1951 U.S. Tax Ct. LEXIS 180">*180
1. Petitioner issued time certificates of deposit which were outstanding in 1942 and 1943.
2. Petitioner, a national bank on the charge-off basis as to bad debts in 1930, 1931, and 1932 reduced its accumulated earnings and profits on the recommendation of the national bank examiner by $ 50,000 in both 1930 and 1931 because of the partial worthlessness of Reclamation District bonds by setting up a reserve for depreciation in value. It did not make a charge-off of the partial worthlessness on its books, which was necessary before it could take a deduction for the amounts under section 23 (j) of the Revenue Act of 1928. In 1932 the basis of the bonds was reduced by $ 100,000.
16 T.C. 1202">*1202 Respondent determined deficiencies in petitioner's excess profits tax for the years 1942 and 1943 of $ 92,176.50 and $ 31,126.75, respectively. Petitioner claims an overpayment for these years in the respective amounts of $ 77,895.06 and $ 125,728.85.
The issues presented are (1) whether certificates of deposit issued by petitioner are properly includible in its borrowed capital within the meaning of
16 T.C. 1202">*1203 Other adjustments made by respondent1951 U.S. Tax Ct. LEXIS 180">*183 are not contested by petitioner.
Petitioner filed its returns with the collector for the first district of California.
FINDINGS OF FACT.
The facts which have been stipulated are so found.
Petitioner is a corporation organized under the laws of the United States with its principal office in Sacramento, California. At all times material hereto, petitioner was a national bank, a member of the Federal Reserve system, a member of the Federal Deposit Insurance Corporation, and designated by the Secretary of the Treasury as a depositary of Government funds.
1951 U.S. Tax Ct. LEXIS 180">*184 Petitioner also issued certificates of deposit to the California State Treasurer and to the treasurers of Sacramento, Colusa, and Butte counties during 1942 and 1943. The average daily balance of such certificates outstanding in both 1942 and 1943 was $ 952,681.
The California State Treasurer made deposits under an "Agreement for Inactive Deposit" entered into in 1937. The agreement provided that the deposits should be evidenced by certificates of deposit which were to be negotiable after their maturity date, which was not to exceed one year after issue. Petitioner was required to deposit with the Treasurer as security, bonds or state warrants which had a value that was 10 per cent greater than the amount of the deposits.
Deposits were made by county treasurers under written agreements for inactive deposits of funds which permitted withdrawal on 30 days' notice and provided that interest be paid quarterly and that the 16 T.C. 1202">*1204 agreement terminate after one year. Petitioner agreed to pledge as security United States bonds or treasury notes or bonds of the State of California or of a political subdivision of the state which had a value 10 per cent greater than the amounts of the1951 U.S. Tax Ct. LEXIS 180">*185 deposits. As evidence of the deposits, petitioner issued certificates of deposit which were negotiable when due.
During 1942 and 1943, petitioner accepted commercial (checking) and savings accounts. No interest was paid on the former type of account, and the interest rates in effect on savings accounts varied from 1 1/2 per cent to 2 per cent. Although petitioner reserved the right to require notice of withdrawal of savings accounts, it has never exercised this right.
Petitioner was not required to redeem certificates of deposit before maturity. It did redeem them in an emergency. During the period 1940 to 1944, inclusive, petitioner redeemed four certificates prior to maturity. A certificate issued to the State Insurance Commissioner for a term of 1 year was redeemed on December 17, 1941, two months after issuance, to permit investment of the amount, $ 11,500, in defense bonds. Three certificates issued to J. D. Greene in the amount of $ 50,000 each and for terms of 6 months were redeemed on January 11, 1944, within 2 months of issuance, at the request of Greene who desired to make a payment on farm property. No interest was paid on the certificates redeemed prior to maturity.
1951 U.S. Tax Ct. LEXIS 180">*186
On or before May 11, 1928, petitioner purchased bonds of Reclamation District No. 2047 (hereinafter called the Reclamation District bonds) which had a par value of $ 464,000 for $ 437,795. Petitioner established a separate account on its books for the bonds. Subsequent sales reduced the balance in the account to $ 351,280 by 1930. The carrying rate of the bonds was 94.33 per cent of their par value at this time.
