Don M. Tellock, Petitioner
Sharmila J. Porter and Mimi M. Wong, for respondent.
MEMORANDUM OPINION
FUNG, Judge: This case is before the Court on respondent’s Motion for Summary Judgment under Rule 121.1 In this collection due process (CDP) case petitioner seeks review pursuant to
Background
We derive the following facts from the parties’ pleadings, the parties’ Motion papers, and the certified Administrative Record of the CDP proceedings. See Rules 93, 121(j). We state these facts solely to decide respondent’s Motion and not as findings of fact in this case. See Sundstrand Corp. v. Commissioner, 98 T.C. 518, 520 (1992), aff’d, 17 F.3d 965 (7th Cir. 1994). When he timely filed his Petition, petitioner listed a mailing address in Louisiana and his state of legal residence as Florida.2
I. Petitioner’s Unpaid Tax Liabilities
Petitioner did not file income tax returns for tax years 2016 and 2017. For each tax year, respondent prepared a Substitute for Return (SFR),3 later assessing tax due, additions to tax under
II. The Initial CDP Proceeding
On December 15, 2022, respondent issued petitioner the Levy Notice, informing petitioner of his right to request a CDP hearing with the Appeals Office. On January 13, 2023, petitioner submitted Form 12153, Request for a Collection Due Process or Equivalent Hearing, for
On February 22, 2023, the AO acknowledged petitioner’s request for a CDP hearing and scheduled the hearing for March 23, 2023, explaining that the hearing was petitioner’s opportunity to state his reasons for disagreeing with the Levy Notice. The AO provided petitioner 21 days to file returns for tax years 2016 through 2021 to establish compliance with his income tax filing obligations. Petitioner did not submit any returns by that deadline.
On March 23, 2023, petitioner did not participate in the CDP hearing. That same day, the AO sent petitioner a letter allowing an additional 14 days to provide the requested information and requesting that petitioner contact him by April 6, 2023. On April 7, 2023, petitioner contacted the AO, confirmed receipt of the AO’s letter, and rescheduled the hearing for April 27, 2023. Petitioner still did not submit any requested information by the extended deadline.
On April 27, 2023, petitioner participated in the initial CDP hearing and stated that he disagreed with the Levy Notice. Petitioner told the AO that he had prepared returns for tax years 2016 and 2017 and intended to mail them. The AO advised petitioner that he would forward any returns received for reconsideration. Petitioner also requested an offer-in-compromise (OIC) or an installment agreement (IA). The AO explained that he could not consider any collection alternatives because petitioner was not in compliance with his filing obligations for tax years 2018 through 2021. The AO reminded petitioner that he had several prior opportunities to submit the requested information. But petitioner did not submit any information.
On May 12, 2023, petitioner faxed his 2016 and 2017 returns to the AO, who forwarded them to respondent immediately. Respondent, however, did not receive the returns until after the AO had already issued a Notice of Determination. On May 23, 2023, the AO issued petitioner a Notice of Determination Concerning Collection Actions under IRS Sections 6320 or 6330 of the Internal Revenue Code (Initial Notice of Determination), sustaining the Levy Notice for tax years 2016 and 2017.
On June 2, 2023, respondent accepted petitioner’s filed 2016 and 2017 returns showing his reported tax liabilities. Respondent accordingly abated petitioner’s prior tax assessments, as reported on respondent’s SFRs, to the tax liabilities reported on petitioner’s filed returns and made corresponding abatements to additions to tax and statutory interest for tax years 2016 and 2017.
For tax year 2017, petitioner’s remaining balance was $299.45, consisting solely of collection fees and expenses of $275, incurred before he filed his 2017 return, plus statutory interest of $24.45 on that amount for collection fees and expenses. The table below reflects the resulting changes in petitioner’s tax liability:
| Date | Assessment Per | Tax Deficiency | Additions to Tax | Statutory Interest | Collection Fees and Expenses | ||
|---|---|---|---|---|---|---|---|
| Section 6651(a)(1) Failure to Timely File | Section 6651(a)(2) Failure to Timely Pay | Section 6654(a) Failure to Make Estimated Tax Payments | |||||
| 3/15/2021 | Respondent’s 2017 SFR | $36,594 | $8,233.65 | $4,208.31 | $876.14 | $6,561.06 | $275 |
| 2/12/2024 | Petitioner’s 2017 Filed Tax Return | -0- | -0- | -0- | -0- | 24.45 | 275 |
IV. The Initial Tax Court Proceeding
On June 26, 2023, petitioner timely petitioned this Court for review of the Initial Notice of Determination. On February 14, 2024, respondent filed a Motion to Remand because the AO had relied on certain transcripts during the CDP hearing but did not keep those transcripts in the administrative file. On February 21, 2024, the Court granted respondent’s Motion to Remand, ordering that the Appeals Office conduct a supplemental CDP hearing with petitioner by May 21, 2024.
