpayer then sought to correct its return for the period, claiming it had mistakenly shown on the return $3,669.54 that belonged to another payroll period. The commissioner accepted the contention, abated $3,669.54 of the tax reported as due, and issued a new notice of assessment recalculating interest and penalties based on the reduced delinquency of $5,405.12. Further discussion led the commissioner a year later (on November 6, 1996) to abate the assessed penalties in full. The taxpayer then filed an application for abatement of the assessed interest, which had now mounted to $8,115.12, on the ground that the delay in payment was as much the department’s fault as the taxpayer’s; but the application was denied, the department taking the position that G. L. c. 62C, § 32, required daily computation of interest on taxes not paid when due and that the commissioner lacked discretion to abate interest unless the underlying tax were abated. The board in effect agreed with this position when it allowed the department’s motion to dismiss the appeal; and such authority as we have found seems to agree with the general principle.
Absent evidence of an agreement within the relevant period, the focus of the statute is on the time of the “assessment of the tax.” The taxpayer, relying on G. L. c. 62C, § 26(a),
The relevance of the “deemed assessment” (i.e., the self-
“shall arise at the time the assessment is made or deemed to be made and shall continue until the liability for the amount assessed or deemed to be assessed is satisfied. Said lien shall in any event terminate not later than six years from the date it was created.”
G. L. c. 62C, § 50(a), inserted by St. 1976, c. 415, § 22 (emphasis supplied). The tax shown as due on a tax return is, under § 26(a), “deemed to be assessed” at the time the return is filed. The lien on the taxpayer’s property for taxes not paid with the return arises under § 50(a) at the same time and expires six years from that time. The lien is the commissioner’s vehicle for collection, and it would make little sense to rule that the six-year period the commissioner is given by § 65 to collect the tax (“shall be collected within six years after the assessment of the tax”) refers to some different six-year period. Sections 50(a) and 65 are meant to be read together.
The filing of the taxpayer’s return on April 30, 1989, showing $9,074.66 ($9,525.17 less $450.51 paid) as the tax due thus began the running of the six-year limitations period for collection of that amount. All that occurred within that period was the department’s March 22, 1995, entry of that amount in its record of assessments, together with interest and penalties computed to that time. To rule that the entry by the department began the statute of limitations running afresh would in effect vitiate the limitations statute. It follows that, on July 11, 1995, when the commissioner sent the notice of assessment to the taxpayer, the tax was uncollectible.
The department argues, however, that even if the taxpayer should succeed in showing that collection was time-barred, it is not entitled to the requested abatement. The department points to the fact that the taxpayer, while contesting its obligation to pay accrued interest on the underlying tax, agreed voluntarily to pay the tax itself and did so by two payments on June 24 and August 19, 1997. The voluntary payment, argues the department, under established statute of limitations principles
The rule of acknowledgment by partial payment, however, does not operate quite so flatfootedly. In the decisions relied on by the department, the partial payments of the debtors acknowledged in effect that the entire debt was presently due and owed. Here, in contrast, the taxpayer paid the tax in recognition of a moral obligation, whether enforceable or not, but consistently denied any obligation to pay the interest. The rule in such cases is that stated in the early leading case of Bangs v. Hall, 2 Pick. 368, 374, 377 (1824): “that the case is to be taken out of the statute, if the defendant has within six years made an unqualified acknowledgment of an existing debt. . . , [but that] acknowledgment must go to the fact, that the debt is still due [emphasis omitted].” Such is the case where “the original cause of action is acknowledged, but qualified in such manner, as that it is doing great violence to the language to construe it into an acknowledgment of existing indebtment, or into a promise to pay.” Id. at 375-376. To the same effect, see Gillingham v. Brown, 178 Mass. 417, 421 (1901); Corbin, Contracts §§ 9.6, 9.8 (rev. ed. 1996). The taxpayer’s agreement to pay (and payment of) the underlying tax, at the same time denying any present legal obligation to pay either it or the interest, did not constitute a waiver of the statute’s protection with respect to the interest.
Decision of the Appellate Tax Board reversed.
As to the department’s unwavering position on this point, see Blue Jay Corp. v. Commissioner of Rev., 16 Mass. App. Tax Bd. Rep. 134, 135 (1994); Fields Corner Plate Glass Co. v. Commissioner of Rev., 16 Mass. App. Tax Bd. Rep. 157, 161-162 (1994); PPC Constructors, Inc. v. Commissioner of Rev., 26 Mass. App. Tax Bd. Rep. 426 (2001).
Section 26(a), as appearing in St. 1976, c. 415, § 22, states: “Taxes shall be deemed to be assessed at the amount shown as the tax due upon any return filed under the provisions of this chapter and on any amendment, correction or supplement thereof, or at the amount properly due, whichever is less, and at the time when the return is filed or required to be filed, whichever occurs later.”
In particular, 830 Code Mass. Regs. § 62C 26.1(2) (1993) defines “assessment” as “the process of the [department’s] determination or verification of the amount of the tax. . . and the entry of the amount of the tax due in the [commissioner’s assessment records; or the taxpayer’s calculation and declaration of the tax due. . . completed in full on a return, including any amendment, correction, or supplement thereto, by the taxpayer . . . and duly filed with the [commissioner.” See 830 Code Mass. Regs. § 62C 33.1(2) (1993), defining “assessment” as “the act of determining or verifying the amount of tax due from a taxpayer and the entry of such amount on the [commissioner’s assessment records, including the acceptance of a taxpayer’s calculations and declarations of tax as reported on a proper return duly filed by the taxpayer with the [commissioner.”
As to the distinction between the date of assessment and the date of notice of assessment, see A.W. Chesterton Co. v. Commissioner of Rev., 45 Mass. App. Ct. 702, 709-710 (1998); Tambrands, Inc. v. Commissioner of Rev., 46 Mass. App. Ct. at 523-524.
See G. L. c. 62C, § 50(a), discussed infra.
We recognize that the taxpayer also paid the accrued interest on September 19, 1997, in order to stop the accrual of further interest pending administrative decision. Payment did not in these circumstances constitute a waiver; the petition for abatement with respect to interest only remained pending. To be noted also is that the payment was made before the legislative abolition in 1999 of the “pay to play” rule, under which payment was legally compelled and subject to collection by the department notwithstanding the pendency of an application for abatement. See G. L. c. 62C, § 32, both before and after its amendment by St. 1999, c. 127, § 83; Technical Information Release 99-18 (Dec. 17, 1999), 5 Official MassTax Guide at 579 (West 2002) (“Taxpayers may avoid the accrual of interest and applicable penalties by voluntarily pay
Case-law data current through December 31, 2025. Source: CourtListener bulk data.