In 1930 bank examiners from the office of the Comptroller of the Currency determined that bonds and securities owned by petitioner were overvalued on its books by $ 173,726.78 due primarily to a $ 215,120 overvaluation of the Reclamation District bonds. The chief examiner's report stated that:
A net depreciation of $ 173,726.78 estimated a loss at this examination. The management has set up a reserve of $ 25,000.00 against this item, and on December 31, 1930, will increase this reserve account $ 25,000.00, 1951 U.S. Tax Ct. LEXIS 180">*187 making a total of $ 50,000.00. Notwithstanding this, non-conforming irrigation and reclamation district # 2047 bonds indicate a total depreciation of $ 215,120.00. The bonds of reclamation district # 2047 have depreciated heavily over the last 16 T.C. 1202">*1205 examination, and previous examinations have shown a tendency to lower level depreciation, which at this time stands at 49 bid and 53 ask. These quotations have been checked at reliable bond houses. The market for the sale of these bonds is stagnant, evidencing their nonmarketability, resulting in their nonconformity. * * *
* * * *
At the last examination the net depreciation of all bonds was $ 127,181.00, and your examiner then requested the following:
- - - "that the above estimated loss be charged off the books at the end of the current period at the rate of 25%, and that a reserve for bond depreciation be set up on the books for the balance."
In view of the further heavy depreciation resulting since the last report, your examiner suggests that the procedure in charging off 25% of the estimated depreciation existing at this examination be done, and that a reserve be set up on the books for the balance, as contemplated. No 1951 U.S. Tax Ct. LEXIS 180">*188 charge off has as yet been made as previously suggested.
On December 29, 1930, the Comptroller of the Currency informed petitioner:
The report of examination of your bank completed November 28 by National Bank Examiner Leo Shapirer has been received and shows a net depreciation in your bond holdings of $ 173,726.78. This is a much heavier depreciation than was shown by the previous report of last May and exists chiefly in Reclamation District bonds #2047, which are carried at $ 351,820 and for which there is apparently no market. In view of these facts you should, as recommended by the examiner, charge off at least 25 per cent of the net depreciation at this time, in addition to increasing your present reserve for depreciation in the sum of $ 25,000 on December 31, 1930, as contemplated. Thereafter, you should semi-annually provide for at least one-fourth of the remaining depreciation by charging off or crediting your reserve with that amount until the entire depreciation has been taken care of.
On June 30, 1930, petitioner set up a valuation reserve out of its accumulated earnings and profits by charging its undivided profits account and crediting an account designated as "Reserve1951 U.S. Tax Ct. LEXIS 180">*189 for Bond Depreciation" for $ 25,000. In accordance with the recommendation of the Comptroller of the Currency, the valuation reserve was increased to $ 50,000 on December 31, 1930, by charging an additional $ 25,000 to the undivided profits account. However, actual charge-off of part of the depreciation in value was not made during 1930. Petitioner's income tax return for 1930 listed under "Other deductions" $ 50,000, which was described as "Reserve for Depreciation Loss on Bonds Per Order Chief Bank Examiner." The return showed a net loss of $ 44,435.46.
On June 30, 1931, the valuation reserve was increased to $ 100,000 by charging an additional $ 50,000 to the undivided profits account. Actual charge-off of part of the depreciation in value was not made during 1931. Petitioner deducted $ 50,000 in its income tax return for 1931 for the addition to the valuation reserve. The return showed a net loss of $ 172,079.71.
16 T.C. 1202">*1206 Investigation of petitioner's income tax return for 1930 was made by respondent with particular reference to the loss claimed because of the shrinkage in value of the Reclamation District bonds. All the material facts were made available to the revenue1951 U.S. Tax Ct. LEXIS 180">*190 agent who made the investigation. Petitioner made no false or erroneous misrepresentations either on its returns for 1930 and 1931 or to the revenue agent in respect to the deductions which it took in 1930 and 1931 for the decline in value of the bonds. As a result of his investigation, the revenue agent recommended that the deduction be allowed in the 1930 return, and no further action was taken by respondent.
On December 10, 1932, petitioner reduced the basis of the bonds on its books by $ 100,000 by debiting the valuation reserve, which had been previously set up out of the undivided profits account, for $ 100,000 and crediting the bond account for that amount, thus reducing the basis of the bonds on its books to $ 251,820.
In later years, petitioner made charge-offs because of the ascertainment of partial worthlessness of the bonds by charging the undivided profits account and crediting the bond account as follows:
Year | Amount |
1934 | $ 55,000.00 |
1938 | 20,070.60 |
1939 | 18,050.00 |
Deductions for the above amounts were taken by petitioner on its tax returns for the years in which the charge-offs were made.
