R imposed a jeopardy assessment and levy on P under authority of
103 T.C. 416">*416 OPINION
Parr,
103 T.C. 416">*417 In the notice of deficiency respondent determined the following deficiencies in and additions to petitioner's Federal income taxes:
Additions to tax | |||||
Sec. | Sec. | Sec. | Sec. | ||
Year | Deficiency | 6653(b)(1) | 6653(b)(1)(A) | 6653(b)(1)(B) | 6661(a) |
1986 | $ 58,761 | $ 44,071 | 1 | $ 14,690 | |
1987 | 43,247 | 32,435 | 10,812 | ||
1988 | 156,393 | $ 117,295 | 39,098 |
At trial, the parties made a number of concessions that dramatically reduce the deficiency amounts and additions to tax, including respondent's concession that petitioner is not liable for additions to tax due to fraud. Those concessions are not reflected in the amount assessed. Respondent continues to assert the alternative position that petitioner is liable for additions to tax due to negligence.
When the petition was filed in this case, petitioner resided in New Mexico.
On July, 1, 1994, petitioner sold real property located in Dona Ana County, New Mexico, for $ 280,000. Petitioner's home had been listed openly with a registered real estate agent for 6 months prior to sale. The proceeds of the sale were disbursed as follows: $ 41,496.58 to pay off the previously existing mortgage on the property; $ 20,837.25 for real estate commissions; $ 32,500 to establish an escrow to be used to pay the disputed Federal income taxes1994 U.S. Tax Ct. LEXIS 72">*77 in this case in compliance with a preexisting divorce agreement; $ 3,370.11 for miscellaneous expenses: title insurance, escrow fees, taxes, etc.; and petitioner received a check for $ 81,796.06 and took back a second mortgage for $ 100,000. At the closing petitioner was issued a substitute Form 1099 indicating that he had sold the property for $ 280,000 and reflecting petitioner's New Mexico post office box address.
Sometime between July 1, 1994, and July 11, 1994, petitioner, accompanied by 16 individuals, moved from Mesquite, New Mexico, to Vancouver, Washington. Petitioner notified the U.S. Postal Service of his new address. We do not know the exact date petitioner notified the Postal Service, but petitioner supplied a copy of an envelope from the New Mexico103 T.C. 416">*418 bank on which the $ 81,796.06 check was drawn. The envelope had a Postal Service postmark dated July 11, 1994, and had a Postal Service change of address label affixed to the envelope. For this reason, we know the new address was supplied to the New Mexico Postal Service on or before July 11, 1994.
In a notice dated July 8, 1994, respondent, under authority of
Taxable year | Tax | Additions to tax |
1986 | $ 58,761 | $ 58,761 |
1987 | 43,247 | 43,247 |
1988 | 156,393 | 156,393 |
1994 U.S. Tax Ct. LEXIS 72">*79 Petitioner, on July 11, 1994, deposited the check from the sale of the New Mexico property into a bank account at the Bank of Washington, in Washington State. A letter dated July 18, 1994, from the Bank of Washington, notified petitioner that payment had been stopped on the $ 81,796.06 check.
In a letter to respondent dated July 21, 1994 (which petitioner indicated was mailed by certified mail, return receipt requested), petitioner through counsel requested an administrative review of the jeopardy assessment by the District Director at Albuquerque, New Mexico, in accordance with
In a letter dated July 27, 1994, respondent's Appeals officer confirmed the parties' telephone conversation of that date and notified petitioner that the Appeals 1994 U.S. Tax Ct. LEXIS 72">*80 officer would recommend that the jeopardy assessment should
In a letter dated August 3, 1994, respondent's Associate Chief of the Appeals Office of the Southwest Region indicated that he had reviewed the District Director's determination and sustained the jeopardy assessment determination, with the provision that the assessment would be adjusted to take into consideration the stipulations and concessions previously agreed to by the parties. In a letter dated August 4, 1994, petitioner asked for a reconsideration of the Appeals officer's determination.
