State Farm Mutual Automobile Ins. Co. v. United States

• Decision Date: 25 March 1963
• Docket Number: No. 13707.,13707.
• Citation: 314 F.2d 363
• Parties: STATE FARM MUTUAL AUTOMOBILE INSURANCE COMPANY, an Illinois corporation, Plaintiff-Appellee, v. UNITED STATES of America, Defendant-Appellant.
• Court: U.S. Court of Appeals — Seventh Circuit

314 F.2d 363 (1963)

STATE FARM MUTUAL AUTOMOBILE INSURANCE COMPANY, an Illinois corporation, Plaintiff-Appellee, v. UNITED STATES of America, Defendant-Appellant.

No. 13707.

United States Court of Appeals Seventh Circuit.

February 7, 1963.

Rehearing Denied March 25, 1963.

Louis F. Oberdorfer, Asst. Atty. Gen., Michael A. Mulroney, Atty., U. S. Department of Justice, Washington, D. C., Edward R. Phelps, U. S. Atty., Springfield, Ill., Lee A. Jackson, Melva M. Graney, Attys., Department of Justice, Washington, D. C., Marks Alexander, Asst. U. S. Atty., Springfield, Ill., for appellant.

Russell H. Matthias, Chicago, Ill., James C. Craven, Springfield, Ill., Meyers & Matthias, Chicago, Ill., Allen T. Lucas, Springfield, Ill., for plaintiff-appellee State Farm Mutual Automobile Insurance Co. Robert J. Meyers, James M. Redding, Charles B. Robison, Chicago, Ill., of counsel.

Before SCHNACKENBERG, CASTLE and KILEY, Circuit Judges.

SCHNACKENBERG, Circuit Judge.

United States of America, defendant, herein referred to as the Government, has appealed from a judgment against it in the amount (adjusted by stipulation and court order) of $272,499.67, with interest, in favor of State Farm Mutual Automobile Insurance Company, an Illinois corporation, a mutual casualty insurance company, plaintiff, which is herein referred to as taxpayer. D.C., 200 F.Supp. 324.

The question for decision is whether membership fees collected by it in 1955 and 1956 constitute gross premiums within the meaning of § 823(1) of the 1954 Internal Revenue Code, 26 U.S. C.A. § 823(1), so as to be taxable as net premiums under 26 U.S.C.A. § 821(a) (2).¹

The facts which we now set forth are not substantially in dispute.

Most of taxpayer's business in recent years has been automobile insurance, although it writes some general liability insurance. Since its inception in 1922, the taxpayer has charged prospective policyholders a membership fee. Provision therefor is made by its bylaws.²

The payment of the membership fee gives the payor the right to be insured by the company. No one who has not paid the membership fee can be insured. The payment of the membership fee and the first premium is usually simultaneous and is sometimes made in the same check. In the early days of the corporation, some other persons became members without taking out an insurance policy, but during 1955 and 1956 no more than a few did so. The membership fee is returned if the policy is not issued. If the company collects a membership fee and within 60 days rejects the applicant for insurance, then in practice, the policy is discontinued and the membership fee is refunded. The only charge is a pro rata part of the premium.

The taxpayer's sales organization consists of local agents, district managers, and state organizations. At the time the policy is written, the local agent is paid a portion of the membership fee. He receives no other portion of the receipts which the company designates as premiums when the insurance is initially written. He does receive a part of the premium charged for renewals.

In its report to its shareholders in 1955 and 1956, the taxpayer included membership fees in its description of premium income, although the annual statements of the company separated them.

The membership fee varies with the type of coverage and ranges from two to about seven dollars per coverage. The purpose of this fee is to cover initial underwriting expenses. The membership fees are immediately paid out. The local agent received 55 per cent of this amount, the district manager 18.7 per cent and the state organization 26.3 per cent.

The taxpayer collected about $11,000,000 in membership fees in 1955 and about $13,000,000 in 1956, which it paid out to its sales organization.

The membership fee does not cover the entire acquisition and initial costs. Initial cost in excess of membership fee is paid out of the general income from premiums and from investments. The taxpayer paid out about $29,000,000 in 1955 and about $33,000,000 in 1956 for its general expenses including costs of acquiring new business in excess of such expenses paid from membership fees. The latter amounts were paid out of the general revenue of the company, of which premium collections accounted for about 97 per cent.

