Yvadne J. Anderson v. Robert Finch, Secretary of the Department of Health, Education and Welfare
Yvadne J. Anderson v. Robert Finch, Secretary of the Department of Health, Education and Welfare
Dissenting Opinion
(dissenting) :
I would readily join the majority if I thought the statutes were reasonably susceptible to the interpretation given them, but I do not think they are.
Self-employment income derived from a trade or business is subject to social security taxes, and persons so taxed are eligible for old age and survivors’ benefits. Before 1965 the definition of “trade or business” found in 42 U.S.C.A. § 411(c)
The question in this case is a simple one — whether Dr. Anderson’s last taxable year ended on December 31, 1965, as it would have had he lived, or on November 9, 1965, the date of his death.
Without a specific definition of the term “taxable year,” we might be free to speculate as to its meaning and to interpret it as we thought appropriate, but Congress has defined the term with clarity and precision. The obligation of a court in such a situation is to effect the apparent congressional intention, though we may wish that the Congress had chosen some other alternative.
The term “taxable year” is defined in the Social Security Act by reference to the definitions in the Internal Revenue Code. A taxpayer’s taxable year for purposes of imposition of taxes on income, is also his taxable year for social security purposes.
“Taxable year” is a highly technical term of art. It has neither meaning nor existence outside of the Internal Revenue and Social Security Acts. When Congress defines such a term in the statute to which it applies, and in subsequent amendments to that statute uses the term again without any qualification, it cannot be supposed that it means something different in the amendment than in the original. Thus, under the express and unqualified command of 42 U.S.C.A. § 411(e), if Dr. Anderson’s taxable year for the purpose of assessing tax on his income in 1965 was some period other than the calendar year ending on December 31, it was the same period for the purpose of determining whether his income in that year was derived from a “trade or business.”
Because Dr. Anderson died before the end of 1965, a return was required to be filed for the short period beginning at the first of the year and ending on the date of his- death.
A taxable year as defined in § 441(b) may be “the taxpayer’s annual accounting period” or “the period for which the return is made.” The alternative which applies to a particular taxpayer in a particular year depends on the happening of a specified condition precedent to its application. If the accounting period is a calendar year or a fiscal year and a return for a shorter period is not required, the accounting period is the taxable year. If a return is required for a short period, the short period is the taxable year. Both definitions cannot apply, to the same taxpayer in the same year because both conditions cannot exist in a single year with respect to a single taxpayer. If a short period return is filed, the taxable year cannot have been a calendar or fiscal year. If the accounting period is a calendar or fiscal year, a short period return cannot be filed. The limitation to a single meaning need not be express, because it is necessarily inherent. The latter of these two possible conditions occurred in Dr. Anderson’s case, and his taxable year was the period, ending on November 7, for which his return was filed. Since it ended before December 31, 1965, his income for that year was not attributable to a “trade or business” for the amendment making it so was not effective.
Finally, it is suggested that to hold that Dr. Anderson’s taxable year ended with his death would produce an unfair result, and that such a purpose should not be attributed to Congress. We would all agree, of course, that our private notions of fairness cannot prevail in the face of a contrary congressional command, especially in an area in which Congress has striven for so many years for technical precision. It has attained it here, for it is more than mere inference from the statutory language which supports the conclusion that for social security purposes a person’s taxable year must end on the date of his death. In the Social Security Act Congress has expressly referred to this situation and has provided rules for determining self-employment income from a partnership of a deceased partner “for his taxable year which ends as a result of his death * * *” 42 U.S.C.A. § 411(f). A similar provision is contained in the Self-Employment Tax Act. 26 U.S.C.A. § 1402(f). This explicit congressional recognition of the termination of a taxable year, for social security purposes, by the taxpayer’s death, should remove any doubt that the natural reading of the amendment is also the correct and intended one.
Little significance, I think, can be placed on the language in the committee report that the Senate amendment to the effective date provision “would make it possible for most self-employed physicians to obtain social security coverage one year earlier than under the House bill — for calendar year 1965.” This is no more than a recognition that the overwhelming majority of individual taxpayers report their income on a calendar year basis, and that most of them will survive until the end of the year. It af
Had the construction placed upon the amendment been contemplated by Congress, it would have been easy to provide for it in language conveying that sense. The amendment could have been written to take effect “with respect to taxable years beginning on or after January 1, 1965” or “after 1964” or “with respect to services performed in 1965.” Such provisions, in fact, were utilized in other amendments to the Act.
I think Congress has answered the question for us and that we must apply the congressional answer. In the amendments to the Social Security Act, the Congress demonstrated its knowledge of the effect of technical language referable to taxable years. In 1965 it knew the form of words to employ to reach the results the court would reach. It knew how to avoid it, too. Its choice here compellingly appears deliberate.
I would affirm.
. Subject to the specific exceptions contained in § 411(c) a trade or business is defined as having the same meaning as it does when used in the Internal Revenue Code of 1954. Reference to the definitions in the Internal Revenue Code, almost without exception, is the method of defining such terms in the Social Security Act.
. P.L. 89-97, 79 Stat. 381, amending § 211 (e) (5) of the Act, 42 U.S.C.A. § 411(c) (5).