On August 11, 1994, petitioner 1994 U.S. Tax Ct. LEXIS 72">*81 filed a motion for review of the jeopardy assessment and levy with this Court pursuant to
On August 22, 1994, respondent timely filed her response to petitioner's motion for review of jeopardy assessment. Respondent's response is due 10 days following petitioner's initial motion; however August 21, 1994, was a Sunday, and thus respondent's August 22, 1994, filing is timely. Rules 25(a)(2), 56(d).
103 T.C. 416">*420 With her response, respondent specifically answered each of petitioner's allegations1994 U.S. Tax Ct. LEXIS 72">*82 and included seven affidavits from individuals to support the jeopardy assessment and levy. The affidavits contain statements that show that on July 5, 1994, the revenue agent (hereinafter RA) who audited petitioner's 1986, 1987, and 1988 Federal income tax returns learned that petitioner had sold his New Mexico property on July 1, 1994. The RA also gathered information that could have led her to believe that petitioner was moving to Washington, Oregon, or Canada. Respondent alleges that the information contained in the affidavits creates a reasonable inference that collection of the deficiency (if respondent is ultimately successful in the pending case) is in jeopardy.
With her response, respondent also included a recomputation of petitioner's tax liability. The recomputation includes taxes, additions to tax, and interest. The recomputed liability totals $ 318,800.07. By telephone conference with the parties on August 15, 1994, respondent has assured the Court that the assessment is being partially abated to conform with the recomputed potential liability.
If the Commissioner believes the collection of a deficiency in income tax will be jeopardized by delay, then the Commissioner1994 U.S. Tax Ct. LEXIS 72">*83 is required to assess such deficiency immediately, with interest, additions to tax, and any other amounts provided by law. Sec. 301.6861-1(a), Proced. & Admin. Regs. If a notice of deficiency has been mailed to the taxpayer before it is discovered that delay would jeopardize the assessment or collection of tax, the Commissioner's jeopardy assessment can be made in an amount greater or less than the amount included in the notice of deficiency. Sec. 301.6861-1(b), Proced. & Admin. Regs.
The Commissioner will make an assessment if collection is determined to be in jeopardy because at least one of the conditions described in
Those conditions are: (i) The taxpayer is or appears to be designing quickly to depart from the United States or to conceal himself or herself; (ii) the taxpayer is or appears to be designing quickly to place his, her, or its property beyond the reach of the Government either by removing it from the United States, by concealing it, by dissipating it, or by 103 T.C. 416">*421 transferring it to other persons; and (iii) the taxpayer's financial solvency is or appears1994 U.S. Tax Ct. LEXIS 72">*84 to be imperiled.
If the Commissioner makes a finding that the collection of any tax is in jeopardy, notice and demand for immediate payment of such tax may be made by the Commissioner and, upon failure or refusal to pay the tax, immediate collection of the tax by levy shall be lawful. Sec. 6331(a); sec. 301.6331-1(a)(2), Proced. & Admin. Regs. As used in section 6331, the term "tax" includes any interest, additions to tax, and any other amounts provided by law, including assessable penalties, together with costs and expenses. Sec. 301.6331-1(a)(1), Proced. & Admin. Regs.
Within 5 days after the date an assessment is made under
Judicial review is permitted if it is requested 90 days from the time the Commissioner notifies the taxpayer of the Commissioner's determination.
This Court has jurisdiction when a case regarding the taxes that are the subject of the jeopardy assessment is pending before us.
Respondent has the burden of proof on the first issue, and petitioner has the burden of proof on the second issue.
The standard of proof by which reasonableness must be established is something more than "not arbitrary or capricious" and something less than "substantial evidence".
The evidence that is admissible and on which the Court can rely includes evidence that would not be admissible in a civil or criminal trial. See
Admissible evidence includes affidavits.
Thus, we "must consider any information that has a bearing" on the two issues the Court must address.
This evidence includes information unknown to the Commissioner when he or she made the jeopardy assessment but discovered after that time.
In order to establish a reason to believe that the collection of a tax is in jeopardy, the Commissioner typically relies on one of the three conditions listed in
Once the taxpayer has properly filed a motion under
If a hearing is required, it will ordinarily be held at the place of trial previously designated, unless otherwise ordered by the Court.