V. The Supplemental CDP Hearing
On April 25, 2024, before the supplemental CDP hearing, the AO reviewed petitioner’s tax transcripts and confirmed that petitioner had filed returns for 2016 and 2017 and that the remaining tax liabilities
VI. Further Tax Court Proceedings
On May 2, 2025, respondent filed the Motion for Summary Judgment. On June 30, 2025, petitioner filed an Opposition to the Motion for Summary Judgment (Opposition). In his Opposition petitioner argued that (1) the AO abused his discretion by refusing to review petitioner’s tax transcripts and petitioner’s request for an OIC or an IA as his settlement offer; (2) paragraphs 51 and 52 of respondent’s Motion, which describe conversations between the AO and petitioner about collection alternatives and filing requirements, are not true; (3) a genuine issue of material fact exists as to whether respondent may assess fees and interest accrued during the 16-month delay caused by respondent’s Motion for Remand; and (4) a genuine issue of material fact exists as to whether respondent may assess interest accrued on a tax assessment for 2017 when petitioner’s tax liability for that year is now zero.
On December 19, 2025, respondent filed a Notice of Concession, conceding that petitioner owes no tax, fees, expenses, interest, penalty, or additions to tax for 2017.4 On December 24, 2025, petitioner filed a Status Report (1) restating the arguments in his Opposition; (2) asking this Court to order respondent to withdraw the tax lien for 2017 and notify credit reporting bureaus of respondent’s error and the lien’s
Discussion
I. General Principles
A. Summary Judgment
Under Rule 121(a)(1), either party can move for summary judgment on all or any part of the legal issues in controversy. FPL Grp., Inc. & Subs. v. Commissioner, 116 T.C. 73, 74 (2001). Summary judgment is a tool that expedites litigation to avoid unnecessary and expensive trials. Id. This Court grants summary judgment if the movant shows there is no genuine dispute as to any material fact and they are entitled to a decision as a matter of law. Rule 121(a)(2); Celotex Corp. v. Catrett, 477 U.S. 317, 322–23 (1986); Roberts v. Commissioner, 329 F.3d 1224, 1227 (11th Cir. 2003) (citing Rule 121), aff’g in part 118 T.C. 365 (2002); Sundstrand, 98 T.C. at 520.
To decide a summary judgment motion, we construe factual materials and inferences in the light most favorable to the nonmoving party. Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 255 (1986); Roberts v. Commissioner, 329 F.3d at 1227; Sundstrand, 98 T.C. at 520. If the moving party makes and properly supports their summary judgment motion, then the nonmovant cannot rest on the allegations or denials in the pleadings. Rule 121(d). Instead, the nonmovant must set forth specific facts, by affidavit or otherwise, showing that there is a genuine dispute for trial. Id.; see also Celotex, 477 U.S. at 323–24; United States v. Stein, 881 F.3d 853, 857 (11th Cir. 2018) (“We apply the same summary judgment standard in tax cases as we do in other areas of law.”). Because no genuine dispute of material fact exists in this case, summary judgment is appropriate.
B. Standard of Review
II. Underlying Tax Liabilities
In CDP proceedings a taxpayer may challenge the underlying tax liability only if (1) he did not receive a statutory Notice of Deficiency; or (2) he has not otherwise had an opportunity to do so. See
Respondent issued petitioner a Notice of Deficiency for each of tax years 2016 and 2017. Each Notice of Deficiency afforded petitioner the opportunity to contest his underlying tax liability with the Court; however, petitioner did not file a petition in response to either Notice of Deficiency. Petitioner’s failure to do so precluded him from later raising such a liability challenge with the Appeals Office. See Estate of Duncan v. Commissioner, 890 F.3d 192, 198 (5th Cir. 2018) (referencing section
In his Opposition petitioner contends that fees and interest accrued during the intervening remand period should be abated for tax year 2016. Interest on an underpayment of tax begins to accrue when the tax is both due and unpaid, and the interest continues to accrue until paid. See
We therefore review the Supplemental Notice of Determination for abuse of discretion only.
