83_FR_34838 83 FR 34698 - Proposed Collection; Comment Request for Regulation Project

83 FR 34698 - Proposed Collection; Comment Request for Regulation Project

DEPARTMENT OF THE TREASURY
Internal Revenue Service

Federal Register Volume 83, Issue 140 (July 20, 2018)

Page Range34698-34700
FR Document2018-15627

The Internal Revenue Service, as part of its continuing effort to reduce paperwork and respondent burden, invites the general public and other Federal agencies to take this opportunity to comment on continuing information collections, as required by the Paperwork Reduction Act of 1995. The IRS is soliciting comments on forms used by individual taxpayers: Comment Request focused on Form 1040 and Schedules 1, 2, 3, 4, 5, 6, the discontinuance of 1040A and 1040EZ and revised Form W-4. The remainder of the collection including Schedules A, B, C, C-EZ, D, E, EIC, F, H, J, R, and SE, Form 1040NR, Form 1040NR- EZ, Form 1040X, and all attachments to these forms will be addressed on the next submission of the information collection.

Federal Register, Volume 83 Issue 140 (Friday, July 20, 2018)
[Federal Register Volume 83, Number 140 (Friday, July 20, 2018)]
[Notices]
[Pages 34698-34700]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-15627]


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DEPARTMENT OF THE TREASURY

Internal Revenue Service


Proposed Collection; Comment Request for Regulation Project

AGENCY: Internal Revenue Service (IRS), Treasury.

ACTION: Notice and request for comments.

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

SUMMARY: The Internal Revenue Service, as part of its continuing effort 
to reduce paperwork and respondent burden, invites the general public 
and other Federal agencies to take this opportunity to comment on 
continuing information collections, as required by the Paperwork 
Reduction Act of 1995. The IRS is soliciting comments on forms used by 
individual taxpayers: Comment Request focused on Form 1040 and 
Schedules 1, 2, 3, 4, 5, 6, the discontinuance of 1040A and 1040EZ and 
revised Form W-4. The remainder of the collection including Schedules 
A, B, C, C-EZ, D, E, EIC, F, H, J, R, and SE, Form 1040NR, Form 1040NR-
EZ, Form 1040X, and all attachments to these forms will be addressed on 
the next submission of the information collection.

DATES: Comments should be received on or before September 18, 2018 to 
be assured of consideration.

ADDRESSES: Taxpayers may submit comments electronically via the Federal 
eRulemaking Portal at www.regulations.gov (type IRS-2018-0015 in the 
search field on the regulation.gov homepage to find this notice and 
submit comments). All recommendations for guidance submitted by the 
public in response to this notice will be available for public 
inspection and copying in their entirety. Direct all written comments 
to Laurie Brimmer, Internal Revenue Service, at (202) 317-5756, Room 
6529, 1111 Constitution Avenue NW, Washington, DC 20224.

FOR FURTHER INFORMATION CONTACT: Requests for additional information or 
copies of the form should be directed to Kerry Dennis at Internal 
Revenue Service, at (202) 317-5751 Room 6529, 1111 Constitution Avenue 
NW, Washington, DC 20224, or through the internet, at [email protected].

SUPPLEMENTARY INFORMATION: 

PRA Approval of Forms Used by Individual Taxpayers

    Under the PRA, OMB assigns a control number to each ''collection of 
information'' that it reviews and approves for use by an agency. The 
PRA also requires agencies to estimate the burden for each collection 
of information. Burden estimates for each control number are displayed 
in (1) PRA notices that accompany collections of information, (2) 
Federal Register notices such as this one, and (3) OMB's database of 
approved information collections.

Taxpayer Burden Model

    The IRS uses the Individual Taxpayer Burden Model (ITBM) to 
estimate the burden experienced by individual taxpayers when complying 
with Federal tax laws. The model was developed using a survey of tax 
year 2015 individual taxpayers that was fielded in 2016 and 2017. The 
approach to measuring burden focuses on the characteristics and 
activities undertaken by individual taxpayers in meeting their tax 
return filing obligations.
    Burden is defined as the time and out-of-pocket costs incurred by 
taxpayers in complying with the Federal tax system. Out-of-pocket costs 
include any expenses incurred by taxpayers to prepare and submit their 
tax returns. Examples include tax return preparation fees, the purchase 
price of tax preparation software, submission fees, photocopying costs, 
postage, and phone calls (if not toll-free).
    The methodology distinguishes among preparation method, taxpayer 
activities, taxpayer type, filing method, and income level. Indicators 
of tax law and administrative complexity, as reflected in the tax forms 
and instructions, are incorporated into the model.
    Preparation methods reflected in the model are as follows:
     Self-prepared without software,
     Self-prepared with software, and
     Use of a paid preparer or tax professional.
    Types of taxpayer activities reflected in the model are as follows:
     Recordkeeping,
     Tax planning,
     Gathering tax materials,
     Use of services (IRS and other),
     Form completion, and
     Form submission.

