83_FR_13266 83 FR 13206 - Certain Non-Government Attorneys Not Authorized To Participate in Examinations of Books and Witnesses as a Section 6103(n) Contractor

83 FR 13206 - Certain Non-Government Attorneys Not Authorized To Participate in Examinations of Books and Witnesses as a Section 6103(n) Contractor

DEPARTMENT OF THE TREASURY
Internal Revenue Service

Federal Register Volume 83, Issue 60 (March 28, 2018)

Page Range13206-13208
FR Document2018-06242

This document contains proposed regulations to amend regulations under section 7602(a) of the Internal Revenue Code relating to administrative proceedings. Current regulations permit any person authorized to receive returns and return information under section 6103(n) and the regulations thereunder to receive and review summoned books, papers, and other data, and, in the presence and under the guidance of an IRS officer or employee, participate fully in the interview of a witness in a summons interview. These proposed regulations significantly narrow the scope of the current regulations by excluding non-government attorneys from receiving summoned books, papers, records, or other data or from participating in the interview of a witness summoned by the IRS to provide testimony under oath, with a limited exception. These proposed regulations affect taxpayers involved in a federal tax examination and other persons whose books and records or testimony are sought to be examined by the IRS under section 7602(a).

Federal Register, Volume 83 Issue 60 (Wednesday, March 28, 2018)
[Federal Register Volume 83, Number 60 (Wednesday, March 28, 2018)]
[Proposed Rules]
[Pages 13206-13208]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-06242]


========================================================================
Proposed Rules
                                                Federal Register
________________________________________________________________________

This section of the FEDERAL REGISTER contains notices to the public of 
the proposed issuance of rules and regulations. The purpose of these 
notices is to give interested persons an opportunity to participate in 
the rule making prior to the adoption of the final rules.

========================================================================


Federal Register / Vol. 83, No. 60 / Wednesday, March 28, 2018 / 
Proposed Rules

[[Page 13206]]



DEPARTMENT OF THE TREASURY

Internal Revenue Service

26 CFR Part 301

[REG-132434-17]
RIN 1545-B012


Certain Non-Government Attorneys Not Authorized To Participate in 
Examinations of Books and Witnesses as a Section 6103(n) Contractor

AGENCY: Internal Revenue Service (IRS), Treasury.

ACTION: Notice of proposed rulemaking.

-----------------------------------------------------------------------

SUMMARY: This document contains proposed regulations to amend 
regulations under section 7602(a) of the Internal Revenue Code relating 
to administrative proceedings. Current regulations permit any person 
authorized to receive returns and return information under section 
6103(n) and the regulations thereunder to receive and review summoned 
books, papers, and other data, and, in the presence and under the 
guidance of an IRS officer or employee, participate fully in the 
interview of a witness in a summons interview. These proposed 
regulations significantly narrow the scope of the current regulations 
by excluding non-government attorneys from receiving summoned books, 
papers, records, or other data or from participating in the interview 
of a witness summoned by the IRS to provide testimony under oath, with 
a limited exception. These proposed regulations affect taxpayers 
involved in a federal tax examination and other persons whose books and 
records or testimony are sought to be examined by the IRS under section 
7602(a).

DATES: Written or electronic comments and requests for a public hearing 
must be received by June 26, 2018.

ADDRESSES: Send submissions to: CC:PA:LPD:PR (REG-132434-17), Room 
5203, Internal Revenue Service, P.O. Box 7604, Ben Franklin Station, 
Washington, DC 20044. Submissions may be hand-delivered Monday through 
Friday between the hours of 8 a.m. and 4 p.m. to CC:PA:LPD:PR (REG-
132434-17), Courier's Desk, Internal Revenue Service, 1111 Constitution 
Avenue NW, Washington, DC, or sent electronically via the Federal 
eRulemaking Portal at www.regulations.gov (IRS-REG-132434-17).

FOR FURTHER INFORMATION CONTACT: Concerning submission of comments, 
Regina Johnson, (202) 317-6901; concerning the proposed regulations, 
William V. Spatz at (202) 317-5461 (not toll-free numbers).

SUPPLEMENTARY INFORMATION:

Background

    These proposed regulations amend Procedure and Administration 
Regulations (26 CFR part 301) under section 7602(a) of the Internal 
Revenue Code relating to participation by persons described in section 
6103(n) and Treas. Reg. Sec.  301.6103(n)-1(a) in receiving and 
reviewing summoned books, papers, records, or other data and in 
interviewing a summoned witness under oath. These proposed regulations 
narrow the scope of the current regulations by providing that certain 
non-government attorneys hired by the IRS are not authorized to 
participate in an examination.
    On June 18, 2014, temporary regulations (TD 9669) regarding 
participation in a summons interview of a person described in section 
6103(n) were published in the Federal Register (79 FR 34625). A notice 
of proposed rulemaking (REG-121542-14) cross-referencing the temporary 
regulations was published in the Federal Register (79 FR 34668) the 
same day. No public hearing was requested or held. The Internal Revenue 
Service received two comments on the proposed regulations. One comment 
recommended that the regulations be revised to remove the provision 
permitting a contractor to question a witness under oath or to ask a 
witness's representative to clarify an objection or assertion of 
privilege. The other comment recommended that the proposed and 
temporary regulations be withdrawn. After consideration of these 
comments, the proposed regulations were adopted in final regulations 
(TD 9778) published in the Federal Register (81 FR 45409) on July 14, 
2016 (``Summons Interview Regulations''). The only change from the 
temporary regulations in the final regulations was to replace the word 
``examine'' with ``review'' in the phrase describing what contractors 
may do with books, papers, records, or other data received by the IRS 
under a summons. The preamble to the final regulations explains that 
this was intended to clarify that the regulations do not authorize 
contractors to direct audits of a taxpayer's return. See 81 FR 45410.

