# Edward A. Robinson III and Diana R. Robinson v. Commissioner

> United States Tax Court · September 5, 2002 · 119 T.C. No. 4

URL: https://www.frixlaw.com/law-library/cases/4334008

## Case

- **Court:** United States Tax Court
- **Decided:** September 5, 2002
- **Citations:** 119 T.C. No. 4
- **Opinion:** Opinion
- **Cited by:** 0 later opinions in the Frix Law Library

## Citator (automated)

- No negative treatment found by the automated citator. That is not the same as a confirmation that the case is good law; read the citing cases.
- Full citator and citing cases: https://www.frixlaw.com/law-library/cases/4334008

## How later opinions describe it (automated extraction)

- applying this rule to the IRS
- describing as “untenable” the “assertion that the words, ‘properly allocable’, unambiguously specify that interest on business-related personal income tax deficiencies should be deductible”
- stating: “Pursuant to these allocation rules, deficiency interest is allocable to the payment of income taxes, an expenditure that is purely personal in nature.”
- describing the term “properly allocable” as “manifestly ambiguous”

## Opinion text

119 T.C. No. 4

UNITED STATES TAX COURT

EDWARD A. ROBINSON III AND DIANA R. ROBINSON, Petitioners v.
COMMISSIONER OF INTERNAL REVENUE, Respondent

Docket No. 9574-99. Filed September 5, 2002.

P-H operated a law practice as a sole proprietorship at
all relevant times. R audited Ps’ 1987 joint tax return and
made several adjustments to the Schedules A and C attached
to this tax return. Ps agreed to R’s adjustments and the
resulting deficiencies and additions to tax. In 1994, R
seized real property that Ps owned; in 1995, R sold the
property and applied the proceeds to Ps’ underpayment of
their 1987 income tax liability and interest thereon. On
Schedule C of their 1995 joint tax return, Ps deducted the
1987 underpayment interest that had been thus paid.

1. Held: Insofar as sec. 1.163-8T, Temporary Income Tax
Regs., 52 Fed. Reg. 24999 (July 2, 1987), and sec. 1.163-
9T(b)(2)(i)(A), Temporary Income Tax Regs., 52 Fed. Reg.
48409 (Dec. 22, 1987), apply under the circumstances herein
to characterize the 1987 underpayment interest thus paid in
1995 as not being “interest * * * on indebtedness properly
allocable to a trade or business” within the meaning of sec.
- 2 -

163(h)(2)(A), I.R.C. 1986, and therefore as not being
deductible under ch. 1, I.R.C. 1986, these regulations are
valid.

2. Held, further, Redlark v. Commissioner, 106 T.C. 31
(1996), revd. and remanded 141 F.3d 936 (9th Cir. 1998),
will no longer be followed.

3. Held, further, Ps are not entitled to deduct the
interest they paid in 1995 on account of the underpayment of
their 1987 income tax liability.

Charles B. Sklar1, for petitioners.

Joseph Ineich, for respondent.

CHABOT, Judge: Respondent determined a deficiency in Federal

individual income tax for 1995 against petitioners in the amount

of $29,879.2 The issue for decision is whether petitioners may

deduct for 1995 the interest they paid in 1995 on their 1987

Federal individual income tax underpayment.3

1
Cheryl R. Frank and Gerald W. Kelly, Jr., appeared on
petitioners’ behalf at the trial. A few months later, before
filing any briefs, they moved for leave to withdraw as counsel;
the Court granted their motion. Later Charles B. Sklar entered
his appearance and thereafter represented petitioners on brief.
2
Of this total, $28,015 is income tax under ch. 1 and
$1,864 is self-employment tax under ch. 2.

Unless indicated otherwise, all section and chapter
references are to sections and chapters of the Internal Revenue
Code of 1986 as in effect for 1995. The section references in
table 1, infra, are to this Code as in effect for 1987.
3
Respondent disallowed petitioners’ $69,617 deduction of
(continued...)
- 3 -

FINDINGS OF FACT

Some of the facts have been stipulated; the stipulations and

the stipulated exhibits are incorporated herein by this

reference.

Petitioners Edward A. Robinson III (hereinafter sometimes

referred to as Edward), and Diana R. Robinson resided in

Louisiana when they filed their petition in the instant case.

A. Edward’s Background

In 1970, Edward was graduated from Grambling State

University, cum laude, with a double major in political science

and English. In 1971, Edward received a master’s degree in

criminal jurisprudence from the State University of New York at

Albany. In 1975, Edward received his law degree from Rutgers

University. Edward also was awarded an honorary LL.D. from World

University, in Tucson, Arizona.

After his Rutgers graduation, Edward worked as the chief

administrator of the Louisiana Justice Department. Edward

3
(...continued)
“other interest” that was reported on the Schedule C (Profit or
Loss From Business) attached to their 1995 tax return. The
$69,617 interest payment was made in respect of petitioners’
underpayment of their 1987 Federal individual income tax
liability. The other adjustments that respondent made to
petitioners’ 1995 return were to petitioners’ Schedule A
(Itemized Deductions) and to the computation of the self-
employment tax deduction and the self-employment tax liability
for Edward A. Robinson III. These adjustments are computational;
their resolution depends on our determination of the issue for
decision.
- 4 -

resigned from this position and opened his own law practice in

1979. Edward’s law practice focused almost exclusively on

personal injury cases. At all relevant times, Edward’s law

practice was operated as a sole proprietorship.

B. 1987 Return and Audit Thereof

During 1989, respondent audited petitioners’ 1986 and 1987

joint tax returns.4

On their 1987 tax return, petitioners reported $6,274

interest income and $60,677 net profit from Edward’s law

practice. On the 1987 Schedule C, petitioners reported $388,000

gross receipts, $18,500 cost of goods sold, and $308,823

deductions, leading to the $60,677 net profit. On the 1987 Form

1040, petitioners reported $3,866 chapter 1 income tax, $5,387

chapter 2 self-employment tax, $502 addition for underpayment of

estimated tax, and no withholding or other payments, for a total

of $9,755 owed. Petitioners timely paid this $9,755.

Respondent proposed adjustments to petitioners’ 1987 taxable

income, and a deficiency and additions to tax as shown in table

1.

4
We do not make further findings as to 1986 because the
parties have stipulated that the $69,617 item which is the basic
adjustment in the instant case is entirely interest on the
underpayment of petitioners’ 1987 tax liability.
- 5 -

Table 1

Item Amount

Unreported income1 $25,377.81

Sched. C adjustments--net 195,715.95

Sched. A adjustment--
consequential2 6,389.00

Sched. A adjustments--other (658.59)

Deficiency 83,632.30

Addition--sec. 6653(a)(1)(A) 4,181.62
3
Addition--sec. 6653(a)(1)(B)

Addition--sec. 6661 20,908.08

1
All of the unreported income was from Edward’s law practice.
2
Reduction in medical expense deduction, resulting from increase
in adjusted gross income because of additional income from
Edward’s law practice.
3
Fifty percent of the interest on $83,632.30.

