In Re Galvano
DECISION
Giuseppe Galvano, (“Galvano” or “the Debtor”), the debtor herein, seeks to have this Court review and determine the validity and legality of certain sales and use taxes assessed by the New York State Department of Taxation and Finance (“Department of Taxation”). The instant proceeding comes before this Court on a mo
FACTS
Giuseppe Galvano is the sole owner and principal officer of Joe-Gal Pizza, Inc. (“Joe-Gal”), a corporation that operates a pizzeria in Manhattan which is currently under reorganization pursuant to Chapter 11 of the Bankruptcy Code before the Honorable Howard C. Buschman III in the Southern District of New York. Galvano’s individual Chapter 7 petition is presently pending in this Court and appears to have been precipitated by certain tax liabilities, a majority of which stem from the operation of Joe-Gal. The schedules annexed to the petition list priority debts for corporate income taxes owed to the Internal Revenue Service, and corporate sales and use taxes owed to New York State for which he may be liable. Additionally, a secured debt is listed as owing to Astoria Federal Savings Bank on the Debtor’s principal residence and two unsecured debts, one owed to his estranged wife, and the other to a lawyer, presumably for legal services rendered.
The Debtor brings the instant motion under § 505(a) to determine his tax liability for sales and use taxes arising out of three separate assessments levied by the Department of Taxation against him individually and as the principal officer of the corporation. The assessments are comprised of sales and use taxes for two periods namely, June 1, 1981 through May 31, 1984 (the “first” assessment), June 1, 1984 through May 31, 1987 (the “second” assessment), and interest and penalties on the taxes levied from June 1, 1985 through May 31, 1987 (the “third” assessment).
The underlying reason for the Department of Taxation’s opposition is grounded on the proposition that the liability of the Debtor and Joe-Gal has been fully contested and adjudicated by a tribunal of competent jurisdiction prior to the Debtor’s filing of his Chapter 7 petition. It further opposes the Debtor’s motion on the ground that the Debtor participated in the filing of an identical motion under § 505(a) for the corporation in its Chapter 11 proceeding. The corporation’s motion was denied in its entirety by Judge Buschman in those proceedings. In re Joe-Gal Pizza, Inc., Case No. 87B-11503 (HCB), slip op. (Bankr.S.D. N.Y. May 9, 1989).
The procedural history of the assessments is as follows. On September 4, 1984, Joe-Gal received a notice of Determination and Demand for Payment of Sales and Use Taxes in the amount of $172,-465.59 for the period of June 1, 1981 through May 31, 1984, (“the first assessment”). The notice was addressed to Joe-Gal and to the Debtor individually in his capacity as a responsible officer of the corporation and was mailed to Galvano’s home. It expressly stated that the Debtor was personally liable for the taxes listed as due from the corporation, and set out the statutory period during which the assessment could be appealed. In compliance thereto, the Debtor filed a petition for Joe-Gal to contest the assessment. He did not, however, file a separate petition to contest his individual liability under the assessment. As a result of the petition, a hearing was held on October 28, 1986 before the Tax Appeals Bureau of the New York State Department of Taxation (“Tax Bureau”), and a decision was issued thereup
Subsequent to Joe-Gal’s filing for bankruptcy, the Debtor and Joe-Gal received a series of Statements of Proposed Audit Adjustment from the Department of Taxation. The first Statement, dated September 16, 1987, detailed additional assessed taxes due from Joe-Gal and the Debtor for the period of June 1, 1984 through May 31, 1987, and requested that certain financial data be submitted to complete the audit process. On November 16, 1987, after receiving the requested financial data, a second Statement revising the amount of the taxes assessed for the period June 1, 1984 through May 31, 1987 was sent by the Department of Taxation (“the second assessment”). Furthermore, on that same day, Joe-Gal and the Debtor received a third Statement (“the third assessment”) which detailed the .tax penalties and interest due on a portion of the taxes set forth in the second assessment.
On December 7, 1987, the Debtor, acting as president of Joe-Gal, signed a consent setting the second and third tax assessments at $27,815.49 and 1,699.97, respectively. This consent was signed subject to approval by the Bankruptcy Court. 3 Following receipt of the signed consent, the Department of Taxation sent Joe-Gal and the Debtor each Notices of Determination and Demands for Payment of Sales and Use Taxes which reflected the amount of taxes agreed upon in the consents. 4
Notwithstanding its consent to the second and third assessments and after having received the notices listing the amount of taxes due, Joe-Gal filed a motion before Judge Buschman virtually identical to the instant application. Judge Buschman denied the motion, holding that the first assessment had been “contested and adjudicated” before a tribunal of competent jurisdiction and that § 505(a) precluded further determination of Joe-Gal’s tax liability by the Bankruptcy Court. Judge Buschman also declined to review the amount of liability due under the second and third assessments. He found the question of liability to be moot with respect to these assessments because the signed consent was a settlement of all remaining tax liability.