The membership fee is a nonrecurring item. No part of it is considered a payment to the insurer for acceptance of the risk of insuring the insured. Persons who pay the membership fee and become insured and then discontinue after having been covered for several years, may again be covered by the company without the payment of another membership fee if they are still an acceptable risk.

The company's idea in charging a membership fee was that the initial nonrecurring cost of determining whether that applicant was a satisfactory risk — i. e., for determining qualifications and eligibility — was an extra cost which should be borne by the individual and not by the company. In addition, the charging of membership fees acted to decrease the unearned premium liability account and free surplus, permitting accelerated growth.

The general practice in the insurance business and of mutual automobile casualty companies is to meet initial costs for commissions, investigation and acquisition out of the general premium income of the insurer. These are normal underwriting expenses which are considered in determining the premium charged.

The membership fees have no relationship to the proposed premium rates filed by the company with the various state insurance departments. All policyholders of the company are members but not all members are policyholders. There are a few million people having contractual status with the company who are not strangers, but are inchoate or inactive members, and who may at any time become active policyholder members with full rights of insured policyholders while so insured. A membership fee is exacted only once for a specific coverage on an automobile. The fee gives the member the right to apply for insurance at any time and he will be granted insurance if he is an acceptable risk according to the current underwriting standards of the company. The membership fee on the comprehensive coverage has consistently been $2 for many years even though the insurance rate for comprehensive has varied. When the rates for the comprehensive coverage are filed they do not include any reference to the membership fee. Members who are not policyholders are given the right to apply for insurance at any time they are deemed a desirable risk. They cannot vote (or share in any dividends distribution) unless they are policyholders. In other words, a membership gives a right to apply for a policy at any future date, a right denied to one who is not a member. The premium paid for the first policy is in addition to the money paid for the membership fee.

Vice-president Curry testified for taxpayer and thereby made it clear that the amount of the membership fee charged is not uniform in amount but varies according to the kind and amount of liability which the applicant desires.

Under cross-examination, vice-president Curry's testimony reveals:

"Mr. Lederer government counsel: Q. If a person becomes a member and takes out a policy for one automobile, and he subsequently acquires a second automobile, does he have to pay an additional membership fee?

"A. He does for a second automobile, that is right.

"Q. Would he then be entitled to two votes at meetings of the company, would he be a member twice in other words?

"A. I\'m not sure that I can answer that question. I\'ve never been asked that question and never have contemplated it.

"The Court: What do the bylaws provide?

"The Witness: As I remember the bylaws entitle him to a vote, would entitle him to a vote, yes, for each membership that he would hold. I\'m not sure, I\'d have to look at the bylaws to check on that.

"Mr. Lederer: Q. And, if a person insures twenty automobiles, he would have to pay the membership twenty times, wouldn\'t he?

"A. No, we have a limitation, we don\'t ask any individual or any policyholder to pay more than five memberships. It\'s the only modification we have with respect to fleet risks."

1. 26 U.S.C. § 821(a) (2), as amended March 13, 1956, p. 4434, effective as to taxable years beginning after December 31, 1954, 26 U.S.C. (1958 ed.), p. 4427, 4435, imposes a tax upon the income of every mutual insurance company, with exceptions not here relevant, which may be determined in the following manner:

"(2) If for the taxable year the gross amount of income from the items described in section 822(b) (other than paragraph (1) (D) thereof) and net premiums, minus dividends to policyholders, minus the interest which under section 103 is excluded from gross income, exceeds $75,000, a tax equal to one percent of the amount so computed, or 2 percent of the excess of the amount so computed over $75,000, whichever is the lesser."

26 U.S.C. (1958 ed.), § 823 provides:

"(1) Net premiums. — The term `net premiums\' means gross premiums (including deposits and assessments) written or received on insurance contracts during the taxable year less return premiums and pemiums paid or incurred for reinsurance. Amounts returned where the amount is not fixed in the insurance contract but depends on the experience of the company or the discretion of the management shall not be included in return premiums but shall be treated as dividends to policyholders under paragraph (2)."

While the government, by using a detailed analysis, arrives at a conclusion that the legislative history demonstrates that congress used the term "gross premiums" as conceptually akin to gross receipts from writing insurance, and expressly adopted the meaning of that term as it allegedly was, as early as 1938, used in the insurance business (where it also allegedly included membership fees), we prefer in the interest of lucidity to base our holding on the facts in the...