Taxpayer Burden Estimates

    Summary level results from fiscal year 2018 using this methodology 
are presented below. The data shown were the best forward-looking 
estimates available for income tax returns filed for tax year 2017.
    The burden estimates were based on tax year 2017 statutory 
requirements as of January 31, 2018 for taxpayers filing a tax year 
2017 Form 1040, 1040A, or 1040EZ tax return. Time spent and out-of-
pocket costs are presented separately. Time burden is broken out by 
taxpayer activity, with record keeping representing the largest 
component. Out-of-pocket costs include any expenses incurred by 
taxpayers to prepare and submit their tax returns. Examples include tax 
return preparation and submission fees, postage and photocopying costs, 
and tax preparation software costs.
    Reported time and cost burdens are national averages and do not 
necessarily reflect a ``typical'' case. Most taxpayers

[[Page 34699]]

experience lower than average burden, with taxpayer burden varying 
considerably by taxpayer type. For instance, the estimated average time 
burden for all taxpayers filing a tax year 2017 Form 1040, 1040A, or 
1040EZ is 12 hours, with an average cost of $210 per return. This 
average includes all associated forms and schedules, across all 
preparation methods and taxpayer activities. The average burden for 
taxpayers filing a tax year 2017 Form 1040 is about 15 hours and $270; 
the average burden for taxpayers filing a tax year 2017 Form 1040A is 
about 7 hours and $90; and the average for a tax year 2017 Form 1040EZ 
filers is about 5 hours and $40.
    Within each of these estimates there is significant variation in 
taxpayer activity. For example, tax year 2017 non-business taxpayers 
are expected to have an average burden of about 8 hours and $120, while 
tax year 2017 business taxpayers are expected to have an average burden 
of about 21 hours and $410. Similarly, tax preparation fees and other 
out-of-pocket costs vary extensively depending on the tax situation of 
the taxpayer, the type of software or professional preparer used, and 
the geographic location.

Proposed PRA Submission to OMB

    Title: U.S. Individual Income Tax Return.
    OMB Number: 1545-0074.
    Form Numbers: Form 1040 and Schedules 1, 2, 3, 4, 5, 6, the 
discontinuance of 1040A and 1040EZ and revised Form W-4.
    Abstract: These forms are used by individuals to report their 
income tax liability. The data is used to verify that the items 
reported on the forms are correct, and also for general statistical 
use.
    Current Actions:

2018 Draft Form 1040

    The revised 2018 Form 1040 is in draft form and subject to change. 
The updated form, full set of draft instructions, and updated burden 
and cost estimates will be included in the 30day FRN issued by 
Treasury. Following the most expansive tax law changes in 30 years, 
Treasury asked the IRS to look at ways to improve the 1040 filing 
experience. In response, the IRS took a strategic look at the family of 
1040 forms with a goal of simplifying the experience for taxpayers and 
our partners in the tax industry. The 2018 draft Form 1040 replaces the 
current Form 1040 as well as the Form 1040A and the Form 1040EZ. The 
2018 draft Form 1040 uses a ``building block'' approach, which can be 
supplemented with additional schedules as needed. The 2018 draft Form 
1040 goes from the current 79 lines to somewhere around 23 lines. 
Taxpayers with straightforward tax situations would only need to file 
this new 1040 with no additional schedules. The changes effective in 
2018 and affecting the tax returns taxpayers will file in 2019 include 
(but are not limited to);
    The Filing Status section was simplified. The filing status is 
``Single'' if only one name is entered; ``Married filing jointly'' if 
two are entered and no filing status box is checked.
    Information for the standard deduction was moved below the name 
entry spaces.
    The checkbox for ``Full-year health care coverage'' was moved to 
the first page.
    The ``Exemptions'' section was renamed ``Dependents.'' Taxpayers 
will continue to list individuals for whom they claim tax benefits 
associated with an exemption. Only two dependents can be listed on the 
form itself. Just as in 2017, dependents who cannot be listed on the 
form must be identified in an attached statement.
    The entry spaces for subtotaling exemptions were removed; a new 
checkbox was added for dependents who qualify for the credit for other 
dependents.
    The signature block was moved. An entry space was added for the 
spouse's identity protection PIN in lieu of the taxpayer's daytime 
phone number. The ``Paid Preparers'' section was shortened and a third-
party designee box was added. Taxpayers with third-party designees or a 
foreign address must attach Schedule 6.
    Line 4 (IRAs, pensions and annuities) combined 2017 Form 1040, 
lines 15 and 16.
    Line 6 is a subtotal from Schedule 1, which includes less common 
types of income, as well as any adjustments to income.
    Line 9 was added for the qualified business income deduction under 
section 199A.
    Line 11 is the chapter 1 tax. Taxpayers with less common situations 
will enter an amount from Schedule 2, which generally includes lines 44 
through 47 of the 2017 Form 1040.
    Line 12 is the child tax credit and/or credit for other dependents. 
Taxpayers with other nonrefundable credits, will enter a subtotal from 
Schedule 3, which generally includes lines 48 through 55 of the 2017 
Form 1040.
    Line 14 is a subtotal from Schedule 4, which generally includes the 
items from the ``Other Taxes'' section of the 2017 Form 1040.
    Line 17 is refundable credits and some payments. The earned income 
credit, additional child tax credit, and American opportunity tax 
credit remain on the form. Taxpayers with other credits and payments 
will enter an amount from Schedule 5, which generally includes items 
from the ``Payments'' section of the 2017 Form 1040. Treasury's Office 
of Tax Analysis projects that roughly 25% of projected 2018 individual 
income tax filers would be able to file the new form without any 
attachments (meaning any of the six new schedules or any existing forms 
or schedules that are retained). For context, in Tax Year 2015, 16% of 
1040 series returns filed were Form 1040-EZ.

