Court Opinion

ID: 9898594
Source: CourtListenerOpinion
Date Created: 2023-11-14 20:02:32.52384+00
Date Added: 2024-06-11T09:16:45.519646
License: Public Domain

United States Tax Court

                                T.C. Memo. 2023-137

   DON L. ROCKAFELLOR AND KATHLEEN M. ROCKAFELLOR,
                       Petitioners

                                            v.

               COMMISSIONER OF INTERNAL REVENUE,
                           Respondent

                                       —————

Docket No. 15566-22L.                                     Filed November 14, 2023.

                                       —————

Don L. Rockafellor and Kathleen M. Rockafellor, pro sese.

Zachary B. Friedman and Alicia E. Elliott, for respondent.

                           MEMORANDUM OPINION

        GREAVES, Judge: In this collection due process (CDP) case,
petitioners seek review pursuant to sections 6320(c) and 6330(d) of the
determinations by the Internal Revenue Service (IRS or respondent) to
uphold notices of federal tax lien filing and notices of intent to levy
related to income tax liabilities for tax years 2012 through 2015 and a
tax return preparer penalty under 6694(b) for tax year 2011. 1
Petitioners also ask the Court to consider other matters and tax years
not considered in the attached notices of determination. Respondent
filed a Motion to Dismiss for Lack of Jurisdiction for the claims asserted
in the petition but not reflected in the notices of determination.
Respondent also moved for summary judgment under Rule 121 for the
remaining issues, contending that there are no disputed issues of

        1 Unless otherwise indicated, statutory references are to the Internal Revenue

Code, Title 26 U.S.C. (Code), in effect at all relevant times, regulation references are
to the Code of Federal Regulations, Title 26 (Treas. Reg.), in effect at all relevant times,
and Rule references are to the Tax Court Rules of Practice and Procedure.

                                   Served 11/14/23
                                          2

[*2] material fact and that his determinations to sustain the collection
actions were proper as a matter of law. For the reasons set forth below,
we will grant both motions.

                                   Background

       The following facts are based on the parties’ pleadings and motion
papers, the attached declarations and exhibits, and the administrative
record. See Rule 121(c). Petitioners resided in California when the
petition was timely filed.

I.     Prior Deficiency and CDP Cases

       Respondent selected petitioners’ federal income tax returns for
tax years 2007 through 2010 2 and 2012 through 2015 for examination
and determined deficiencies, additions to tax, and/or penalties for each
of these years. 3 Petitioners timely filed petitions for redetermination
with this Court. Each deficiency case ended in a stipulated decision, and
respondent assessed the tax as shown on the stipulated decisions. In
addition to the income tax deficiencies, respondent assessed tax return
preparer penalties under section 6694(b) against petitioner husband
(Don) for tax years 2011, 2012, and 2013. Petitioners failed to pay any
of these liabilities, and respondent began collection activities. This
Opinion will refer to Notice CP90, Final Notice–Notice of Intent to Levy
and Notice of Your Right to a Collection Due Process Hearing, as “levy
notice” and Letter 3172, Notice of Federal Tax Lien Filing and Your
Rights to a Hearing under IRC 6320, as “lien notice.”

      Respondent’s first round of collection activities occurred in 2017
and 2018. Respondent issued the following notices:

       2 Petitioners did not file an income tax return for tax year 2010. For the 2010
tax year, respondent prepared a separate substitute for return for each petitioner,
listing their filing status as married filing separately. Respondent issued a separate
notice of deficiency to each petitioner, and each petitioner petitioned this Court
separately for redetermination.
        3 This Opinion will refer to income tax deficiencies, additions to tax, and

penalties as “income tax liabilities.”
                                            3

[*3] Tax Year             Underlying            CDP Notice             Taxpayer
                           Liability

     2007–2009             Income tax            Levy notice              Both
                           deficiencies

        2010               Income tax            Levy notice              Don
                           deficiencies

        2010               Income tax            Lien notice            Kathleen
                           deficiencies

        2010               Income tax            Levy notice            Kathleen
                           deficiencies

        2011            Preparer penalty         Levy notice              Don

     2012–2013         Preparer penalties        Lien notice              Don

        Petitioners timely submitted Forms 12153, Request for a
Collection Due Process or Equivalent Hearing, for all collection
activities, excluding the notices related to Kathleen’s 2010 income tax
liability. 4 The Appeals Office 5 sustained the collection activities and
issued notices of determination. Petitioners timely petitioned for review
of the notices of determination with this Court. We entered stipulated
decisions in these cases, sustaining the collection activities, with the
exception of the notice of determination relating to Don’s 2011 preparer
penalty. Regarding this notice of determination, we entered a stipulated
decision that did not sustain respondent’s collection activity related to
this penalty. The parties’ agreement attached to the stipulated decision
provided that the penalties would be abated for failure to comply with
the supervisor approval requirement of section 6751(b):

