Dostal v. Comm'r
Opinion
MEMORANDUM OPINION
WHALEN, Judge: Respondent issued a notice of determination concerning collection action(s) under
Background
The facts set out herein are taken from the stipulation of facts filed by the parties and the exhibits referred to therein. The stipulation of facts and the exhibits filed by the parties are incorporated herein. Petitioner resided in the State of Washington at the time his petition in this case was filed.
Petitioner filed his separate individual income tax return for taxable year 2000 on or about October 15, 2001, wherein he reported total tax of $ 137,465 and zero payments. As of March 13, 2003, petitioner*263 owed $ 143,165.96 with respect to taxable year 2000.
Petitioner filed his separate individual income tax return for taxable year 2001 on or about October 12, 2002. In that return, he reported total tax of $ 51,622 and Federal income tax withholding of $ 10,692, for balance owing of $ 40,930. As of March 13, 2003, petitioner owed $ 45,675.28 with respect to taxable year 2001. Petitioner's tax returns for taxable years 2000, 2001, 2002, and 2003 are summarized in the appendix hereto.
On or about March 18, 2003, respondent sent to petitioner a Notice of Federal Tax Lien Filing and Your Right to a Hearing Under
On the following day, March 19, 2003, respondent sent to petitioner a final notice, Notice of Intent to Levy and Notice of Your Right to a Hearing, with respect to the amount petitioner owed for taxable year 2000. On the same date, respondent sent a similar notice with respect to the amount petitioner owed for taxable year 2001.
In response, petitioner timely filed a request for*264 a collection due process hearing. Petitioner's request for a hearing indicates his disagreement with respondent's "Notice of Levy/Seizure". The hearing request does not indicate petitioner's disagreement with the notice of Federal tax lien. Petitioner's hearing request sets out the following reasons for his disagreement with the notice of levy/seizure:
Notice of Levy/Seizure
1. The tax payer [sic], Mr. Joseph Dostal, files this Collection
Due Process Hearing based on the grounds that he anticipates an
Offer in Compromise disputing the collectability of the herein
mentioned tax but does not dispute the amount of liability;
2. Tax Payer [sic] is currently experiencing financial hardship
and a levy it is felt would constitute a substantial hardship
for tax payer [sic] and his family;
3. Upon further examination, taxpayer should be placed in "non-
collectability status" during the pendency of this appeal.
As contemplated in his request for hearing, petitioner submitted an offer-in-compromise approximately 4 months later on August 20, 2003. Petitioner offered to pay $ 20,000 to compromise*265 the tax liabilities, plus any interest, penalties, additions to tax, and additional amounts required by law with respect to his individual income tax for tax years "2000, 2001 & 2002". As the reason for submitting the offer-in-compromise, petitioner checked the box entitled "Effective Tax Administration", which states as follows:
"I owe this amount and have sufficient assets to pay the full
amount, but due to my exceptional circumstances, requiring full
payment would cause an economic hardship or would be unfair and
inequitable." You must include a complete Collection Information
Statement, Form 433-A and/or Form 433-B and complete Item
9.
Contrary to petitioner's hearing request, petitioner's offer-in- compromise did not raise doubt as to collectibility as the basis of the offer.
Attached to petitioner's offer-in-compromise is a Form 433B, Collection Information Statement For Businesses, for J. Dostal Investments, Inc. That form reports that J. Dostal Investments, Inc., had business assets of de minimis value, consisting of a computer and office furniture, a checking account, and two brokerage accounts.