2019 Draft Form W-4

    The Form W-4 was changed for 2019 as a result of PL 115-97 (Tax 
Reform Act of 2017), especially section 11041, which reduced the 
personal exemption amount to zero and modified the statute related to 
withholding of tax from wages. Even though most tax changes were 
effective for tax year 2018, PL 115-97 allowed these withholding 
changes to be delayed until 2019.
    The Form W-4 is modified to remove the reliance on the personal 
exemption and discrete number of withholding allowances. The Form W-4 
has separate instructions, which provide comprehensive guidance for 
employees and employers. For ease of use in simple situations, a 
summary version of the instructions has been added to the back of the 
2019 W-4 form for quick reference. New lines were added to the W-4 in 
order to provide more accurate withholding amounts.
    The Form W-4 provides more accurate withholding by addressing 
credits, other income, deductions and a graduated tax rate structure 
directly, rather than converting these items to a discrete number of 
withholding allowances tied to the personal exemption amount under 
prior law. The Form W-4 reduces complexity for employees by allowing 
them to directly report tax credits and adjustments to income, rather 
than using worksheets to convert these items to withholding allowances.

Burden Impact Evaluation

    A thorough analysis of the impact of the Tax Cuts and Jobs Act 
(TCJA) of 2017 on the burden faced by individual taxpayers in complying 
with the Federal tax law is still underway but preliminary results 
indicate that the overall impact of the law on individuals will lower 
taxpayer burden. Currently, the average time to complete a tax year 
2018 individual tax return is estimated

[[Page 34700]]

to decrease by 4% to 7% and the average out-of-pocket costs are 
estimated to decrease 1% to 3%. A more detailed evaluation of the 
impact of specific provisions will be provided soon.
    The expected impact of TCJA provisions by statutory and 
discretionary change are provided below:
    Statutory Changes--Overall, the statutory changes are expected to 
lead to an overall decrease in burden. There are three major changes 
that are expected to have a material impact on burden in the TCJA.
    1. The increase in the standard deduction and the limitation on the 
Schedule A tax deduction, taken together, are the most substantial 
changes introduced in the TCJA. These changes are expected to decrease 
the number of Schedule A filers from 46 million to 20 million. The 26 
million drop in Schedule A filings is expected to lead to a material 
decrease in burden.
    2. The change in thresholds on the Form 6251 for alternative 
minimum tax is expected to lead to a significant decrease in Form 6251 
filings, from 10 million to 1 million or less. This change should also 
lead to a material drop in burden.
    3. The new Sec 199A Deduction for qualified business income is 
expected to increase burden for many filers who report sole proprietor 
and passthrough income. The deduction is also expected to increase the 
number of filers with sole proprietors and passthrough income which 
should increase burden.
    Overall, the decreases in burden from the change in Schedule A and 
Form 6251 filings are expected to more than offset the increase burden 
from the Sec 199A Deduction.
    IRS Discretionary Changes--The largest discretionary change in 
place for tax year 2018 is the redesign of the Form 1040 and the 
discontinuance of Forms 1040A, and 1040EZ. Modest decreases in burden 
are expected for some taxpayers who prepare by hand without using a 
paid preparer or tax software but overall, the transition from Forms 
1040, 1040A, and 1040EZ to the shortened Form 1040 is not expected to 
have a material impact on the burden individual taxpayers face. 
Approximately 95% of individual taxpayers use a paid preparer or tax 
software to complete their tax return and almost 90% of individual 
taxpayers e-file. Currently, these taxpayers using assisted methods 
interact with either a tax software interface or a paid prepare so they 
have limited interaction with the tax forms themselves. There is very 
little expectation for their experience to change so the form redesign 
is not expected to have a material impact on them.
    The impact of the Form 1040 redesign on the approximately 5% of 
individual taxpayers who complete their taxes by hand without using a 
paid preparer or software is not expected to have a material impact on 
overall filing burden. The current expectation is that some taxpayers 
who prepare unassisted will have marginally lower burden while others 
will have marginally higher burden. For example, taxpayers who 
previously filed a Form 1040EZ may experience slightly more burden 
because they need to evaluate more information than before while a 
segment of taxpayers who previously filed the Form 1040 and 1040A may 
experience slightly less burden because they need to evaluate less 
information than before. In addition, some filers are expected to 
experience a reduction in burden from the separation of the components 
of the Form 1040 onto the new set of schedules while some are not. 
Overall, the minor increases and decreases that this population 
experiences are expected to mostly offset and lead to an immaterial 
change in burden.
    Type of Review: Revision of currently approved collections.
    Affected Public: Individuals or households.
    Estimated Number of Respondents: 157,800,000.
    Total Estimated Time: 1.970 billion hours (1,970,000,000 hours).
    Estimated Time per Respondent: 12.48 hours.
    Total Estimated Out-of-Pocket Costs: $32.315 billion 
($32,315,000,000).
    Estimated Out-of-Pocket Cost per Respondent: $205.
    Total Estimated Monetized Burden: $63.373 billion 
($63,373,000,000).
    Estimated Monetized Burden per Respondent: $402.
    The following paragraph applies to all of the collections of 
information covered by this notice.
    An agency may not conduct or sponsor, and a person is not required 
to respond to, a collection of information unless the collection of 
information displays a valid OMB control number. Books or records 
relating to a collection of information must be retained as long as 
their contents may become material in the administration of any 
internal revenue law. Generally, tax returns and tax return information 
are confidential, as required by 26 U.S.C. 6103.
    Request for Comments: Comments submitted in response to this notice 
will be summarized and/or included in the request for OMB approval. All 
comments will become a matter of public record. Comments are invited 
on: (a) Whether the collection of information is necessary for the 
proper performance of the functions of the agency, including whether 
the information shall have practical utility; (b) the accuracy of the 
agency's estimate of the burden of the collection of information; (c) 
ways to enhance the quality, utility, and clarity of the information to 
be collected; (d) ways to minimize the burden of the collection of 
information on respondents, including through the use of automated 
collection techniques or other forms of information technology; and (e) 
estimates of capital or start-up costs and costs of operation, 
maintenance, and purchase of services to provide information.