Petitioners agreed to these proposed changes, and the

appropriate amounts were assessed.

Respondent seized certain of petitioners’ property in 1994,

sold the property in 1995, and in 1995 applied $69,617 of the

proceeds to petitioners’ interest on the underpayment of their

1987 tax liability.

The $69,617 interest payment was not related to any

liability on petitioners’ 1987 tax return as originally filed, as

all such liability had been timely paid. This interest payment
- 6 -

was applied only to interest assessed as a result of the 1987

audit deficiency in tax and additions. Petitioners deducted this

$69,617 as “Interest: * * * Other” on line 16b of the Schedule C

(Edward’s law practice) on their 1995 tax return.

On their 1995 tax return, petitioners reported $359,915 net

profit from Edward’s law practice (Sched. C), $1,410 royalty

income (Sched. E), and a $1,702 loss on sales of business

property (Form 4797). On the 1995 Schedule C, petitioners

reported $523,480 gross receipts, $26,340 cost of goods sold, and

$137,225 deductions (including the disputed $69,617 other

interest item), leading to the $359,915 net profit. On the 1995

Form 1040, petitioners reported $108,735 chapter 1 income tax,

$17,228 chapter 2 self-employment tax, $59 addition for

underpayment of estimated tax, and $110,000 estimated tax

payments, for a total of $16,022 owed.

________________________________

The $69,617 was interest paid in 1995, but it was not on

indebtedness properly allocable to Edward’s law practice,

petitioners’ only relevant trade or business.

OPINION

A. The Parties’ Contentions

The parties focus their dispute on whether section 163

prohibits allowance of petitioners’ claimed $69,617 Schedule C
- 7 -

interest deduction; in particular whether the interest is “on

indebtedness properly allocable to a trade or business”, within

the meaning of section 163(h)(2)(A), and therefore exempt from

the general disallowance rule of section 163(h).

Petitioners contend that the $69,617 interest qualifies for

the exemption from the disallowance rule and that a regulation to

the contrary is invalid, relying on this Court’s opinions to that

effect. In the alternative, they contend that the regulation is

not an authoritative interpretation of the applicable statutory

language, the regulation having been issued before the statutory

language was enacted.

Respondent relies on the regulation as an authoritative

interpretation of an ambiguous statute and notes that the Courts

of Appeals of five different circuits have come to the same

conclusion. As to the prior opinions on which we relied in

invalidating the regulation, respondent’s brief states that “It

is therefore respondent’s position that pre-section 163(h) case

law is irrelevant to the resolution of the instant case.” In the

alternative, respondent contends that, if we were to conclude

“that deficiency interest attributable to a trade or business is

deductible, then an allocation of the deficiency interest in this

case to the Schedule C adjustments and to the Schedule A

adjustments for the 1987 year, will be required.”
- 8 -

Neither side contends that we should distinguish between the

factual settings presented in our two prior opinions on this

subject. Apart from respondent’s alternative contention as to

the 1987 Schedule A adjustments, respondent apparently accepts

that, if the regulations are not valid, then the interest expense

resulting from the 1987 Schedule C adjustments is properly a 1995

Schedule C deduction.

B. Summary of Conclusions

We agree with respondent’s primary position and much of

respondent’s analysis.

Section 162(a) allows a deduction for “all the ordinary and

necessary expenses paid or incurred during the taxable year in

carrying on any trade or business”; this includes interest.

Section 163(a) allows a deduction for “all interest paid or

accrued within the taxable year on indebtedness”; this is allowed

even if the interest would not be deductible under section

162(a). Notwithstanding this broad allowance language there are

statutory limitations on amounts (e.g., sec. 163(d), relating to

investment interest) and prohibitions (e.g., sec. 163(f),

relating to registration-required obligations), that override not

only section 163, but all of chapter 1 (sec. 163(d)(1)) or even

“any other provision of law” (sec. 163(f)(1)).

In the instant case we focus on the prohibition in section

163(h)(1), prohibiting any deduction under chapter 1 for
- 9 -

“personal interest”. The Congress has defined this term

comprehensively5 in section 163(h)(2), so we focus on the

specifics of the relevant part of the definition--“properly

allocable to a trade or business” (sec. 163(h)(2)(A))--rather

than concepts involved in “personal”.

Examination of the history of the legislation, both the

sequence of events and the formal explanations, does not lead to

any clear answer as to the meaning of the finally adopted

statutory language. It is clear, however, that the Congress

chose language different from the statutory language that had

been construed in earlier cases. This strongly suggests that the

Congress intended a meaning different from the older statutory

language, but it does not clearly indicate what the Congress

intended that difference to be.

It is in this setting that we reach the Treasury

Regulations--section 1.163-8T, Temporary Income Tax Regs., 52

Fed. Reg. 24999 (July 2, 1987), and section 1.163-9T(b)(2)(i)(A),

Temporary Income Tax Regs., 52 Fed. Reg. 48409 (Dec. 22, 1987).6

5
That is sec. 163(h)(2) provides that “the term ‘personal
interest’ means”. (Emphasis added.) Compare secs. 64 and 65
(“the term * * * includes” (emphasis added)).
6
Sec. 6232(a) of the Technical and Miscellaneous Revenue
Act of 1988 (TAMRA 1988), Pub. L. 100-647, 102 Stat. 3342, 3734-
3735, added subsection (e) to sec. 7805. Sec. 7805(e)(2)
provides that “Any temporary regulation shall expire within 3
years after the date of issuance of such regulation.” Sec.
7805(e)(2) applies to any temporary regulation issued after Nov.
(continued...)
- 10 -

It is accepted that these regulations, if not invalid, would

result in our concluding that interest on petitioners’ 1987

underpayment of Federal income taxes is nondeductible personal

interest. We conclude that, taking into account the uncertainty

as to the meaning of the statute, even as informed by the history

of the legislation, these regulations constitute a permissible

interpretation of the statute. As a result, the regulations are

not invalid, and so petitioners’ claimed interest expense

deduction is not allowed under chapter 1.

C. Caselaw Setting of the Issues

We first addressed the validity of section 1.163-8T,

Temporary Income Tax Regs., 52 Fed. Reg. 24999 (July 2, 1987),

and section l.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., 52

Fed. Reg. 48409 (Dec. 22, 1987), in Redlark v. Commissioner, 106

T.C. 31, 34 (1996). At that time, the Court of Appeals for the

Eighth Circuit was the only Court of Appeals that had addressed

the issue, and it concluded that section 1.163-9T(b)(2)(i)(A),

Temporary Income Tax Regs., supra, is not invalid. Miller v.