. “Taxable year. The term ‘taxable year’ shall have the same meaning as when used in chapter 1 of Title 26, Internal Revenue Code of 1939; and the taxable year of any individual shall be a calendar year unless he has a different taxable year for the purposes of chapter 1 of Title 26, Internal Revenue Code of 1939 in which case his taxable year for the purposes of this subchapter shall be the same as his taxable year under chapter 1 of Title 26, Internal Revenue Code of 1939.” 42 U.S.C.A. § 411(e).
The references to chapter 1 of the Internal Revenue Code of 1939 are to be read as referring to Subtitle A [Income Taxes] of the Internal Revenue Code of 1954 which replaced chapter 1 of the 1939 Code. 26 U.S.C.A. § 7852(b).
. It can hardly be disputed that the definition of a taxable year is applicable when the beginning or ending date of a taxable year is used to determine the effective date of an amendment. Express recognition is given to this application by 26 U.S.C.A. § 441(f) (2), which provides that
. “(a) When used in this title, where not otherwise distinctly expressed or manifestly incompatible with the intent thereof—
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(23) Taxable year. The term ‘taxable year’ means the calendar year, or the fiscal year ending during such calendar year, upon the basis of which the taxable income is computed under Subtitle A. ‘Taxable year’ means, in the case of a return made for a fractional part of a year under the provisions of Subtitle A or under regulations prescribed by the Secretary or his delegate, the period for which such return is made.”
. “(b) Taxable year. — For purposes of this subtitle, the term ‘taxable year’ means—
(1) the taxpayer’s annual accounting period, if it is a calendar year or a fiscal year;
(2) the calendar year, if subsection (g) [applicable only to taxpayers who keep no books, have no annual accounting period, or have an accounting period which fails to qualify as a fiscal year] applies; or (3) the period for which the return is made, if a return is made for a period of less than 12 months.”
. The fact that both § 441(b) and § 7701 (a) (23) are expressly applicable to the same substantive provisions is a strong indication of identity of meaning. It should be noted also that § 7701(a) (23) is the direct descendant of § 48 of chapter 1, 1939 Code. It was carried over without change except for the substitution of “Subtitle A” for “this chapter” and substitution of “Secretary or his delegate” for “Commissioner with the approval of the Secretary.” These two alterations reflect the renumbering of Code sections and the reorganization of the Internal Revenue Service respectively. That the present § 7701(a) (23) is not physically contained within Subtitle A is not relevant to its applicability.
. “(a) Returns for short period. — A return for a period of less than 12 months (referred to in this section as ‘short period’) shall be made under any of the following circumstances:
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(2) Taxpayer not in existence for entire taxable year. — When the taxpayer is in existence during only part of what would otherwise be his taxable year.” 26 U.S.C.A. § 443.
. Apparently Dr. Anderson’s return included a computation of tax on his self-employment income for 1965, under chapter 2 of subtitle A, 1954 Code. The Secretary’s decision advised Mrs. Anderson to apply for a refund of any such tax paid, relying on a revenue ruling previously made in connection with an identical occurrence. Rev.Rul. 68-458. It is argued that the ruling is not pertinent to this case, because the ruling concerned a deceased physician’s liability for tax rather than his eligibility for benefits, but the two things are measured by the same standard. The implication that Dr. Anderson could be eligible to receive so
. The number, variety and precision of effective date provisions enacted by Congress is illustrated by examples from only two of the many amendments to the Social Security Act.
In the 1965 amendment the provision for calculating self-employment income from agricultural partnerships was revised. The revision was made applicable “only with respect to taxable years beginning after December 31, 1965.” P.L. 89-97, § 312(c). For the first time tips were defined as “remuneration for employment” subject to the taxes and benefits of the Act, but “only with respect to tips received by employees after 1965.” P.L. 89-97, § 313(f). Interns employed by hospitals were made subject to the Act “only with respect to services performed after 1965.” P.L. 89-97, § 311 (c). Certain employees of non-profit organizations were covered “on the date of enactment of this Act.” P.L. 89-97, § 316(c) (2).
When Congress desired to make increased coverage effective substantially before the time when the amendment increasing coverage was adopted, it used precise language to achieve its purpose. The 1956 amendments provided coverage for sharecroppers “with respect to service performed after 1954” and for lawyers, dentists, veterinarians, chiropractors, naturopaths and optometrists, by the same process of deletion of exclusions from the definition of “trade or business” as was used' in .1965 to cover physicians, “with respect to taxable years ending after 1954.” Act of August 1, 1956, c. 836, 70 Stat. 824. The provision in the 1965 amendment under which members of religious faiths opposed to public assistance could exempt themselves from the Act was made effective “with respect to taxable years beginning after December 31, 1950.” P.L. 89-97, § 319 (e).
Opinion of the Court
This appeal presents the question whether an extension of Social Security Act coverage to self-employed physicians “with respect to taxable years ending-on or after December 31, 1965” operates to effect coverage of a self-employed physician who died during 1965. The district court held that it did not. We reverse and remand for entry of judgment for the plaintiff.