       4 As for Kathleen’s notices related to her 2010 income tax liability, the IRS

Office of Appeals (Appeals Office) granted her an equivalency hearing. The Appeals
Office sustained the lien filing and issued Kathleen a decision letter. Petitioners
included the decision letter in their subsequent petition for review with this Court. We
dismissed the claim for lack of jurisdiction.
      5 This office is now referred to as the Independent Office of Appeals. See

Taxpayer First Act, Pub. L. No. 116-25, § 1001, 133 Stat. 981, 983 (2019).
                                         4

[*4]     It is further stipulated that the liability was abated
         without prejudice to respondent’s right to reassess the civil
         penalties under I.R.C. § 6694(b) for the taxable year 2011
         pursuant to the procedures prescribed in the Internal
         Revenue Code, to the extent permitted by law.

      After the abatement, respondent re-examined Don’s 2011
preparer penalty and proposed an assessment of $90,000. The 2011
preparer penalty was approved in writing by the revenue agent’s
immediate supervisor, and respondent mailed to Don Letter 1125,
Report of Tax Preparer Penalties, which explained his rights to a
preassessment conference with the Appeals Office. Don requested the
preassessment conference, and he argued that respondent was
precluded by the prior Tax Court decision from reassessing the penalty
and that the period of limitations for assessment had expired. The
Appeals Office sustained the proposed preparer penalty, and respondent
assessed the penalty.

II.      Subsequent CDP Notices

     Respondent issued additional lien and levy notices in three series.
Respondent issued the following levy notices in 2020 (2020 Notices):

       Tax Year         Underlying           CDP Notice       Taxpayer
                         Liability

         2011         Preparer penalty       Levy notice         Don

       2012–2013         Income tax          Levy notice         Both
                         deficiencies

       2012–2013         Income tax          Levy notice         Don
                         deficiencies

      Respondent issued the following lien notices in January 2021
(January 2021 Notices):
                                       5

[*5] Tax Year         Underlying           CDP Notice       Taxpayer
                       Liability

       2007–2009       Income tax          Lien notice         Both
                       deficiencies

  2007, 2009–2010      Income tax          Lien notice         Don
                       deficiencies

         2012       Preparer Penalty       Lien notice         Don

         2013       Preparer Penalty       Lien notice         Don

       Finally, respondent issued the following notices related to
petitioners’ 2014 and 2015 tax years in August 2021 (August 2021
Notices):

       Tax Year       Underlying           CDP Notice       Taxpayer
                       Liability

       2014–2015       Income tax          Lien notice         Both
                       deficiencies

       2014–2015       Income tax          Levy notice         Both
                       deficiencies

III.     CDP Hearing Requests

       Petitioners submitted three Forms 12153. They timely filed their
first request for a CDP hearing in response to the 2020 Notices (First
Request), which was received on March 22, 2020. On Form 12153, they
indicated that they sought review for collection activities relating to tax
years 2007 through 2013 for income tax liabilities and preparer
penalties. Petitioners checked the boxes to indicate they were interested
in an installment agreement and discharge of a lien. They attached to
their First Request (1) levy notices relating to their 2012 and 2013
income tax liabilities from the 2020 Notices; (2) Notice CP91, Notice of
Intent to Seize Social Security Benefits, dated March 2, 2020; and
(3) Notice CP508C, Notice of Certification of Your Seriously Delinquent
                                           6

[*6] Federal Tax Debt to the State Department, dated February 17,
2020. 6

       Petitioners’ second request for a CDP hearing was mailed on
December 15, 2020 (Second Request), before respondent issued the
January 2021 Notices and the August 2021 Notices. Petitioners again
indicated that they sought review for collection activities relating to tax
years 2007 through 2013 for income tax liabilities and preparer
penalties. They checked the boxes to indicate they were interested in an
installment agreement and withdrawal of a lien. They attached to their
Second Request nine Notices CP504, Notice of Intent to Seize (Levy)
Your Property or Rights to Property, related to tax years 2007 through
2010 and preparer penalties for 2012 and 2013. 7

      Petitioners’ final request for a CDP hearing was mailed on
September 4, 2021 (Third Request). They indicated that they sought
review for collection activities relating to tax years 2014 and 2015. They
checked the box to indicate they were interested in an offer-in-
compromise. They attached the lien notices from the August 2021
Notices to their request.