In its excess profits tax returns for the years 1942 and 1943, petitioner1951 U.S. Tax Ct. LEXIS 180">*191 included the bonds which it still owned in its equity invested capital at a figure which did not take into account the charge-off which had been made in 1932. Respondent determined that the adjusted basis of the bonds must reflect the 1932 reduction in their basis and gave the following explanation of his determination:
Due consideration has been given to your protest executed December 11, 1945, in which you seek the restoration to the residual basic cost of R. D. No. 2047 bonds, sums claimed as partial bad debt deductions of $ 50,000.00 in each of the returns for 1930 and 1931, a total of $ 100,000.00, which aggregate sum was written out of the bond investment account in 1932. The alleged purpose of restoration of the sum of $ 100,000.00 is to augment equity invested capital per books at beginning of years 1942 and 1943, in the respective amounts of $ 75,723.93 and $ 58,653.75. It is held that the sums of $ 50,000.00 claimed as partial bad debts on No. 2047 bonds in each of the years 1930 and 1931 and written out of the bond investment account in 1932, conforms with the accepted requirements under the Revenue Act of 1928, thereby justifying no restoration to the basic book cost1951 U.S. Tax Ct. LEXIS 180">*192 of the sum of $ 100,000.00 previously written off and, accordingly, the alleged resulting increase in equity invested capital at the beginning of years 1942 and 1943, in the respective amounts of $ 75,723.93 and $ 58,653.75, are denied.
During the year 1942 petitioner sold $ 70,287.24 par value of the bonds for $ 31,649.26. Petitioner claimed a loss of $ 13,705.80, contending 16 T.C. 1202">*1207 that the adjusted basis of the bonds was $ 45,355.06. Respondent computed the adjusted basis to be $ 28,284.88 and determined that a gain of $ 3,364.38 had resulted, of which $ 2,411.73 was not subject to tax.
OPINION.
1951 U.S. Tax Ct. LEXIS 180">*193 Petitioner relies upon the decision of this Court in
Historically and recognizedly, bank deposits have never been regarded as representing "borrowed capital," within the commercial connotation of that term. As the Iowa Supreme Court said in
1951 U.S. Tax Ct. LEXIS 180">*195 The decision of the Court of Appeals was expressly followed by us in
Petitioner argues that the certificates of deposit which it issued to the state and county treasurers present a stronger case for inclusion as borrowed capital under
Both classes of certificates of deposit were issued in the identical form. The fact that petitioner-bank was required to pledge security for the deposits made by the state and county treasurers does not change their nature as deposits and make them borrowed capital under
It is held that the certificates of deposit issued by petitioner to private depositors and the certificates of deposit which it issued to the state and county treasurers do not constitute borrowed capital under
The first question that must be decided under this issue is whether, assuming that petitioner is correct and a mistake of law was made whereby petitioner erroneously took partial bad debt deductions in 1930 and 1931, it is nevertheless estopped in this proceeding from assuming a position contrary to the position which it maintained in its returns for 1930 and 1931. It is undisputed that petitioner took as deductions in its returns for each of the years 1930 and 1931 $ 50,000 which it claimed under "Other deductions" as a "Reserve for Depreciation Loss on Bonds Per Order Chief Bank Examiner" (although the only tax benefit1951 U.S. Tax Ct. LEXIS 180">*199 which it received from the deductions was as an offset to its net income of $ 5,564.54 computed without benefit of the deduction for 1930). However, petitioner did not make a false, or even an erroneous, misrepresentation of material fact to respondent in 1930 or 1931. Respondent was not ignorant of the truth, nor did he detrimentally change his position in reliance on any representation by petitioner. All the facts upon which the petitioner based the deductions on its returns were disclosed by petitioner, and its return for 1930 was investigated by a revenue agent with specific reference to the deduction taken because of the depreciation in value of the bonds, and the taking of the deduction was approved. The only mistake made was as to the law.