III. Abuse of Discretion
In reviewing for abuse of discretion, we consider only whether the AO (1) properly verified that the requirements of applicable law or administrative procedure were met; (2) considered any relevant issues petitioner raised; and (3) weighed “whether any proposed collection action balances the need for the efficient collection of taxes with the legitimate concern of [petitioner] that any collection action be no more intrusive than necessary.” See
A. Verification
We have authority to review satisfaction of the verification requirement regardless of whether the taxpayer raised that issue at the CDP hearing. See Hoyle v. Commissioner, 131 T.C. 197, 200–03 (2008), supplemented by 136 T.C. 463 (2011). Petitioner did not allege that the AO failed to satisfy this requirement or set forth specific facts to support
Although petitioner did not challenge verification at the CDP hearing or at any point during the CDP proceedings, the record nonetheless shows that the AO conducted a thorough review of the materials relevant to petitioner’s CDP hearing requests and verified that the requirements of all applicable laws and administrative procedure were followed. See
B. Issues Raised
At both the initial and supplemental CDP hearings petitioner requested collection alternatives, as he was entitled to do. See
An AO does not abuse his discretion by declining to consider an OIC where the taxpayer fails to submit the completed forms that such consideration requires. See Gentile v. Commissioner, T.C. Memo. 2013-175, at *9, aff’d, 592 F. App’x 824 (11th Cir. 2014); Coleman v. Commissioner, T.C. Memo. 2010-51, 2010 WL 98529, at *4, aff’d, 420 F. App’x 663 (8th Cir. 2011). Once a taxpayer raises a collection alternative issue, as petitioner did here, he is obligated to provide the requested financial information to the Appeals Office.
We note that petitioner had two separate opportunities to provide the documents necessary for the AO’s consideration of collection alternatives. See Tucker v. Commissioner, 135 T.C. 114, 142 (2010) (“The taxpayer is always free to submit to IRS collection personnel another proposal of an installment agreement or an OIC, and those personnel have authority to accept that new proposal notwithstanding the Office of Appeals’ rejection of the taxpayer’s prior proposal.”), aff’d, 676 F.3d 1129 (D.C. Cir. 2012). At the initial CDP hearing, the AO told petitioner what documentation he needed to provide. Given a second chance at the supplemental CDP hearing, petitioner again failed to provide it. The AO’s decision to offer no collection alternatives and sustain the Levy Notice in the Supplemental Notice of Determination should not have surprised petitioner. See Palli v. Commissioner, T.C. Memo. 2025-54, at *20 (“Given that [the taxpayer] chose to squander his opportunity for a fresh look at his case on remand and did not provide the requested financial information to the Second AO, [the AO] did not abuse her discretion in rejecting [the taxpayer’s] request for an OIC and sustaining the levy.”).
In his Opposition petitioner argues that the AO abused his discretion by declining to review petitioner’s tax transcripts and by declining to consider petitioner’s request for a collection alternative such as an OIC or an IA. Petitioner also contends that certain paragraphs of respondent’s Motion are untrue because the AO “arbitrarily determined that he would not review the tax transcripts for the prior years to determine if it was even necessary for Petitioner to file any additional returns,” and that this factual dispute precludes summary judgment. We disagree. The Administrative Record shows that the AO requested information from petitioner to consider him for collection alternatives, mailed petitioner his tax transcripts to help him determine his filing obligations, and reviewed petitioner’s tax transcripts himself. This case was remanded to the Appeals Office only because the transcripts that the AO had reviewed during the initial CDP hearing were not included
As we mentioned earlier, to consider any collection alternative, the AO first needed to verify petitioner’s compliance with his filing obligations via petitioner’s filed returns. See
C. Balancing Analysis
Petitioner did not allege that the AO failed to conduct a proper balancing analysis for the proposed collection actions. See
The AO balanced the need for the efficient collection of taxes with petitioner’s concern that the collection action be no more intrusive than necessary in deciding to sustain the proposed collection action. As part
IV. Conclusion
For the reasons above, we find no abuse of discretion in the AO’s decisions. So much of the Petition as relates to tax year 2017 is dismissed, and we will grant respondent’s Motion and affirm the Appeals Office’s Supplemental Notice of Determination to the extent that it sustains the Levy Notice for tax year 2016. We have considered all of the arguments made by the parties, and to the extent not mentioned above, we conclude that they are moot, irrelevant, or without merit.
To reflect the foregoing,
An appropriate order and decision will be entered.
Served 07/20/26