2004 Tax Ct. Memo LEXIS 84">*84 Order was entered granting petitioner's, and denying respondent's, motion to dismiss for lack of jurisdiction.
MEMORANDUM OPINION
HOLMES, Judge: In September 1998, petitioner Thomas Hunter moved from Gallatin to Hendersonville, Tennessee. He knew when he moved that the IRS was auditing his tax returns. In October 1998, he hired new accountants to represent him, and filed a power-of- attorney form that both directed the IRS to send copies of all correspondence to their office in Nashville and listed his own new address in Hendersonville. In January 1999, respondent sent notices of deficiency for the tax years under audit to petitioner at his old address in Gallatin. He never received them. Respondent did not mail duplicates to him at his new address, nor did he mail duplicates to petitioner's accountants in Nashville.
The case comes to us on the parties' cross-motions to dismiss for lack of jurisdiction. The question presented is whether petitioner, by filing this power-of-attorney form, gave respondent a clear and concise notification of his change of address.
2004 Tax Ct. Memo LEXIS 84">*85 Background
This case turns on the timing of a few key events:
August 14, 1997 Petitioner files 1991-1995 returns .
July 30, 1998 Petitioner files 1996 return. The parties
assume that this return listed petitioner's
Gallatin address.
August 13, 1998 The revenue agent issues her findings on
petitioner's 1991-1996 tax liability in a
revenue agent's report that she sends to
petitioner at his Gallatin address. He
receives it, but doesn't respond.
September 1998 Petitioner moves to Hendersonville,
Tennessee.
October 23, 1998 Petitioner signs Form 2848 ("Power of
Attorney and Declaration of
Representative") listing his
Hendersonville address and naming three
2004 Tax Ct. Memo LEXIS 84">*86 accountants as his designated
representatives for the 6 tax years
under audit. The form directs
respondent to send copies of all
correspondence to both the first and
second accountants named on the form.
November 19, 1998 The IRS service center in Memphis
receives and processes the Form 2848.
January 28, 1999 Respondent issues three notices of
deficiency covering all 6 tax years.
Respondent sends these notices to the
Gallatin address. All are sent by
certified mail; two are returned to the
IRS as unclaimed, and there is no record
of what happened to the third.
July 1999 Petitioner receives statements of
account for each of the2004 Tax Ct. Memo LEXIS 84">*87 years in
question from the IRS, sent to him at
his Hendersonville address.
September 1999 Petitioner begins suggesting compromise
to resolve all years in question.
July 2000- Petitioner continues settlement talks,
April 2002 first with a revenue agent and then with
the IRS Appeals office.
June 10, 2002 Petitioner files petition. (In lieu of
the notices of deficiency, which he
still hasn't received, he attaches the
revenue agent's reports from August
1998).
Petitioner continues to be a resident of Tennessee, as he was when he filed his petition. When the case neared trial in Nashville, both parties moved to dismiss the petition for lack of jurisdiction -- petitioner on the ground that respondent never sent a notice of deficiency to his last known address, and respondent on the ground that petitioner2004 Tax Ct. Memo LEXIS 84">*88 filed his petition well outside our 90-day jurisdictional limit. The parties have stipulated or not contested the key facts and documents. 1
Discussion
Our jurisdiction to redetermine deficiencies exists only when the Commissioner issues a notice of deficiency and a taxpayer files a timely petition to redetermine that deficiency.
In
a taxpayer's last known address is that address which appears on
the taxpayer's most recently filed return, unless respondent has
been2004 Tax Ct. Memo LEXIS 84">*90 given clear and concise notification of a different
address.
We also held in Abeles that once a taxpayer notifies the IRS that his address has changed, the Commissioner "must exercise reasonable care and diligence in ascertaining, and mailing the notice of deficiency to, the correct address."
2004 Tax Ct. Memo LEXIS 84">*91 Two courts have already answered the question. In
This case would seem only a bit different -- here petitioner directed that copies be sent to his accountants, and it is he rather than respondent who is claiming that a Form 2848 effectively makes a change of address. Petitioner suggests2004 Tax Ct. Memo LEXIS 84">*92 neither of these distinctions makes a difference. In his view, for a filing to change a "last known address" it must only be (1) clear and concise, (2) a notification, (3) and show a different address from the last one sent to the IRS. He then insists that his October 1998 power-of- attorney form meets all three requirements. It was "clear and concise" because the Form 2848 was the IRS's own form; it was a notification because it was sent to the appropriate IRS service center, as the IRS required, see
Respondent chose not to file a reply brief and so missed his chance to grapple with Rizzo and Johnson. Instead, he argues that petitioner's2004 Tax Ct. Memo LEXIS 84">*93 proposed test leaves out a critical fourth element: An express statement of intent by a taxpayer that his address of record be changed to his new address. See
Respondent finds this fourth element not in any case involving powers of attorney, but in other cases stating seemingly broad principles of "last known address" law. He begins with
Respondent then cites cases in which various documents other than power-of-attorney forms were found insufficient to rebut this presumption. His leading case is
Tadros argued that he had told the Commissioner of his move to New Jersey in a letter he had written to the IRS in January 1983 on stationery printed with his New Jersey address. His letter asked for copies of correspondence and said that he needed the copies to replace originals that he had "'lost2004 Tax Ct. Memo LEXIS 84">*95 or misplaced in the process of moving.'"
