AGEE, Circuit Judge:
Mary Johnson ("Mrs. Johnson") brought this suit against the United States seeking a refund of payments on a federal withholding tax penalty assessed against her under 26 U.S.C. § 6672.
The following facts are either uncontroverted, taken in the light most favorable to the Johnsons, or have been admitted by the Johnsons in their pleadings.
This fiscal reality led Mr. Johnson to approach Mrs. Johnson about restructuring Koba Institute so as to facilitate a continuation of their business. In 1998, Koba Institute converted to a for-profit corporation under Maryland law, with Mrs. Johnson as its sole shareholder. Because Mrs. Johnson "was not encumbered by a lien" like Mr. Johnson, her status as the corporation's owner enabled Koba Institute to enter into leases and other contracts,
As the sole shareholder of Koba Institute, Mrs. Johnson elected herself as chair of the corporation's board of directors in 2001. The corporation's bylaws require that the chair of the board "be elected President of the Institute." (J.A. 615.)
The same day that Mrs. Johnson appointed herself as board chair, February 20, 2001, Koba Institute's board of directors — comprised of the Johnsons and an unrelated corporate secretary — unanimously approved the following resolution:
(J.A. 612 (emphasis added).) Koba Institute's payroll account expressly provided that Mrs. Johnson had the power to "sign singularly" on that account. (J.A. 647, 651, 670; see also J.A. 537-38, 1486-87.)
Having "delegated" her authority to Mr. Johnson, Mrs. Johnson's actual involvement at Koba Institute was limited during the 2001 through 2004 period. Nonetheless, she had an office at Koba Institute and received a significant annual salary ranging from approximately $100,000 to $193,000, as well as a corporate car and cell phone. In addition, the rent for Mrs. Johnson's residence, shared with Mr. Johnson, was provided by Koba Institute.
When Mr. Johnson was out of the office, he left explicit instructions for Mrs. Johnson to follow on Koba Institute business, including which checks to sign in his absence. Because of her limited involvement with the corporation's daily operations, however, Mrs. Johnson was unaware of "the background or the context" for these checks and did not feel comfortable signing any checks that Mr. Johnson had not authorized. (J.A. 1576.) Accordingly, from 2001 through 2004, she never attempted to write checks that Mr. Johnson had not already approved.
Near the end of 2004, Mrs. Johnson received a notice from the IRS that Koba Institute had not paid its payroll taxes for several quarters from 2001 through 2004. Prior to that time, Mrs. Johnson was unaware that the payroll taxes were unpaid. Upon receipt of the notice, she had "a serious talk" with Mr. Johnson and "told him" that the situation was "unacceptable" and that Koba Institute had "to take steps to make sure that it [did not] happen again." (J.A. 1501.) Mrs. Johnson then fired the finance director, who had been tasked with making payroll tax payments, and "directed Mr. Johnson to personally handle all future tax payments as of January 2005." (J.A. 17.) She "required" Mr. Johnson to provide her with "visual proof" of all withholding tax payments that Koba Institute subsequently made. (J.A. 17.) Additionally, at least with regard to the payroll account, Mrs. Johnson no longer followed the prior procedure for check authorization; that is, she no longer required instruction from Mr. Johnson before writing checks herself from the payroll account for payment of the taxes.
Due to Mrs. Johnson's "revamped oversight of tax payments," Koba Institute began remitting its post-2004 payroll taxes to the IRS in full and, generally, on time. (J.A. 17.) The corporation did not, however, pay the outstanding delinquent payroll taxes for the 2001 through 2004 delinquent periods although it continued to pay its other business debts, such as employee wages and Mrs. Johnson's compensation. Subsequently, the IRS assessed trust fund recovery penalties (the "100% penalty") against Mr. and Mrs. Johnson individually, pursuant to 26 U.S.C. § 6672.
On March 30, 2009, Mrs. Johnson filed suit in the United States District Court for the District of Maryland seeking a refund of the penalty she had paid, asserting that the § 6672 assessment against her was
The Government filed separate motions for summary judgment against Mr. and Mrs. Johnson, contending that each was liable under § 6672 as a "responsible person" who had "willfully" failed to pay over the withheld payroll taxes. The Government supported the assessments with Forms 4340 — Certificates of Assessments, Payments, and Other Specified Matters, noting that the assessments on the Forms 4340 were presumptively correct and that the burden fell on the Johnsons to demonstrate otherwise. The Government also moved to strike the reports and testimony of an expert witness the Government anticipated the Johnsons would rely upon in opposing summary judgment.