Description of Summons Interview Regulations

    The United States tax system relies upon taxpayers' self-assessment 
and reporting of their tax liability. The expansive information-
gathering authority that Congress granted to the IRS under the Code 
includes the IRS's broad examination and summons authority, which 
allows the IRS to determine the accuracy of that self-assessment. See 
United States v. Arthur Young & Co., 65 U.S. 805, 816 (1984). Section 
7602(a) provides that, for the purpose of ascertaining the correctness 
of any return, making a return where none has been made, or determining 
the liability of any person for any internal revenue tax, the IRS is 
authorized to examine books and records, issue summonses seeking 
documents and testimony, and take testimony from witnesses under oath. 
These provisions have been part of the revenue laws since 1864.
    Use of outside specialists is appropriate to assist the IRS in 
determining the correctness of the taxpayer's self-assessed tax 
liability. The assistance of persons from outside the IRS, such as 
economists, engineers, appraisers, industry specialists, and actuaries, 
promotes fair and efficient administration and enforcement of the laws 
administered by the IRS by providing specialized knowledge, skills, or 
abilities that the IRS officers or employees assigned to the 
examination may not possess. Section 6103(n) and Treas. Reg. Sec.  
301.6103(n)-1(a) authorize the IRS to disclose returns and return 
information to these contractors. The regulations under Sec.  301.7602-
1(b)(3) were issued to clarify that persons described in section 
6103(n) and Treas. Reg. Sec.  301.6103(n)-1(a) may receive and review 
books, papers, records, or other data summoned by the IRS and, in the 
presence and under the guidance of an

[[Page 13207]]

IRS officer or employee, participate fully in the interview of a person 
who the IRS has summoned as a witness to provide testimony under oath. 
See 81 FR 45410.

Executive Order 13789, Notice 2017-38, and the Reports to the President

    Executive Order 13789, issued on April 21, 2017 (E.O. 13789, 82 FR 
19317), instructs the Secretary of the Treasury (the Secretary) to 
review all significant tax regulations issued on or after January 1, 
2016, and to take appropriate action to alleviate the burdens of 
regulations that (i) impose an undue financial burden on U.S. 
taxpayers; (ii) add undue complexity to the Federal tax laws; or (iii) 
exceed the statutory authority of the IRS.
    E.O. 13789 further instructs the Secretary to submit to the 
President within 60 days a report (First Report) that identifies 
regulations that meet these criteria. Notice 2017-38 (2017-30 I.R.B. 
147 (July 24, 2017)) included the Summons Interview Regulations in a 
list of eight regulations identified by the Secretary in the First 
Report as meeting at least one of the first two criteria specified in 
E.O. 13789. E.O. 13789 further instructs the Secretary to submit to the 
President a second report (Second Report) that recommends specific 
actions to mitigate the burden imposed by regulations identified in the 
First Report.
    In response to Notice 2017-38, the Treasury Department and the IRS 
received seven comments from professional and business associations 
addressing the Summons Interview Regulations. All but one of these 
comments recommended removal of the regulations based primarily on the 
commentators' perception that the regulations create longer and less 
efficient examinations by improperly delegating authority to outside 
law firms to conduct examinations. The one commenter that did not 
recommend removal of the regulations in their entirety requested 
removal of the provisions permitting a contractor to directly question 
a witness during a summons interview.
    As explained in the preamble to the final Summons Interview 
Regulations, the regulations do not delegate authority to conduct 
examinations or summons interviews. Rather, the regulations permit 
contractors authorized under section 6103(n) to review books and 
records and be present and ask questions during summons interviews, all 
under the supervision of IRS officers and employees. See 81 FR 45410-
45412.
    Comments in response to Notice 2017-38 also raised concerns that 
the regulations permit the IRS to hire law firms to receive and review 
summoned information and fully participate in a summons interview on 
behalf of the government.
    On October 16, 2017, the Secretary published the Second Report in 
the Federal Register (82 FR 48013) stating that the Treasury Department 
and the IRS are considering proposing a prospectively effective 
amendment to the Summons Interview Regulations to narrow their scope to 
prohibit non-government attorneys from questioning witnesses on behalf 
of the IRS, reviewing summoned records, or playing a behind-the-scenes 
role in an examination, such as consulting on IRS legal strategy, with 
a limited exception.
    The Code provides IRS officers and employees with significant and 
broad powers under its summons authority to question witnesses under 
oath and to require the production of books and records. The Summons 
Interview Regulations require the IRS to retain authority over 
important decisions when section 6103(n) contractors question 
witnesses, but there is a perceived risk that the IRS may not be able 
to maintain full control over the actions of a non-government attorney 
hired by the IRS when such an attorney, with the limited exception 
described below, questions witnesses. The actions of the non-
governmental attorney while questioning witnesses could foreclose IRS 
officials from independently exercising their judgment. Managing an 
examination or summons interview is therefore best exercised solely by 
government employees, including government attorneys, whose only duty 
is to serve the public interest. These concerns outweigh the 
countervailing need for the IRS to use non-government attorneys, except 
in the limited circumstances set forth in proposed paragraph 
(b)(3)(ii). Treasury and the IRS remain confident that the core 
functions of questioning witnesses and conducting examinations are well 
within the expertise and ability of government attorneys and 
examination agents.