In order to be eligible for Social Security benefits, one must have received “covered” income during a certain number of quarter-yearly periods. 42 U.S. C.A. § 414(a). Dr. Anderson, plaintiff’s deceased husband, needed 14 quarters of coverage at the time of his death to entitle his survivors to benefits. He had accumulated 13 of these at private and military employment in 1947-50.
Before 1965, the practice of medicine was expressly excluded from the definition of “trade or business” in connection with self-employment income. In 1965, the Act was amended to eliminate this exclusion “with respect to taxable years ending on or after December 31, 1965.”
The Secretary reasoned that the amendment’s applicability to “taxable years ending on or after December 31, 1965” must be interpreted by reference . to a preexisting section of the Act — § 211 (e), 42 U.S.C.A. § 411(e) — which defines “taxable year” to have “the same meaning as when used in chapter 1 of Title 26, Internal Revenue Code * * *; and the taxable year of any individual shall be a calendar year unless he has a different taxable year for the purposes of chapter 1 of Title 26, * * * in which case his taxable year for the purposes of this subehapter shall be the same as his taxable year under chapter 1 of Title 26 * * Sections 441(b) and 443(a) are the relevant portions of chapter 1 of Title 26, and their texts are set forth below.
The statutes do not need to be read so narrowly and we believe that the intent of Congress was that they should not.
The deceased, when he was alive, was reporting his income on a calendar basis. For 1965, until the date of his death, his taxable year was the calendar year ending on December 31, 1965. True, because he died on November 9, his estate was required to file a return for less than the full calendar year (§ 443(a) (2)), and for this purpose the period January 1, 1965, to November 9, 1965, is also defined as his taxable year (§ 441(b) (3)). But although the definitions of “taxable year” are in the disjunctive, nothing contained therein prevents “taxable year” from having more than one meaning.
Even aside from the legislative history of the amendment, the interpretation of § 441 as effecting coverage is more consistent with a fair and symmetrical administration of the Social Security system. If the Secretary’s interpretation were adopted, Dr. Anderson and others in his position would have been required to pay up to three quarters of social security tax beyond the statutory test for coverage contained in 42 U.S.C.A. § 414(a) before becoming entitled to full benefits. Moreover, during 1965 they would have been in the anomalous position of being “fully insured individuals” within the meaning of the Act for some purposes but not others: for disability payments, for example, but not survivor’s benefits. Indeed, logically it would seem that even disability benefits accruing to a person in Dr. Anderson’s position during 1965 would have to be withheld until January, against the possibility that he might die before the calendar year ended. It is impossible to believe that Congress intended these un
Reversed and remanded.
. P.L. 89-97, 79 Stat. 381, amending § 211(c) (5) of the Act, 42 U.S.C.A. § 411 (c) (5).
. The Secretary, in denying benefits to the widow and minor children on the ground that the Act was not applicable to the deceased, advised the widow to seek a refund of the tax from the taxing authorities. Rev.Rul. 68.458, C.B. 1968-2, p. 388 supports this advice. The revenue ruling, however, rests upon 26 U.S.C.A. § 7701(a) (23), which is not pertinent to the present problem. See n. 4, infra.
. § 441. Period for compilation of tamable income
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(b) Tamable year. — For purposes of this subtitle, the tern “taxable year” means—
(1) the taxpayer’s annual accounting period, if it is a calendar year or a fiscal year;
(2) the calendar year, if subsection (g) applies; or
(3) the period for which the return is made, if a return is made for a period of less than 12 months.
§ 443. Returns for a period of less than 12 months
(a) Returns for short period. — A return for a period of less than 12 months (referred to in this section as “short period”) shall be made under any of the following circumstances:
* • * * * *
(2) Taxpayer not in existence for entire taxable year. — When the taxpayer is in existence during only part of what would otherwise be his taxable year.
* * * # *
. By contrast 26 U.S.C.A. § 7701(a) (23), which is not part of chapter 1 of Title 26 and hence is inapplicable to the present problem by the terms of § 311(c) of P.L. 89-97, repeats most of the definitions contained in § 441(b) but specifically limits the meaning of “taxable year,” where a return is made for a fractional part of a year, to that period for which the return is made.
. This is especially so because § 211(e) is a preexisting section of the Social Security Act. We have grave reservations that Congress had the preexisting definition of taxable year in mind when it
. The committee’s bill would cover the self-employment income of the approximately 170,000 self-employed doctors of medicine on the same basis as the self-employment income of other professional groups. The committee amended the provision in the I-Iouse bill so as to make social security coverage for self-employed doctors of medicine effective for taxable years ending on or after December 31, 1965. Under the House bill, coverage could be effective for taxable years ending after December 31, 1965. This change would make it possible for most self-employed physicians to obtain social security protection 1 year earlier than under the House bill — for calendar year 1965. (emphasis supplied.) S.Rep. 404, 1965 U.S.Code Cong. & Adm. News, pp. 2051-2052.
Reference
- Full Case Name
- Yvadne J. ANDERSON, Appellant, v. Robert FINCH, Secretary of the Department of Health, Education and Welfare, Appellee
- Cited By
- 1 case
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- Published