The Johnsons jointly opposed the Government's motion to strike, and separately opposed the Government's motions for summary judgment. Mr. Johnson also moved for partial summary judgment against the Government as to him.
The district court granted the Government's motions for summary judgment, denied Mr. Johnson's motion for partial summary judgment, and denied the Government's motion to strike as moot. With respect to Mr. Johnson, the district court determined that the assessment against him was valid, rejecting his argument that the assessment was not made within the three-year limitations period established by I.R.C. § 6501. The district court then concluded that no material issue of disputed fact remained as to Mr. Johnson.
With respect to Mrs. Johnson, the district court held that she had also failed to show a genuine dispute of material fact regarding her liability. The court determined that "Mrs. Johnson was a responsible person at Koba Institute during the relevant quarters even though her participation in the corporation's affairs was minimal," and that she had acted "willfully" in failing to see to it that the outstanding tax liabilities were paid. (J.A. 253, 268.)
The district court also concluded that the judgment entered against Mrs. Johnson would not result in a double recovery for the Government. The court noted the Government's policy of retaining only one full satisfaction of an underlying tax liability despite it being able to attempt to collect against any responsible party, and reasoned that any potential issues could be avoided through careful drafting of the final judgment order.
Finally, the district court denied as moot the Government's motion to strike the reports of the Johnsons' expert and to exclude his testimony at trial, finding that in their opposition to the Government's motions for summary judgment, the Johnsons had "neither relied upon [the expert's] reports nor produced any evidence to create an issue of material fact" that would prohibit the entry of summary judgment against them. (J.A. 271.)
The district court accordingly entered judgment in favor of the Government and against Mrs. Johnson for $304,955.90 and
The Johnsons timely noted this appeal, and we have jurisdiction pursuant to 28 U.S.C. § 1291.
The Internal Revenue Code ("I.R.C." or the "Code") requires employers to withhold federal social security and income taxes from the wages of their employees. See 26 U.S.C. §§ 3102(a), 3402(a); Erwin v. United States, 591 F.3d 313, 319 (4th Cir.2010). Because the employer holds these taxes as "special fund[s] in trust for the United States," 26 U.S.C. § 7501(a) (emphasis added), the withheld amounts are commonly referred to as "trust fund taxes," Slodov v. United States, 436 U.S. 238, 243, 98 S.Ct. 1778, 56 L.Ed.2d 251 (1978) (internal quotation marks omitted).
The Code "assure[s] compliance by the employer with its obligation ... to pay" trust fund taxes by imposing personal liability on officers or agents of the employer responsible for "the employer's decisions regarding withholding and payment" of the taxes. Id. at 247, 98 S.Ct. 1778 (interpreting 26 U.S.C. § 6672). To that end, § 6672(a) of the Code provides that "[a]ny person required to collect, truthfully account for, and pay over any tax. who willfully fails" to do so shall be personally liable for "a penalty equal to the amount of the tax evaded, or not ... paid over," the 100% penalty. 26 U.S.C. § 6672(a). Although labeled as a "penalty," § 6672 is not primarily a punitive provision as it "brings to the government only the same amount to which it was entitled by way of the tax." Turnbull v. United States, 929 F.2d 173, 178 n. 6 (5th Cir. 1991) (internal quotation marks omitted).
Personal liability for a corporation's unpaid trust fund taxes extends to any person who (1) is "responsible" for collection and payment of those taxes; and (2) "willfully fail[s]" to see that the taxes are paid. Plett v. United States, 185 F.3d 216, 218 (4th Cir.1999); O'Connor v. United States, 956 F.2d 48, 50 (4th Cir.1992). Once the IRS assesses a taxpayer for this liability, the taxpayer has the burden of proof at trial on both elements of § 6672 liability. See O'Connor, 956 F.2d at 50.
We review de novo a district court's grant of summary judgment to the Government, resolving all disputed facts in favor of the taxpayer. See O'Connor, 956 F.2d at 50. To defeat summary judgment, however, the taxpayer — like any other litigant — must identify an error of law or a genuine issue of disputed material fact. See Fed.R.Civ.P. 56(a); Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 256, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986); see also Bouchat v. Balt. Ravens Football Club, Inc., 346 F.3d 514, 522 (4th Cir.2003). "[I]n the absence of disputed material facts, summary judgment represents a favored mechanism to secure the `just, speedy, and inexpensive determination'" of taxpayer liability under § 6672. Plett, 185 F.3d at 223 (emphasis in original) (quoting Fed.R.Civ.P. 1).