Explanation of Provisions

    Proposed Sec.  301.7602-1(b)(3)(i) retains the rule from the 
Summons Interview Regulations authorizing section 6103(n) contractors 
to receive and review summoned information and fully participate in the 
summons interview, including questioning witnesses. However, proposed 
Sec.  301.7602-1(b)(3)(ii) is added to prohibit contractors who are 
attorneys, with the limited exception described below, from 
participating in the administrative process contemplated by section 
7602(a). Under this prohibition, a non-government attorney, with the 
limited exception described below, may not review summoned books, 
papers, records or other data or question summoned witnesses on behalf 
of the IRS unless the attorney is hired by the IRS for a permitted 
purpose.
    As a limited exception to that prohibition, proposed Sec.  
301.7602-1(b)(3)(ii) permits the IRS to hire a non-government attorney 
if the attorney is being hired for specialized substantive subject 
matter expertise in an area other than federal tax law. Specifically, 
proposed Sec.  301.7602-1(b)(3)(ii) permits the IRS to hire an attorney 
who has specialized knowledge of foreign, state, or local law, 
including tax law, or who is a specialist in non-tax substantive law 
such as patent law, property law, or environmental law. It would not 
permit IRS to hire an attorney for non-substantive specialized 
knowledge, such as civil litigation skills. Proposed Sec.  301.7602-
1(b)(3)(ii) also permits the IRS to hire a contractor who may happen to 
be an attorney, but who is hired for knowledge, skills, or abilities 
other than providing legal services as an attorney. Further, proposed 
Sec.  301.7602-1(b)(3)(ii) permits the IRS to hire an entity that 
employs or is owned by attorneys so long as the expertise they are 
providing is not prohibited by proposed Sec.  301.7602-1(b)(3)(ii).
    These changes are proposed to be effective for examinations begun 
and summonses served by the IRS on or after the date that these 
proposed regulations are published in the Federal Register.

Special Analyses

    Certain IRS regulations, including these, are exempt from the 
requirements of Executive Order 12866, as supplemented and affirmed by 
Executive Order 13563. Therefore, a regulatory assessment is not 
required. Because the proposed regulations would not impose a 
collection of information on small entities, the Regulatory Flexibility 
Act (5 U.S.C. chapter 6) does not apply. Therefore, a regulatory 
flexibility analysis is not required. Pursuant to section 7805(f) of 
the Internal Revenue Code, the IRS will submit the proposed regulations 
to the Chief Counsel for Advocacy of the Small Business Administration 
for comments about the regulations' impact on small businesses.

Comments and Request for a Public Hearing

    Before these proposed regulations are adopted as final, the IRS 
will consider any written (signed original and 8

[[Page 13208]]

copies) or electronic comments timely submitted. The IRS requests 
comments on all aspects of these proposed regulations. All comments 
will be available for public inspection and copying. The IRS will 
schedule a public meeting if one is requested, in writing, by a person 
who submits written comments. If the IRS does schedule a public 
hearing, the IRS will publish notice of the date, time, and place for 
the public hearing in the Federal Register.

Drafting Information

    The principal author of these regulations is William V. Spatz of 
the Office of Associate Chief Counsel (Procedure and Administration).

List of Subjects in 26 CFR Part 301

    Employment taxes, Estate taxes, Excise taxes, Gift taxes, Income 
taxes, Penalties, Reporting and recordkeeping requirements.

Proposed Amendments to the Regulations

    Accordingly, 26 CFR part 301 is proposed to be amended as follows:

PART 301--PROCEDURE AND ADMINISTRATION

0
Paragraph 1. The authority citation for part 301 continues to read in 
part as follows:

    Authority: 26 U.S.C. 7805 * * *

0
Par. 2. Section 301.7602-1 is amended by revising paragraphs(b)(3) and 
(d) to read as follows:


Sec.  301.7602-1  Examination of books and witnesses.