On August 24, 1994, petitioner filed his reply and counter-affidavits. 5
All procedural requirements of this case have been met.
103 T.C. 416">*424 In making our decision, we must consider all information available, even information that has become available since the jeopardy assessment and levy were made.
In her response to petitioner's motion for reconsideration, respondent asserts that the three conditions in the Income Tax Regs., under
However, in our review of jeopardy assessment cases we have found no case in which an assessment was upheld that did not contain at least one of the three conditions listed in the regulations. Even the two cases respondent cites were determined on this basis, and the language relied upon by respondent is thus dicta. Moreover, other courts have disagreed with respondent's position:
Although the statute itself is silent on what constitutes "reasonableness", Treasury Regulation on Income Tax
* * *
Although there is no explicit statutory articulation of these three grounds as the sole criteria of reasonableness, the legislative history supports such a conclusion. See Joint Comm. on Taxation, 1994 U.S. Tax Ct. LEXIS 72">*92 General Explanation of the Tax Reform Act of 1976, H.R. Doc. No. 10612, 94th Cong., 2d Sess. 361 n.1 & 536 n.1. (1976). Furthermore, these standards have been adopted by every court that has considered the question of reasonableness under § 7249. * * *
[
Moreover, in the instant case respondent has presented no assertions that would require us to expand the conditions under which a jeopardy assessment would be valid. Since no cases expand the three conditions and since the evidence respondent presents falls within the three established conditions, we decline to expand the number of conditions that justify a valid jeopardy assessment and/or levy.
Respondent asserts that petitioner intended to flee the United States. The income tax regulations first state: "(i) The taxpayer is or appears to be designing quickly to depart from 103 T.C. 416">*425 the United States or to conceal himself or herself".
Petitioner's new address is in Vancouver, Washington, USA. Vancouver, Washington, is located in the southwest corner of Washington State, approximately 250 miles south of Canada. Mobil 1994 Travel Guide Northwest & Great Plains (P-H) 17 (1994). 6
From the information provided by the parties, it appears petitioner moved July 1, 1994. Sometime before July 11, 1994, petitioner notified the Postal Service that he was moving. July 11, 1994, was the same date petitioner deposited his check from the sale of his property. It may have been1994 U.S. Tax Ct. LEXIS 72">*94 the first day, in the process of moving, that he had an opportunity to obtain a post office box in Washington or to open a bank account.
From the affidavits respondent presented, we can understand why respondent prior to July 11, 1994, may have believed that petitioner appeared to be designing quickly to depart from the United States or to conceal himself. However, by the end of July respondent was well aware that petitioner was in Vancouver, Washington, not Vancouver, Canada. Petitioner had supplied respondent with his address, and was actively communicating with respondent through his attorney. Respondent should have realized that the individuals who had provided the information that petitioner was going to Canada might have simply heard "Vancouver" and assumed that meant Canada. Also, if an individual desired to conceal himself, it does not make sense that he would provide his forwarding address to the Postal Service. Moreover, as petitioner points out in his response, he spoke Spanish fluently, had two churches in Mexico, and lived 40 miles from the Mexican border. If petitioner had wished to leave the country, he could have easily done so.
103 T.C. 416">*426 For the above reasons, 1994 U.S. Tax Ct. LEXIS 72">*95 we hold the first condition of
Respondent asserts that petitioner sold his only substantial asset and that he had left, or was leaving, the country. Respondent also1994 U.S. Tax Ct. LEXIS 72">*96 asserts that petitioner has no intention of using any of the proceeds of the sale to pay his taxes. Instead, respondent asserts, petitioner plans to dissipate the funds on living expenses and attorney's and accountant's fees.
The second alternative condition in the regulations is that "(ii) The taxpayer is or appears to be designing quickly to place his, her, or its property beyond the reach of the Government either by removing it from the United States, by concealing it, by dissipating it, or by transferring it to other persons."