With the foregoing principles in mind, we turn to the claims of error raised on appeal. Mr. Johnson contends that the grant of summary judgment was erroneous
Mr. Johnson contends that the assessment of the 100% penalty against him was not "made within the limitations period set forth in 26 U.S.C. § 6672." (Br.29.) However, Mr. Johnson's one-page "argument" on brief as to this issue gives no after questioning at oral argument, we are left with no firm guide as to why Mr. Johnson contends the assessments are time-barred.
Mr. Johnson has not challenged the basis for the district court's decision in any meaningful way. See Fed. R.App. P. 28(a)(9)(A) (requiring argument section of an appellant's opening brief to contain "appellant's contentions and the reasons for them, with citations to the authorities and parts of the record on which the appellant relies"). Here, Mr. Johnson has failed to comply with the dictates of Federal Rule of Appellate Procedure 28(a)(9)(A), as he offers no argument explaining how the district court erred; rather, he simply states the issue he wishes to raise and cites several sections of the Code, but without analysis of how these statutes would apply to him. As a result, we consider Mr. Johnson to have abandoned or waived his challenge to the district court's determination that the assessment of the 100% penalty against him under § 6672 was not timely. See Edwards v. City of Goldsboro, 178 F.3d 231, 241 n. 6 (4th Cir.1999) ("Failure to comply with the specific dictates of [Federal Rule of Appellate Procedure 28(a)(9)(A)] with respect to a particular claim triggers abandonment of that claim on appeal."); see also Oken v. Corcoran, 220 F.3d 259, 274 n. 2 (4th Cir.2000) (Michael, J., concurring) ("In order to preserve an issue on appeal, however, it is not enough to simply assert the claim; a party must provide supporting argument.").
Accordingly, we affirm the district court's grant of summary judgment against Mr. Johnson individually.
We next address the argument that the district court erred in granting summary judgment against Mrs. Johnson. Specifically, Mrs. Johnson contends that she was not (1) a "person responsible" for the payment of Koba Institute's withholding taxes; and (2) did not "willfully" fail to pay over those taxes. We must disagree with Mrs. Johnson because the undisputed record shows that she was properly liable for the 100% penalty.
The Code defines a "responsible person" as one "required to collect, truthfully account for, and pay over any tax," 26 U.S.C. § 6672(a) (emphasis added). The Supreme Court has interpreted this statutory language to apply to all "persons responsible for collection of third-party taxes and not. [only] to those persons in a position to perform all three of the enumerated duties." Slodov, 436 U.S. at 250, 98 S.Ct. 1778. Thus, the Code deems anyone required to "collect" or "account for" or "remit" taxes a "responsible person" for purposes of § 6672. See Plett, 185 F.3d at 219.
Because this analysis focuses "on substance rather than form," holding a corporate title alone does not render a taxpayer a "responsible person." O'Connor, 956 F.2d at 51. While a determination of that status is necessarily fact-based, summary judgment is nonetheless appropriate where, in the absence of genuine disputes of material fact, it is clear "as a matter of law" that the taxpayer satisfies this test and is a "responsible person." Barnett, 988 F.2d at 1454 & n. 10 (acknowledging that "countless courts have found responsibility [for purposes of § 6672] as a matter of law" because "extensive caselaw ... narrowly constrains a factfinder's province in § 6672 cases"). Our analysis is guided by a list of non-exclusive factors common in the § 6672 case law, such as whether the taxpayer served as an officer of the corporation or a member of its board of directors, controlled the corporation's payroll, determined which creditors to pay and when to pay them, participated in the corporation's day-to-day management, had the ability to hire and fire employees, and possessed check-writing authority. Erwin, 591 F.3d at 321; Plett, 185 F.3d at 219.
Although "a party cannot be presumed to be a responsible person merely from titular authority," O'Connor, 956 F.2d at 51, status as an officer or director is "nevertheless material" to this determination, Teets v. United States, 29 Fed.Cl. 697, 706 (Fed.Cl.1993). Mrs. Johnson had been the corporation's sole shareholder since 1998 and consequently had the effective power to change the officers and directors as she chose and thereby direct the business of the corporation. Separately as both vice president and chair of the board of directors since early 2001, Mrs. Johnson enjoyed considerable actual authority at Koba Institute.