* * * * *
    (b) * * *
    (3) Participation of a person described in section 6103(n). (i) In 
general. Except as provided in paragraph (b)(3)(ii) of this section, 
for purposes of this paragraph (b), a person authorized to receive 
returns or return information under section 6103(n) and Sec.  
301.6103(n)-1(a) of the regulations may receive and review books, 
papers, records, or other data produced in compliance with a summons, 
and, in the presence and under the guidance of an IRS officer or 
employee, participate fully in the interview of a witness summoned by 
the IRS to provide testimony under oath. Fully participating in an 
interview includes, but is not limited to, receipt, review, and use of 
summoned books, papers, records, or other data; being present during 
summons interviews; and questioning the person providing testimony 
under oath.
    (ii) Exception for certain non-governmental attorneys. An attorney 
who is not an officer or employee of the United States may not be hired 
by the IRS to perform the activities described in paragraph (b)(3)(i) 
of this section unless the attorney is hired by the IRS as a specialist 
in foreign, state, or local law, including tax law, or in non-tax 
substantive law that is relevant to an issue in the examination, such 
as patent law, property law, or environmental law, or is hired for 
knowledge, skills, or abilities other than providing legal services as 
an attorney.
* * * * *
    (d) Applicability date. This section is applicable after September 
3, 1982, except for paragraphs (b)(1) and (2) of this section which are 
applicable on and after April 1, 2005 and paragraph (b)(3) of this 
section which applies to examinations begun or administrative summonses 
served by the IRS on or after March 27, 2018. For rules under 
paragraphs (b)(1) and (2) of this section that are applicable to 
summonses issued on or after September 10, 2002 or under paragraph 
(b)(3) of this section that are applicable to summons interviews 
conducted on or after June 18, 2014 and before July 14, 2016, see 26 
CFR 301.7602-1T (revised as of April 1, 2016). For rules under 
paragraph (b)(3) of this section that are applicable to administrative 
summonses served by the IRS before March 27, 2018, see 26 CFR 301.7602-
1 (revised as of April 1, 2017).

Kirsten Wielobob,
Deputy Commissioner for Services and Enforcement.
[FR Doc. 2018-06242 Filed 3-27-18; 8:45 am]
 BILLING CODE 4830-01-P



                                                 13206

                                                 Proposed Rules                                                                                                Federal Register
                                                                                                                                                               Vol. 83, No. 60