An analogous situation arose in
The Commissioner's first point bears the earmarks of the defense of estoppel. Nevertheless, the record here leaves nothing to support it, for the Commissioner was acquainted with all the facts at the appropriate time; there was no misrepresentation, no misstatement, nor any failure to report. The long and short of it is that the Commissioner made an error of law in determining the taxpayers' (and trusts') income tax liability for 1951 U.S. Tax Ct. LEXIS 180">*201 1930, which is now walled up by the statute of limitations. What the Commissioner urges, however, is a duty of consistency upon the part of the taxpayers in their dealings with him which requires that the earlier treatment be continued even though the taxpayers acted in good faith and the technical elements of estoppel may be absent. We think the weight of authority is against Commissioner on the facts of the cases here in controversy. * * *
See, also,
1951 U.S. Tax Ct. LEXIS 180">*202 The concept of "earnings and profits" for the purpose of computing equity invested capital under
The law which governs the years 1930 and 1931 is the Revenue Act of 1928. Under section1951 U.S. Tax Ct. LEXIS 180">*203 23 (j) of that statute, a bad debt deduction could be taken only for "debts ascertained to be worthless and charged off within the taxable year * * *; and when satisfied that a debt is recoverable only in part, the Commissioner may allow such debt to be charged off in part." A taxpayer who ascertained that he had 16 T.C. 1202">*1211 suffered a partial bad debt loss might elect either to take an immediate deduction for the partial worthlessness, or, if he desired, wait until the debt was totally worthless or until its ultimate disposition to take a deduction.
The evidence is clear that petitioner did not make any charge-off on its books of the partial worthlessness of the Reclamation District bonds in 1930 or 1931, during which years petitioner was on the specific charge-off method of accounting for bad debts. All that was done by petitioner in 1930 and 1931 was to set up a valuation reserve for depreciation of the bonds which it owned on the recommendation of the bank examiner. The amount at which the Reclamation District bonds were carried was not affected by the setting up of the reserve, which did not eliminate the partial worthlessness 1951 U.S. Tax Ct. LEXIS 180">*205 from petitioner's book assets. The reserve set up was a general reserve because of the finding of the bank examiner that there had been a substantial depreciation in the value of the bonds carried in petitioner's general bond account. No specific charge-off of any part of the Reclamation District bonds was made in 1930 or 1931.
In
* * * [The procedure followed] not only fails to demonstrate a charge-off of these items, but in fact indicates the contrary. It did not "effectually eliminate 16 T.C. 1202">*1212 the amount of the bad debt from the book assets of the taxpayer."
In this proceeding as well, petitioner, having failed to meet the requirements of the statute, was not entitled to a partial bad debt deduction in 1930 or 1931. Petitioner's accumulated earnings and profits, therefore, were1951 U.S. Tax Ct. LEXIS 180">*207 incorrectly reduced by the amounts taken as losses in those years.
The fact that petitioner was not entitled to take a deduction for a partial bad debt loss in either 1930 or 1931, however, does not mean that it was not entitled to take the loss at some future date. "Partial worthlessness, as distinguished from total uncollectibility is a ground which may be pursued or relinquished by a taxpayer entirely at his option,"
It is held that petitioner, in the computation of its equity invested capital, may increase its accumulated earnings and profits for the years 1942 and 1943 by that part of the $ 100,000 improperly charged against its accumulated earnings and profits in 1930 and 1931 which is proportionate to the Reclamation District bonds which it owned in 1942 and 1943.
16 T.C. 1202">*1213
Under
1. The form of the certificates of deposit is as follows:
Term Certificate of Deposit Not subject to check
THE CAPITAL NATIONAL BANK of Sacramento
Sacramento, California
Teller
Vice President Cashier
This certificate will not bear interest after maturity.↩
2.
(a) Borrowed Capital. -- The borrowed capital for any day of any taxable year shall be determined as of the beginning of such day and shall be the sum of the following: (1) The amount of the outstanding indebtedness (not including interest) of the taxpayer which is evidenced by a bond, note, bill of exchange, debenture, certificate of indebtedness, mortgage, or deed of trust, * * *↩
3. Regs. 112, sec. 35.719-1.
* * * *
The term "certificate of indebtedness" includes only instruments having the general character of investment securities issued by a corporation as distinguishable from instruments evidencing debts arising in ordinary transactions between individuals. Borrowed capital does not include indebtedness incurred by a bank arising out of the receipt of a deposit and evidenced, for example, by a certificate of deposit, a passbook, a cashier's check, or a certified check.↩
4. Deering, General Laws of California (1937 Supp.), Act 2834, secs. 1, 4; Act 2834 (a), secs. 1, 4.↩
5.
6.
7. Under section 734 (b), adjustments for the inconsistent position can be made relating to the years 1930 and 1931.
8.
9. Examination of the deficiency notice discloses that if petitioner did, in fact, suffer a loss upon the sale of the bonds, it had a net loss from security sales within the meaning of
10. Any gain on the sale of the bonds would be a capital gain and would be excluded from the petitioner's excess profits net income under section 711 (a) (2) (D).↩