Tambrands, Inc. v. Commissioner of Revenue

• Decision Date: 24 March 1999
• Docket Number: No. 96-P-1954,96-P-1954
• Parties: TAMBRANDS, INC. v. COMMISSIONER OF REVENUE. Suffolk
• Court: Appeals Court of Massachusetts

Page 400

707 N.E.2d 400

46 Mass.App.Ct. 522

TAMBRANDS, INC. v. COMMISSIONER OF REVENUE.

No. 96-P-1954.

Appeals Court of Massachusetts,

Suffolk.

Argued Feb. 4, 1998.

Decided March 24, 1999.

Kathleen King Parker, Boston, for plaintiff.

Donald J. Evans, Special Assistant Attorney General, and Philip S. Olsen, for defendant.

Present: KASS, SMITH, & FLANNERY, JJ. ¹

KASS, J.

Tambrands, Inc. (Tambrands), the taxpayer, claims it is entitled to an abatement of all of a deficiency tax assessment because the Commissioner of Revenue (commissioner) failed to give it a timely written notice of assessment as required by G.L. c. 62C, § 31. We decide, as did the Appellate Tax Board (board), that, in the circumstances, the commissioner gave a timely notice of assessment.

That the commissioner furnished the taxpayer with a notice of assessment is not in dispute. The question is whether the commissioner gave the notice, in the language of § 31, "as soon as may be," after the Department of Revenue (DOR) had determined the tax to be assessed. ² In this case the commissioner gave his notices of assessment on dates that came fifteen to eighteen months after the tax had been determined, time periods that in ordinary contemplation of the phrase "as soon as may be" seem to stretch it beyond its limits. The commissioner responds that a high tech information system breakdown enlarged the standard dimensions of "as soon as may be" and that the notice of assessment went out "as soon as could be" which, for these purposes, defines "as soon as may be." We turn to the facts. They are calculated to warm the heart of anyone whose hours and days have ever been wasted by an electronic labor-saving device.

Tambrands is a Delaware corporation, with a principal place of business in New York. It manufactures and sells tampons nationwide and abroad. The tax dispute concerns corporate excise tax due for 1984, 1985, and 1986 on account of business that Tambrands carried on in Massachusetts. Tambrands filed timely tax returns (on Form 355B) for each of those years and paid the tax due as shown on those returns. In 1988, DOR conducted an audit of Tambrands's returns that culminated on December 23, 1988, in the issuance to Tambrands of a notice of intention to assess (NIA), see Massachusetts Taxation and DOR Practice: A Guide to Collections, Audits, Abatements and Appeals § 4.06 (Mass. Continuing Legal Educ., Scharaffa ed., 1996) (Mass.Tax.Handbook) assessing a deficiency of $317,580, plus interest and penalties of $175,264, for a total deficiency assessment of $492,844. The taxpayer promptly, on January 11, 1989, paid $300,000 on account of the asserted deficiency.

While they engaged in disputation at an administrative level within DOR about the taxes due, the taxpayer and the commissioner on three occasions signed consents (on Form A-37) to extensions of time for the commissioner to assess a deficiency definitively. The taxpayer does not dispute that the definitive assessment of the tax occurred on March 10, 1989, and that it was timely. Contrast A.W. Chesterton Co. v. Commissioner of Rev., 45 Mass.App.Ct. 702, 703 N.E.2d 228 (1998). That event, i.e., the assessment, was the occasion after which a notice of assessment was to issue "as soon as may be." See Mass. Tax. Handbook § 4.14.

Enter in 1988 the Masstax Computer System (MAX), a powerful computer with a powerful program. One of the tasks required of DOR was to place existing tax records into MAX's capacious electronic brain. What must pass for substantial evidence if the Commissioner's case is to survive is fleeting and rather bare bones testimony from Sandra Steele who, as associate deputy commissioner for the Masstax computer system, had responsibility for putting MAX to work. Steele later became deputy commissioner for account management and control. MAX, Steele explained, was not ready in 1989 to deal with payments against a deficiency made by a taxpayer after notice of intent to assess but before the notice of assessment--precisely what occurred in Tambrands's case. In a prodigy of understatement, Steele testified that back in 1989 MAX "didn't work like clockwork." There was concern at DOR both that MAX would spit out a notice of assessment that failed to reflect anticipatory payments and, worse, might lose, in a record-retention sense, the money the taxpayer had paid. To avoid either mishap, taxpayer accounts on which payments had been made before notices of assessment were placed in problem sets, "looked at by an employee and released manually." In 1989 there were over 100,000 cases in the problem-set category and between eighteen and twenty-one employees to review the accounts. A bit of arithmetic illustrates the problem. If there were nineteen and one-half (taking an average) employees available for 100,000 cases, that results in 5,128 cases per employee. Assuming, on the generous side, the ability to do fourteen cases per day, it would take 366 working days to grind through the problem sets. With allowance for weekends and holidays, vacations, and illness, the cause for the fifteen-month and eighteen-month hiatus between tax assessment and notice of assessment becomes all too apparent.

Tambrands argues, not wholly without force, that the commissioner's position is the bureaucrat's equivalent of "the dog ate my homework" excuse. No case, Tambrands urges, has given so much leeway to "as soon as may be." We turn to the case law and what the record has to tell us in the way of justification for the commissioner's position.

The case law is abundant in stern pronouncements requiring strict adherence by the taxpayer to the timelines and other procedural commands of the taxing statutes. See Assessors of Brookline v. Prudential Ins. Co. of America, 310 Mass. 300, 308, 38 N.E.2d 145 (1941); Commissioner of Corps. & Taxn. v. St. Botolph Club, Inc., 321 Mass. 269, 279, 72 N.E.2d 518 (1947); Roda Realty Trust v. Assessors of Belmont, 385 Mass. 493, 495-496, 432 N.E.2d 522 (1982); Nissan Motor Corp. in U.S.A. v. Commissioner of Rev., 407 Mass. 153, 157, 552 N.E.2d 84 (1990); Guzman v. Assessors of Oxford, 24 Mass.App.Ct. 118, 120, 506 N.E.2d 1168 (1987); Tilcon Massachusetts, Inc. v. Commissioner of Rev., 30 Mass.App.Ct. 264, 265-266, 568 N.E.2d 1152 (1991). Timely mailing, but late arrival of an application for abatement is fatal. Id. at 266-268, 568 N.E.2d 1152. As the court said in Commissioner of Rev. v. Marr Scaffolding Co., 414 Mass. 489, 495, 608 N.E.2d 1041 (1993), "[e]quitable considerations, not prescribed by statute, are not major players in tax matters (and, indeed, often do not even enter the game)." ³ The rationale for this exacting attitude is, in part, that both sides to the taxing transaction, the taxpayer and the tax collector, should know inside of prescribed limitations periods what each owes or may receive or what may be in dispute. Cf. Tilcon Massachusetts, Inc. v. Commissioner of Rev., 30 Mass.App.Ct. at 266-267, 568 N.E.2d 1152.

There is both irony and appeal in Tambrands's argument that what's sauce for the taxpayer goose is sauce for the tax collector gander. Cf. A.W. Chesterton Co. v. Commissioner of Rev., 45 Mass.App.Ct. 702, 703 N.E.2d 228. The problem with the argument, however, is that it does not reach the question at hand. There is no specific limitations period about which to be rigorous. What is novel about the case is that the time limitation to be applied is imprecise: "as soon as may be." Reading a time period into that flexible phrase requires some examination of the circumstances. Bentley v. Ward, 116 Mass. 333, 334 (1874). In its decision, the Appellate Tax Board found:

"[T]he Board finds, that the appellant's...