IV.     CDP Hearing

       Petitioners’ First Request was assigned to a settlement officer,
who reviewed the request but transferred the case to another settlement
officer (SO1) before contacting petitioners. Upon receipt of the First
Request, SO1 reviewed petitioners’ accounts and discovered the 2020
Notices that petitioners failed to include with their First Request. SO1
determined that petitioners’ request for a CDP hearing was proper only
for the years listed in the 2020 Notices. SO1 scheduled a telephone CDP
hearing and requested financial information and proof that petitioners
were current on tax obligations. SO1 issued Letter 4837, Appeals

        6 Neither the Notice CP91 nor the Notice CP508C entitled petitioners to a CDP

hearing. See Treas. Reg. § 301.6330-1(a)(3), Q&A-A6; Internal Revenue Manual (IRM)
5.11.7.3.4 (Sept. 23, 2016). Notice CP91 notifies a taxpayer that the IRS intends to
levy upon a maximum of 15% of the taxpayer’s Social Security benefits. See IRM
5.11.7.3.4. Notice CP508C notifies a taxpayer that the IRS has certified to the State
Department that he is a person owing a “seriously delinquent tax debt.” See Garcia v.
Commissioner, 157 T.C. 1, 3 (2021). This notice entitles a taxpayer to petition this
Court for review of the certification. See § 7345(e)(1). Petitioners did not indicate in
their petition that they sought to challenge this certification.
      7 For the reasons discussed infra, these notices did not entitle petitioners to a

CDP hearing.
                                    7

[*7] Received Your Request for Collection Due Process Hearing,
outlining these requests to petitioners’ address, which is identical to
that indicated on the petition to this Court. This request was mailed on
July 14, 2021, and provided a 14-day deadline to submit the information.
Petitioners left a voicemail for SO1 in which they requested that the
CDP hearing be rescheduled because of health problems but did not
leave a phone number at which to reach them in the voicemail. SO1
attempted to reach petitioners at the number that appeared on the caller
ID at the time of the voicemail but received no answer.

       Before setting a new date for the CDP hearing, SO1 became aware
of petitioners’ Second Request, which failed to include either a lien
notice or a levy notice. SO1 searched petitioners’ account and discovered
the January 2021 Notices, which were issued after the Second Request.
Because the January 2021 Notices were issued after petitioners mailed
the Second Request, SO1 determined that petitioners’ Second Request
was premature to place the January 2021 Notices at issue. As for the
notices petitioners attached to their Second Request, SO1 determined
that with respect to the Notices CP504, petitioners were not entitled to
a CDP hearing because they had previously requested a CDP hearing
for levy notices related to these liabilities. SO1 concluded that
petitioners were not entitled to a CDP hearing based on the Second
Request, and on August 6, 2021, issued letters to petitioners informing
them of this decision.

       On August 20, 2021, SO1 sent petitioners Letters 4837,
Substantive Contact Uniform Acknowledgement Letter, rescheduling
the CDP hearing for September 28, 2021, and the submission deadline
for September 23, 2021. The case was transferred to another settlement
officer (SO2) before the CDP hearing. Petitioners did not provide the
financial information and failed to attend the rescheduled CDP hearing.

       On September 13, 2021, SO2 received the Third Request and
determined that the August 2021 Notices were properly at issue. On
January 6, 2022, SO2 issued Letter 4000, Last Chance Letter, to
petitioners, requesting that they submit the requested financial
information by February 16, 2022. Additionally, SO2 sent petitioners
Letter 4837, scheduling a CDP hearing regarding the Third Request for
February 16, 2022. Petitioners again did not submit the requested
information and failed to attend the CDP hearing. SO2 reviewed
petitioners’ file and verified that all requirements of applicable law and
administrative procedure were satisfied.
                                    8

[*8] On June 7, 2022, SO2 sent each petitioner a Notice of
Determination Concerning Collection Actions under IRC Sections 6320
or 6330. SO2 sustained the collection activities related to the 2020
Notices and the August 2021 Notices. Petitioners timely sought review
in this Court. In their petition they checked the boxes to indicate that
they were challenging a notice of determination concerning collection
activities and a notice of final determination for disallowance of interest
abatement claim. Petitioners indicated that they were challenging
notices related to tax years 2007 through 2015 that concerned income
tax liabilities and preparer penalties. Petitioners ask this Court to find
that respondent abused his discretion by improperly sustaining
collection activities and failing to provide an opportunity for petitioners
to respond.

        On February 22, 2023, respondent filed a Motion to Dismiss for
Lack of Jurisdiction for all claims related to petitioners’ income tax
liabilities for tax years 2007 through 2010 and Don’s 2012 and 2013
preparer penalties and for the determination not to abate interest. On
March 3, 2023, respondent filed a Motion for Summary Judgment as to
the remaining issues. On March 21, 2023, this Court ordered petitioners
to file an objection to both motions by April 19, 2023. Petitioners failed
to do so.

