Can The IRS Use A Private Debt Collector Against You?

On December 4, 2015 the President signed into law a five- year $305 billion highway bill.

One of the contentious issues was the 18.4 cents per gallon gasoline tax. You know the politics: one side wanted to increase it and the other did not.  Unable to come to agreement, Congress looked elsewhere for the money.

One place they looked was the use of private debt collectors for IRS debt.

Ohio routinely farms out its tax collection to private agencies. Does it work? Well, let me answer the question this way: I usually request the file be returned to the Ohio Department of Taxation. Why? Because the collection agency could not care less whether the debt is accurate or not, whether the penalties are correctly calculated, or whether there is even a tax case to be collected. I have, for example, seen Ohio farm out collection on cases where the appeal period was still open. Although Ohio is not especially friendly to work with, they are better than dealing with a debt collector. You would be pressed to find too many Ohio tax CPAs that have positive opinions about this arrangement.

Congress has gone down this path before. The most recent collection program started in 2006 and ended in 2009. The program was widely considered a failure, as was its predecessor in 1996-1997. After accounting for commissions paid as well as internal IRS costs to administer, both programs actually caused losses for the Treasury.  

The National Taxpayer Advocate, Nina Olsen, expressed her feelings clearly to Congress:

Based on what I saw, I concluded the program undermined effective tax administration, jeopardized taxpayer rights protections, and did not accomplish its intended objective of raising revenue. Indeed, despite projections by the Treasury Department and the Joint Committee on Taxation that the program would raise more than $1 billion in revenue, the program wound up losing money. We have no reason to believe the result would be any different this time.”

The Federal Trade Commission routinely reports more complaints about debt collectors than any other industry. FTC chairwoman Edith Ramirez stated that over 280,000 federal complaints were filed in 2014 alone.

You know that Congress would not care.

Section 6306 of the highway bill requires the IRS to enter into collection contracts for the collection of certain inactive tax receivables, defined as:

·        A receivable removed from active inventory for lack of resources or because the taxpayer cannot be located;

·         A receivable where at least one-half of the statute of limitations period has expired and no IRS employee has been assigned; or

·        A receivable assigned for collection but at least one year has passed since taxpayer contact

Did you catch the use of the word “requires?” That is quite the departure from pre-existing law, which “authorizes” the IRS to use private debt collection agencies.

There are some exceptions, such as:

·        Pending or active offers in compromise or installment agreements

·        Innocent spouse

·        Deceased taxpayers

·        Minors

·        Taxpayers in designated combat zones

·        Taxpayers in examination or appeal

·        Victims of identity theft

The last one is disconcerting, especially after the Treasury Inspector General for Tax Administration reported in 2014 that it received over 90,000 complaints about scam telephone calls demanding payment from impostors claiming to be the IRS.  IRS Commissioner Koskinen cited the TIGTA report and reminded taxpayers that:

Taxpayers should remember their first contact with the IRS will not be a call from out of the blue, but through official correspondence sent through the mail.”

Well, that used to be true.

1000% Political Sales Tax

Let’s return to the topic of state tax lunacy.

Our destination? California, a frequent contestant (if not winner) of the popular gameshow “Five Short of a Nickel.”

A citizen initiative posted on the California Attorney General’s website provides the following:

This initiative amends the California Constitution, Article 13, Section 35,(b).

It adds a section 3 as follows:

"For the privilege of influencing public elections and political issues, a sales tax of 1,000% (one thousand percent) is hereby imposed upon Political Advertisements. The proceeds of which shall solely benefit California public education. There shall be no further exemptions to this tax except as federally required or as passed by a California ballot initiative.

Political Advertisements shall mean any political advertising delivered within the state of California. This is applicable to both cash and barter transactions. This includes but is not limited to all media spending by political parties, political action committees or candidates.

This sales tax will not apply to the first $1,000,000 (one million dollars) of spending within a calendar year by any tax entity. However, if a group of tax entities are controlled or coordinated then this first one million dollar of sales tax relief shall only apply to the group of entities and not to the individual entities.

If a Federal District Court or Supreme Court of the United States find this tax to be too high, then this law shall immediately ratchet down to the highest acceptable level and remain in place.”

Well then.

And it perfectly typifies much of what has contaminated tax law in recent years:

(1) The insistence on wielding tax law to accomplish a social program, whether by granting a boon (such as the new markets tax credit) or striking a blow (such as the ACA penalty). 

(2) The delegation of actual tax writing to a non-electable bureaucracy. For example, what in the world does “Political Advertisements” mean? He or she who gets to define this term will rank among the most powerful of California politicos.

(3)  An ignorance if not contempt for tax doctrines, precedent or potential litigation. To begin with, the California Franchise Tax Board would have to defend a 1000% tax against a free speech challenge under the First Amendment. One also wonders whether the "takings" clause of the Constitution could be invoked. Is this really a tax issue or just the overheated opinion of a grievance dispenser?

Citizen initiatives are peculiar to California politics. They began as a way to limit the outsized influence of special interests but have devolved into a means to sidestep Sacramento, assuming one can recruit a deep-heeled supporter willing to fund the initiative. I trust there is little chance that this one will pass.