    Approved: July 17, 2018.
Roberto Mora-Figueroa,
Acting Section Chief, Special Services.
[FR Doc. 2018-15627 Filed 7-18-18; 11:15 am]
 BILLING CODE 4830-01-P



                                               34698                            Federal Register / Vol. 83, No. 140 / Friday, July 20, 2018 / Notices

                                               requiring a Recipient to have a legally                  paperwork and respondent burden,                      taxpayers when complying with Federal
                                               binding agreement with an entity that                    invites the general public and other                  tax laws. The model was developed
                                               has a mortgage lending license is often                  Federal agencies to take this                         using a survey of tax year 2015
                                               not feasible. In this scenario, it is more               opportunity to comment on continuing                  individual taxpayers that was fielded in
                                               reliable to have the Recipient provide                   information collections, as required by               2016 and 2017. The approach to
                                               the mortgage financing directly to the                   the Paperwork Reduction Act of 1995.                  measuring burden focuses on the
                                               Low-Income Families. The CDFI Fund                       The IRS is soliciting comments on forms               characteristics and activities undertaken
                                               has determined that for the purpose of                   used by individual taxpayers: Comment                 by individual taxpayers in meeting their
                                               evidencing Commitment to a Project for                   Request focused on Form 1040 and                      tax return filing obligations.
                                               Purchase and achieving Project                           Schedules 1, 2, 3, 4, 5, 6, the                         Burden is defined as the time and out-
                                               Completion for Purchase, a Recipient’s                   discontinuance of 1040A and 1040EZ                    of-pocket costs incurred by taxpayers in
                                               entire portfolio of Homeownership                        and revised Form W–4. The remainder                   complying with the Federal tax system.
                                               financed and/or supported with its CMF                   of the collection including Schedules A,              Out-of-pocket costs include any
                                               Award will be deemed a Project.                          B, C, C–EZ, D, E, EIC, F, H, J, R, and SE,            expenses incurred by taxpayers to
                                                  For the above stated reasons, the CDFI                Form 1040NR, Form 1040NR–EZ, Form                     prepare and submit their tax returns.
                                               Fund is issuing a general waiver herein                  1040X, and all attachments to these                   Examples include tax return preparation
                                               of 12 CFR 1807.501(b) in cases where                     forms will be addressed on the next                   fees, the purchase price of tax
                                               the CMF Award Recipient serves in the                    submission of the information                         preparation software, submission fees,
                                               role as the developer for the Project or                 collection.                                           photocopying costs, postage, and phone
                                               is financing and/or supporting a Project                 DATES: Comments should be received on                 calls (if not toll-free).
                                               for Purchase and the Project is not                      or before September 18, 2018 to be                      The methodology distinguishes
                                               owned, sponsored, or being developed                     assured of consideration.                             among preparation method, taxpayer
                                               by a limited partnership or limited                                                                            activities, taxpayer type, filing method,
                                                                                                        ADDRESSES: Taxpayers may submit
                                               liability company or other separate                                                                            and income level. Indicators of tax law
                                                                                                        comments electronically via the Federal
                                               entity. Additionally, the CDFI Fund is                                                                         and administrative complexity, as
                                                                                                        eRulemaking Portal at
                                               issuing a general waiver herein of 12                                                                          reflected in the tax forms and
                                                                                                        www.regulations.gov (type IRS–2018–
                                               CFR 1807.501(b) in cases where the                                                                             instructions, are incorporated into the
                                                                                                        0015 in the search field on the
                                               Recipient is committing its CMF Award                                                                          model.
                                                                                                        regulation.gov homepage to find this
                                               to a Loan Loss Reserve made by the                                                                               Preparation methods reflected in the
                                                                                                        notice and submit comments). All
                                               Recipient, where the reserve is not                                                                            model are as follows:
                                                                                                        recommendations for guidance                            • Self-prepared without software,