United States, 65 F.3d 687, 691 (8th Cir. 1995). With all due

respect to the Court of Appeals for the Eighth Circuit, we

concluded in Redlark v. Commissioner, 106 T.C. at 42, 47, that

6
(...continued)
20, 1988. TAMRA 1988 sec. 6232(b), 102 Stat. at 3735. The
regulations herein involved were issued before Nov. 20, 1988, and
thus the “sunset” provision of sec. 7805(e)(2) does not apply to
these regulations.
- 11 -

both section 1.163-8T, Temporary Income Tax Regs., supra, and

section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., supra,

as applied to the facts presented in Redlark were unreasonable.

Relying on Redlark v. Commissioner, supra, we held in Kikalos v.

Commissioner, T.C. Memo. 1998-92, that the interest on the income

tax deficiencies resulting from the operation of the taxpayer-

husband’s unincorporated trade or business was deductible under

section 163(h)(2)(A) because the interest was properly allocable

to the taxpayer-husband’s unincorporated trade or business.

The Courts of Appeals for the Ninth and Seventh Circuits

reversed our decisions in Redlark v. Commissioner, supra, and

Kikalos v. Commissioner, supra, respectively, and held that

section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., supra,

is a reasonable interpretation of section 163(h). Kikalos v.

Commissioner, 190 F.3d 791, 799 (7th Cir. 1999), revg. T.C. Memo.

1998-92; Redlark v. Commissioner, 141 F.3d 936, 942 (9th Cir.

1998), revg. and remanding 106 T.C. 31 (1996). The Courts of

Appeals for the Fourth and Sixth Circuits also reached the same

conclusion. McDonnell v. United States, 180 F.3d 721, 723 (6th

Cir. 1999); Allen v. United States, 173 F.3d 533, 538 (4th Cir.

1999).7

7
Although the Courts of Appeals for the Fourth and Seventh
Circuits noted the application of sec. 1.163-8T, Temporary Income
Tax Regs., 52 Fed. Reg. 24999 (July 2, 1987) (Allen v. United
States, 173 F.3d 533, 537 (4th Cir. 1999); Kikalos v.
(continued...)
- 12 -

The Courts of Appeals uniformly relied on the following

rationale to support their conclusions that section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, is not

invalid: (1) The regulation is not inconsistent with either the

statute or its legislative history, and (2) the regulation is

supported by the Staff of the Joint Committee on Taxation,

General Explanation of the Tax Reform Act of 1986 (J. Comm. Print

1987), hereinafter referred to as the 1986 Blue Book. Kikalos v.

Commissioner, 190 F.3d at 798; McDonnell v. United States, 180

F.3d at 723 (adopting the rationale of Redlark v. Commissioner,

141 F.3d at 936); Allen v. United States, 173 F.3d at 537-538;

Redlark v. Commissioner, 141 F.3d at 941; Miller v. United

States, 65 F.3d at 690.

Although the judicial landscape surrounding section

163(h)(2)(A) has changed significantly since our decisions in

Redlark v. Commissioner, supra, and Kikalos v. Commissioner,

supra, the legislative landscape has not. Since section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, was published

in the Federal Register, Congress has not amended section

163(h)(2)(A) so as to compel a construction of section

163(h)(2)(A) contrary to the Secretary’s construction as embodied

7
(...continued)
Commissioner, 190 F.3d 791, 794 (7th Cir. 1999), revg. T.C. Memo.
1998-92), none of the cited Court of Appeals opinions
specifically discussed the validity of this regulation.
- 13 -

in section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs.,

supra. The Courts of Appeals for the Fourth, Seventh, and Eighth

Circuits pointed to Congress’s failure to amend section

163(h)(2)(A) as additional evidence that the regulation is

reasonable. Kikalos v. Commissioner, 190 F.3d at 799 (7th Cir.);

Allen v. United States, 173 F.3d at 538 (4th Cir.); Miller v.

United States, 65 F.3d at 690 (8th Cir.).

We have considered the opinions of the Courts of Appeals for

the Fourth, Sixth, Seventh, Eighth, and Ninth Circuits; those

opinions are entitled to all due respect. Lardas v.

Commissioner, 99 T.C. 490, 494 (1992). Appeal in the instant

case, however, lies to the Court of Appeals for the Fifth Circuit

which has yet to address the issue presented herein.8

8
In Lardas v. Commissioner, 99 T.C. 490, 494-495 (1992),
we stated that, in Golsen v. Commissioner, 54 T.C. 742, 756-757
(1970), affd. 445 F.2d 985 (10th Cir. 1971), we

reasoned that, where a reversal would appear
inevitable, due to the clearly established position of
the Court of Appeals to which an appeal would lie, our
obligation as a national court does not require a
futile and wasteful insistence on our view.

* * * * * * *

It should be emphasized that the logic behind the
Golsen doctrine is not that we lack the authority to
render a decision inconsistent with any Court of
Appeals (including the one to which an appeal would
lie), but that it would be futile and wasteful to do so
where we would surely be reversed. Accordingly,
bearing in mind our obligation as a national court, see
Lawrence v. Commissioner, * * * [27 T.C. 713, 716-717
(continued...)
- 14 -

Accordingly, we proceed to reconsider our opinions in

Redlark v. Commissioner, supra, and Kikalos v. Commissioner,

supra.

We set forth the pertinent provisions of section 163(h). We

then trace the history of the enactment of these provisions, from

Executive Branch proposals through the legislative process of the

Tax Reform Act of 1986 (H.R. 3838, the Ways and Means Committee’s

“clean bill”) and the retroactive amendments enacted in the

Technical and Miscellaneous Revenue Act of 1988 (TAMRA 1988). We

then evaluate the status of the regulations.

D. The Statute

Section 163(a) provides for the deductibility of all

interest paid or accrued in the taxable year on indebtedness.

The other subsections of section 163 provide limitations,

particularized rules, or definitions with regard to the allowance

8
(...continued)
(1957), revd. on other grounds 258 F.2d 562 (9th Cir.
1958),] we should be careful to apply the Golsen
doctrine only under circumstances where the holding of
the Court of Appeals is squarely on point. See Golsen
v. Commissioner, supra at 757.

Two District Courts in the Fifth Circuit have concluded that
section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., 52 Fed.
Reg. 48409 (Dec. 22, 1987), is not invalid. Fitzmaurice v.
United States, 87 AFTR 2d 2001-654, 2001-1 USTC par. 50,198 (S.D.
Tex. 2001); Davis v. United States, 71 F. Supp. 2d 622 (W.D. Tex.
1999). Although these opinions are relevant to the instant case,
they do not control because they are not Court of Appeals
opinions.
- 15 -

rule of subsection (a). As applicable to 1995, the year before

us, section 163(h) provides, in pertinent part, as follows:

SEC. 163. INTEREST.

* * * * * * *

(h) Disallowance of Deduction for Personal Interest.--

(1) In general.–-In the case of a taxpayer other
than a corporation, no deduction shall be allowed under
this chapter [chapter 1, relating to normal taxes and
surtaxes] for personal interest paid or accrued during
the taxable year.