                               Discussion

I.    Motion to Dismiss for Lack of Jurisdiction

       Respondent asks this Court to dismiss for lack of jurisdiction any
claims related to petitioners’ income tax liabilities for tax years 2007
through 2010 and Don’s 2012 and 2013 preparer penalties. Respondent
further asks that we dismiss for lack of jurisdiction petitioners’ claim
related to the denial of abatement of interest.

        We are a court of limited jurisdiction, and we may exercise our
jurisdiction only to the extent authorized by Congress. See § 7442;
Naftel v. Commissioner, 85 T.C. 527, 529 (1985). Where this Court’s
jurisdiction is duly challenged, as here, our jurisdiction must be
affirmatively shown by the party seeking to invoke that jurisdiction. See
David Dung Le, M.D., Inc. v. Commissioner, 114 T.C. 268, 270 (2000),
aff’d, 22 F. App’x 837 (9th Cir. 2001); Fehrs v. Commissioner, 65 T.C.
346, 348 (1975). To meet this burden, the party “must establish
affirmatively all facts giving rise to our jurisdiction.” See David Dung
Le, M.D., Inc., 114 T.C. at 270; Wheeler’s Peachtree Pharmacy, Inc. v.
                                    9

[*9] Commissioner, 35 T.C. 177, 180 (1960). Petitioners invoked our
jurisdiction and therefore bear the burden of establishing jurisdiction.

      A.     Notices of Determination

       In their petition, petitioners ask the Court to consider
determinations related to tax years 2007 through 2015. Petitioners
attached to their petition the notices of determination issued June 7,
2022, related to Don’s 2011 preparer penalty and petitioners’ 2012
through 2015 income tax liabilities. This notice of determination is the
sole basis for our jurisdiction in this case.

       By contrast, petitioners did not attach to their petition notices of
determination relating to tax years 2007 through 2010 or Don’s preparer
penalties from 2012 and 2013. In a diligent review of his records,
respondent found notices of determination related to these tax years
that were issued in 2018 and previously challenged in this Court. Our
decisions relating to these notices of determination are final within the
meaning of section 7481(a)(1). We are precluded from vacating or
otherwise altering those decisions, absent an exception not applicable
here. See Cinema ‘84 v. Commissioner, 122 T.C. 264, 270 (2004).
Therefore, these notices of determination, which were previously the
subject of litigation, do not confer jurisdiction on this Court.

       By including challenges to collection actions related to their 2007
through 2010 income tax liabilities and Don’s preparer penalties from
2012 and 2013, petitioners appear to argue that SO2 improperly failed
to include these actions in the notices of determination issued on June 7,
2022. However, the administrative record does not contain any lien or
levy notice which entitled petitioners to a CDP hearing for those
collection actions based on the three CDP hearing requests filed by
petitioners.

        Neither the Notices CP504 nor the January 2021 Notices
obligated SO2 to grant petitioners’ Second Request for a CDP hearing.
Taxpayers may request a CDP hearing only in response to specific
notices issued by respondent. See Treas. Reg. § 301.6330-1(a)(3),
Q&A-A6 (providing that a pre-levy notice must include “[n]otification of
the right to request a CDP hearing”); IRM 8.22.4.2.2 (Aug. 26, 2020). A
taxpayer’s right to a CDP hearing is further limited by section
6330(b)(2), which provides that a taxpayer is entitled to only one levy
CDP hearing regarding the taxable period to which the unpaid tax
liability relates. See Treas. Reg. § 301.6330-1(b)(1). A premature CDP
                                        10

[*10] hearing request is ineffective. See Andre v. Commissioner, 127
T.C. 68, 74 (2006).

       First, petitioners appear to argue that SO2 improperly concluded
that they were not entitled to a levy CDP hearing on the basis of the
Notices CP504 attached to the Second Request. These notices relate to
petitioners’ 2007 through 2009 joint income tax liabilities, Don’s 2010
income tax liability, and Don’s 2012 and 2013 preparer penalties. SO2
determined that these notices did not entitle petitioners to CDP
hearings because they previously had levy CDP hearings related to
these liabilities. This determination was correct as to petitioners’ 2007
through 2009 income tax liabilities and Don’s 2010 income tax liability.
Thus, they would be ineligible for an additional CDP hearing with
respect to these tax years even if a notice otherwise entitled them to
such a hearing. See Treas. Reg. § 301.6330-1(b)(1).