                                               pledged to a third party or separate                     submitted by the public in response to
                                               entity affiliated with the Recipient, but                                                                        • Self-prepared with software, and
                                                                                                        this notice will be available for public                • Use of a paid preparer or tax
                                               is used to reserve against losses from                   inspection and copying in their entirety.
                                               loans directly made by the Recipient.                                                                          professional.
                                                                                                        Direct all written comments to Laurie                   Types of taxpayer activities reflected
                                                  In lieu of a legally binding written
                                                                                                        Brimmer, Internal Revenue Service, at                 in the model are as follows:
                                               agreement, such Recipients will be able
                                                                                                        (202) 317–5756, Room 6529, 1111                         • Recordkeeping,
                                               to evidence a Commitment via a Board
                                               of Director’s resolution for an identified
                                                                                                        Constitution Avenue NW, Washington,                     • Tax planning,
                                               Project. The resolution will be required
                                                                                                        DC 20224.                                               • Gathering tax materials,
                                               to be in the form and substance                          FOR FURTHER INFORMATION CONTACT:                        • Use of services (IRS and other),
                                               acceptable to the CDFI Fund in its sole                  Requests for additional information or                  • Form completion, and
                                               discretion. The CDFI Fund has                            copies of the form should be directed to                • Form submission.
                                               determined that providing this waiver                    Kerry Dennis at Internal Revenue                      Taxpayer Burden Estimates
                                               does not adversely affect the                            Service, at (202) 317–5751 Room 6529,
                                                                                                        1111 Constitution Avenue NW,                             Summary level results from fiscal year
                                               achievement of the purposes of HERA.                                                                           2018 using this methodology are
                                                                                                        Washington, DC 20224, or through the
                                                 Authority: Pub. L. 110–289. 12 U.S.C.                  internet, at omb.unit@irs.gov.                        presented below. The data shown were
                                               4701, 12 CFR part 1805, 12 CFR part 1807,                                                                      the best forward-looking estimates
                                               12 CFR part 1815, 12 U.S.C. 4502.                        SUPPLEMENTARY INFORMATION:
                                                                                                                                                              available for income tax returns filed for
                                               Mary Ann Donovan,                                        PRA Approval of Forms Used by                         tax year 2017.
                                               Director, Community Development Financial                Individual Taxpayers                                     The burden estimates were based on
                                               Institutions Fund.                                         Under the PRA, OMB assigns a                        tax year 2017 statutory requirements as
                                               [FR Doc. 2018–15473 Filed 7–19–18; 8:45 am]              control number to each ’’collection of                of January 31, 2018 for taxpayers filing
                                               BILLING CODE 4810–70–P                                   information’’ that it reviews and                     a tax year 2017 Form 1040, 1040A, or
                                                                                                        approves for use by an agency. The PRA                1040EZ tax return. Time spent and out-
                                                                                                        also requires agencies to estimate the                of-pocket costs are presented separately.
                                               DEPARTMENT OF THE TREASURY                               burden for each collection of                         Time burden is broken out by taxpayer
                                                                                                        information. Burden estimates for each                activity, with record keeping
                                               Internal Revenue Service                                 control number are displayed in (1) PRA               representing the largest component.
                                                                                                        notices that accompany collections of                 Out-of-pocket costs include any
                                               Proposed Collection; Comment                                                                                   expenses incurred by taxpayers to
                                                                                                        information, (2) Federal Register notices
                                               Request for Regulation Project                                                                                 prepare and submit their tax returns.
                                                                                                        such as this one, and (3) OMB’s
daltland on DSKBBV9HB2PROD with NOTICES