The evidence does not support respondent. First, respondent's affidavits present information from a real estate sales-person that indicates that petitioner may have another piece of real estate that he would like to sell. Second, we have already established that petitioner is residing in the United States. Third, respondent provided no evidence that petitioner does not intend to pay his Federal income tax liability. Petitioner, in fact, has acted in a way that indicates he does intend to pay his Federal income tax liability. When petitioner was divorced in 1990, part of the divorce agreement awarded him the1994 U.S. Tax Ct. LEXIS 72">*97 marital home, with the provision that when 103 T.C. 416">*427 the home was sold, if disputed Federal income taxes had not been paid, a $ 32,500 escrow account would be established to aid in the payment of such taxes. Upon the sale of the home on July 1, 1994, petitioner did indeed establish the escrow account. This tends to show that petitioner does intend to pay his Federal income taxes. Fourth, even though taxpayers have a potential outstanding tax liability, they still have a right to continue to pay living expenses and attorney's and accountant's fees.
Respondent fears that petitioner will take the cash received from the sale of his New Mexico property and use it to support 16 individuals who accompanied petitioner to Washington. The information respondent submitted with her response to petitioner's motion shows that the vast majority of petitioner's group were employed in New Mexico. Additionally, the group members were giving a certain percentage of their income to support the group. There is no evidence provided by respondent that this past method of support will not continue in Washington.
Also, petitioner sold his home in New Mexico and moved to Washington. Petitioner states1994 U.S. Tax Ct. LEXIS 72">*98 he intended to replace the home with another, not dissipate the proceeds. Petitioner did not attempt to transfer or hide the assets in another person's name; the cash proceeds were openly deposited in a U.S. bank account in petitioner's name.
Moreover, petitioner argues that $ 32,500 is in escrow for payment of the taxes, so it cannot be in jeopardy. Further, the second mortgage is payable monthly, and likewise cannot be dissipated. Respondent alleged that petitioner attempted to sell the $ 100,000 mortgage note, but petitioner denies this. Even if true, there are reasons other than the dissipation of assets for petitioner to attempt to liquidate the note. Perhaps petitioner would have done this so that he could have more cash to purchase a new home in Washington.
For the above reasons, we hold the second condition of
Respondent alleges that petitioner is dissipating his assets, and respondent's Appeals officer stated that petitioner's 103 T.C. 416">*428 financial condition appears to be imperiled. The third alternative1994 U.S. Tax Ct. LEXIS 72">*99 condition in the regulations is that "(iii) The taxpayer's financial solvency is or appears to be imperiled."
In a jeopardy assessment case, respondent must prove the assessment and levy are reasonable, and petitioner must prove the amount is inappropriate. Respondent has not proved the jeopardy assessment and levy are reasonable, so we do not need to consider whether the amount as reduced by respondent is appropriate.
1994 U.S. Tax Ct. LEXIS 72">*100 Because respondent has not proved that the jeopardy assessment and levy are justified as required, we hold that the jeopardy assessment must be abated and levy thus released.
1. All Rule references are to the Tax Court Rules of Practice and Procedure, and all section references are to the Internal Revenue Code.↩
2. Reply briefs were filed in June 1994. On the date of the jeopardy assessment, the case had not yet been decided.↩
1. 50 percent of the interest due on the portion of the underpayment attributable to fraud.↩
3. The jeopardy assessment was also addressed to "Luz Elena McWilliams". According to documents filed with petitioner's current motion, the McWilliamses were divorced on Sept. 13, 1990. Luz Elena McWilliams is not a petitioner in this case. She was originally indicated as a petitioner in this case. However, she neither signed the original petition nor ratified its filing on her behalf, and we ordered her dismissal from the case for lack of jurisdiction; we then ordered the name of the case to be changed to include only petitioner -- Robert Lee McWilliams.↩
4.
5. Petitioner asks that respondent's Exhibit I be stricken pursuant to Rule 52 as "immaterial, impertinent and scandalous." The exhibit concerns petitioner's religious practices and alleged violent behavior. We agree with petitioner, and we therefore disregard Exhibit I.↩
6. Petitioner was previously located in Mesquite, New Mexico. According to affidavits submitted by respondent, Mesquite is close to White Sands, New Mexico. The most northern point of White Sands is within 140 miles of Mexico. Mobil 1994 Travel Guide Southwest & South Central (P-H) 12 (1994).↩