       As for Don’s 2012 and 2013 preparer penalties, SO2’s rationale
was incorrect, but that error was harmless. The record before us
indicates that Don was not previously granted a levy CDP hearing. 8
Thus, he would be entitled to such a hearing after respondent issued a
notice sufficient to entitle him to a CDP hearing. See Freije v.
Commissioner, 131 T.C. 1, 4 (2008), aff’d, 325 F. App’x 448 (7th Cir.
2009). Don has failed to produce a levy notice related to his 2012 or 2013
preparer penalties that would entitle him to a CDP hearing. The notices
CP504 are not formal CDP levy notices, and they did not state that Don
could request a collection due process hearing. See Treas. Reg.
§ 301.6330-1(a)(3), Q&A-A6; IRM 8.22.4.2.2. Don did not provide any
other levy notice for these liabilities. Thus, Don was not entitled to a
CDP hearing for his 2012 and 2013 preparer penalties.

       Finally, petitioners appear to argue that SO2 erred in
determining that they improperly requested a lien CDP hearing based
on the January 2021 Notices. Petitioners’ Second Request was mailed
on December 15, 2020. The January 2021 Notices were not issued until
January 21, 2021, and January 28, 2021. Thus, petitioners’ Second
Request was premature to place the January 2021 Notices at issue. See
Andre, 127 T.C. at 74. Petitioners’ Third Request was received after the
issuance of the January 2021 Notices; however, the request did not ask
for review of tax years covered by the January 2021 Notices. Thus,

      8 Don previously had a lien CDP hearing related to these liabilities.
                                    11

[*11] petitioners failed to properly request a lien CDP hearing based on
the January 2021 Notices.

       Therefore, respondent was not obligated to grant petitioners a
CDP hearing and issue a determination in response to the Second
Request. We conclude that the notices of determination do not cover
collection activities related to petitioners’ income tax liabilities for tax
years 2007 through 2010 and Don’s 2012 and 2013 preparer penalties.
Thus, we have no jurisdiction over these years.

      B.     Determination Not to Abate Interest

       Petitioners also indicated on their petition that they seek review
of a notice of final determination for disallowance of interest abatement.
With respect to an appeal of a determination not to abate interest, our
jurisdiction depends on the issuance of a final determination not to abate
interest or sufficient time passing after the taxpayer requests such
abatement and timely filing of a petition for review. See § 6404(h)
(setting a 180-day filing deadline after the mailing of the final
determination); Williams v. Commissioner, 131 T.C. 54, 56 (2008);
Bourekis v. Commissioner, 110 T.C. 20, 26 (1998).

       Petitioners have failed to produce a notice of final determination
for disallowance of interest abatement related to any of the years at
issue. In his motion, respondent asserts that he has conducted a diligent
search of his records to determine whether a notice of final
determination for disallowance of interest abatement has been issued to
petitioners, and that, on the basis of that search, he has determined that
no such notice has been issued. Moreover, respondent further asserts,
on the basis of the foregoing search, petitioners did not file a claim for
abatement of interest. Thus, petitioners have failed to show a notice
sufficient to confer jurisdiction regarding the disallowance of interest
abatement.

       Accordingly, we will grant respondent’s Motion to Dismiss for
Lack of Jurisdiction as to the claims related to petitioners’ 2007 through
2010 tax years and Don’s 2012 and 2013 preparer penalties. We further
will grant respondent’s Motion to Dismiss for Lack of Jurisdiction as to
any claim relating to a notice of final determination for disallowance of
interest abatement.
                                   12

[*12] II.   Motion for Summary Judgment

       A.    Summary Judgment Standard

       Absent an agreement to the contrary, our decision in this case is
appealable to the U.S. Court of Appeals for the Ninth Circuit. See
§ 7482(b)(1)(G)(i), (2). That court has held that, where de novo review is
not applicable, the scope of review in a CDP case is confined to the
administrative record. See Keller v. Commissioner, 568 F.3d 710, 718
(9th Cir. 2009), aff’g in part T.C. Memo. 2006-166, and aff’g in part,
vacating in part decisions in related cases. For the reasons discussed
below, de novo review is not available in this case, and petitioners have
offered no reason to believe that the administrative record is incomplete.
Accordingly, “summary judgment serves as a mechanism for deciding,
as a matter of law, whether the agency action is supported by the
administrative record and is not arbitrary, capricious, an abuse of
discretion, or otherwise not in accordance with law.” Belair v.
Commissioner, 157 T.C. 10, 17 (2021) (quoting Van Bemmelen v.
Commissioner, 155 T.C. 64, 79 (2020)). We conclude that as a matter of
law, the notices of determination are supported by the administrative
record and are not arbitrary, capricious, an abuse of discretion, or
otherwise not in accordance with law.