(2) Personal interest.–-For purposes of this
subsection, the term “personal interest” means any
interest allowable as a deduction under this chapter
other than–-

(A) interest paid or accrued on indebtedness
properly allocable to a trade or business (other
than the trade or business of performing
services as an employee),

(B) any investment interest (within the
meaning of subsection (d)),

(C) any interest which is taken into account
under section 469 in computing income or loss
from a passive activity of the taxpayer,

(D) any qualified residence interest within
the meaning of paragraph (3)), and

(E) any interest payable under section 6601
on any unpaid portion of the tax imposed by
section 2001 for the period during which an
extension of time for payment of such tax is in
effect under section 6163 or 6166 or under
section 6166A (as in effect before its repeal by
the Economic Recovery Tax Act of 1981).

Petitioners contend that the interest they paid in respect

of their 1987 income tax underpayment falls within the terms of
- 16 -

section 163(h)(2)(A); they do not contend that their interest

payment falls within the terms of any of the other subparagraphs

of section 163(h)(2). Accordingly, we focus on section

163(h)(2)(A).

E. History of the Legislation (See Appendix infra.)

In November 1984, the Treasury Department issued a report to

the President recommending numerous revisions of the tax laws.

One of the proposals was designed to

curtail the subsidy implicit in the [then] current law
deduction of interest on debt to finance large amounts of
passive, tax-preferred, investment assets (such as corporate
stock) or extraordinary consumption expenditures (such as
second homes).

In May 1985, President Reagan issued a report which included

a proposal to subject “all interest not incurred in connection

with a trade or business” to the section 163(d) limitations on

investment interest.

The House bill followed the President’s proposal in that it

would impose a limit on deductibility of “nonbusiness interest”.

The latter term was defined to exclude “any interest which is

allowable as a deduction in computing adjusted gross income”.

The Ways and Means Committee report stated that “Interest expense

that is paid or incurred in carrying on a trade or business * * *

is not subject to the interest deduction limitation under the

bill.” H. Rept. 99-426 at 298, 1986-3 C.B. (Vol. 2) 1, 298.
- 17 -

The Senate amendment separated out the investment interest

provisions (in a revised sec. 163(d)) and provided a prohibition

(new sec. 163(h)) on deducting “consumer interest”. The latter

term was defined to exclude “interest paid or accrued on

indebtedness incurred or continued in connection with * * * the

conduct of a trade or business”.

The conference committee reached its agreement on August 16,

1986. Thirteen days later, the staff of the Joint Committee on

Taxation published a summary of the agreement, hereinafter

sometimes referred to as the Joint Committee staff summary.

Twenty days after that, the conference committee published its

report. Thirty-four days after that, the Tax Reform Act of 1986

was enacted. The conference committee generally followed the

Senate’s approach, but changed the language to prohibit any

deduction for “personal interest”. For our purposes, “personal

interest” was defined the same way the Senate bill defined

“consumer interest”. The Joint Committee staff summary stated as

follows:

Interest on underpayments of tax (other than certain
deferred estate taxes) is treated as personal interest under
the provision.

The conference committee explanation includes the following

sentence:

Personal interest also generally includes interest on
tax deficiencies.
- 18 -

On May 4, 1987, the staff of the Joint Committee on Taxation

published its “Blue Book”, which included the following:

Personal interest also includes interest on
underpayments of individual Federal, State or local
income taxes notwithstanding that all or a portion of
the income may have arisen in a trade or business.
* * *

On June 10, 1987, the chairman and ranking minority member

of each of the tax-writing committees introduced bills to make

technical corrections to TRA 1986. Each bill included the

following:

Subparagraph (A) of section 163(h)(2) of the 1986
Code is amended by striking out “incurred or continued
in connection with the conduct of” and inserting in
lieu thereof “properly allocable to”. [Sec. 105(c)(1)
of H.R. 2636 and S. 1350.]

Each bill provided that the change was to take effect as

though it had been included in TRA 1986. The Ways and Means

Committee report stated that the change in section 163(h)(2)(A)

is intended to make it consistent with the language of section

469, which also had been enacted in TRA 1986. The House of

Representatives passed the provision as part of the 1987 Budget

Reconciliation Act. The Finance Committee approved the same

language and described it the same way in its report.

For reasons unrelated to this provision, the technical

corrections were dropped from the Omnibus Budget Reconciliation

Act of 1987, Pub. L. 100-203, 101 Stat. 1330. The same

provisions were then introduced as part of the Technical
- 19 -

Correction Act of 1988, with the same effective dates and

explanations, and ultimately enacted without change by the

Technical and Miscellaneous Revenue Act of 1988 (TAMRA 1988),

Pub. L. 100-647, 102 Stat. 3342.

The language thus enacted is what we must construe in the

instant case.

F. Analysis of the Statute

From the foregoing, we draw the following conclusions.

(1) Initial Objectives

Although the movement to enact what became section 163(h)

may have started with a concern about subsidizing already-tax-

favored investments and “extraordinary consumption expenditures

(such as second homes)” (infra Appendix 1. The Treasury Report),

the enacted statute is different--narrower in some respects and

broader in others--from the original announced objectives.

It is not at all unusual for the Congress to act outside the

confines of the problem described in the legislative history; the

Congress has done so in many different areas of the tax law.

See, e.g., Bartels Trust for Ben. of Univ. v. United States, 209

F.3d 147, 153-154 (2d Cir. 2000) (relating to charities’

unrelated trade or business income); Corn Belt Tel. Co. v. United

States, 633 F.2d 114, 117-118 (8th Cir. 1980) (relating to the

definition of “public utility property” for investment credit

purposes); Warrensburg Board & Paper Corp. v. Commissioner, 77
- 20 -

T.C. 1107, 1110-1111 (1981) (relating to subchapter S

corporations’ “one-shot” elections); Estate of Beal v.

Commissioner, 47 T.C. 269, 271-272 (1966) (relating to

includability of the value of certain annuities in decedents’

estates). Where the Congress has chosen to so legislate, the

courts do not confine the statute to the original problem, but

rather apply the statute to the net that the Congress has chosen

to cast.

In light of the evolution of section 163(h) over the 4 years

from the Treasury Report to TAMRA 1988, the original objective of

the proposal cannot be taken as sufficiently explaining the

meaning of section 163(h)(2)(A).

(2) The Varying “Handles”; Definition in the Statute

When the Congress enacts a definition of a term, the

statutory definition controls over definitions in general

dictionaries.

