John Kelley Co. v. Commissioner, 326 U.S. 521 (1946)
John Kelley Co. v. Commissioner, 326 U.S. 521 (1946)
John Kelley Co. v. Commissioner, 326 U.S. 521 (1946)
521
66 S.Ct. 299
326 U.S. 698
90 L.Ed. 278
Mr. Frank J. Albus, of Washington, D.C., for petitioner John Kelley co.
Mr. Melville F. Weston, of Boston, Mass., for petitioner Talbot Mills.
Mr. J. Louis Monarch, of Washington, D.C., for respondent.
Mr. Justice REED delivered the opinion of the Court.
In the Kelley case, a corporation, all of whose common and preferred stock was
In the Talbot Mills case the taxpayer was a corporation which, prior to its
recapitalization, had a capital stock of five thousand shares of the par value of
$100 or $500,000. All of the stock with the exception of some qualifying shares
was held by members, through blood or marriage, of the Talbot family. In an
effort to adjust the capital structure to the advantage of the taxpayer, the
company was recapitalized just prior to the beginning of the fiscal year in
question, by each stockholder surrendering four-fifths of his stock and taking in
lieu thereof registered notes in aggregate face value equal to the aggregate par
value of the stock retired. This amounted to an issue of $400,000 in notes to the
then stockholders. These notes were dated October 2, 1939, and were payable
to a specific payee or his assignees on December 1, 1964. They bore annual
interest at a rate not to exceed 10% nor less than 2%, subject to a computation
that took into consideration the net earnings of the corporation for the fiscal
year ended last previous to the annual interest paying date. There was,
therefore, a minimum amount of 2% and a maximum of 10% due annually and
between these limits the interest payable varied in accordance with company
earnings. The notes were transferable only by the owner's endorsement and the
notation of the transfer by the company. The interest was cumulative and
payment might be deferred until the note's maturity when 'necessary by reason
of the condition of the corporation.' Dividends could not be paid until all then
due interest on the notes was satisfied. The notes limited the corporation's right
to mortgage its real assets. The notes could be subordinated by action of the
Board of Directors to any obligation maturing not later than the maturity of the
notes. For the fiscal year in question the maximum payment of 10% was made
on the notes.
4
The payments in question on corporate obligations were for the years in the
Kelley case, 1937, 1938 and 1939; in the Talbot Mills case for the year 1940.
Both corporations deducted the payments as interest from their reports of gross
income under statutory sections and regulations set out in the footnote. 2 The
applicable statutes and regulations were identical for all periods. The
Commissioner asserted deficiencies because the payments were considered
dividends and not interest.
There is not present in either situation the wholly useless temporary compliance
with statutory literalness which this Court condemned as futile, as a matter of
law, in Gregory v. Helvering, 293 U.S. 465, 55 S.Ct. 266, 79 L.Ed. 596, 97
A.L.R. 1355. The demonstrated possibility of sales by the holders of the
obligations to persons other than stockholders alone proves the differentiation.
As material amounts of capital were invested in sock, we need not consider the
effect of extreme situations such as nominal stock investments and an obviously
excessive debt structure.
From the foregoing statements of facts, if appears that the characteristics of all
the obligations in question and the surrounding circumstances were of such a
nature that it is reasonably possible for determiners to reach the conclusion that
the secured annual payments were interest to creditors in one case and
dividends to stockholders in the other case. In the Kelley case there were sales
of the debentures as well as exchanges of preferred stock for debentures, a
promise to pay a certain annual amount, if earned, a priority for the debentures
over common stock, the debentures were assignable without regard to any
transfer of stock, and a definite maturity date in the reasonable future. These
indicia of indebtedness support the Tax Court conclusion that the annual
payments were interest on indebtedness. On the other hand, in the Talbot Mills
case, the Tax Court found the factors there present of fluctuating annual
payments with a two per cent minimum, the limitation of the issue of notes to
stockholders in exchange only for stock, to be characteristics which distinguish
the Talbot Mills notes from the Kelley Compoany debentures. Upon an
appraisal of all the facts, the Tax Court reached the conclusion that the annual
payments by Talbot Mills were in reality dividends and not interest.
'To affirm, modify, or reverse. Upon such review, such courts shall have power
to affirm or, if the decision of the Board is not in accordance with law, to
modify or to reverse the decision of the Board, with or without remanding the
case for a rehearing, as justice may require.'