      Because petitioners did not respond to the motion for summary
judgment, we could enter a decision against them for that reason alone.
See Rule 121(d). We will nevertheless consider the motion on its merits.
Cf. Chadwick v. Commissioner, 154 T.C. 84, 89 (2020).

       B.    Standard of Review

      Section 6320(b) permits a taxpayer to challenge an IRS lien before
the Appeals Office, and section 6320(c) (incorporating section 6330(d))
provides for Tax Court review of an Appeals Office determination.
Section 6330(b) permits a taxpayer to challenge an IRS levy before the
Appeals Office, and section 6330(d) provides for Tax Court review of an
Appeals Office determination. The Code does not prescribe the standard
of review that this Court should apply in reviewing an IRS
administrative determination in a CDP case; rather, we are guided by
our precedents.

      Where the validity of a taxpayer’s underlying liability is properly
at issue, we review the IRS determination de novo. See Goza v.
Commissioner, 114 T.C. 176, 181–82 (2000). Where a taxpayer’s
underlying liability is not properly at issue, we review the IRS
                                    13

[*13] determination for abuse of discretion only. See id. at 182. A
taxpayer may dispute his underlying liability in a CDP hearing, but only
if he did not receive a valid notice of deficiency or otherwise have a prior
opportunity to contest his liability.            § 6330(c)(2)(B); Sego v.
Commissioner, 114 T.C. 604, 609 (2000). The prior opportunity to
dispute the underlying liability may occur at a judicial hearing. See Katz
v. Commissioner, 115 T.C. 329, 339–40 (2000) (finding that a taxpayer
was precluded from disputing the underlying liability when that liability
was determined by a prior stipulated decision). An opportunity to
dispute a liability not subject to deficiency procedures may occur before
or after the assessment of the liability. See Treas. Reg. § 301.6320-
1(e)(3), Q&A-E2; Lewis v. Commissioner, 128 T.C. 48, 61 (2007)
(upholding the validity of Treas. Reg. § 301.6320-1(e)(3), Q&A-E2); see
also Abu-Dayeh v. Commissioner, T.C. Memo. 2015-136, at *3–4, *9
(holding that a taxpayer could not challenge the underlying liability in
a CDP hearing after a preassessment hearing relating to a section 6694
penalty).

        Petitioners had a prior opportunity to dispute their 2012 through
2015 income tax liabilities in prior litigation before this Court. This was
a prior opportunity to contest the liabilities and thus the underlying
liabilities were not properly at issue in the CDP hearing. As for Don’s
2011 preparer penalty, he likewise had an opportunity to contest the
liability. After the decision to reassess the 2011 preparer penalty,
respondent issued Letter 1125, informing Don of his right to a
preassessment Appeals Office conference. Don requested and was
provided this preassessment Appeals Office conference to challenge the
reassessment of the 2011 preparer penalty. This preassessment
Appeals Office conference afforded Don a prior opportunity to contest
his liability, precluding him from challenging the underlying liability at
the CDP hearing. See Abu-Dayeh, T.C. Memo. 2015-136, at *3–4, *9.
Accordingly, petitioners’ underlying liabilities are not properly before
this Court, and we will review SO2’s determinations for abuse of
discretion.

      C.     Abuse of Discretion

       In determining whether the settlement officer abused his
discretion in sustaining the collection actions, we consider whether he
(1) properly verified that the requirements of applicable law or
administrative procedure have been met, (2) considered any relevant
issues petitioners raised, and (3) considered “whether any proposed
collection action balances the need for the efficient collection of taxes
                                     14

[*14] with the legitimate concern of [petitioners] that any collection
action be no more intrusive than necessary.”           See § 6320(c)
(incorporating section 6330(c)).

       In their petition, petitioners alleged three errors. The first two
errors relate to SO2’s verification that the preparer penalties were
properly assessed: (1) the preparer penalties could not be reassessed and
(2) the assessment of the preparer penalties was improper. Petitioners’
final allegation of error relates to the settlement officers’ alleged failure
to provide petitioners with an opportunity to respond. Because
petitioners’ underlying liabilities were not at issue and the
administrative record contains requests for documents related to
collection alternatives, we construe this argument to relate to
petitioners’ request for collection alternatives. We address each
allegation below.

             1.     Verification

       Section 6330(c)(1) requires a settlement officer to “obtain
verification from the Secretary that the requirements of any applicable
law or administrative procedure have been met.” One such requirement
that the settlement officer must verify is that a valid assessment of the
underlying liability was made. See Ron Lykins, Inc. v. Commissioner,
133 T.C. 87, 97 (2009). Verification of compliance with applicable law is
reviewable by this Court without regard to whether the taxpayer raised
it at the CDP hearing. See Hoyle v. Commissioner, 131 T.C. 197, 202–
03 (2008), supplemented by 136 T.C. 463 (2011). The settlement officer’s
verification has been accepted as adequate if there is supporting
documentation in the administrative record.           See Blackburn v.
Commissioner, 150 T.C. 218, 222 (2018). Petitioners allege two failures
on the part of SO2 relating to the preparer penalty: the reassessment of
the preparer penalty was precluded by the prior stipulated decision and
assessment of the preparer penalty was improper. We reject both
arguments.