A review of the relevant history of the legislation reveals

the varying phraseology that the Congress employed in the

legislative process that culminated in the enactment of section

163(h)(2). Five different terms, or “handles”, were used to

describe the interest, the deductions in respect of which the

Congress wanted to either limit or disallow: “nonbusiness

interest”, “nonbusiness consumer interest”, “consumer interest”,

“personal (consumer) interest”, and “personal interest”. The
- 21 -

Congress also used varying definitions for these terms, e.g.,

“Interest expense that is paid or incurred in carrying on a trade

or business” (H. Rept. 99-426 at 298, 1986-3 C.B. (Vol. 2) 1,

298), “interest paid or accrued on indebtedness incurred or

continued in connection with–-(i) the conduct of a trade or

business” (H.R. 3838, sec. 1421 (as passed by the Senate), 132

Cong. Rec. at S 8921 (June 26, 1986)).

We make these observations because of the apparent focus on

the question of whether interest paid in respect of an

individual’s Federal income tax liability is a “personal

obligation”. See Miller v. United States, 65 F.3d at 691,

stating:

that an individual’s income tax liability, regardless of the
nature of the income giving rise to the liability, is a
personal obligation and that, consequently, interest owed by
such individual because of a failure to pay his tax
obligation on time necessarily is also a personal
obligation.

See also Kikalos v. Commissioner, 190 F.3d at 797 (describing as

reasonable the view taken by the Secretary therein that interest

on income tax deficiencies is personal interest because the

obligation to pay income tax is personal); Allen v. United

States, 173 F.3d at 537 (stating: “Pursuant to these allocation

rules, deficiency interest is allocable to the payment of income

taxes, an expenditure that is purely personal in nature.”);

Redlark v. Commissioner, 141 F.3d at 941 (agreeing with the

statement of the Court of Appeals for the Eighth Circuit (Miller)
- 22 -

“that personal income tax obligations are always essentially

personal in nature”). Despite whatever logical conclusions may

flow from the Congress’s use of the term “personal interest”, and

the Congress’s clearly expressed intention to end the deduction

for indebtedness incurred to finance personal consumption

expenditures, the instant case does not turn on whether the

obligation to pay deficiency interest is a “personal obligation”

or whether the payment of Federal individual income tax is a

personal consumption expenditure. Indeed, the obligation to pay

home mortgage interest is undoubtedly a “personal obligation”,

yet that type of interest expense is excluded from the definition

of personal interest. Sec. 163(h)(2)(D). Moreover, as we noted

in Redlark v. Commissioner, 106 T.C. at 42: “To conclude that an

income tax deficiency is ipso facto a consumption expenditure

begs the issue.” Accordingly, the determination whether an item

of interest is either a “personal obligation” or a “personal

consumption expenditure” is not the talisman for purposes of

applying section 163(h). Rather, the controlling inquiry, as

framed by the statute itself, is whether the interest in issue is

“properly allocable to a trade or business”. Sec. 163(h)(2)(A).

When, as in the instant case, the Congress undertakes to

define a term explicitly, “we must follow that definition, even

if it varies from that term’s ordinary meaning.” Stenberg v.

Carhart, 530 U.S. 914, 942 (2000); Guerrero-Perez v. INS, 242
- 23 -

F.3d 727, 736-737 (7th Cir. 2001); see, e.g. Cherin v.

Commissioner, 89 T.C. 986 (1987). In other words, we are to

disregard the connotations of the term, or handle, that the

Congress adopts and instead focus on the language that the

Congress actually used to define the term. This is especially

true where, as in the instant case, the Congress tells us what

the term in question “means”. “As a rule, ‘a definition which

declares what a term ‘means’ . . . excludes any meaning that is

not stated.’” Colautti v. Franklin, 439 U.S. 379, 392-393 n.10

(1979). If, however, the statute in question uses the word

“includes” rather than “means” to define a term, then there is an

indication that the definition of the term is exemplary rather

than exclusive. Sec. 7701(c); see Winterrowd v. David Freedman

and Co., Inc., 724 F.2d 823, 825 (9th Cir. 1984)(citing Highway &

City Freight Drivers v. Gordon Transports, Inc., 576 F.2d 1285,

1289 (8th Cir. 1978)).

In Cherin v. Commissioner, 89 T.C. at 1000-1001, we

addressed, inter alia, whether the taxpayer’s deficiencies were

subject to a higher rate of interest under what was then (as to

interest accruing after Dec. 31, 1984) section 6621(c)9, dealing

with interest on a substantial underpayment attributable to a

“tax-motivated transaction”. We found as facts in Cherin v.

9
Sec. 6621(c) later was repealed by sec. 7721(b) of the
Omnibus Budget Reconciliation Act of 1989, Pub. L. 101-239, 103
Stat. 2106, 2399.
- 24 -

Commissioner, 89 T.C. at 987, 988, 991, that the taxpayer (1) was

looking for an investment which would produce significant income

for his retirement years, (2) reasonably relied on the advice of

his accountant, financial adviser, and attorney to enter into the

disputed transaction (a tax shelter involving cattle breeding),

and (3) contemplated that he would recover the purchase price of

the two herds in which he invested. Despite these findings which

suggested the presence of a profit motive, we concluded that the

taxpayer’s deficiencies were subject to the higher rate of

interest under section 6621(c), i.e., that the taxpayer had a

substantial underpayment attributable to a “tax-motivated

transaction”. Cherin v. Commissioner, 89 T.C. at 1001. We

reached our conclusion in Cherin even though the handle the

Congress chose, “tax-motivated transaction”, suggested the

importance of the taxpayer’s motives. Instead of focusing on the

connotations that logically flowed from that handle, we focused

on the relevant statutory language, which set forth what the term

“tax-motivated transaction” “means”. Sec. 6621(c)(3).

In the instant case, in restricting the allowance rule of

section 163(a), the Congress chose the term “personal interest”,

and the Congress told us what that term “means” in section

163(h)(2). As relevant herein, the term “personal interest”

means “any interest allowable as a deduction under this chapter

other than–-* * * interest paid or accrued on indebtedness
- 25 -

properly allocable to a trade or business (other than the trade

or business of performing services as an employee)”. Sec.

163(h)(2)(A). Based on this definition of “personal interest”

that the Congress set forth, the appropriate inquiry in the

instant case is not whether petitioners’ interest on their 1987

income tax deficiency is “personal” but whether it is “properly

allocable to a trade or business”.

(3) The Pre-TRA 1986 Cases

In Redlark v. Commissioner, 106 T.C. at 34-35, we opened our

discussion of the law as it stood before enactment of TRA 1986 as

follows:

The question remains, however, whether the elements giving
rise to the deficiencies to which the interest herein
relates are of such a nature as to permit such interest to
constitute a business expense within the meaning of section
162(a), and therefore of section 62(a), and, as a result, to
be characterized as interest “on indebtedness properly
allocable to a trade or business” within the meaning of
section 163(h)(2)(A)3 in the event that the temporary
regulation is not applicable. We think a review of the
cases decided prior to the enactment of section
163(h)(2)(A), in respect of the deductibility of interest on
income tax deficiencies as a business expense, will throw
light on this question and is therefore a significant
element in our analysis of the impact of that section on
petitioners’ claimed interest deduction. It is to that
review that we first turn our attention.