Total Income Gross Total Expenses Actual
Source Monthly Expense Items Monthly
____________ _______ ______________ _______
19. Gross receipts $ 295,498 27. Materials purchased
20. Gross rental income 28. Inventory purchased
21. Interest 29. Gross wages & salaries $ 76,770
22. Dividends 30. Rent 6,300
Other income (specify 31. Supplies
in lines 23-25) 32. Utilities/telephone
23. 33. Vehicle gasoline/oil
24. 34. Repairs & maintenance
25. 35. Insurance
(Add lines 19 36. Current taxes 13,121
through 25) Other expenses
26. TOTAL INCOME*267 295,498 (include installment pay-
ments, specify in lines
37-38)
37. Statement 1, depreciation 26,447
38. Pension, interest expense 12,315
(Add lines 27 through 38)
39. TOTAL EXPENSES 134,953
Also attached to petitioner's offer-in-compromise is a Form 433- A, *268 Collection Information Statement for Wage Earners and Self- Employed Individuals, for petitioner and his wife. That form lists the following monthly income and expenses for the couple:
Total Income Gross Total Expenses Actual
Source Monthly Expense Items Monthly
____________ _______ ______________ _______
24. Wages (yourself) $ 5,400 35. Food, clothing and misc. $ 800
25. Wages (spouse) 36. Housing and utilities 1,942
26. Interest-dividends 37. Transportation 990
27. Net income from business 38. Health care 560
28. Net rental income 39. Taxes (income and FICA)
29. Pension/Social Security 40. Court ordered payments
(yourself)
30. Pension/Social Security 41. Child/dependent care
(spouse)
31. Child support 42. Life insurance
(Spouse)
32. Alimony *269 43. Other secured debt 500
33. Other 10,000 44. Other expenses 600
34. Total income 15,400 45. Total living expenses 5,972
Thus, the Form 433-A petitioner filed suggests that his income exceeds living expenses by $ 9,428 per month before income taxes. Form 433-A also lists the following assets owned by petitioner and his wife:
Checking accounts
Checking account (******** 1731) $ 825
Checking account (****** 63) 20 $ 845
Brokerage accounts _____
Brokerage account (****** 31CK) 9,000
Brokerage account (****** 07) 541 9,541
Investments
National securities SEP IRA 60,000
US Bank SEP IRA 14,000 74,000
Automobiles ______
Lexus, 2000 23,000
Loan -28,000
Kia, 1998 *270 2,000
Loan -3,000
Ford truck, 1968 1,500
_______
-4,500
Real estate
Arlington, VA residence 500,000
Loan -450,000 25,000
Personal assets ________
Furniture/personal effects 8,900
Jewelry 500 9,400
Business assets ______
Office furniture 2,000
Item 9 of the offer-in-compromise asks the taxpayer to set forth the reasons the offer-in-compromise is requested. In response, petitioner's offer-in-compromise refers to a cover letter written by petitioner's attorney. In that letter, petitioner's attorney states as follows:
Mr. *271 & Mrs. Dostal do not dispute the amount owed and admittedly
have sufficient assets and means to pay this amount, within the
short-term, but due to several mitigating factors, and their
need for these funds to be used for his and his family's needs,
it would be and would indeed cause a sufficient economic
hardship for my clients and their family members.
Petitioner's attorney repeats his contention that petitioner cannot part with the funds necessary to make full payment because those funds will be needed, after his retirement, to satisfy his medical and living expenses and to support him, his wife, and his children. Petitioner's attorney states as follows:
given Mr. Dostal's age and retirement needs, future and current
medical and living costs, and projected retirement needs, he is
required to contribute a certain amount to his retirement
accounts to insure a modest living standard for himself, his
wife, and children.
Petitioner's attorney summarizes petitioner's position as follows:
Considering Mr. Dostal's age, his future financial and health
needs, his spouse and children's*272 future financial needs, it is
clear that any and all savings, retirement savings and the like,
will be needed, and spent toward their support, and the future
support of their children. The amount of taxes owed, the
Dostal's [sic] present and future financial needs, Mr. Dostal's
few remaining years or months of employment remaining [sic], and
their family support needs, warrant approval of this Offer in
Compromise.
Petitioner's attorney emphasizes that petitioner had incurred unsecured debt in the aggregate amount of approximately $ 203,000 and had monthly medical expenses of approximately $ 1,000, consisting of medical insurance payments, copays, and costs of prescription medications. Petitioner's attorney suggests that petitioner's total monthly expenses are as follows:
Health insurance premium $ 560.00
Uninsured medical expenses 600.00
Unsecured debt finance charge 2,368.33
($ 203,000 at 14 percent)
Other expenses 3,000.00
_________
Total expenses *273 6,528.33
Petitioner's attorney does not reconcile the above monthly expenses with those set forth on Form 433-A attached to the offer-in- compromise, which shows total monthly living expenses of $ 5,972.
Petitioner was approximately 63 years of age when the offer-in- compromise was submitted on his behalf. He was self-employed as a stock broker. He operated his business through a subchapter S corporation, J Dostal Investments, Inc., often referred to as J Dostal Investment, Inc. Petitioner's wife, Teresa Dostal, formerly Teresa S. Fisher, was approximately 35 years of age at the time the offer-in-compromise was submitted. Ms. Dostal was vice president of J Dostal Investments, Inc., and owned 50 percent of that entity. She had a son, Adam, and a daughter, Natalie, who were 11 and 9 years of age, respectively, when the offer-in-compromise was submitted.