       Petitioners first alleged that respondent could not reassess the
preparer penalty after the prior stipulated decision. On April 20, 2018,
this Court entered a stipulated decision in a CDP case regarding this
preparer penalty. The stipulated decision ordered that the collection
action related to Don’s 2011 preparer penalty was “not sustained.” The
parties’ agreement in the “below-the-line stipulation” attached to the
stipulated decision stated that the preparer penalty was abated for lack
of compliance with section 6751(b) but stated it was “without prejudice
                                   15

[*15] to respondent’s right to reassess the civil penalty under I.R.C.
§ 6694(b) for the taxable year 2011 pursuant to the procedures
prescribed in the Internal Revenue Code, to the extent permitted by
law.”

       A “below-the-line stipulation,” that is, a stipulation “below the
judge’s signature” on a stipulated decision, evidences only an agreement
between the parties. See Hill v. Commissioner, T.C. Memo. 2021-121,
at *18, aff’d, 64 F.4th 1240 (11th Cir. 2023); Smith v. Commissioner,
T.C. Memo. 2009-33, slip op. at 6–7 (distinguishing a below-the-line
stipulation from the decision line, which “determin[es] deficiencies,
additions to tax, and penalties”). Such a stipulation does not constitute
a finding by the Court.

        In their petition, petitioners assert that the IRS was precluded
from reassessing the penalty. Under the res judicata, or claim
preclusion, doctrine, “[w]hen a court of competent jurisdiction has
tendered a final judgment on the merits of a cause of action, the parties
to the suit and their privies are thereafter bound.” Commissioner v.
Sunnen, 333 U.S. 591, 597 (1948). The elements of res judicata are: (1) a
final judgment on the merits in an earlier action by a court of competent
jurisdiction; (2) an identity of parties or privies in the two suits; and
(3) an identity of the cause of action in the earlier and later suits. See
Hambrick v. Commissioner, 118 T.C. 348, 351 (2002).

       The first and second elements are clearly established. A
stipulated decision is a judgment on the merits for purposes of res
judicata. See Krueger v. Commissioner, 48 T.C. 824, 829 (1967);
Goodman v. Commissioner, T.C. Memo. 2006-220, slip op. at 7. In
entering the stipulated decision, we properly exercised our jurisdiction
under section 6330(d)(1). Both parties were also parties to the prior
case.

       However, the case in which we entered the stipulated decision
and this case are not the same cause of action. Two cases relate to the
same cause of action if the cases arise out of the same nucleus of
operative facts. See Breland v. Commissioner, 152 T.C. 156, 162 (2019)
(citing Kaiser Aerospace & Elecs. Corp. v. Teledyne Indus., Inc. (In re
Piper Aircraft Corp.), 244 F.3d 1289, 1297, 1299 (11th Cir. 2001)). Here,
the action currently before the Court (and that was before SO2) arises
from the levy action in 2020 related to Don’s 2011 preparer penalties as
assessed in 2018. In contrast, the prior case in which we entered a
stipulated decision arose from a levy action related to Don’s 2011
                                   16

[*16] preparer penalties as assessed in 2016. Specifically, the facts
considered in determining the appropriateness of collection activity
related to Don’s 2011 preparer penalties assessed in 2016 did not include
consideration of the 2018 assessment.         Likewise, the procedure
surrounding the 2018 penalty assessment is the focus of this case. Thus,
res judicata from the stipulated decision would not preclude respondent
from reassessing the penalties.

       The parties’ “below-the-line stipulation” states that the 2011
preparer penalty was abated for lack of compliance with section 6751(b)
but further states it was “without prejudice to respondent’s right to
reassess the civil penalty under I.R.C. § 6694(b) for the taxable year
2011 pursuant to the procedures prescribed in the Internal Revenue
Code, to the extent permitted by law.” (Emphasis added.) “[W]ithout
prejudice” is defined as “in a way that does not harm or cancel the legal
rights or privileges of a party.” Without Prejudice, Black’s Law
Dictionary (11th ed. 2019); see also Vetrano v. Commissioner, 116 T.C.
272, 278 (2001) (defining “without prejudice” as preserving the right to
relief at a later time), supplementing T.C. Memo. 2000-128. The plain
meaning of the 2018 stipulated decision entitles respondent to reassess
the penalty in conformance with procedural requirements.