Nonetheless, let’s give a round of applause as we present the award to this week’s winner.

When A Good Cause Is Not Enough

Let’s talk about the tax issues of tax-exempt entities. It sounds like a contradiction, doesn’t it?

It actually is its own area of practice. Several years ago I was elbow-deep working with nonprofits, and I attended a seminar presented by a specialist from Washington, D.C. All he did was nonprofits. At least he was in the right town for it.

There are the big-picture tax-exempt issues. For example, a 501(c)(3) has to be publicly-supported. You know there is a tractor-trailer load of rules as to what “publicly supported” means.

Then there are more specialized issues. One of them is the unrelated business income tax. The concept here is that a nonprofit cannot conduct an ongoing business and avoid tax because of its exemption. A museum may be a great charitable cause, for example, but one cannot avoid tax on a chain of chili restaurants by having the museum own them.

That is not what museums do. It is unrelated to “museum-ness,” and as such the chili restaurants will be taxed as unrelated business income.

Sometimes it can get tricky. Say that you have a culinary program at a community college. As part of the program, culinary students prepare meals, which are in turn sold on premises to the students, faculty and visitors. A very good argument can be made that this activity should not be taxed.  

What is the difference? In the community college’s case, the activity represents an expansion of the underlying (and exempt) culinary education program. The museum cannot make this argument with its chili restaurants.

However, what if the museum charges admission to view its collection of blue baby boots from Botswana? We are now closer to the example of culinary students preparing meals for sale. Exhibiting collections is what museums do.

I am looking a technical advice memorandum (TAM) on unrelated business income. This is internal IRS paperwork, and it means that an IRS high-level presented an issue to the National Office for review.

Let’s set it up.

There is a community college.

The community college has an alumni association. The association has one voting member, which is a political subdivision of the state.

The alumni association has a weekly farmers market, with arts and crafts and music and food vendors. It sounds like quite the event. It uses the parking areas of the community college, as well as campus rest rooms and utilities. Sometimes the college charges the alumni association; sometimes it does not.

The alumni association in turn rents parking lot space to vendors at the market.

All the money from the event goes to the college. Monies are used to fund scholarships and maintain facilities, such as purchasing a computer room for the library and maintaining the football field.

OBSERVATION: The tax Code does not care that any monies raised are to be used for a charitable purpose. The Code instead focuses on the activity itself. Get too close to a day-in-and-day-out business and you will be taxed as a business. Granted, you may get a charitable deduction for giving it away, but that is a different issue.

From surveys, the majority of visitors to the farmers market are age 55 and above.

There was an IRS audit. The revenue agent thought he spotted an unrelated business activity. The file moved up a notch or two at the IRS and a bigwig requested a TAM.

The association immediately conceded that the event was a trade or business regularly carried on. It had to: it was a highly-organized weekly activity.

The association argued instead that the event was its version of “museum-ness,” meaning the event furthered the association’s exempt purpose. It presented three arguments:

(1) The farmers market contributed to the exempt purpose of the college by drawing potential students and donors to campus, helping to develop civic support.

(2) The farmers market lessened the burden of government (that is, the college).

(3) The farmers market relieved the distress of the elderly.

The IRS saw these arguments differently:

(1) Can you provide any evidence to back that up? A mere assertion is neither persuasive nor dispositive.

COMMENT: The association should have taken active steps – year-after-year – to obtain and accumulate supporting data. It may have been worth hiring someone who does these things. Not doing so made it easy for the IRS to dismiss the argument as self-serving.

(2) At no time did the community college take on the responsibility for a farmers market, and the college is the closest thing to a government in this conversation. Granted, the college benefited from the proceeds, but that is not the test. The test is whether the association is (1) taking on a governmental burden and (2) actually lessening the burden on the government thereby.  As the government (that is, the college) never took on the burden, there can be no lessening of said burden.

COMMENT: This argument is interesting, as perhaps – with planning – something could have been arranged. For example, what if the college sponsored the weekly event, but contracted out event planning, organization and execution to the alumni association? 

(3) While the market did provide a venue for the elderly to gather and socialize, that is not the same as showing that the market was organized and worked with the intent of addressing the special needs of the elderly. 

COMMENT: Perhaps if the association had done things specifically for the elderly – transportation to/from retirement homes or free drink or meal tickets, for example – there would have been an argument. As it was, the high percentage of elderly was a happenstance and not a goal of the event.

There was no “museum-ness” there.

And then the association presented what I consider to be its best argument:

(4) We charged rent. Rent is specifically excluded as unrelated business income, unless special circumstances are present – which are not.

Generally speaking, rent is not taxable as unrelated business income unless there is debt on the property. The question is whether the payments the association received were rent or were something else.

What do I mean?

We would probably agree that leasing space at a strip mall is a textbook definition of rent. Let’s move the needle a bit. What would you call payment received for a hospital room? That doesn’t feel like rent, does it? What has changed? Your principal objective while in a hospital is medical attention; provision of the room is ancillary. The provision of space went from being the principal purpose of the transaction to being incidental.