10
The provisions for review are the same now as they were when enacted in
1926. Congress, and all others interested, were then well aware of the
difficulties in drawing a line between questions of fact and questions of law.3
The legislation was upon a subject, the collection of the revenue, in which
federal administrative finality had been given wide scope.4 The Tax Court was
originally established to 'secure an impartial and disinterested determination of
the issues involved,'5 so that the taxpayer and the Government would have an
independent review of the position of either on tax demands before payment of
the tax or foreclosure of an asserted deficiency. Two years later its success was
recognized by committee commendation and the enlargement of the finality of
its decisions from 'prima facie evidence of the facts contained therein' to
reviewability only 'if the decision of the oard is not in accordance with law'6 As
to the mischief which the limitation of the scope of judicial review was to cure,
we find only the words of the committee reports.7 Without a clearer description
by Congress of the intended line to separate reviewability of the Tax Court
decisions from non-reviewability, courts must interpret the review statute, as
best they can, to accomplish the declared Congressional purpose of adequate
control of administrative action without substituting judicial opinion for that of
the Tax Court upon the evidence. Note 7, supra.
11
The illustrations in the report, note 7, supra, are legal questions without doubt,
except the possibility that the words 'application of the statute or any regulatio
having the force of law' may be thought to give a reviewing court power to pass
upon the Tax Court's conclusion from the primary or evidential facts. So that in
the present cases, it might be said to be a question of law as to whether the
primary facts adduced made the payments under consideration dividends or
interest. But we think such conclusion gives inadequate weight to the purpose
of the Tax Court. The finality of the Tax Court's rulings was being enlarged by
the 1926 Act. The then Board was spoken of as an impartial and independent
tribunal of experts 'for the determination of tax liabilities as between the
Government and the taxpayer.' H.Rep. No. 1, 69th Cong., 1st Sess., p. 17.
There would hardly need to be experts in tax affairs to decide questions of dates
or amounts or values or to calculate rates. Their usefulness lies primarily in
their ability to examine relevant facts of business to determine whether or not
they come under statutory language. Adequate reason for the use of the word
'application' of course exists in situations where true legal questions arise, as in
whether an act applies to transfers antecedent to its enactment or to income or
estate taxes from trusts or to situations which involve conflicts of law. There is
nothing in the context in which the word 'application' is used which suggests to
us that it should be given its widest connotation.
12
These cases now under consideration deal with well understood words as used
in the tax statutes'interest' and 'dividends.' They need no further definition.
Equiable Life Assurance Society v. Commissioner, 321 U.S. 560, 64 S.Ct. 722,
88 L.Ed. 927; Deputy v. Du Pont, 308 U.S. 488, 498, 60 S.Ct. 363, 368, 84
L.Ed. 416. The Tax Court is fitted to decide whether the annual payments
under these corporate obligations are to be classified as interest or dividends.
The Tax Court decisions merely declare that the undisputed facts do or do not
bring the payments under the definition of interest or dividends.8 The
documents under consideration embody elements of obligations and elements
of stock. There is no one characteristic, not even exclusion from management,
which can be said to be decisive in the determination of whether the obligations
are risk investments in the corporations or debts. So called stock certificates
may be authorized by corporations which are really debts and promises to pay
may be executed which have incidents of stock. Such situations seem to us to
fall within the Dobson rule.9
13
This leads us to affirm the Talbot Mills decree and to reverse the Kelley
judgment. It is so ordered.
14
15
Mr. Justice BLACK concurs in the result in No. 47. He is of the opinion that
No. 36 should be affirmed for the reasons given by the Circuit Court of
Appeals, 146 F.2d 466.
16
Mr. Justice BURTON concurs in the result in the Kelley case but dissents from
the result in the Talbot Mills case on the grounds stated in the dissenting
opinion of Magruder, J., in the Circuit Court of Appeals. CJ Mr. Justice
JACKSON took no part in the consideration or decision of these cases.
17
18
19
In the first place, I do not believe that Congress has authorized the Tax Court to
make or the reviewing courts to sustain directly conflicting determinations of
tax liability in identical fact situations. Nor, in my opinion, was this the purpose
or effect of the Dobson decisions, 320 U.S. 489, 64 S.Ct. 239, 88 L.Ed. 248. So
to regard them or the statute nullifies the right to review expressly given by
Congress. Moreover that view destroys the very uniformity which Dobson
sought, transferring the conflict of decision from the Courts of Appeals back to
the Tax Court, by making the conflicting decisions of its sixteen divisions
final.1 This affords relief to the taxpayer from judicial review and to the courts
from judicially reviewing. But it defies Congress' mandate for review and, what
is more, perpetuates chaos in the law.