                                                                                                                                                               Wednesday, March 28, 2018



                                                 This section of the FEDERAL REGISTER                    Washington, DC 20044. Submissions                     The only change from the temporary
                                                 contains notices to the public of the proposed          may be hand-delivered Monday through                  regulations in the final regulations was
                                                 issuance of rules and regulations. The                  Friday between the hours of 8 a.m. and                to replace the word ‘‘examine’’ with
                                                 purpose of these notices is to give interested          4 p.m. to CC:PA:LPD:PR (REG–132434–                   ‘‘review’’ in the phrase describing what
                                                 persons an opportunity to participate in the            17), Courier’s Desk, Internal Revenue                 contractors may do with books, papers,
                                                 rule making prior to the adoption of the final
                                                 rules.
                                                                                                         Service, 1111 Constitution Avenue NW,                 records, or other data received by the
                                                                                                         Washington, DC, or sent electronically                IRS under a summons. The preamble to
                                                                                                         via the Federal eRulemaking Portal at                 the final regulations explains that this
                                                 DEPARTMENT OF THE TREASURY                              www.regulations.gov (IRS–REG–                         was intended to clarify that the
                                                                                                         132434–17).                                           regulations do not authorize contractors
                                                 Internal Revenue Service                                FOR FURTHER INFORMATION CONTACT:                      to direct audits of a taxpayer’s return.
                                                                                                         Concerning submission of comments,                    See 81 FR 45410.
                                                 26 CFR Part 301                                         Regina Johnson, (202) 317–6901;                       Description of Summons Interview
                                                 [REG–132434–17]
                                                                                                         concerning the proposed regulations,                  Regulations
                                                                                                         William V. Spatz at (202) 317–5461 (not
                                                 RIN 1545–B012                                           toll-free numbers).                                      The United States tax system relies
                                                                                                         SUPPLEMENTARY INFORMATION:                            upon taxpayers’ self-assessment and
                                                 Certain Non-Government Attorneys                                                                              reporting of their tax liability. The
                                                 Not Authorized To Participate in                        Background                                            expansive information-gathering
                                                 Examinations of Books and Witnesses                        These proposed regulations amend                   authority that Congress granted to the
                                                 as a Section 6103(n) Contractor                         Procedure and Administration                          IRS under the Code includes the IRS’s
                                                                                                         Regulations (26 CFR part 301) under                   broad examination and summons
                                                 AGENCY: Internal Revenue Service (IRS),
                                                                                                         section 7602(a) of the Internal Revenue               authority, which allows the IRS to
                                                 Treasury.
                                                                                                         Code relating to participation by                     determine the accuracy of that self-
                                                 ACTION: Notice of proposed rulemaking.                                                                        assessment. See United States v. Arthur
                                                                                                         persons described in section 6103(n)
                                                                                                         and Treas. Reg. § 301.6103(n)–1(a) in                 Young & Co., 65 U.S. 805, 816 (1984).
                                                 SUMMARY:   This document contains
                                                                                                         receiving and reviewing summoned                      Section 7602(a) provides that, for the
                                                 proposed regulations to amend
                                                                                                         books, papers, records, or other data and             purpose of ascertaining the correctness
                                                 regulations under section 7602(a) of the
                                                                                                         in interviewing a summoned witness                    of any return, making a return where
                                                 Internal Revenue Code relating to
                                                                                                         under oath. These proposed regulations                none has been made, or determining the
                                                 administrative proceedings. Current
                                                                                                         narrow the scope of the current                       liability of any person for any internal
                                                 regulations permit any person
                                                                                                         regulations by providing that certain                 revenue tax, the IRS is authorized to
                                                 authorized to receive returns and return
                                                                                                         non-government attorneys hired by the                 examine books and records, issue
                                                 information under section 6103(n) and
                                                                                                         IRS are not authorized to participate in              summonses seeking documents and
                                                 the regulations thereunder to receive
                                                                                                         an examination.                                       testimony, and take testimony from
                                                 and review summoned books, papers,
                                                                                                            On June 18, 2014, temporary                        witnesses under oath. These provisions
                                                 and other data, and, in the presence and
                                                                                                         regulations (TD 9669) regarding                       have been part of the revenue laws since
                                                 under the guidance of an IRS officer or
                                                                                                         participation in a summons interview of               1864.
                                                 employee, participate fully in the
                                                 interview of a witness in a summons                     a person described in section 6103(n)                    Use of outside specialists is
                                                 interview. These proposed regulations                   were published in the Federal Register                appropriate to assist the IRS in
                                                 significantly narrow the scope of the                   (79 FR 34625). A notice of proposed                   determining the correctness of the
                                                 current regulations by excluding non-                   rulemaking (REG–121542–14) cross-                     taxpayer’s self-assessed tax liability. The
                                                 government attorneys from receiving                     referencing the temporary regulations                 assistance of persons from outside the
                                                 summoned books, papers, records, or                     was published in the Federal Register                 IRS, such as economists, engineers,
                                                 other data or from participating in the                 (79 FR 34668) the same day. No public                 appraisers, industry specialists, and
                                                 interview of a witness summoned by the                  hearing was requested or held. The                    actuaries, promotes fair and efficient
                                                 IRS to provide testimony under oath,                    Internal Revenue Service received two                 administration and enforcement of the
                                                 with a limited exception. These                         comments on the proposed regulations.                 laws administered by the IRS by
                                                 proposed regulations affect taxpayers                   One comment recommended that the                      providing specialized knowledge, skills,
                                                 involved in a federal tax examination                   regulations be revised to remove the                  or abilities that the IRS officers or
                                                 and other persons whose books and                       provision permitting a contractor to                  employees assigned to the examination
                                                 records or testimony are sought to be                   question a witness under oath or to ask               may not possess. Section 6103(n) and
                                                 examined by the IRS under section                       a witness’s representative to clarify an              Treas. Reg. § 301.6103(n)–1(a) authorize
                                                 7602(a).                                                objection or assertion of privilege. The              the IRS to disclose returns and return
daltland on DSKBBV9HB2PROD with PROPOSALS




                                                                                                         other comment recommended that the                    information to these contractors. The
                                                 DATES: Written or electronic comments                   proposed and temporary regulations be                 regulations under § 301.7602–1(b)(3)
                                                 and requests for a public hearing must                  withdrawn. After consideration of these               were issued to clarify that persons
                                                 be received by June 26, 2018.                           comments, the proposed regulations                    described in section 6103(n) and Treas.
                                                 ADDRESSES: Send submissions to:                         were adopted in final regulations (TD                 Reg. § 301.6103(n)–1(a) may receive and
                                                 CC:PA:LPD:PR (REG–132434–17), Room                      9778) published in the Federal Register               review books, papers, records, or other
                                                 5203, Internal Revenue Service, P.O.                    (81 FR 45409) on July 14, 2016                        data summoned by the IRS and, in the
                                                 Box 7604, Ben Franklin Station,                         (‘‘Summons Interview Regulations’’).                  presence and under the guidance of an


                                            VerDate Sep<11>2014   16:35 Mar 27, 2018   Jkt 244001   PO 00000   Frm 00001   Fmt 4702   Sfmt 4702   E:\FR\FM\28MRP1.SGM   28MRP1


                                                                       Federal Register / Vol. 83, No. 60 / Wednesday, March 28, 2018 / Proposed Rules                                           13207

