Earlier this week, the Supreme Court held oral argument in CIC Servs., LLC v. IRS, 925 F.3d 247 (6th Cir. 2019), reh., en banc, denied 936 F.3d 501 (2019), cert. granted 140 S. Ct. 2737 (2020), a case involving the interface of tax law and administrative law. I discuss the oral argument on my Federal Tax Procedure Blog. CIC Services Supreme Court Oral Argument (12/3/20), here, where I link the oral argument recording and transcript. In the oral argument some of the discussion turned to willfulness and the difference between willfulness for tax crimes and for other types of crimes. Readers of this blog will know that for most Title 26 tax crimes, where an element of the crime is that the defendant act “willfully,” a very high level of intent is required -- The intentional violation of a known legal duty. See Cheek v. United States, 498 U.S. 192 (1991).
I thought I would offer here certain excerpts of the discussions on willfulness and potential criminal liability. First some key background. CIC wanted to contest an IRS notice that imposed reporting obligations on captive insurance companies and their advisors. Arguably, failure to comply with the reporting obligations could subject those captive insurance companies and advisors to significant civil penalties and potentially even criminal penalties. CIC complained that, if the AIA (§ 7421(a)) precluded pre-enforcement review, then the only way to contest the administrative action in the Notice in question would be to not file the disclosures required by the notice and potentially be subject to those civil and criminal penalties. The key potential criminal penalty is failure to file in § 7203 which has a requirement that the defendant act willfully in failing to file. Willfully, as noted, would be met if the defendant knew the legal obligation and failed to meet it. The problem, though, is that if the defendant knew of the Notice, in good faith did not think it was lawfully imposed, and failed to file on that belief, he could subject himself to the risk of civil and criminal penalties by awaiting the normal channel of tax litigation on the substantive merits in a tax refund suit. That risk is unacceptable and should justify a pre-enforcement review, which for much administrative rulemaking is the norm.
Key to the discussion is that the penalty, as with many tax penalties, is defined as a tax, thus potentially invoking the AIA.
CIC’s argument is that imposing the obligation by Notice rather than notice and comment regulation is unlawful.
So that sets up the problem articulated by several of the justices. Should a taxpayer or advisor have to risk civil or criminal penalties for failure to comply with an administrative rule which they do not think was validly imposed? This concern is expressed throughout the argument and seems to have some gravitas with several of the Justices. I select only a portion of the discussion on the criminal willfulness issue. The page numbers are to the transcript which is here:
[*4]
MR. NORRIS [CIC Counsel)
Third, CIC cannot raise its claims in a refund suit. There is no tax for CIC to pay here. The notice is not a tax, and CIC is a material advisor, not the taxpayer. To file a refund suit, CIC would have [*5] to gin up a tax by violating the reporting requirements, risking criminal and professional sanctions, and hoping the IRS agrees to assess it a penalty. The Anti-Injunction Act cannot require this, as this Court held in South Carolina versus Regan.
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[*21]
And I think, while South Carolina [in South Carolina v. Regan, 465 U.S. 367 (1984)] truly had no refund suit available, we are in the same situation in the sense that the only way we can get a refund is by committing a crime, risking imprisonment and massive fines, and violating our professional obligations as attorneys and accountants.
[*29]
JUSTICE BARRETT: Would it be cleaner for us to go the Regan [South Carolina v. Regan] route but maybe, you know, phrase it this way, that this is covered by the AIA; however, because you would have to incur criminal penalties in -- in -- in order to sue, that you have no adequate alternative remedy, so even though the AIA applies, it doesn't bar your suit? Would you be satisfied [*30] with that approach?
MR. NORRIS: We would, Justice Barrett. We just want to go litigate our APA claims, and that -- that resolution would be fine with us.
JUSTICE BARRETT: Thank you.
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