In re Joe-Gal Pizza, Inc.,
Case No: 87B-
Prior to Judge Buschman’s decision rendered in May 1989, the Debtor, acting individually and as the principal officer of the corporation, petitioned the Department of Taxation for a review of the second and third assessments which he had consented to on behalf of his corporation. A hearing pursuant to that petition was scheduled for January 26, 1990. In October of 1989, the Debtor filed a Chapter 7 petition in his individual capacity in this Court. Subsequently, but prior to the hearing, he filed the instant motion seeking a determination of his tax liability for the three assessments under § 505(a).
In accordance with the Debtor’s individual bankruptcy filing, the January 26, 1990 hearing before the Tax Bureau on the second and third assessments was adjourned in compliance with § 362, the automatic stay provision of the Bankruptcy Code. A similar motion made to stay the proceeding before the Tax Bureau for Joe-Gal was denied. As a result, a hearing on the validity of the signed consent for the assessments, and the amount of liability owed by Joe-Gal for the second and third assessments was held on January 26, 1990 before Administrative Law Judge Kevin Cahill.
At the hearing, an attorney represented both Joe-Gal, the corporation, and Galvano, the individual. The attorney attempted to make a limited appearance for Joe-Gal because he feared that his participation in its contest of tax liability for the second and third assessments would prejudice Galva-no’s individual right to contest the liability. Judge Cahill refused to recognize the limited appearance, finding that no prejudice to Galvano would result given that the hearing had been stayed and adjourned with respect to him. Nevertheless, the attorney removed himself from the hearing, opining that his continued presence would jeopardize Galvano’s rights to contest the matter in the Bankruptcy Court.
Following the hearing, the Tax Bureau determined that the consent signed by the Debtor for the second assessment was valid and binding on Joe-Gal. Furthermore, the methodology used by the Department of Taxation to calculate the interest and penalties due for the third assessment was found to have been made without error. The decision of the Tax Bureau therefore fixed the amount of Joe-Gal’s tax liability for these assessments. However, because Judge Cahill specified that the hearing was not to prejudice the individual rights of the Debtor, it appears that Galvano has retained his right to a separate hearing on these assessments.
DISCUSSION
Section 505(a) of the Bankruptcy Code grants authority to the Bankruptcy Court to determine the amount or legality of “any tax, any fine or penalty relating to a tax, or any addition to tax,” as long as the amount or legality of the tax has not been contested or adjudicated by a “judicial or administrative tribunal of competent jurisdiction” before the filing of the bankrupt
There are a number of factors which may be considered by a court when deciding whether to undertake a
The policy behind
In the present case, the Debtor’s
Congress also intended that
In light of the
res judicata
principles behind
In order to more clearly evaluate the issue of whether a
The State of New York has a thorough procedure by which taxpayers may contest tax assessments through administrative hearings, and may appeal the results of those hearings through additional proceedings. Section 1138 of the New York State Tax Law enables the Department of Taxation to issue a Notice of Determination of Tax Liability to any person liable for-the collection or payment of a tax in the event a tax return has not been filed, or if a return that had been filed was incorrect or insufficient. N.Y.Tax Law § 1138 (McKinney 1990);
see, Matter of Parsons v. State Tax Comm’n,
In the present case, the Debtor, as the principal officer of Joe-Gal, was clearly a responsible person liable for the collection of fiduciary taxes. N.Y.Tax Law § 1131 (McKinney 1990). This section provides, in pertinent part, that the “ ‘person required to collect any tax imposed by this article’ shall include ... any officer, director or employee of a corporation or of a dissolved corporation ... who as such officer, director or employee is under a duty to act for such corporation ... in complying with any requirement- of this article.” N.Y.Tax Law § 1131 (McKinney 1990). The Debtor has expressly admitted that his liability for the taxes assessed against the corporation is derivative, and does not contest his status as the principal officer of Joe-Gal. In recognition of the Debtor’s derivative liability, the notices for each of the three tax assessments at issue in his motion were addressed to Joe-Gal and to
Although the Debtor filed a petition to contest the corporation’s liability for the first assessment within ninety days in accordance with § 1138, the Debtor did not likewise file a petition to contest
his personal liability
as principal officer. Accordingly, once the amount of tax liability was fixed for Joe-Gal, the Debtor’s individual, derivative liability for the taxes also became fixed. N.Y.Tax Law § 1131 (McKinney 1990).