20
All this presupposes, of course, that the records now here present fact situations
identical in all material respects. That is true in my judgment. It is hardly
necessary to attempt demonstration. But, besides referring to the opinions of the
Courts of Appeals for the small details of the facts and their minute
differences,2 it may be noted that there was no question of credibility.
Substantially all of the evidentiary facts were stipulated in both cases. Nor is
there any finding in either case that the arrangements were a sham. Cf Gregory
v. Helvering, 293 U.S. 465, 55 S.Ct. 266, 79 L.Ed. 596, 97 A.L.R. 1355. Apart
from such considerations, the material facts in my opinion were not
substantially different in any respect sufficient to support one ultimate
conclusion, whether labelled of 'law,' of 'fact,' or 'mixed,' for one case and the
opposite conclusion for the other.
21
22
There were some highly technical differences in the two types of 'security'
which were devised to replace the preexisting preferred stock issues. But in
both instances the original stock and the replacing security were closely held.
There was no substantial change in the distribution after the 'reorganization.'
The difference between the stock and the substituted security was so small, in
its effect upon the holders' substantial rights, that for all practical purposes it
was negligible. For example, a remote right to sue to enforce the obligation,
deferred in one case for 25 years, took the place of the holder's right to share in
the corporation's assets on dissolution or winding up. Meanwhile 'interest' was
hooked in large part to net annual earnings and was made entirely ubject to the
directors' power to suspend payment until the ultimate maturity date. The
shortened story is that the preferred shareholders who went into the wash came
out substantially, for all purposes material to any tax determination and it may
be for practically all others, just about what they were when they went in.
23
The Court indeed does not attempt to find a substantial differentiating factor
other than in the Tax Court's 'appraisal of all the facts,' in other words its
ultimate conclusion. That is true as between the two cases and also as affects
the positions of the respective shareholders before and after the wash. Rather
the opinion concedes that in each case the circumstances were such that
determiners reasonably could conclude that the so-called annual payments were
either interest or dividends. Hence, it seems to follow, the conclusion may be
drawn in squarely conflicting ways, if the Tax Court sees fit so to draw it; and it
is immaterial that no factor of substantial difference is or can be pointed out.
24
One might entertain the view that in a close situation the Tax Court's judgment
should be accepted whatever way the die were cast, although reviewing courts
might differ on the direction. But it would not follow, and in my judgment
should not, that they are powerless when the throw is in opposite directions at
the same time. When this occurs, in my opinion a 'clearcut' question of law is
presented, rising above the rubric of 'expert administrative determination.' The
more apt characterization would be 'expert administrative fog.'
25
I think the Court's of Appeals and we are bound to review such cases; they by
plain mandate of 1141(c)(1) of the Code, 26 U.S.C.A.Int.Rev.Code,
1141(c) (1), we by that section (see Bingham's Trust v. Commissioner, 325
U.S. 365, 65 S.Ct. 1232) and the provision of our rules making conflict between
circuits 'special and important reasons' for granting certiorari. Rule 38, subd.
5(b), 28 U.S.C.A. following section 354. Conflict is not removed simply
because judgments of the Court of Appeals judicially formalize the contrary
ultimate, but nevertheless administrative, conclusions of the Tax Court. When
27
Tax liability should depend upon the subtle refinements of corporate finance no
more than it does upon the niceties of conveyancing.3 Sheer technicalities
should have no more weight to control federal tax consequences in one instance
than in the other. The taxing statute draws the line broadly between 'interest'
and 'dividend.' This requires one who would claim the interest deduction to
bring himself clearly within the class for which it was intended.4 That is not
done when the usual signposts between bonds and stock are so obliterated that
they become invisible or point equally in both directions at the same time.
28
'Dividend' and 'interest,' 'stock and 'bond,' 'debenture' or 'note,' are correlative
and clearly identifiable conceptions in their simpler and more traditional
exemplifications. But their distinguishing features vanish when astute
manipulation of the broad permissions of modern incorporation acts results in a
'security device' which is in truth neither stock nor bond, but the half-breed
offspring of both. At times only the label enables one to ascertain what the
manipulator intended to bring forth. But intention clarified by label alone is not
always legally effective for the purpose in mind.5 And there is scarcely any
limit to the extent or variety to which this kind of intermingling of the
traditional features of stock and bonds or other forms of debt may go, as the
books abundantly testify.6 The taxpayer should show more than a label or a
hybrid security to escape his liability. He should show at the least a substantial
preponderance of facts pointing to 'interest' rather than 'dividends.'