                                               AGENCY: Internal Revenue Service (IRS),                  database of approved information                      Examples include tax return preparation
                                               Treasury.                                                collections.                                          and submission fees, postage and
                                               ACTION: Notice and request for                                                                                 photocopying costs, and tax preparation
                                                                                                        Taxpayer Burden Model                                 software costs.
                                               comments.
                                                                                                          The IRS uses the Individual Taxpayer                   Reported time and cost burdens are
                                               SUMMARY:    The Internal Revenue Service,                Burden Model (ITBM) to estimate the                   national averages and do not necessarily
                                               as part of its continuing effort to reduce               burden experienced by individual                      reflect a ‘‘typical’’ case. Most taxpayers


                                          VerDate Sep<11>2014   18:06 Jul 19, 2018   Jkt 244001   PO 00000   Frm 00163   Fmt 4703   Sfmt 4703   E:\FR\FM\20JYN1.SGM   20JYN1


                                                                                Federal Register / Vol. 83, No. 140 / Friday, July 20, 2018 / Notices                                          34699

                                               experience lower than average burden,                    with additional schedules as needed.                     Line 17 is refundable credits and
                                               with taxpayer burden varying                             The 2018 draft Form 1040 goes from the                some payments. The earned income
                                               considerably by taxpayer type. For                       current 79 lines to somewhere around                  credit, additional child tax credit, and
                                               instance, the estimated average time                     23 lines. Taxpayers with straightforward              American opportunity tax credit remain
                                               burden for all taxpayers filing a tax year               tax situations would only need to file                on the form. Taxpayers with other
                                               2017 Form 1040, 1040A, or 1040EZ is                      this new 1040 with no additional                      credits and payments will enter an
                                               12 hours, with an average cost of $210                   schedules. The changes effective in                   amount from Schedule 5, which
                                               per return. This average includes all                    2018 and affecting the tax returns                    generally includes items from the
                                               associated forms and schedules, across                   taxpayers will file in 2019 include (but              ‘‘Payments’’ section of the 2017 Form
                                               all preparation methods and taxpayer                     are not limited to);                                  1040. Treasury’s Office of Tax Analysis
                                               activities. The average burden for                          The Filing Status section was                      projects that roughly 25% of projected
                                               taxpayers filing a tax year 2017 Form                    simplified. The filing status is ‘‘Single’’           2018 individual income tax filers would
                                               1040 is about 15 hours and $270; the                     if only one name is entered; ‘‘Married                be able to file the new form without any
                                               average burden for taxpayers filing a tax                filing jointly’’ if two are entered and no            attachments (meaning any of the six
                                               year 2017 Form 1040A is about 7 hours                    filing status box is checked.                         new schedules or any existing forms or
                                               and $90; and the average for a tax year                     Information for the standard                       schedules that are retained). For
                                               2017 Form 1040EZ filers is about 5                       deduction was moved below the name                    context, in Tax Year 2015, 16% of 1040
                                               hours and $40.                                           entry spaces.                                         series returns filed were Form 1040–EZ.
                                                  Within each of these estimates there                     The checkbox for ‘‘Full-year health
                                                                                                                                                              2019 Draft Form W–4
                                               is significant variation in taxpayer                     care coverage’’ was moved to the first
                                               activity. For example, tax year 2017                     page.                                                    The Form W–4 was changed for 2019
                                               non-business taxpayers are expected to                      The ‘‘Exemptions’’ section was                     as a result of PL 115–97 (Tax Reform
                                               have an average burden of about 8 hours                  renamed ‘‘Dependents.’’ Taxpayers will                Act of 2017), especially section 11041,
                                               and $120, while tax year 2017 business                   continue to list individuals for whom                 which reduced the personal exemption
                                               taxpayers are expected to have an                        they claim tax benefits associated with               amount to zero and modified the statute
                                               average burden of about 21 hours and                     an exemption. Only two dependents can                 related to withholding of tax from
                                               $410. Similarly, tax preparation fees and                be listed on the form itself. Just as in              wages. Even though most tax changes
                                               other out-of-pocket costs vary                           2017, dependents who cannot be listed                 were effective for tax year 2018, PL 115–
                                               extensively depending on the tax                         on the form must be identified in an                  97 allowed these withholding changes
                                               situation of the taxpayer, the type of                   attached statement.                                   to be delayed until 2019.