                                                 IRS officer or employee, participate                    regulations permit the IRS to hire law                process contemplated by section
                                                 fully in the interview of a person who                  firms to receive and review summoned                  7602(a). Under this prohibition, a non-
                                                 the IRS has summoned as a witness to                    information and fully participate in a                government attorney, with the limited
                                                 provide testimony under oath. See 81                    summons interview on behalf of the                    exception described below, may not
                                                 FR 45410.                                               government.                                           review summoned books, papers,
                                                                                                            On October 16, 2017, the Secretary                 records or other data or question
                                                 Executive Order 13789, Notice 2017–38,                  published the Second Report in the                    summoned witnesses on behalf of the
                                                 and the Reports to the President                        Federal Register (82 FR 48013) stating                IRS unless the attorney is hired by the
                                                    Executive Order 13789, issued on                     that the Treasury Department and the                  IRS for a permitted purpose.
                                                 April 21, 2017 (E.O. 13789, 82 FR                       IRS are considering proposing a                          As a limited exception to that
                                                 19317), instructs the Secretary of the                  prospectively effective amendment to                  prohibition, proposed § 301.7602–
                                                 Treasury (the Secretary) to review all                  the Summons Interview Regulations to                  1(b)(3)(ii) permits the IRS to hire a non-
                                                 significant tax regulations issued on or                narrow their scope to prohibit non-                   government attorney if the attorney is
                                                 after January 1, 2016, and to take                      government attorneys from questioning                 being hired for specialized substantive
                                                 appropriate action to alleviate the                     witnesses on behalf of the IRS,                       subject matter expertise in an area other
                                                 burdens of regulations that (i) impose an               reviewing summoned records, or                        than federal tax law. Specifically,
                                                 undue financial burden on U.S.                          playing a behind-the-scenes role in an                proposed § 301.7602–1(b)(3)(ii) permits
                                                 taxpayers; (ii) add undue complexity to                 examination, such as consulting on IRS                the IRS to hire an attorney who has
                                                 the Federal tax laws; or (iii) exceed the               legal strategy, with a limited exception.             specialized knowledge of foreign, state,
                                                 statutory authority of the IRS.                            The Code provides IRS officers and                 or local law, including tax law, or who
                                                    E.O. 13789 further instructs the                     employees with significant and broad                  is a specialist in non-tax substantive law
                                                 Secretary to submit to the President                    powers under its summons authority to                 such as patent law, property law, or
                                                 within 60 days a report (First Report)                  question witnesses under oath and to                  environmental law. It would not permit
                                                 that identifies regulations that meet                   require the production of books and                   IRS to hire an attorney for non-
                                                 these criteria. Notice 2017–38 (2017–30                 records. The Summons Interview                        substantive specialized knowledge, such
                                                 I.R.B. 147 (July 24, 2017)) included the                Regulations require the IRS to retain                 as civil litigation skills. Proposed
                                                 Summons Interview Regulations in a list                 authority over important decisions                    § 301.7602–1(b)(3)(ii) also permits the
                                                 of eight regulations identified by the                  when section 6103(n) contractors                      IRS to hire a contractor who may
                                                 Secretary in the First Report as meeting                question witnesses, but there is a                    happen to be an attorney, but who is
                                                 at least one of the first two criteria                  perceived risk that the IRS may not be                hired for knowledge, skills, or abilities
                                                 specified in E.O. 13789. E.O. 13789                     able to maintain full control over the                other than providing legal services as an
                                                 further instructs the Secretary to submit               actions of a non-government attorney                  attorney. Further, proposed § 301.7602–
                                                 to the President a second report (Second                hired by the IRS when such an attorney,               1(b)(3)(ii) permits the IRS to hire an
                                                 Report) that recommends specific                        with the limited exception described                  entity that employs or is owned by
                                                 actions to mitigate the burden imposed                  below, questions witnesses. The actions               attorneys so long as the expertise they
                                                 by regulations identified in the First                  of the non-governmental attorney while                are providing is not prohibited by
                                                 Report.                                                 questioning witnesses could foreclose                 proposed § 301.7602–1(b)(3)(ii).
                                                    In response to Notice 2017–38, the                   IRS officials from independently                         These changes are proposed to be
                                                 Treasury Department and the IRS                         exercising their judgment. Managing an                effective for examinations begun and
                                                 received seven comments from                            examination or summons interview is                   summonses served by the IRS on or after
                                                 professional and business associations                  therefore best exercised solely by                    the date that these proposed regulations
                                                 addressing the Summons Interview                        government employees, including                       are published in the Federal Register.
                                                 Regulations. All but one of these                       government attorneys, whose only duty
                                                 comments recommended removal of the                     is to serve the public interest. These                Special Analyses
                                                 regulations based primarily on the                      concerns outweigh the countervailing                     Certain IRS regulations, including
                                                 commentators’ perception that the                       need for the IRS to use non-government                these, are exempt from the requirements
                                                 regulations create longer and less                      attorneys, except in the limited                      of Executive Order 12866, as
                                                 efficient examinations by improperly                    circumstances set forth in proposed                   supplemented and affirmed by
                                                 delegating authority to outside law firms               paragraph (b)(3)(ii). Treasury and the                Executive Order 13563. Therefore, a
                                                 to conduct examinations. The one                        IRS remain confident that the core                    regulatory assessment is not required.
                                                 commenter that did not recommend                        functions of questioning witnesses and                Because the proposed regulations would
                                                 removal of the regulations in their                     conducting examinations are well                      not impose a collection of information
                                                 entirety requested removal of the                       within the expertise and ability of                   on small entities, the Regulatory
                                                 provisions permitting a contractor to                   government attorneys and examination                  Flexibility Act (5 U.S.C. chapter 6) does
                                                 directly question a witness during a                    agents.                                               not apply. Therefore, a regulatory
                                                 summons interview.                                                                                            flexibility analysis is not required.
                                                    As explained in the preamble to the                  Explanation of Provisions
                                                                                                                                                               Pursuant to section 7805(f) of the
                                                 final Summons Interview Regulations,                      Proposed § 301.7602–1(b)(3)(i) retains              Internal Revenue Code, the IRS will
                                                 the regulations do not delegate authority               the rule from the Summons Interview                   submit the proposed regulations to the
                                                 to conduct examinations or summons                      Regulations authorizing section 6103(n)               Chief Counsel for Advocacy of the Small
                                                 interviews. Rather, the regulations                     contractors to receive and review                     Business Administration for comments
daltland on DSKBBV9HB2PROD with PROPOSALS