The Second Circuit held that the letter was a mere "routine inquiry," not amounting to an official change of address:
Tadros's letter * * * indicated neither that Tadros had
permanently moved, nor whether the Jersey City address on the
letterhead was his new place of residence. Nor did it mention
the old address or indicate that it was no longer to be
used.
The steps taken by the IRS when the March 8 notice was returned
as undeliverable show that it exercised reasonable care to
ascertain Tadros's new address.
Id. (emphasis added).
The letter Tadros had sent the IRS was not an IRS form, and not in a format drafted by the IRS itself. Respondent would nevertheless have us find that petitioner's power of attorney is like Tadros's stationery -- it too made no mention of his old address and did not expressly indicate that the old address was no longer to be used. We do not, however, read
Respondent next points to
When the notice was returned as undeliverable, the IRS relied on the erroneously completed Form 872 as evidence that the Pyos' old address was their "last known address." The Court rejected this argument, holding that an "inadvertent" failure by a taxpayer to correct an IRS mistake on a form would be insufficient to establish a last known address, especially when so much time had passed since the Pyos sent back the Form 872 and the IRS had begun writing to them at their new address. Pyo does2004 Tax Ct. Memo LEXIS 84">*97 not support the proposition that a form filed for a purpose other than changing an address will not create a new "last known address"; rather, it teaches that taxpayers will not be penalized for inadvertently failing to correct IRS mistakes.
Petitioner's Form 2848, in contrast, calls upon taxpayers to fill it out themselves and include their address. "[I] t seems anomalous to permit * * * [respondent] to prescribe the medicine and then punish the patient for taking it."
But we reject the assertion that a valid change-of-address notification must use language equivalent2004 Tax Ct. Memo LEXIS 84">*98 to "please note that this is a change of address." As petitioner points out, no such glaring notification exists on a tax return, or on the power-of-attorney forms given effect in Rizzo and Johnson.
We also think that respondent's position overlooks a more general theme in the case law; namely, that the IRS is chargeable with knowing the information that it has readily available when it sends notices to taxpayers. As courts have repeatedly observed, the steady advance of technology continues to lighten the IRS's burden in searching its own records for current address information.
Petitioner is thus right in noting that address information on the Form 2848 is not mere surplusage. The IRS asks for that information and solicits taxpayer's directions on what address should be used for original and duplicate notices. This strongly implies that respondent will actually incorporate the information on the form into its databases and use the information when sending notices to a taxpayer's "last known address."
Respondent's position is essentially that it is up to taxpayers to flag change-of-address information2004 Tax Ct. Memo LEXIS 84">*99 in a way so obvious as to be immune from occasional bureaucratic irregularities. But the minimal burden to the IRS must be balanced against the potentially serious consequences for taxpayers who rely on the IRS to process in a businesslike way the information that it receives. The Tadros decision itself recognized that the IRS has an "obligation" to "exercise reasonable care in determining an address."
the IRS' computer system was available to respondent's agent
responsible for mailing the notice of deficiency, and * * * the
system would have reflected the [correct address] had such agent
caused a computer search of petitioner's TIN.
2004 Tax Ct. Memo LEXIS 84">*100 Respondent's failure to act on what he knew continued even after the notices were returned as "unclaimed". Respondent's own manual suggests that he should have kept trying to find the right address. 1 Audit, Internal Revenue Manual (CCH),
Nothing compels the Commissioner to ask taxpayers to list their address on a Form 2848. By doing so, and by using that requested information to identify taxpayers within IRS records, respondent bears the burden of conforming his actions to the knowledge at his disposal. See
We agree with petitioner that listing his Hendersonville address on the Form 2848 provided respondent with "clear and concise" notification of his change of address. His Hendersonville address thus became his "last known address" under
To reflect the foregoing,
An order will be entered granting petitioner's, and denying respondent's, motion to dismiss for lack of jurisdiction.
1. The most important fact that the parties did not stipulate is whether petitioner ever received a notice of deficiency. Petitioner testified at the short hearing held before the case was submitted that he never had. Respondent objected to the proposed finding of fact citing that testimony, but only by characterizing the testimony as "self-serving." On this crucial point, we agree with petitioner -- noting especially that respondent, in his own motion to dismiss, asserted only that he sent three notices of deficiency to petitioner -- the three concededly sent to petitioner's old address in Jan. 1999.↩
2. Subsequent section references are all to the Internal Revenue Code.↩
3. Respondent has issued a regulation,
4. Most circuits consider the "last known address" issue to be a purely factual question, e.g.,
5. Respondent suggests that petitioner could have given the form to the revenue agent working on the audit. This is true, but hardly decisive -- respondent's own procedure allows a taxpayer to mail the form to the Service Center that received his last return.↩
6. Note that we have held that revenue procedures generally, and
7. The record in this case contains scant information on the procedures and database capabilities of respondent. We are guided, however, by the stipulation of the parties that the Form 2848 was processed on Nov. 19, 1998; and by
8. Respondent points out that there is no record of the third notice's being returned. Because we find that respondent failed to issue any of these notices to petitioner's last known address, the ambiguity surrounding the ultimate fate of this one notice is irrelevant. Respondent also argues that the house number on the Form 2848 was incorrectly listed as 2200, rather than 2220. This would only be relevant if respondent had used it to address the notices of deficiency at issue.↩