                                                                                                           The entry spaces for subtotaling                      The Form W–4 is modified to remove
                                               software or professional preparer used,
                                                                                                        exemptions were removed; a new                        the reliance on the personal exemption
                                               and the geographic location.
                                                                                                        checkbox was added for dependents                     and discrete number of withholding
                                               Proposed PRA Submission to OMB                           who qualify for the credit for other                  allowances. The Form W–4 has separate
                                                  Title: U.S. Individual Income Tax                     dependents.                                           instructions, which provide
                                               Return.                                                     The signature block was moved. An                  comprehensive guidance for employees
                                                  OMB Number: 1545–0074.                                entry space was added for the spouse’s                and employers. For ease of use in
                                                  Form Numbers: Form 1040 and                           identity protection PIN in lieu of the                simple situations, a summary version of
                                               Schedules 1, 2, 3, 4, 5, 6, the                          taxpayer’s daytime phone number. The                  the instructions has been added to the
                                               discontinuance of 1040A and 1040EZ                       ‘‘Paid Preparers’’ section was shortened              back of the 2019 W–4 form for quick
                                               and revised Form W–4.                                    and a third-party designee box was                    reference. New lines were added to the
                                                  Abstract: These forms are used by                     added. Taxpayers with third-party                     W–4 in order to provide more accurate
                                               individuals to report their income tax                   designees or a foreign address must                   withholding amounts.
                                               liability. The data is used to verify that               attach Schedule 6.                                       The Form W–4 provides more
                                               the items reported on the forms are                         Line 4 (IRAs, pensions and annuities)              accurate withholding by addressing
                                               correct, and also for general statistical                combined 2017 Form 1040, lines 15 and                 credits, other income, deductions and a
                                               use.                                                     16.                                                   graduated tax rate structure directly,
                                                  Current Actions:                                         Line 6 is a subtotal from Schedule 1,              rather than converting these items to a
                                                                                                        which includes less common types of                   discrete number of withholding
                                               2018 Draft Form 1040
                                                                                                        income, as well as any adjustments to                 allowances tied to the personal
                                                  The revised 2018 Form 1040 is in                      income.                                               exemption amount under prior law. The
                                               draft form and subject to change. The                       Line 9 was added for the qualified                 Form W–4 reduces complexity for
                                               updated form, full set of draft                          business income deduction under                       employees by allowing them to directly
                                               instructions, and updated burden and                     section 199A.                                         report tax credits and adjustments to
                                               cost estimates will be included in the                      Line 11 is the chapter 1 tax.                      income, rather than using worksheets to
                                               30day FRN issued by Treasury.                            Taxpayers with less common situations                 convert these items to withholding
                                               Following the most expansive tax law                     will enter an amount from Schedule 2,                 allowances.
                                               changes in 30 years, Treasury asked the                  which generally includes lines 44
                                               IRS to look at ways to improve the 1040                  through 47 of the 2017 Form 1040.                     Burden Impact Evaluation
                                               filing experience. In response, the IRS                     Line 12 is the child tax credit and/or               A thorough analysis of the impact of
                                               took a strategic look at the family of                   credit for other dependents. Taxpayers                the Tax Cuts and Jobs Act (TCJA) of
                                               1040 forms with a goal of simplifying                    with other nonrefundable credits, will                2017 on the burden faced by individual
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                                               the experience for taxpayers and our                     enter a subtotal from Schedule 3, which               taxpayers in complying with the Federal
                                               partners in the tax industry. The 2018                   generally includes lines 48 through 55                tax law is still underway but
                                               draft Form 1040 replaces the current                     of the 2017 Form 1040.                                preliminary results indicate that the
                                               Form 1040 as well as the Form 1040A                         Line 14 is a subtotal from Schedule 4,             overall impact of the law on individuals
                                               and the Form 1040EZ. The 2018 draft                      which generally includes the items from               will lower taxpayer burden. Currently,
                                               Form 1040 uses a ‘‘building block’’                      the ‘‘Other Taxes’’ section of the 2017               the average time to complete a tax year
                                               approach, which can be supplemented                      Form 1040.                                            2018 individual tax return is estimated