The corporation's bylaws, board resolutions, and banking documents demonstrate that Mrs. Johnson was a "responsible person," as it is clear that she had effective control of the corporation, including its finances. See Taylor v. IRS, 69 F.3d 411, 416-17 (10th Cir.1995) (holding corporate director and officer a "responsible person" as a matter of law because he "possessed sufficient control over corporate finances, had authority to borrow funds and write checks and thereby had the `effective power' to pay those taxes" (quoting Barnett, 988 F.2d at 1454)). The foregoing corporate documents indicate that Mrs. Johnson, while serving as chair of the board, would also serve as president of the corporation, a role that included authority to manage Koba Institute's daily affairs and to execute checks and other legal documents on its behalf. Although Mrs. Johnson "delegated" and "entrusted" this authority to Mr. Johnson prior to 2005, (See J.A. 16, 478, 480, 482, 1481-82, 1515), remaining only minimally involved in the corporation's affairs as board chair and vice president, delegation of such authority does not relieve a taxpayer of responsibility under § 6672, Purcell v. United States, 1 F.3d 932, 937 (9th Cir.1993) (That a taxpayer's function in an enterprise "is unconnected to financial decision making or tax matters is irrelevant where that individual has the authority to pay or to order the payment of delinquent taxes.");
Although Mrs. Johnson maintains that any authority she held was merely technical in nature, the undisputed evidence establishes that she possessed both legal and actual authority over Koba Institute. See United States v. Landau, 155 F.3d 93, 103 (2d Cir.1998) (if taxpayer fails to show a genuine dispute of material fact on nature of authority, the court "may reasonably conclude that the documentary evidence of authority reflects the reality"). Mrs. Johnson's voluntary minimal involvement in daily corporate affairs before 2005, however, and assertions that Mr. Johnson exercised all daily operating authority fail to create a genuine dispute of material fact regarding limitations on her effective power as to the trust fund taxes. Any deferral by Mrs. Johnson in the exercise of her authority never altered the fact that she possessed "effective power" over Koba Institute at all times. See Barnett, 988 F.2d at 1454. Indeed, Mrs. Johnson's actions immediately after learning of the tax delinquencies in December 2004 — a period that "cast[s] light" on her responsibility from 2001 through 2004 — demonstrate that her actual authority was co-extensive with the legal authority she possessed. Erwin, 591 F.3d at 321.
Mrs. Johnson admits in her pleadings that she "fired the finance director," the employee tasked with making payroll tax payments, as soon as she discovered that Koba Institute had not remitted these taxes as required by law. (J.A. 17.) She also "directed Mr. Johnson to personally handle all future tax payments as of January 2005" and "required" him to provide her with "visual proof" of all tax payments the corporation made. (J.A. 17.) These admissions indicate that Mrs. Johnson's status in the corporation during the quarters at issue enabled her to have "substantial input into [its financial] decisions [from 2001 through 2005], had [s]he wished to exert [her] authority."
Moreover, the fact that, from 2001 through 2004, Mrs. Johnson followed the corporation's internal policy and did not write checks without knowing that Mr.
While she may not have been running the day-to-day operations of the corporation between 2001 and 2004, Mrs. Johnson had a non-delegable responsibility to monitor Koba Institute's financial affairs. See Barnett, 988 F.2d at 1457 ("[W]e believe that not only is it a bad business practice for a high-level company official such as [Mrs. Johnson] to fail to monitor [the corporation's] finances, it also subjects [her] to being held a responsible party under § 6672."). Mrs. Johnson had the effective power to exercise authority when she chose to do so, even though she chose at times to voluntarily limit her involvement in corporate affairs. Although Mrs. Johnson often chose not to exercise the authority which she possessed, such a decision is insufficient to permit a taxpayer to avoid § 6672 responsibility. See Kinnie v. United States, 994 F.2d 279, 284 (6th Cir.1993) (stating that a taxpayer need not "always exercise his powers" to remain responsible for seeing that withholding taxes are paid, and "may not escape liability by delegating the task of paying over the taxes to someone else"). Moreover, after 2004, while the prior periods' payroll taxes remained unpaid, Mrs. Johnson actively exercised her authority over the affairs of Koba Institute while continuing to receive substantial compensation and benefits from the corporation.