In due course after submission of petitioner's offer-in- compromise, the Appeals officer wrote to petitioner stating that she had been assigned petitioner's hearing. In her letter, the Appeals officer noted that petitioner had submitted an offer-in-compromise, and she said that the offer would be "considered*274 as a part of your collection due process hearing". In that connection, the Appeals officer stated as follows:
I have reviewed your offer and the financial documentation
submitted by your representative. It does not appear based on
upon [sic] the provisions, conditions and examples provided in
the Internal Revenue Regulations
the Internal Revenue Manual
qualify for an Effective Tax Administration Offer in Compromise
due to economic hardship. I will be happy to discuss other
alternative collection options with you, such as an installment
agreement.
Petitioner's attorney met with the Appeals officer in her office on April 20, 2004. Following that meeting, petitioner's attorney sent the Appeals officer a letter dated May 5, 2004, transmitting various documents which the Appeals officer had requested. Among the documents were statements from two brokerage firms, National Securities Corp. and Piper Jaffray, which show that as of March 31, 2004, petitioner and his wife had brokerage accounts valued at $ 179,836.67, as follows:
*275 3/31/04
__________
National Securities Corp., acct. for Teresa S. Fisher $ 2,145.00
National Securities Corp., acct. for Joe Dostal 139,580.70
Piper Jaffray, acct. for Joe Dostal 3,484.70
Piper Jaffray, retirement acct. for Joe G. Dostal 34,541.63
Piper Jaffray, acct. for Teresa S. Fisher 84.64
__________
179,836.67
In his letter of May 5, 2004, petitioner's attorney, among other things, disclosed to the Appeals officer that "Mr. Dostal has a tax liability for 2003, of roughly $ 70,000.00 and intends to pay this with funds on hand; namely, funds from his retirement account(s)."
At that time, petitioner had requested the first of two extensions to file his return for 2003. Petitioner's return would not be filed until on or about October 14, 2004, more*276 than 5 months later. As filed, the return reported total tax of $ 11,575 and Federal income tax withholding of $ 6,415, leaving an amount due of $ 5,160. See appendix. The record does not explain why petitioner's attorney advised the Appeals officer that petitioner's tax liability for 2003 was $ 70,000.
Shortly thereafter, during a telephone conference, the Appeals officer advised petitioner's attorney that she could not consider petitioner's offer-in-compromise, as a collection alternative because petitioner had incurred unpaid tax liabilities for tax year 2003. The Appeals officer gave petitioner's attorney a short time to request another collection alternative. In response, petitioner's attorney proposed that petitioner enter into an installment agreement. The Appeals officer responded that certain conditions must be met before she would consider an installment agreement. These included "payment in full for the amount determined to be owed for the tax year 2003, including the estimated tax penalty computed to be due", a substantial payment of petitioner's tax liability for taxable years 2000 and 2001, and submission of copies of the Forms W-2, Wage and Tax Statement, for petitioner*277 and his wife for taxable year 2003. Petitioner's attorney notified the Appeals officer that petitioner could not meet the specified conditions for entry into an installment agreement.
In due course, the Appeals officer issued her determination that "the Notice of Intent to Levy and the proposed collection action was appropriate." In an attachment to the notice of determination, the Appeals officer summarized her discussions with petitioner's attorney, the most significant of which are summarized as follows:
During our conference, we advised that you did not qualify for
an ETA offer [an offer in compromise based upon Effective Tax
Administration] because you had not demonstrated that you had
an undue hardship as defined under the Code of Federal
to full pay your tax liability and we proposed that your
representative ask you to consider an installment agreement
and/or liquidation of your retirement accounts in order to
satisfy the tax liability. We asked your representative to
provide us with some additional documentation which included*278 a
draft of your Form 1040 for 2003. We advised that you could not
owe a balance due if you still wished to pursue an offer.
On May 10, 2004 we received some additional documentation from
your representative. In his cover letter, your representative
advised us that you were going to owe $ 70,000.00 for the tax
year 2003 and intended to pay the amount due with funds from
your retirement accounts.