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                                               34700                            Federal Register / Vol. 83, No. 140 / Friday, July 20, 2018 / Notices

                                               to decrease by 4% to 7% and the                          1040A, and 1040EZ to the shortened                       Total Estimated Out-of-Pocket Costs:
                                               average out-of-pocket costs are                          Form 1040 is not expected to have a                   $32.315 billion ($32,315,000,000).
                                               estimated to decrease 1% to 3%. A more                   material impact on the burden                            Estimated Out-of-Pocket Cost per
                                               detailed evaluation of the impact of                     individual taxpayers face.                            Respondent: $205.
                                               specific provisions will be provided                     Approximately 95% of individual
                                               soon.                                                    taxpayers use a paid preparer or tax                     Total Estimated Monetized Burden:
                                                  The expected impact of TCJA                           software to complete their tax return                 $63.373 billion ($63,373,000,000).
                                               provisions by statutory and                              and almost 90% of individual taxpayers                   Estimated Monetized Burden per
                                               discretionary change are provided                        e-file. Currently, these taxpayers using              Respondent: $402.
                                               below:                                                   assisted methods interact with either a                  The following paragraph applies to all
                                                  Statutory Changes—Overall, the                        tax software interface or a paid prepare              of the collections of information covered
                                               statutory changes are expected to lead to                so they have limited interaction with                 by this notice.
                                               an overall decrease in burden. There are                 the tax forms themselves. There is very                  An agency may not conduct or
                                               three major changes that are expected to                 little expectation for their experience to
                                               have a material impact on burden in the                                                                        sponsor, and a person is not required to
                                                                                                        change so the form redesign is not                    respond to, a collection of information
                                               TCJA.                                                    expected to have a material impact on
                                                  1. The increase in the standard                                                                             unless the collection of information
                                                                                                        them.                                                 displays a valid OMB control number.
                                               deduction and the limitation on the                         The impact of the Form 1040 redesign
                                               Schedule A tax deduction, taken                                                                                Books or records relating to a collection
                                                                                                        on the approximately 5% of individual
                                               together, are the most substantial                                                                             of information must be retained as long
                                                                                                        taxpayers who complete their taxes by
                                               changes introduced in the TCJA. These                                                                          as their contents may become material
                                                                                                        hand without using a paid preparer or
                                               changes are expected to decrease the                     software is not expected to have a                    in the administration of any internal
                                               number of Schedule A filers from 46                      material impact on overall filing burden.             revenue law. Generally, tax returns and
                                               million to 20 million. The 26 million                    The current expectation is that some                  tax return information are confidential,
                                               drop in Schedule A filings is expected                   taxpayers who prepare unassisted will                 as required by 26 U.S.C. 6103.
                                               to lead to a material decrease in burden.                have marginally lower burden while                       Request for Comments: Comments
                                                  2. The change in thresholds on the                    others will have marginally higher                    submitted in response to this notice will
                                               Form 6251 for alternative minimum tax                    burden. For example, taxpayers who                    be summarized and/or included in the
                                               is expected to lead to a significant                     previously filed a Form 1040EZ may                    request for OMB approval. All
                                               decrease in Form 6251 filings, from 10                   experience slightly more burden                       comments will become a matter of
                                               million to 1 million or less. This change                because they need to evaluate more                    public record. Comments are invited on:
                                               should also lead to a material drop in                   information than before while a segment               (a) Whether the collection of
                                               burden.                                                  of taxpayers who previously filed the                 information is necessary for the proper
                                                  3. The new Sec 199A Deduction for                     Form 1040 and 1040A may experience                    performance of the functions of the
                                               qualified business income is expected to                 slightly less burden because they need                agency, including whether the
                                               increase burden for many filers who                      to evaluate less information than before.             information shall have practical utility;
                                               report sole proprietor and passthrough                   In addition, some filers are expected to              (b) the accuracy of the agency’s estimate
                                               income. The deduction is also expected                   experience a reduction in burden from                 of the burden of the collection of
                                               to increase the number of filers with                    the separation of the components of the               information; (c) ways to enhance the
                                               sole proprietors and passthrough                         Form 1040 onto the new set of                         quality, utility, and clarity of the
                                               income which should increase burden.                     schedules while some are not. Overall,                information to be collected; (d) ways to
                                                  Overall, the decreases in burden from                 the minor increases and decreases that                minimize the burden of the collection of
                                               the change in Schedule A and Form                        this population experiences are                       information on respondents, including
                                               6251 filings are expected to more than                   expected to mostly offset and lead to an              through the use of automated collection
                                               offset the increase burden from the Sec                  immaterial change in burden.                          techniques or other forms of information
                                               199A Deduction.                                             Type of Review: Revision of currently              technology; and (e) estimates of capital
                                                  IRS Discretionary Changes—The                         approved collections.                                 or start-up costs and costs of operation,
                                               largest discretionary change in place for                   Affected Public: Individuals or                    maintenance, and purchase of services
                                               tax year 2018 is the redesign of the Form                households.                                           to provide information.
                                               1040 and the discontinuance of Forms                        Estimated Number of Respondents:
                                               1040A, and 1040EZ. Modest decreases                                                                              Approved: July 17, 2018.
                                                                                                        157,800,000.
                                               in burden are expected for some                             Total Estimated Time: 1.970 billion                Roberto Mora-Figueroa,
                                               taxpayers who prepare by hand without                    hours (1,970,000,000 hours).                          Acting Section Chief, Special Services.
                                               using a paid preparer or tax software but                   Estimated Time per Respondent:                     [FR Doc. 2018–15627 Filed 7–18–18; 11:15 am]
                                               overall, the transition from Forms 1040,                 12.48 hours.                                          BILLING CODE 4830–01–P
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Document Created: 2018-07-20 01:18:13
Document Modified: 2018-07-20 01:18:13
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionNotice and request for comments.
DatesComments should be received on or before September 18, 2018 to be assured of consideration.
ContactRequests for additional information or copies of the form should be directed to Kerry Dennis at Internal Revenue Service, at (202) 317-5751 Room 6529, 1111 Constitution Avenue NW, Washington, DC 20224, or through the internet, at [email protected]
FR Citation83 FR 34698 

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