We therefore conclude that the Government presented undisputed evidence that established as a matter of law that Mrs. Johnson was a "responsible person" under § 6672 during the relevant tax periods because
Having found Mrs. Johnson a "responsible person," we turn to the other necessary element of § 6672 liability, whether she "willfully" failed to collect, account for, or remit payroll taxes to the United States. 26 U.S.C. § 6672(a); Plett, 185 F.3d at 219. This inquiry focuses on whether Mrs. Johnson had "knowledge of nonpayment or reckless disregard of whether the payments were being made." Plett, 185 F.3d at 219 (quoting Turpin v. United States, 970 F.2d 1344, 1346 (4th Cir.1992)).
Mrs. Johnson contends that she did not act "willfully" in failing to remit Koba Institute's delinquent payroll taxes because she did not learn of the deficiency until the IRS notified her in December 2004. This argument, however, overlooks that a taxpayer may act "willfully" for purposes of § 6672 even though she does not learn about unpaid taxes until after the corporation has failed to pay them. "[W]hen a responsible person learns that withholding taxes have gone unpaid in past quarters for which he [or she] was responsible, he [or she] has a duty to use all current and future unencumbered funds available to the corporation to pay back those taxes." Erwin, 591 F.3d at 326. If the taxpayer thereafter knowingly permits payments of corporate funds to be made to other creditors, a finding of willfulness is appropriate. See id. ("Even assuming... that [the taxpayer] did not act willfully prior to learning of the full extent of the tax deficiencies ..., his conduct after that point unquestionably evidences willfulness as a matter of law." (emphasis in original)).
The record demonstrates that Koba Institute continued to make payments to other creditors using unencumbered funds following Mrs. Johnson's receipt of the IRS notice in December 2004. The Government has produced numerous salary checks that the corporation issued to Mrs. Johnson in 2005, which Mrs. Johnson readily cashed. Yet it is undisputed that Mrs. Johnson, a "responsible person," knew that payroll taxes for numerous quarters from 2001 through 2004 remained unpaid. Mrs. Johnson's failure to remedy the payroll tax deficiencies upon learning of their existence in December 2004, while
In sum, we conclude that the Government has presented undisputed evidence sufficient to establish as a matter of law that Mrs. Johnson was a "responsible person" under § 6672 during the relevant tax periods, and that she "willfully" failed to see that the withholding taxes were paid. No genuine dispute as to any material fact remains to be decided which would alter this conclusion. Accordingly, we hold that the district court did not err in granting summary judgment against Mrs. Johnson individually.
Finally, we briefly address the claims raised by the Johnsons with respect to the district court's determination of the amounts of their respective 100% penalty liabilities. Relying on the reports of their expert witness, Leo Bruette ("Bruette"), the Johnsons assert that there is a genuine issue of material fact as to the amounts of that liability. They allege that Bruette identified "numerous errors, omissions[,] and inconsistencies" in the tax assessments made against them, which therefore undermined the Government's proof of the amounts owed. (Br.26.)
The district court, however, found that the Johnsons "neither relied upon Bruette's reports nor produced any evidence to create an issue of material fact" that would preclude summary judgment. (J.A. 271.) Indeed, the Johnsons did not discuss or cite Bruette's reports in either of their opposition briefs to the Government's summary judgment motions, in Mr. Johnson's motion for partial summary judgment, or even as exhibits in opposing summary judgment. Further, the Johnsons do not contest the district court's factual conclusion in this regard on appeal. The reports, therefore, could not — and did not — create a genuine issue of material fact.
We also find that Mrs. Johnson's concerns regarding double recovery are without merit.
Mrs. Johnson further asserts that the Government might succeed in obtaining a double recovery because certain voluntary payments made by Koba Institute were not properly credited. She does not, however, develop this argument or cite any evidence to corroborate it. See Fed. R.App. P. 28(a)(9)(A) (requiring argument section of an appellant's opening brief to contain "appellant's contentions and the reasons for them, with citations to the authorities and parts of the record on which the appellant relies"). As a result, we consider her to have abandoned this claim. See Edwards, 178 F.3d at 241 n. 6. Moreover, while Koba Institute did designate some payments, those applied to the second quarter of 2001 (ending June 30, 2001), which is not a quarter for which Mrs. Johnson was found liable.
Accordingly, we conclude that the district court correctly determined the amounts of the Johnsons' respective tax liabilities under § 6672.
For all of the foregoing reasons, we affirm the judgment of the district court.
AFFIRMED.
26 U.S.C. § 6672(a).
(J.A. 617-18.) The bylaws also authorize the board members to "approv[e] ... proposed projects and budgets," "establish[] ... banking relations including [the] power to borrow money," and "control and manage[] ... property, including [the] power to purchase,... and dispose of the same." (J.A. 616-17.)