29
Something more is at stake in these cases than nice distinctions between 'stock'
and 'bonds' on the one hand or between ultimate conclusions of 'fact' and 'law'
or 'mixed fact and law,' on the other, just as was true in the conveyancing cases.
The border cutting across one set of normally opposing conceptions may be
deliberately obscured and made into a no man's land as readily as that involved
in the other. When this happens, the final link in the chain of judgment is
decisive whatever its label.7 If the ultimate conclusion of the Tax Court or its
divisions can be made in exactly opposing ways, and must be left undisturbed,
1 T.C. 457; 7 Cir., 146 F.2d 466; certiorari granted, 325 U.S. 843, 65 S.Ct.
1084; Judicial Code 240(a), 28 U.S.C.A. 347(a). 3 T.C. 95; 1 Cir., 146 F.2d
809, certiorari granted 325 U.S. 844, 65 S.Ct. 1086; Judicial Code 240(a).
The reference to the Federal Trade Commission and to the Packers and
Stockyards Act was to show the choice of a circuit court of appeals for judicial
review and was not intended to suggest the adoption for the Tax Court review
of any standard of scope of review.
8
Compare Helvering v. F. & R. Lazarus Co., 308 U.S. 252, 255, 60 S.Ct. 209,
210, 84 L.Ed. 226; Wilmington Trust Co. v. Helvering, 316 U.S. 164, 167, 62
S.Ct. 984, 985, 86 L.Ed. 1352; Helvering v. Chicago Stock Yards Co., 318 U.S.
693, 700, 702, 63 S.Ct. 843, 846, 847, 87 L.Ed. 1086; Equitable Life Assur.
Society v. Comm'r, 321 U.S. 560, 563, 64 S.Ct. 722, 723, 88 L.Ed. 927;
Comm'r v. Scottish American Co., 323 U.S. 119, 65 S.Ct. 169.
The Internal Revenue Code provides that the chairman (now presiding judge of
the Tax Court, 1100, 26 U.S.C.A. Int.Rev.Code, 1100) may 'from time to
time divide the Board into divisions of one or more members' and 'a majority of
the members of the Board or of any division thereof shall constitute a quorum
for the transaction of the business of the Board or of the division, respectively.'
1103(c), d). By 1118(b), 26 U.S.C.A. Int.Rev.Code 1118(b), the report of
a division becomes the report of the Board within 30 days unless the chairman
directs that it be reviewed by the Board.
Each of the two cases before us was decided by only one Tax Court judge, a
different judge in each case. See Griswold, The Need for a Court of Tax
Appeals (1944) 57 Harv.L.Rev. 1153, 1170 1172.
Helvering v. Hallock, 309 U.S. 106, 117, 118, 60 S.Ct. 444, 450, 451, 84 L.Ed.
604, 125 A.L.R. 1368; Smith v. Shaughnessy, 318 U.S. 176, 180, 63 S.Ct. 545,
547, 87 L.Ed. 690.
Interstate Transit Lines v. Commissioner, 319 U.S. 590, 593, 63 S.Ct. 1279,
1281, 87 L.Ed. 1607; see also New Colonial Co. v. Helvering, 292 U.S. 435,
440, 54 S.Ct. 788, 790, 78 L.Ed. 1348; Deputy v. Du Pont, 308 U.S. 488, 493,
60 S.Ct. 363, 366, 84 L.Ed. 416; McDonald v. Commissioner, 323 U.S. 57, 60,
65 S.Ct. 96, 97, 155 A.L.R. 119.
In re Fechsheimer Fishel Co., 2 Cir., 212 F. 357, 360; In re Collier's Estate, 112
Misc. 70, 182 N.Y.S. 555; Cass v. Realty Securities Co., 148 App.Div. 96, 100,
132 N.Y.S. 1074, affirmed, 206 N.Y. 649, 99 N.E. 1105; see Commissioner v.
The legal element is not eliminated merely because it appears in 'a molecular
combination of fact and law which defies separation.' Berry v. 34 Irving Place
Corporation, D.C., 52 F.Supp. 875, 881. It may be the dominant element in the
combination. When it is, minutiae of factual difference should not govern result
or sustain conflicting outcomes.