DocketNumber: Docket No. 27187-12.
Citation Numbers: 146 T.C. No. 3, 146 T.C. 39, 2016 U.S. Tax Ct. LEXIS 3
Judges: HOLMES
Filed Date: 2/9/2016
Status: Precedential
Modified Date: 11/21/2020
Decision will be entered under
Ps claimed above-the-line deductions under
*40 HOLMES,
The section of the Code on which he relies-- In Arizona the governor appoints judges on the advice of a nominating committee. After their appointment,*4 judges face retention elections every four years. As part of this process, judges undergo performance reviews every two years. These reviews consist of a series of surveys from litigants, jurors, attorneys, and even some citizens at large. The results are then passed to a special commission of attorneys and judges who review the survey responses and make their findings available to the public. The voters use information and feedback gleaned from the surveys to make informed decisions about which judges to keep on the bench. Judge Jones was appointed to the Maricopa County Superior Court in 1995. He remained in that position during the tax years at issue; and even though he retired in January 2012, the county's chief judge still recalls him to active duty to hear cases a couple days each month. He is highly *41 regarded. Not only did he never lose a retention election, but he has remained throughout his career one of the highest scored judges in the largest county in Arizona.Judge Jones's Expenses The superior court is the general jurisdiction court for each county*5 in Arizona. The Maricopa County Superior Court handles civil cases over $1,000, family law, juvenile matters, and felonies; and is also Arizona's statewide tax court. Maricopa County Superior Court is funded in part by the collection of fees.See Maricopa County Superior Court judges are paid a regular salary--funded equally by the county's general fund and by the State.*6 they choose. Judge Jones, like many other judges on the court, was a member of the Elected Officials' Retirement Plan--he and other participating judges were informed yearly how much fee revenue was paid over to fund the retirement plan. He began receiving payments from the plan, however, only after his retirement in 2012. *42 When Judge Jones began judging, his court's budget allowed him to make reasonable expenditures for supplies and even the occasional special request. But steep spending cuts led to very tight budgets in Maricopa County during the years at issue. To save jobs, the county slashed discretionary funds. Reimbursements for court travel, for example, were limited to one annual, mandatory judicial conference. And though judges could still get mileage for travel in their official capacity, there was no longer a budget for office supplies or other equipment. Despite these cuts, the county still lost 425 staff positions. The cutbacks were so severe that Judge Jones*7 took it upon himself to make up for some of the gap. For example, because he held so many pretrial conferences in his chambers, he spent money decorating his office so that it would appear more professional. When he needed a new computer monitor in his courtroom, he bought one himself. And in lieu of bonuses, he personally bought gift cards for high performing members of his chambers staff to "encourage them" and to "make them work harder." Judge Jones was also in demand as a seminar speaker. He was invited especially often to presentations on Maricopa County's innovative Mental Health Court, which he has played an important role in creating. This court was the venue for competency cases, and many professionals in the State, both legal and nonlegal, became interested in it. Though his attendance at these seminars was encouraged to the extent that he would disseminate and bring back new ideas and techniques, the court could not reimburse him. So Judge Jones paid his own way to attend--bringing back new skills that eventually led to the creation of two other "problem solving courts." More basic expenditures included water (because the court turned off the water fountains), snacks for*8 employees, and batteries to keep the court's clocks working. Judge Jones consulted with a tax professional before filing his returns for the 2008 and 2009 tax years. His CPA came on the recommendation of several other court employees, and Judge Jones--a meticulous recordkeeper--turned over several *43 boxes of documents to him each year. He and the CPA would then sit down and go through his receipts to determine what was deductible. Judge Jones credibly testified that his CPA had researched the issue and advised him that these unreimbursed expenses should be deductible above the line. For lack of a more obvious place to put it, the CPA reported it on line 21 of Form 1040. And for 2008 and 2009, Judge Jones ultimately claimed deductions for his expenses on his returns in two places: in a negative amount on line 21 on Form 1040 ("Other income--As per Judge Jones prepared his 2010 return the same way with a different accountant--his first CPA had died. This new accountant, also a CPA, agreed with the old one that a judge's*9 unreimbursed expenses should be allowed as an above-the-line deduction. The only difference in his advice was where to claim that deduction. So for 2010 Judge Jones claimed his deduction on line 24 of Form 1040 ("Certain business expenses