       Next, petitioners allege that respondent improperly assessed the
preparer penalty. They contend that the penalty was assessed after the
period of limitations, that the penalty was imposed and assessed against
Kathleen, and that the assessment dates are incorrect. Petitioners rely
on the first sentence of section 6696(d)(1), which provides that a penalty
under 6694(a) must be assessed within three years of filing the return.
However, respondent asserts a penalty under section 6694(b). A penalty
under section 6694(b) can be assessed “at any time.” See § 6696(d)(1);
McNamee v. Commissioner, T.C. Memo. 2020-37, at *17. Accordingly,
respondent’s assessment was not untimely. Further, there is nothing in
the administrative record to indicate that the preparer penalty was
imposed on Kathleen nor that the assessment dates are incorrect.

      In meeting the obligation under section 6330(c)(1), SO2 verified
that the assessment was properly made, the penalty was properly
approved under section 6751(b), the notice and demand for payment was
properly mailed, and a liability was due. These determinations are
supported by the administrative record. Accordingly, SO2 did not abuse
his discretion in verifying compliance with the requirements of
applicable law or administrative procedure.
                                   17

[*17]        2.     Petitioners’ Request for Collection Alternatives

       A settlement officer is required to consider any relevant issue a
taxpayer raises during the CDP hearing, including challenges to the
appropriateness of collection actions and collection alternatives offered
by the taxpayer.        In their Forms 12153, petitioners requested
consideration of an installment agreement, a lien discharge, and an
offer-in-compromise. In reviewing a determination under section
6330(c)(2), we consider only issues the taxpayer adequately raised
during the hearing. See LG Kendrick, LLC v. Commissioner, 146 T.C.
17, 34 (2016), aff’d, 684 F. App’x 744 (10th Cir. 2017). A taxpayer does
not properly raise the issue during the hearing if he “fails to present to
Appeals any evidence with respect to that issue after being given a
reasonable opportunity to present such evidence.” See Treas. Reg.
§§ 301.6320-1(f)(2), Q&A-F3, 301.6330-1(f)(2), Q&A-F3; see also LG
Kendrick, LLC, 146 T.C. at 34; Shanley v. Commissioner, T.C. Memo.
2009-17, slip op. at 13–14 (holding that a 14-day deadline to submit
financial documents was reasonable given that the taxpayer had three
months from his request for a CDP hearing to gather the information).

       Petitioners failed to submit financial information, collection
alternatives, or proof of current compliance with tax obligations to the
settlement officers during the CDP hearing. The record reflects that
throughout the administrative process petitioners were given multiple
opportunities to submit sufficient information to support their request
for collection alternatives.      SO1 first requested this financial
information on July 14, 2021, and provided a 14-day deadline. This
deadline was extended multiple times with the final deadline set for
February 16, 2022. This period in which petitioners could have provided
the necessary information was reasonable. Thus, SO2 did not abuse his
discretion by issuing the notices of determination when petitioners
failed to provide the requested information.

       Petitioners argue that their failure to participate in the hearing
or provide the requested information was due to the settlement officers’
failure to communicate. The administrative record does not support this
claim. The administrative record shows that petitioners called SO1 on
only one occasion and left a voicemail but failed to provide SO1 with a
phone number at which they could be reached. The settlement officers
attempted multiple times to call petitioners back at the number
appearing on the caller ID, but petitioners failed to answer. Petitioners
do not deny having received the phone calls from the settlement officers.
In addition to the phone calls, the settlement officers sent numerous
                                    18

[*18] letters to petitioners regarding the CDP hearing. Petitioners do
not deny having received these letters, which were sent to their current
address of record with this Court. Accordingly, we hold that respondent
did not abuse his discretion in issuing the notices of determination when
petitioners failed to provide any information relevant to the collection
alternatives.

             3.     Balancing

       Petitioners did not allege on the petition or argue at any later
point that SO2 failed to consider “whether any proposed collection action
balances the need for the efficient collection of taxes with the legitimate
concern of the person that any collection action be no more intrusive
than necessary.” See § 6330(c)(3)(C). They thus have conceded this
issue. See Rule 331(b)(4); see also Ansley v. Commissioner, T.C. Memo.
2019-46, at *19. In any event SO2 expressly concluded in the notices of
determination that the collection actions balanced the need for efficient
tax collection with petitioners’ legitimate concerns about intrusiveness.
Again, we find no abuse of discretion.

       We conclude that SO2 did not abuse his discretion in sustaining
the collection activities. Accordingly, we will grant respondent’s Motion
for Summary Judgment under Rule 121.

      To reflect the foregoing,

      An appropriate order and decision will be entered.