________________
3
Sec. 163(h)(2)(A) was amended by sec. 1005(c)(4) of the
Technical and Miscellaneous Revenue Act of 1988, Pub. L.
100-647, 102 Stat. 3342, 3390.

Sec. 163(h)(2)(A), as originally enacted in 1986,
provided:
- 26 -

(A) interest paid or accrued on indebtedness
incurred or continued in connection with the conduct of
a trade or business (other than the trade or business
of performing services as an employee), [Tax Reform Act
of 1986, Pub. L. 99-514, sec. 511(b), 100 Stat. 2085,
2246.]

The amended language, effective for the years in issue,
was intended to conform the definition of personal interest
to the language of the related passive loss and investment
interest limitation provisions, to permit consistent
application of a standard for allocation of interest. See
S. Rept. 100-445, at 36 (1988); H. Rept. 100-795, at 35
(1988). There is no indication that the change in language
was intended to make any substantive change in the meaning
of the statutory language.

We then analyzed three opinions: Standing v. Commissioner,

28 T.C. 789 (1957), affd. 259 F.2d 450 (4th Cir. 1958); Polk v.

Commissioner, 31 T.C. 412 (1958), affd. 276 F.2d 601 (10th Cir.

1960); Reise v. Commissioner, 35 T.C. 571 (1961), affd. 299 F.2d

380 (7th Cir. 1962). In each of these opinions we held that the

interest on a tax underpayment was an ordinary and necessary

expense “paid or incurred during the taxable year in carrying on

any trade or business” within the meaning of section 23(a)(1)(A),

I.R.C. 1939, the predecessor of section 162(a). In Standing v.

Commissioner, 28 T.C. at 789-795, we also held that the interest

on a tax underpayment was “attributable to” the taxpayer’s trade

or business within the meaning of section 22(n)(1), I.R.C. 1939,

the predecessor of section 62(a)(1), hence deductible in arriving

at adjusted gross income. In Polk v. Commissioner, 31 T.C. at

415, we noted that the net operating loss language in section

122(d)(5), I.R.C. 1939 (the predecessor of sec. 172(d)(4)), was
- 27 -

identical to the section 22(n)(1), I.R.C. 1939, language

construed in Standing and so should have the same meaning as in

Standing. In Reise v. Commissioner, 35 T.C. at 579-580, we noted

that neither Standing nor Polk discussed our earlier opinion in

Aaron v. Commissioner, 22 T.C. 1370 (1954), in which we had held

that interest on a tax underpayment was not attributable to the

taxpayer’s trade or business within the meaning of section

122(d)(5), I.R.C. 1939. In Reise we thereupon overruled Aaron

and reaffirmed the position we took in Polk that the interest on

the tax underpayment was attributable to the taxpayer’s trade or

business.

In Redlark v. Commissioner, 106 T.C. at 37, we then

summarized the effect of the foregoing cases as follows:

Concededly there is some confusion in the reasoning of
the decided cases, but the thrust of their bottomline
conclusions is clear. Exceptions will be accorded to the
“ordinary and necessary” provision of section 162 only when
there is explicit legislative indication that such a result
was intended. Thus, we agree with petitioners that there is
a consistent body of pre-section 163(h) case law holding
that, at least under limited circumstances such as were
involved in Standing v. Commissioner, supra, Polk v.
Commissioner, supra, and Reise v. Commissioner, supra,
deficiency interest is a deductible business expense under
section 162 and therefore under section 62(a)(1). See
Brennan & Megaard, “Deducting Interest on Noncorporate Trade
or Business Tax Deficiencies: Uncertainty Exists Under the
New Temporary Regulations”, 13 Rev. of Taxn. of Individuals
22 (1989).

Later in our opinion in Redlark v. Commissioner, 106 T.C. at

43, we pointed out that
- 28 -

we have consistently been reluctant to conclude that
Congress overruled existing case law when the statutory
language does not compel such a conclusion and Congress has
not otherwise expressly indicated that such a result should
ensue. * * *

As we noted, supra, in H.R. 3838 as reported by the Ways and

Means Committee, “nonbusiness interest” was defined to exclude

“any interest which is allowable as a deduction in computing

adjusted gross income”. Proposed amendment to sec. 163(d)(3)(B)

in sec. 402(a) of H.R. 3838 as reported by the Ways and Means

Committee. If that language had been enacted, then our Redlark

analysis of the statute would properly have led to the conclusion

that interest on a tax underpayment under the circumstances of

Redlark and the instant case would continue to be deductible

under section 162 and that section 163 would not affect that

deductibility, and that regulations to the contrary would be

contrary to the statute.

However, that language was not enacted. See infra,

Appendix. Instead, in TRA 1986 the Congress defined “personal

interest” to exclude “interest paid or accrued on indebtedness

incurred or continued in connection with the conduct of a trade

or business”. Sec. 163(h)(2)(A) (emphasis added). In TAMRA 1988

the Congress changed the language so as to exclude from personal

interest “interest paid or accrued on indebtedness properly

allocable to a trade or business.” Sec. 163(h)(2)(A) (emphasis

added). In Standing, Polk, and Reise, the critical statutory
- 29 -

language was “in carrying on any trade or business” (sec.

23(a)(1)(A), I.R.C. 1939) and “attributable to” the taxpayer’s

trade or business (secs. 22(n)(1) and 122(d)(5), I.R.C. 1939).

In Redlark v. Commissioner, 106 T.C. at 34, 37, we did not

deal with the fact that both the enacted TRA 1986 language (“in

connection with”) and the enacted TAMRA 1988 language (“properly

allocable to”) were different from the “in carrying on” and

“attributable to” language interpreted in the pre-TRA 1986

opinions.

Ordinarily, we would expect that a change in statutory

language indicates a change in meaning. Russello v. United

States, 464 U.S. 16, 23 (1983); cf. Elect. Arts, Inc. v.

Commissioner, 118 T.C. 226, 242-243 (2002), and cases there

cited.10

10
This is the general rule not only because of the
authority of the cited opinions, but also because this is the way
legislative drafters are instructed to draft statutes. See,
e.g., Office of the Legislative Counsel U.S. House of
Representatives, House Legislative Counsel’s Manual on Drafting
Style, 3 (1995), as follows:

(4) Use same word over and over.--If you have
found the right word, don’t be afraid to use it again
and again. In other words, don’t show your pedantry by
an ostentatious parade of synonyms. Your English
teacher may be disappointed, but the courts and others
who are straining to find your meaning will bless you.

(5) Avoid utraquistic subterfuges.--Do not use the
same word in 2 different ways in the same draft (unless
(continued...)
- 30 -

Application of this general rule (if the statutory language

is different, then it is presumed that the meaning is different)

to the matter before us leads to the conclusion that section

163(h)(2)(A) means something different from the statutory

provisions interpreted in the pre-TRA 1986 opinions.11

10
(...continued)
you give the reader clear warning).