of reservists, performing artists, and fee-basis government officials") per the advice of his CPA. Judge Jones currently maintains that all of his deductions belong "above the line" on line 24 of his Form 1040. The Commissioner initially disallowed Judge Jones's deductions in full. Later, the parties agreed that several deductions would be allowed. Though the Commissioner still contends that many of the expenses aren't deductible, the primary issue for decision is whether Judge Jones is considered an official compensated on a "fee basis."Jones has resided ever since he filed his petition. The Commissioner wants us to interpret "compensated on a fee basis" to mean something like "paid by a member of the public for a service rendered by a judge who receives the fee." Judge Jones argues that "in a position compensated in whole or in part on a fee basis" means something like "a position We begin with the text of the statute. We afford a statute its plain and ordinary meaning. We begin with the dictionary. "Compensation" has two common meanings. The first is an award or recompense for an injury, as when we say someone injured by a tortfeasor or whose property is taken by the government is entitled to "compensation."*12 Exchange in the sense of a balancing of accounts is the key here, as when Thoreau spoke metaphorically: "If we will be quiet and ready enough, we shall find compensation in every disappointment." I To Myself: An Annotated Selection from the Journal of Henry D. Thoreau 10 (Jeffrey S. Cramer ed., Yale Univ. 2007). Or Emerson: Human labor, through all its forms, * * * is one immense illustration of the perfect compensation of the universe. The absolute balance of Give and Take, the doctrine that every thing has its price,--and if that price is not paid, not that thing but something else is obtained, and that it is impossible to get any thing without its price,--is not less sublime in the columns*13 of a ledger than in the budgets of states, in the laws of light and darkness, in all the action and reaction of nature. * * * These ordinary uses of "compensation" to mean "something of value given in exchange for" are echoed elsewhere in the law. *46 Trade or Business.--The term "trade or business," when used with reference to self-employment income or net earnings from self-employment, shall have the same meaning as when used in (1) the performance of the functions of a public office, other than the functions of a public office of a State or a political subdivision thereof with respect to fees received in any period in which the functions are performed in a position There's nothing useful in the Moreover, (b) Other federal laws give us even more hints--for example, the Social Security Administration adopted a definition (identical to the one that the Commissioner used in his revenue ruling) for applying
The Fair Labor Standards Act (FLSA) generally requires employers to pay employees overtime when they work more than 40 hours in a week. [a]n employee will be considered to be paid on a "fee basis" within the meaning of these regulations if the employee is paid an agreed sum for a single job regardless of the time required for its completion. These payments resemble piecework payments with the important distinction that generally a "fee" is paid for the kind of job that is unique rather than for a series of jobs repeated an indefinite number of times and for which payment*17 on an identical basis is made over and over again. Payments based on the number of hours or days worked and not on the accomplishment of a given single task are not considered payments on a fee basis.
We also have to conclude that the Commissioner's position is the more reasonable one. An enormous number of government agencies, courts, departments, and boards receive fee*48 income.
We think all this makes the Commissioner's reading the better one. It's consistent with the ordinary public meaning of the term, consistent with his own construction of a similar clause in
We find that he can't do this. He doesn't retain fees collected by his court as compensation for his services. His salary is paid from the county's general fund--that salary may be funded in part by fees, but these fees aren't paid in exchange for services that Judge Jones renders himself and Judge Jones isn't paid them directly.
Judge Jones also argues that even if the phrase "fee basis" means that his compensation must come directly from the public he serves, he is still a fee basis official for two reasons: first, because the*19 court automatically remits a portion of the fees paid by the public not just to its general fund but directly to the judges' retirement plan, and second because *49 judges in Maricopa County are allowed to collect fees for performing wedding ceremonies.
While it's true that a portion of the fees that the superior court collects is automatically remitted to the Elected Officials' Retirement Plan, in which Judge Jones and other superior court judges participate, those fees aren't paid directly to him by the public, and aren't distributed to him until several years later. In fact, during the tax years at issue, Judge Jones didn't receive any compensation from his retirement plan as he hadn't yet retired. We therefore also hold that Judge Jones wasn't compensated on a fee basis via his retirement plan.