                                                 permit contractors authorized under                     summoned information and fully                        about the regulations’ impact on small
                                                 section 6103(n) to review books and                     participate in the summons interview,                 businesses.
                                                 records and be present and ask                          including questioning witnesses.
                                                 questions during summons interviews,                    However, proposed § 301.7602–                         Comments and Request for a Public
                                                 all under the supervision of IRS officers               1(b)(3)(ii) is added to prohibit                      Hearing
                                                 and employees. See 81 FR 45410–45412.                   contractors who are attorneys, with the                 Before these proposed regulations are
                                                    Comments in response to Notice                       limited exception described below, from               adopted as final, the IRS will consider
                                                 2017–38 also raised concerns that the                   participating in the administrative                   any written (signed original and 8


                                            VerDate Sep<11>2014   16:35 Mar 27, 2018   Jkt 244001   PO 00000   Frm 00002   Fmt 4702   Sfmt 4702   E:\FR\FM\28MRP1.SGM   28MRP1


                                                 13208                 Federal Register / Vol. 83, No. 60 / Wednesday, March 28, 2018 / Proposed Rules

                                                 copies) or electronic comments timely                      (ii) Exception for certain non-                    order to avoid interference with the law
                                                 submitted. The IRS requests comments                    governmental attorneys. An attorney                   enforcement functions and
                                                 on all aspects of these proposed                        who is not an officer or employee of the              responsibilities of OIG. For the reasons
                                                 regulations. All comments will be                       United States may not be hired by the                 provided below, the Department
                                                 available for public inspection and                     IRS to perform the activities described               proposes to amend its Privacy Act
                                                 copying. The IRS will schedule a public                 in paragraph (b)(3)(i) of this section                regulations by establishing an
                                                 meeting if one is requested, in writing,                unless the attorney is hired by the IRS               exemption for records in this system
                                                 by a person who submits written                         as a specialist in foreign, state, or local           from certain provisions of the Privacy
                                                 comments. If the IRS does schedule a                    law, including tax law, or in non-tax                 Act. Public comment is invited.
                                                 public hearing, the IRS will publish                    substantive law that is relevant to an                DATES: Comments must be received by
                                                 notice of the date, time, and place for                 issue in the examination, such as patent              April 27, 2018.
                                                 the public hearing in the Federal                       law, property law, or environmental                   ADDRESSES: You may send comments by
                                                 Register.                                               law, or is hired for knowledge, skills, or            any of the following methods:
                                                                                                         abilities other than providing legal                    • Email: privacy.compliance@
                                                 Drafting Information
                                                                                                         services as an attorney.                              usdoj.gov. To ensure proper handling,
                                                   The principal author of these                         *       *   *     *     *                             please reference the CPCLO Order
                                                 regulations is William V. Spatz of the                     (d) Applicability date. This section is            Number in the subject line of the
                                                 Office of Associate Chief Counsel                       applicable after September 3, 1982,                   message.
                                                 (Procedure and Administration).                         except for paragraphs (b)(1) and (2) of                 • Fax: 202–307–0693. To ensure
                                                 List of Subjects in 26 CFR Part 301                     this section which are applicable on and              proper handling, please reference the
                                                                                                         after April 1, 2005 and paragraph (b)(3)              CPCLO Order Number on the
                                                   Employment taxes, Estate taxes,
                                                                                                         of this section which applies to                      accompanying cover page.
                                                 Excise taxes, Gift taxes, Income taxes,
                                                 Penalties, Reporting and recordkeeping
                                                                                                         examinations begun or administrative                     • Mail: United States Department of
                                                                                                         summonses served by the IRS on or after               Justice, Office of Privacy and Civil
                                                 requirements.
                                                                                                         March 27, 2018. For rules under                       Liberties, ATTN: Privacy Analyst,
                                                 Proposed Amendments to the                              paragraphs (b)(1) and (2) of this section             National Place Building, 1331
                                                 Regulations                                             that are applicable to summonses issued               Pennsylvania Avenue NW, Suite 1000,
                                                   Accordingly, 26 CFR part 301 is                       on or after September 10, 2002 or under               Washington, DC 20530. All comments
                                                 proposed to be amended as follows:                      paragraph (b)(3) of this section that are             sent via regular or express mail will be
                                                                                                         applicable to summons interviews                      considered timely if postmarked on the
                                                 PART 301—PROCEDURE AND                                  conducted on or after June 18, 2014 and               day the comment period closes. To
                                                 ADMINISTRATION                                          before July 14, 2016, see 26 CFR                      ensure proper handling, please
                                                                                                         301.7602–1T (revised as of April 1,                   reference the CPCLO Order Number in