To the same effect, see Dickerson, The Interpretation and
Application of Statutes 224 (1975), quoted in Zuanich v.
Commissioner, 77 T.C. 428, 443 n.26 (1981), as follows:
26
See R. Dickerson, The Interpretation and
Application of Statutes 224 (1975), as follows:

Because legal documents are for the most part
nonemotive, it is presumed that the author’s language
has been used, not for its artistic or emotional
effect, but for its ability to convey ideas.
Accordingly, it is presumed that the author has not
varied his terminology unless he has changed his
meaning, and has not changed his meaning unless he has
varied his terminology; that is, that he has committed
neither “elegant variation” nor “utraquistic
subterfuge”. This is the rebuttable presumption of
formal consistency. [Fn. refs. omitted.]

See also Hirsch, Drafting Federal Law, sec. 5.2 (3d ed. 1992).
11
This presumption is rebuttable. In the TAMRA 1988
amendments, at every step in the enactment of the change from
“incurred or continued in connection with the conduct of” to
“properly allocable to” the Congress stated the intention that
this was done to effectuate more clearly the original intention
of TRA 1986 and not to change the meaning of the statute. See
infra, Appendix. Consistent with these statements of
congressional intent, the TAMRA 1988 amendments took “effect as
if included in the provision of” the TRA 1986 to which the TAMRA
1988 amendments relate. See also Redlark v. Commissioner, 106
T.C. at 34 n.3. However, the parties have not directed our
attention to, and we have not found, any evidence that either the
(continued...)
- 31 -

We do not intend in the instant case to overrule any of the

three pre-TRA 1986 opinions--Standing, Polk, or Reise. The

statutory terms construed in those cases have been carried

forward from the Internal Revenue Code of 1939 and now appear in

section 162(a) (“paid or incurred * * * in carrying on any trade

or business”), section 62(a)(1) (“attributable to a trade or

business carried on by the taxpayer”), and section 172(d)(4)

(“attributable to a taxpayer’s trade or business”).

However, the result of the Congress’s decisions (1) to use

different language in section 163(h)(2)(A) and (2) to provide in

section 163(h)(1) that the disallowance rule overrode everything

else in chapter 1, is that, as to the issue we cited them for in

Redlark, the pre-TRA 1986 opinions have become irrelevant to the

determination of chapter 1 tax liabilities.

(4) The Conference Report, The 1986 Blue Book

In Redlark v. Commissioner, 106 T.C. at 42-45, we discussed

the following sentence from the TRA 1986 conference committee

explanation--

Personal interest also generally includes interest on
tax deficiencies

--with special focus on “generally” and “tax deficiencies”. We

noted that “deficiency” is a term of art with a settled

11
(...continued)
enacted TRA 1986 language or the enacted TAMRA 1988 language was
intended to have the same meaning as the language interpreted in
the pre-TRA 1986 opinions.
- 32 -

definition. We interpreted the conference committee sentence as

follows (106 T.C. at 44-45):

In short, we think that when the conference committee
used the phrase “tax deficiencies”, it was referring to
amounts due by way of income, estate, and gift taxes. In
this context, the word “generally” in the conference
committee report takes on a significant meaning. It signals
that not all interest relating to income tax, etc.,
deficiencies are included in “personal interest”. The
logical explanation for what is excluded by “generally” is
such interest that constitutes an ordinary and necessary
business expense and is therefore “allocable to an
indebtedness of a trade or business” within the meaning of
the exception clause of section 163(h)(2)(A). To adopt
respondent’s position would require us to substitute the
word “always” for “generally” and to expand the
interpretation of the word “deficiencies” beyond its
accepted meaning to encompass taxes other than income, etc.,
taxes in order to account for the use of the word
“generally”. By way of contrast, our interpretation accepts
the established meaning of “deficiencies” and gives effect
to “generally” without modification.

We then discussed the 1986 Blue Book’s status and concluded

as follows (106 T.C. at 45-46):

Where there is no corroboration in the actual legislative
history, we shall not hesitate to disregard the General
Explanation as far as congressional intent is concerned.7
See Estate of Wallace v. Commissioner, 965 F.2d 1038, 1050-
1051 n.15 (11th Cir. 1992), affg. 95 T.C. 525 (1990);
Zinniel v. Commissioner, 89 T.C. 357, 367 (1987), affd. 883
F.2d 1350 (7th Cir. 1989);8 see also Livingston, supra at 93
(“The Blue Book is on especially weak ground when it adopts
anti-taxpayer positions not taken in the committee
reports.”). Given the clear thrust of the conference
committee report, the General Explanation is without
foundation and must fall by the wayside. To conclude other-
wise would elevate it to a status and accord it a deference
to which it is simply not entitled.

__________________
7
In this connection, we also note that the Tax Reform Act
of 1986, Pub. L. 99-514, 100 Stat. 2085, was enacted on Oct.
22, 1986, during the 99th Congress, whereas the General
- 33 -

Explanation was published on May 4, 1987, during the 100th
Congress. Thus, the General Explanation is not even
entitled to the respect it might otherwise be accorded if it
had been prepared for the Congress which enacted sec.
163(h).
8
See also Lawson v. Commissioner, T.C. Memo. 1994-286.

We conclude that there are several difficulties with the

foregoing analysis in our opinion in Redlark v. Commissioner, 106

T.C. at 44-46. For the following reasons, we would not agree

that the conference committee explanation has a “clear thrust”.

Firstly, interest ordinarily is imposed on underpayments or

overpayments, not on deficiencies. See, e.g., secs. 6601, 6611,

6621. There can be an income tax deficiency without an

underpayment.12 There can be an underpayment without an income

tax deficiency.13 In describing the amendments made by TRA 1986

sections 1511 (to sec. 6621, I.R.C. 1986) and 1512 (to sec. 6601,

I.R.C. 1986), the Joint Statement of Managers portion of the

conference committee report consistently refers to interest on

underpayments or overpayments of tax, and it does not refer to

interest on tax deficiencies. H. Conf. Rept. 99-841, at II-784

to II-785 (1986); 1986-3 C.B. (Vol. 4) at 784-785.

12
See, e.g., Lundy v. Commissioner, T.C. Memo. 1993-278,
revd. 45 F.3d 856 (4th Cir. 1995), revd. 516 U.S. 235 (1996), in
which the parties agreed that the taxpayer had a $778 deficiency
even though the taxpayer’s withheld (and not refunded) income
taxes exceeded his total tax liability.
13
E.g., when a correct tax return is filed, but the
payments are less than the correctly stated liabilities.
- 34 -

Thus, it is not clear whether the term “deficiency”, to

which we attributed such significance in Redlark v. Commissioner,

106 T.C. at 44-45, is merely an inadvertence in one portion of

the conference committee report.

