Certain penalties necessitate approval from a supervisor before the IRS can impose them. However, the relevant statute lacks clarity regarding when this approval must take place. This ambiguity has led to conflicting court decisions, leaving taxpayers uncertain about their treatment by the IRS and resulting in unnecessary litigation. To address this issue, the IRS has proposed regulations, with public comments accepted until July 10, 2023. The next step involves a public hearing scheduled for September 11, 2023.
The Taxpayer Advocate Service (TAS) has advocated for a clear resolution, but our suggested line of clarity differs from the IRS’s approach. While the proposed regulations bring clarity, there’s room for improvement to ensure they benefit taxpayers rather than causing harm.
Timing of Supervisory Approval
IRC § 6751(b)(1) generally mandates written supervisory approval before assessing any penalty. However, courts have varied in interpreting this requirement. For instance, the U.S. Tax Court in Clay v. Commissioner ruled that supervisory approval for penalties subject to deficiency procedures was needed before formally communicating with the taxpayer. Conversely, the U.S. Court of Appeals for the Second Circuit in Chai v. Commissioner held that approval could occur until the issuance of the statutory notice of deficiency.
Under the proposed regulations, for pre-assessment penalties subject to Tax Court review, supervisory approval can happen before the issuance of the statutory notice of deficiency. Penalties not subject to pre-assessment Tax Court review can be approved up until the assessment itself. While this broadens the window, TAS has consistently urged the IRS to require supervisory approval before a proposed penalty is communicated in writing to a taxpayer.
The Issue with IRS’s Approach
The IRS’s proposed approach raises concerns about potential abuse, as it allows the discussion of penalties with taxpayers without oversight. There’s a worry that IRS examiners may propose penalties as bargaining chips during case resolution, with no genuine intention of imposing them. The proposed regulations, while unauthorized, don’t safeguard taxpayers from possible misuse.
Supervisory Review of Negligence Penalties
The proposed regulations also fall short concerning negligence penalties. IRC § 6751(b)(2)(A) exempts certain penalties from supervisory review, such as failure-to-file and failure-to-pay penalties. Another exception in IRC § 6751(b)(2)(B) includes penalties calculated electronically, interpreted by the IRS to cover negligence penalties under IRC § 6662(b)(1).
Unlike mechanical penalties, negligence penalties require subjective assessment, involving the taxpayer’s state of mind and surrounding circumstances. The proposed regulations maintain a policy of incorporating supervisory review for negligence penalties only if taxpayers respond, creating potential issues for those who don’t respond for various reasons.
Impact on Automated Underreporter Penalties
Automated underreporter notices proposing tax adjustments and penalties may lead to inequitable outcomes for taxpayers, particularly lower-income individuals. In some cases, taxpayers respond timely, but the IRS fails to process and consider their responses before imposing penalties.
Conclusion
The IRS’s approach to supervisory review of penalties may be burdensome for taxpayers. Supervisory review should precede written communication of applicable penalties to taxpayers. Negligence penalties should presumptively undergo supervisory review rather than being automatically assessed by a computer program. The proposed regulations offer an opportunity for the IRS to reconsider its approach, and there’s a call for Congress to clarify the law to protect taxpayers’ rights.
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