On May 19, 2004 and May 25, 2004, we held telephone conferences
with your representative and advised that we could no longer
consider an offer because you had not complied with your payment
requirements and had incurred another liability while your offer
was being considered. We noted that the current balance in your
retirement accounts was approximately $ 178,000.00. Your
representative asked if you could enter into an installment
agreement. We advised that we would consider an installment
agreement if you paid your 2003 tax year in full, made a
substantial payment towards your tax liability for 2000 and
2001, and provided some missing documentation*279 in order to
determine the precise amount of your monthly installment
payment. * * *
Your representative advised that he would discuss the
proposal with you. We asked to be contacted by June 1, 2001
[sic]. On May 26, 2004 we sent and faxed a letter to your
representative outlining the terms under which we could consider
an installment agreement. On June 1, 2004, your representative
contacted us and advised that you could not meet the terms of
our proposal. He asked us to issue a notice of determination to
you.
Discussion
Before a levy can be made on any property or right to property, the Commissioner is obligated to provide the taxpayer with notice of the Commissioner's intent to levy and notice of the taxpayer's right to a fair hearing before an impartial officer of the Appeals Office.
In this case, petitioner's position is that respondent abused his discretion in the subject notice of determination, which sustained the proposed collection action for 2000 and 2001, because respondent refused to process petitioner's offer-in-compromise. Thus, the only issue in this case involves a collection alternative, petitioner's offer-in-compromise. We review the determination for an abuse of discretion because the underlying tax liability is not at issue.
The Secretary may compromise a liability to promote "effective tax administration" when: (1) Collection of the full liability would cause the taxpayer economic hardship within the meaning of
Petitioner contends for three reasons that respondent abused his discretion by refusing to accept petitioner's offer-in-compromise. First, petitioner contends that the Appeals officer "was without basis in determining that Mr. Dostal was in substantial non-compliance." As we understand petitioner's brief, he complains that the Appeals officer "declined to consider" his offer-in-compromise because of petitioner's "noncompliance with tax filings." Petitioner emphasizes that, contrary to the determination of the Appeals officer, he "has filed all of his prior tax returns, including a validly filed automatic extension for his 2003 tax return and the 2003 return itself." Petitioner acknowledges that his attorney had thought that his tax liability for the year was $ 70,000. Petitioner notes that, in fact, the liability "was actually much lower and taxpayer has paid the liability. *283 "
Second, petitioner asserts that the Appeals officer abused her discretion because she "summarily rejected" the offer-in-compromise "and demanded the taxpayer enter into an installment agreement." According to petitioner the Appeals officer took this action "without making the required financial analysis." Petitioner contends that the Appeals officer "rejected this offer outright because the taxpayer's OIC (offer-in-compromise) showed the ability to pay the taxes in full." Petitioner complains that
the IRS failed to even consider what affect [sic] on the
taxpayer, and his family, would be [sic] by him using his meager
retirement account to satisfy the tax obligation, and insisted
that the 2003 obligation be cured, and that a sub-stantial down
payment be made on the 2000 and 2001 tax liability amounting to
$ 139,000.00 as of June 1, 2004.
Petitioner also complains that the Appeals officer failed to take into account the "schedules of national and local allowances", referred to in
*284 For his last reason, petitioner argues that "the financial information clearly showed that the IRS' settlement demands would be an undue hardship on the taxpayer and his family, and basically force them into the streets." In effect, petitioner is arguing that collection of the full liability for tax years 2000 and 2001 would cause petitioner and his family economic hardship within the meaning of
We disagree with each of petitioner's points and, for the reasons set out below, we find that the determination to proceed with collection of petitioner's tax for 2000 and 2001 was not an abuse of respondent's discretion. First, contrary to petitioner's assertion, the Appeals officer did not suspend her consideration of the offer- *285 in-compromise because petitioner had failed to meet his filing requirements. Rather, the Appeals officer took that action after petitioner's attorney disclosed that petitioner's unpaid tax liability for 2003 was $ 70,000. The Appeals officer had no reason to doubt this disclosure and no way of knowing that petitioner's return, when it was filed approximately 5 months later, would report an unpaid tax liability of $ 5,160. In response to that disclosure, the Appeals officer advised petitioner's attorney that she could no longer consider the offer-in-compromise because petitioner had not complied with the "payment requirements" for his 2003 return.
In this case, we cannot fault the Appeals officer for her concern about the fact that petitioner had, according to his attorney, allowed a substantial additional tax liability to accrue for 2003 without payment. For example, in
It would not do the Treasury any good if taxpayers used the
money owed for 2004 to pay taxes due for 1998, the money owned
for 2005 to pay taxes for 1999, *286 and so on. That would spawn more
collection cycles yet leave a substantial unpaid balance. The
Service's goal is to reduce and ultimately eliminate the entire
tax debt, which can be done only if current taxes are paid while
old tax debts are retired. Whether that goal is best achieved by
levy rather than by allowing second chances is the sort of
decision committed to executive officials. * * *
As the court noted in the above case, a taxpayer's failure to keep current on his tax payments suggests that the taxpayer had decided "to prefer consumption over meeting [his] legal obligations." Id.