See, e.g., Halperin v. Chu, (In re Halperin),
Joe-Gal’s reaction to this fixing of liability by the Tax Bureau was to file for a
Similarly, this court is precluded from redetermining the amount and legality of the first assessment for the Debtor. Our decision relies on Judge Buschman’s finding and conclusion that a full contest and adjudication of the corporation’s liability for the first assessment occurred which fixed the amount of its tax obligations. Additionally, the holding is based on the Debtor’s failure to timely file a petition challenging his individual liability under the first assessment. By reason of the foregoing, this Court denies the Debtor’s motion as it pertains to the first assessment. A review of the second and third assessments, however, is less clearly barred by
While the circumstances surrounding that hearing before the Tax Bureau have been detailed above, certain facts are worthy of additional discussion. As previously mentioned, the hearing was adjourned with respect to the Debtor but not with respect to Joe-Gal. The adjournment of the hearing is significant because Judge Cahill specified that his decision to continue the hearing for the corporation was not to prejudice the rights of the Debtor’ and that the Debtor’s subsequent eligibility to contest the assessments was not to be jeopardized by Joe-Gal’s actions at the hearing. In light of this, it could be argued that a contest and adjudication of the amount of the Debtor’s personal liability for .these tax assessments did not occur and that redeter-mination under
A careful review of the facts leads to a contrary conclusion. The Debtor’s status as the principal officer of Joe-Gal and his role as the person responsible for the collection and payment of the corporation’s sales and use taxes contradicts the argument that no contest and adjudication of the Debtor’s liability for the second and third assessments occurred. This contradiction lies in the fact that the liability of
The practical result of the fact that liability runs directly from Joe-Gal to the Debt- or is that Judge Cahill’s decision on the amount of sales and use taxes owed under the second and third assessments for Joe-Gal also determined the amount of taxes owed by the Debtor as principal officer of the corporation and in his individual capacity. The fact that the Debtor’s rights were not to be prejudiced by Judge Cahill’s decision does not alter the fact that the amount of tax owed by Joe-Gal and by the Debtor, due to his relationship to Joe-Gal, was conclusively determined by the Tax Bureau. Consequently, this Court must find that the taxes owed by the Debtor have been contested and adjudicated such that a further reevaluation is inappropriate.
The purpose behind
From the facts before this Court, any decision made in a
For the reasons hereinabove set forth, the Debtor’s motion for
Notes
.
(a)(1) Except as provided in paragraph (2) of this subsection, the court may determine the amount or legality of any tax, any fine or penalty relating to a tax, or any addition to tax, whether or not previously assessed, whether or not paid, and whether or not contested before and adjudicated by a judicial or administrative tribunal of competent jurisdiction.
(2) The court may not so determine—
(A) the amount or legality of a tax, fine, penalty, or addition to tax if such amount or legality was contested before and adjudicated by a judicial or administrative tribunal of competent jurisdiction before the commencement of the case under this title....
.At the hearing Joe-Gal challenged the correctness of the amount of the first tax assessment and argued that the methodology that the Tax Audit Division used to reach the amount assessed was faulty. In particular, it challenged the Audit Division’s estimates of how much dough was needed to make a pizza pie, and the Division’s determination that pizza made up only 30% of sales as opposed to other Italian specialties and beverages on the menu. Additionally, Joe-Gal opposed the Audit Division’s use of a test period to estimate taxes due for the three year period. It should be noted that the corporation was represented at this hearing by an attorney and a certified public accountant. After hearing arguments about the propriety of the Audit Division’s estimating methods, the Hearing Officer decided that the amount of the Audit Division’s assessment was correct given Joe-Gal’s failure to maintain adequate records of sales or receipts. It was also determined that the methodology used by the audit division was proper in light of the dearth of reviewable records kept by the corporation. Matter of Joe-Gal Pizza, Inc., N.Y.S.Tax Comm’n, (March 20/87).
. In light of the fact that Joe-Gal was at this time undergoing reorganization under Chapter 11 in the Southern District of New York, permission of the Court was required for it to agree to the amount and allowance of the claim. There has been no evidence presented to this Court to indicate that such approval was received from Judge Buschman. However, his decision regarding the second and third assessments on Joe-Gal’s
. The notices which the Debtor and Joe-Gal received were sent as a precaution because the consents signed for these assessments were subject to the approval of the Bankruptcy Court. Matter of Joe-Gal Pizza, Inc., N.Y.Div.Tax App. (April 12, 1990). Sending the notices did not, however, violate the automatic stay because § 362(b)(9) permits a taxing authority to send notices of deficiencies without violating the stay.
. In its motion Joe-Gal argued that a contest and adjudication did not occur because it was not adequately represented at the hearing before the Tax Bureau. It asserted that it’s lack of adequate representation transformed the Tax Bureau’s decision into a default judgment, thereby allowing a
Judge Buschman rejected this default judgment argument as well as the equity argument. He found that Joe-Gal was actively represented at the hearing before the Tax Bureau by an attorney and a certified public accountant, and thus held that a contest and adjudication occurred and that the bankruptcy court was precluded from any reevaluation or redetermination of the amount of liability under
.