The argument about fees from weddings is a bit different. It's true that superior court judges in Maricopa County are entitled to receive fees directly from the public for performing wedding ceremonies. Collecting fees is discretionary, however, and Judge Jones admitted during trial that he waived fees for weddings he performed during the tax years at issue. If we read
But he makes a subtler argument--that
This isn't a bad question. But let's take another look at [t]he deductions allowed by
And now consider this hypothetical: A Maricopa County Superior Court judge gets a call to perform a wedding in the *50 far*21 reaches of Arizona. The fee is $200, but he has to pay $120 for a motel, another $20 for gas and $10 for tolls. These are expenses that he incurs to produce fee income that goes directly to him. Should he report $200 in extra income and practically speaking (because of the 2% limit) get no useful deduction for the $150 in expenses that he incurred to make the $200 in fee income? Maybe the right way to read
This might be a reasonable reading. It might even be the most reasonable reading of that section. But it's not one we have to make today in light of Judge Jones's honest admission that he married people for free during the years at issue here. We think that the possibility that one of his colleagues was more mercenary than he at weddings can't convert his own position into one "compensated in whole or in part on a fee basis" any more than the collection of even one filing fee by the clerk of his court*22 would.
No portion of Judge Jones's compensation for his role as a public officer was provided on a fee basis. Rather, he was an employee of the State of Arizona and paid a salary for his work. Thus, his expenses are deductible as unreimbursed employee expenses under
The only other issue for decision in this case is whether Judge Jones is liable for accuracy-related penalties for the 2008, 2009, and 2010 tax years under • the adviser was a competent professional with sufficient expertise to justify reliance; • he provided necessary and accurate information to the adviser; and • he actually relied on the adviser's judgment in good faith.
We find Judge Jones's testimony*24 as to his CPAs' expertise credible. Though neither CPA testifiedJones testified that each had several years of experience and came highly recommended by other members of the court. We are satisfied that Judge Jones provided all of the *52 relevant paperwork to his CPAs--he even discussed each individual deduction with them.
We find that Judge Jones reasonably relied on professional advice. Even without a CPA to back him up, we have no doubt about Judge Jones's good faith in taking the position that he did. We also find that the position he took was quite reasonable in the absence of any case law or regulation. This is one of those Code sections that has some ambiguity in it and that no court has ever looked at before in any depth. Though in the end we agree with the Commissioner, we see no justification for penalties. We find for Judge Jones on this issue.
1.
2. He did have one blemish on his record--he admitted that he never volunteered for tax cases because he "never had an interest."↩
3. Arizona law (as in effect in 2008, 2009, and 2010) also sent some of the fees collected to the Elected Officials' Retirement Plan and to the county's general fund.
4. Halfway through 2010 Maricopa County became responsible for 100 percent of Maricopa County judges' salaries--meaning that for that tax year, Arizona paid only about one-quarter of Judge Jones's salary.
5. Judge Jones produced all his records at trial. We bifurcated the case, with this opinion coming first, because the parties agree that the remaining disputes about particular expenses would affect Judge Jones↩'s deficiency only were we to rule in his favor on the question we address here.
6. We aren't bound by revenue rulings, but we pay attention to them based on "their persuasiveness and the consistency of the Commissioner's position over time."
7.
8.
9. We note that one of the two CPAs Judge Jones↩ relied on to prepare his return had died before trial.
neonatology-associates-pa-v-commissioner-of-internal-revenue-tax-court , 299 F.3d 221 ( 2002 )
Commissioner v. Driscoll , 669 F.3d 1309 ( 2012 )
Food & Drug Administration v. Brown & Williamson Tobacco ... , 120 S. Ct. 1291 ( 2000 )
Davis v. Michigan Department of the Treasury , 109 S. Ct. 1500 ( 1989 )
Skidmore v. Swift & Co. , 65 S. Ct. 161 ( 1944 )
Thomas v. Orvis and Bobye G. Orvis v. Commissioner of ... , 788 F.2d 1406 ( 1986 )
Webber v. Commissioner , 144 T.C. 324 ( 2015 )
Yari v. Commissioner , 143 T.C. 157 ( 2014 )