Second, petitioner's assertion that the Appeals officer "summarily rejected" petitioner's offer-in-compromise is contradicted by the record. The stipulation of facts filed by the parties states that the Appeals officer "reviewed the offer-in- compromise and supporting information which had been submitted to the Memphis Service Center." Furthermore, the Appeals officer's first letter to petitioner states as follows:
I have reviewed your offer and the financial documentation
submitted by your representative. It does not appear, *287 based on
upon [sic] the provisions, conditions, and examples provided in
the Internal Revenue Regulations
the Internal Revenue Manual
qualify for an effective tax administration offer in compromise
due to economic hardship.
According to the attachment to the notice of determination, the Appeals officer also advised petitioner's attorney during their conference that petitioner had not demonstrated undue hardship as defined by
Finally, we do not agree with petitioner's assertion that collection*288 of the full tax liability for taxable years 2000 and 2001 would cause petitioner and his family economic hardship within the meaning of
Petitioner's contention that he faced economic hardship from collection of his full tax liability for taxable years 2000 and 2001 appears to be based upon the assertion that he planned to retire from his stock brokerage business. In that event, as we understand petitioner's contention, he would have no business income, and collection of his full tax liability for 2000 and 2001 would deprive him of those assets and a means of support for himself and his family. We note that petitioner's retirement is not required for health reasons or any external cause. *289 Petitioner's complaint boils down to the fact that if collection of his full tax liability for taxable years 2000 and 2001 is required, then petitioner will have to delay his retirement plans. We agree with the Appeals officer that petitioner has not shown that requiring full payment would cause economic hardship.
To reflect the foregoing,
Decision will be entered for respondent.
APPENDIX
Taxable Year 2000 2001 2002 2003
____________ ____ ____ ____ ____
7 Wages -- $ 27,000 $ 48,600 $ 16,200
8 Taxable interest $ 401 421 143 34
Tax-exempt interest
9 Ordinary dividends -- 150 -- 1
10 Taxable refunds, etc. -- -- -- --
11 Alimony received -- -- -- --
12 Business income*290 or (loss) 140,997 -- -- --
13 Capital gain or (loss) 279,089 -1,500 -1,500 -1,500
14 Other gains or (losses) -- -36,535 -- --
15 Total IRA distributions 53,400 110,035 29,000 --
16 Total pensions and annuities -- -- -- --
17 Rental real estate, royalties, -- 120,954 78,408 96,881
partnerships, S corps., etc.
18 Farm income or (loss) -- -- -- --
19 Unemployment compensation -- -- -- --
20 Social Security benefits -- -- -- --
21 Other income _______ _______ _______ _______
22 Total income 473,887 220,525 154,651 111,616
23 IRA deduction -- -- -- --
24 Student loan interest deduction *291 -- -- -- --
25 Medical savings account deduction -- -- -- --
26 Moving expenses -- -- -- --
27 One-half of self-employment tax 8,501 -- -- --
28 Self-employment health ins.
deduction 2,784 -- -- 1,776
29 Self-employed SEP, SIMPLE, and 25,500 -- -- 6,480
qualified plans
30 Penalty on early withdrawal of
savings -- -- 1,243 --
31 Alimony paid ________ ________ ________ ______
32 Total adjustments 36,785 -- 1,243 8,256
33 Adjusted gross income 437,102 220,525 153,408 103,360
Itemized deductions 84,239 52,748 82,016 38,382
Exemptions -- -- 540 6,100
*292 ________ ________ ________ ______
Taxable income 352,863 167,777 70,852 58,878
Tax 120,464 51,622 16,468 11,575
Self-employment tax 17,001
________ ________ ________ ______
Total tax 137,465 51,622 16,468 11,575
Federal income tax withheld from -- 10,692 19,246 6,415
Forms W-2 and 1099
Estimated payments -- -- -- --
________ ________ ________ ______
Total payments -- 10,692 19,246 6,415
Amount owed, not including 137,728 40,930 -- 5,160
estimated tax penalty
Amount overpaid -- -- -2,778 --
Case-law data current through December 31, 2025. Source: CourtListener bulk data.