                                                 ■ Paragraph 1. The authority citation                   2016). For rules under paragraph (b)(3)               your correspondence.
                                                 for part 301 continues to read in part as               of this section that are applicable to                   • Federal eRulemaking Portal:
                                                 follows:                                                administrative summonses served by                    https://www.regulations.gov. When
                                                     Authority: 26 U.S.C. 7805 * * *                     the IRS before March 27, 2018, see 26                 submitting comments electronically,
                                                                                                         CFR 301.7602–1 (revised as of April 1,                you must include the CPCLO Order
                                                 ■ Par. 2. Section 301.7602–1 is
                                                                                                         2017).                                                Number in the subject box. Please note
                                                 amended by revising paragraphs(b)(3)
                                                 and (d) to read as follows:                             Kirsten Wielobob,                                     that the Department is requesting that
                                                                                                                                                               electronic comments be submitted
                                                                                                         Deputy Commissioner for Services and
                                                 § 301.7602–1     Examination of books and               Enforcement.                                          before midnight Eastern Time on the
                                                 witnesses.                                                                                                    day the comment period closes.
                                                                                                         [FR Doc. 2018–06242 Filed 3–27–18; 8:45 am]
                                                 *     *     *     *     *                                                                                        Posting of Public Comments: Please
                                                                                                         BILLING CODE 4830–01–P
                                                   (b) * * *                                                                                                   note that all comments received are
                                                   (3) Participation of a person described                                                                     considered part of the public record and
                                                 in section 6103(n). (i) In general. Except                                                                    made available for public inspection
                                                 as provided in paragraph (b)(3)(ii) of                  DEPARTMENT OF JUSTICE                                 online at https://www.regulations.gov
                                                 this section, for purposes of this                                                                            and in the Department’s public docket.
                                                                                                         28 CFR Part 16
                                                 paragraph (b), a person authorized to                                                                         Such information includes personally
                                                 receive returns or return information                   [CPCLO Order No. 003–2018]                            identifying information (such as name,
                                                 under section 6103(n) and                                                                                     address, etc.) voluntarily submitted by
                                                 § 301.6103(n)–1(a) of the regulations                   Privacy Act of 1974; Implementation                   the commenter. If you want to submit
                                                 may receive and review books, papers,                   AGENCY: Office of Inspector General,                  personal identifying information as part
                                                 records, or other data produced in                      United States Department of Justice.                  of your comment, but do not want it to
                                                 compliance with a summons, and, in                      ACTION: Notice of proposed rulemaking.                be posted online or made available in
                                                 the presence and under the guidance of                                                                        the public docket, you must include the
                                                 an IRS officer or employee, participate                 SUMMARY:   Elsewhere in this issue of the             phrase ‘‘PERSONAL IDENTIFYING
                                                 fully in the interview of a witness                     Federal Register, the Office of Inspector             INFORMATION’’ in the first paragraph
                                                 summoned by the IRS to provide                          General (OIG), a component within the                 of your comment. You must also place
daltland on DSKBBV9HB2PROD with PROPOSALS




                                                 testimony under oath. Fully                             United States Department of Justice                   all personal identifying information that
                                                 participating in an interview includes,                 (DOJ or Department), has published a                  you do not want posted online or made
                                                 but is not limited to, receipt, review,                 new system of records notice, ‘‘Data                  available in the public docket in the first
                                                 and use of summoned books, papers,                      Analytics Program Records System,’’                   paragraph of your comment and identify
                                                 records, or other data; being present                   JUSTICE/OIG–006. In this notice of                    what information you want redacted.
                                                 during summons interviews; and                          proposed rulemaking, OIG proposes to                     If you want to submit confidential
                                                 questioning the person providing                        exempt this system of records from                    business information as part of your
                                                 testimony under oath.                                   certain provisions of the Privacy Act in              comment, but do not want it to be


                                            VerDate Sep<11>2014   16:35 Mar 27, 2018   Jkt 244001   PO 00000   Frm 00003   Fmt 4702   Sfmt 4702   E:\FR\FM\28MRP1.SGM   28MRP1



Document Created: 2018-11-01 08:55:23
Document Modified: 2018-11-01 08:55:23
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionProposed Rules
ActionNotice of proposed rulemaking.
DatesWritten or electronic comments and requests for a public hearing must be received by June 26, 2018.
ContactConcerning submission of comments, Regina Johnson, (202) 317-6901; concerning the proposed regulations, William V. Spatz at (202) 317-5461 (not toll-free numbers).
FR Citation83 FR 13206 
RIN Number1545-B012
CFR AssociatedEmployment Taxes; Estate Taxes; Excise Taxes; Gift Taxes; Income Taxes; Penalties and Reporting and Recordkeeping Requirements

2024 Federal Register | Disclaimer | Privacy Policy
USC | CFR | eCFR