The IRS saw the farmers’ market/arts and craft/et cetera as something more than a parking lot. The vendors were not so much interested in renting space as they were in participating (and profiting) from a well-organized destination and entertainment event. Landlords provide space. Landlords do not provide events. 

The IRS decided this was not rent.  

You ask why I thought this was the association’s best argument? Be fair, I did not say it was a winning argument, only that it was the best available.

The alumni association still has alternatives. Examination requested the TAM, so there will be no mercy there. That leaves Appeals and then possibly going to Court. A Court may view things differently.

And I am unhappy with the alumni association. I suspect that the farmers’ market went from humble origins to a well-organized, varied and profitable event. As a practitioner, however, I have to question whether they ever sought professional advice when this thing started generating pallet-loads of cash. Granted, the activity may have evolved to the point that no tax planning could save it, but we do not know that. What we do know is that little – if any – planning occurred. 

What If You Put Too Much In An IRA?

I am looking at a Tax Court case (Dunn v Commissioner) for $1,460 in tax and $292 in penalties. It seemed a low dollar amount to take to Tax Court, which in turn prompted me to think that Dunn was either an attorney or CPA. He would then represent himself, skipping the professional fees.

Dunn is an attorney.

Then I read what landed in him in hot water.

Folks, sometimes we have to pay attention to the details.

We have talked on this blog about shiny objects like real estate investment trusts, charitable remainder trusts, private foundations and so forth.  Hopefully we have told the story in an entertaining way, as tax literature does not tend to be riveting reading. For most of us, however, our finances and taxes are quite humdrum. Odds are our tax troubles are going to come from not attending to the details.

Let’s tell the story.

Stephen Dunn is a tax attorney in Michigan. In 2008 he was working for a law firm. He finished 2008 as self-employed and continued as such through 2010. He participated in the law firm’s retirement plan – presumably a 401(k) - for the part of 2008 he was there.

He made the following IRA contributions:

            2008                          $6,000

            2009                          $6,000

            2010                          $ 800

The IRS took a look and disallowed his 2008 IRA contribution.

Why?

Because he was covered by a retirement plan at work.

There is no income “test” for an IRA contribution if one (or one’s spouse) does not have another available retirement plan. Have a plan at work, however, and the rule changes. The tax Code will disallow your IRA deduction if you make too much money.

What is too much?

If you are a single filer, it starts at $61,000. If you are a married filer, it starts at $98,000.

For what it is worth, I consider these income limits to be idiocy. I cringe when someone thinks that $61,000 is “too much money.” Perhaps it was back in the 1950s, but nowadays $61,000 will not rock you a Thurston Howell lifestyle anywhere across the fruited plain. Remember also that a maximum IRA is $5,500 ($6,500 if one is age 50 and above). If taxes on $5,500 are a fiscal threat to the Treasury, we have much more serious problems than any discussion about IRAs.

Dunn got caught-up in the rules and made too much money for a deductible IRA contribution in 2008.

No problem, thought Dunn the attorney. He rolled the $6,000 forward and deducted it in 2010. Mind you, he wrote checks for only $800 in 2010. The $6,000 was a “carryforward,” so to speak.

So, what is the problem?

Generally speaking, individuals report their taxes on the cash basis of accounting. This means that they report income in the year they receive a check, and they report deductions in the year they write a check. The tax Code does allow some latitude with IRAs, as one can fund a previous-year IRA through April 15^th of the following year. That is a special case, however. The tax Code however does not automatically “carryover” an excess contribution from one year to the next. In fact, overfund an IRA and the tax Code will assess a 6% penalty for every year you leave the excess in the IRA.

How do tax professionals handle this in practice?

Easy enough: you have the IRA custodian move it to the following year. Say that you are age 58 and put $7,000 in your 2014 IRA. You have overfunded $500, no matter what the results of the income test are. You would call the custodian (Dunn’s custodian was Vanguard), explain your situation and ask them to move the $500.

Now there is a detail here that has to be clarified. Say that you contributed $1,000 of the $7,000 in March, 2015 (for your 2014 tax year). You could ask Vanguard to move $500 of that $1,000 to 2015. They probably would, as they received it in 2015.

Let’s change the facts. You contributed all of the $7,000 in 2014. Vanguard now will likely not move any of the money because none of it was received in 2015.  The best Vanguard can do is send you a $500 check, which you will deposit and send back to Vanguard as a 2015 contribution.

What did Dunn not do?

He never called Vanguard and had them move the money. In his case it would have been a bit frustrating, as he had to get from 2008 to 2010. He would be calling Vanguard a lot. He would have to refund 2008 and fund 2009; then refund 2009 and fund 2010. Vanguard may have not wanted him as a customer by that point, but that is a different issue.

Dunn tried. He even requested the equivalent of mercy, pointing out:

…Congress’ policy of encouraging retirement savings supports the deduction they seek.”

Here is the Tax Court:

            These arguments are addressed to the wrong forum.”

Ouch.

Dunn did not pay attention to the details. He lost his case and also got smacked with a penalty. I am not a fan of IRS-automatically-hitting-people-in-the-face-with-a-penalty, but in this case I understand.

After all, Dunn is a tax attorney.