Secondly, the word “generally” may merely serve the function

of alerting the reader that there is a category of interest on

tax underpayments that does not fit into the definition of

“personal interest”--to wit, the interest described in

subparagraph (E) of section 163(h)(2), as follows:

(E) any interest payable under section 6601 on any
unpaid portion of the tax imposed by section 2001 for the
period during which an extension of time for payment of such
tax is in effect under section 6163 or 6166.[14] [Joint
Committee staff summary at 18.]

Thirdly, the Joint Committee staff summary, published 20

days before the Conference Report, described the provision as

follows:

Interest on underpayments of tax (other than certain
deferred estate taxes) is treated as personal interest
under the provision.

Apart from the use of “underpayments” rather than “deficiencies”,

the Joint Committee staff summary appears to be completely

consistent with the conference committee sentence on which we

focused in Redlark v. Commissioner, 106 T.C. at 44-45--and quite

inconsistent with the conclusion we drew in Redlark.

14
The reference to sec. 6166 later was stricken by sec.
503(b)(2)(B) of the Taxpayer Relief Act of 1997, Pub. L. 105-34,
111 Stat. 788.
- 35 -

Fourthly, even if we were to agree that the use of

“deficiencies” in the conference committee sentence is

significant, the only significance stated in Redlark v.

Commissioner, 106 T.C. at 44, is that it refers to “amounts due

by way of income, estate, and gift taxes.”15 As we noted supra

in Secondly and Thirdly, the exclusion provided by subparagraph

(E) of section 163(h)(2) is an exclusion of interest on estate

tax in certain circumstances. This is a far simpler explanation

of the conference committee sentence than the labored explanation

in Redlark; it provides consistency of meaning among the various

documents in the history of the legislation; and it refutes the

conclusion in Redlark v. Commissioner, 106 T.C. at 46, that the

conference committee sentence has a “clear thrust” that requires

us to reject the TRA 1986 Blue Book and to invalidate Treasury

Regulations. Of course, if a Blue Book were to conflict with

enacted language or controlling legislative history, then the

statutory language or the controlling legislative history would

prevail. In our view, the conference committee report is not

clear regarding which category of interest was intended to be

excepted from “personal interest”; i.e., which category made it

15
Beginning with the Tax Reform Act of 1969, Pub. L. 91-
172, 83 Stat. 487, the Congress began to bring a series of
regulatory excise taxes into the definition of “deficiency” in
sec. 6211. At the time TRA 1986 was enacted, the definition
included the taxes imposed by chs. 41 through 45, in addition to
the income, estate, and gift taxes imposed by subtits. A and B.
- 36 -

necessary to qualify the statement about personal interest with

“generally”. The Blue Book identifies another possible category

besides interest on a deficiency arising in the case of a sole

proprietorship, which contributes to the conclusion that the

controlling legislative history’s meaning is unclear.

(5) Conclusions From the Statute and the History of the

Legislation

The relevant statutory language is not the term “personal

interest”, but the definitional term in subparagraph (A) of

section 163(h)(2), in the context of the remaining elements of

the definition. That definitional term differs from the

statutory language construed in the three pre-TRA 1986 opinions

relied on in Redlark, and so the meaning of that definitional

term presumably is different from the meanings of the statutory

language construed in those three opinions.

The relevant statutory language does not provide a clear

answer to the dispute before us in the instant case.

The history of the legislation clearly shows an evolution in

the Congress’s thinking during the legislative process; it

provides some support for the validity of the Treasury

regulations, but that support is rebuttable. Apart from the

analysis in Redlark, that history does not provide support for

the conclusion that the Treasury regulations are invalid.
- 37 -

In this relatively inconclusive setting, we proceed to

examine the Treasury regulations.

G. The Regulations

In the instant case, we consider the validity of the

following regulations: (1) section 1.163-8T(c) and (c)(3)(ii),

Temporary Income Tax Regs.,16 52 Fed. Reg. 24999 (July 2, 1987),

16
Sec. 1.163-8T(c)(1) and (c)(3)(ii), Temporary Income Tax
Regs., supra, provides in pertinent part as follows:

Sec. 1.163-8T Allocation of interest expense among
expenditures (temporary).

(a) In General--(1) Application. This section
prescribes rules for allocating interest expense for
purposes of applying sections 469 (the “passive loss
limitation”) and 163(d) and (h) (the “nonbusiness interest
limitations”).

* * * * * * *

(c) Allocation of debt and interest expense–-(1)
Allocation in accordance with use of proceeds. Debt is
allocated to expenditures in accordance with the use of the
debt proceeds and, * * *. * * * debt proceeds and related
interest expense are allocated solely by reference to the
use of such proceeds, and the allocation is not affected by
the use of an interest in any property to secure the
repayment of such debt or interest. * * *

* * * * * * *

(3) Allocation of debt; proceeds not disbursed to
borrower--* * *

* * * * * * *

(ii) Debt assumptions not involving cash disbursements.
If a taxpayer incurs or assumes a debt in consideration for
the sale or use of property, for services, or for any other
purpose, or takes property subject to a debt, and no debt
(continued...)
- 38 -

and (2) section 1.163-9T(b)(2)(i)(A), Temporary Income Tax

Regs.,17 52 Fed. Reg. 48409 (Dec. 22, 1987). See Redlark v.

16
(...continued)
proceeds are disbursed to the taxpayer, the debt is treated
for purposes of this section as if the taxpayer used an
amount of the debt proceeds equal to the balance of the debt
outstanding at such time to make an expenditure for such
property, services, or other purpose.
17
Sec. 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs.,
supra, provides as follows:

Sec. 1.163-9T Personal interest (temporary).

* * * * * * *

(b) Personal interest–-

* * * * * * *

(2) Interest relating to taxes–-(i) In general. Except
as provided in paragraph (b)(2)(iii) of this section,
personal interest includes interest–-

(A) Paid on underpayments of individual Federal, State
or local income taxes and on indebtedness used to pay such
taxes (within the meaning of sec. 1.168-8T), regardless of
the source of the income generating the tax liability.

* * * * * * *

(ii) Example.

A, an individual, owns stock of an S corporation. On
its return for 1987, the corporation underreports its
taxable income. Consequently, A underreports A’s share of
that income on A’s tax return. In 1989, A pays the
resulting deficiency plus interest to the Internal Revenue
Service. The interest paid by A in 1989 on the tax
deficiency is personal interest, notwithstanding the fact
that the additional tax liability may have arisen out of
income from a trade or business. The result would be the
same if A’s business had been operated as a sole
proprietorship.
(continued...)
- 39 -

Commissioner, 106 T.C. at 40-42; see also supra note 6 (regarding

the continuing vitality of these temporary regulations, notwith-

standing section 7805(e)(2)).

(1) Standards for Judging Validity of Regulations

Section 1.163-8T, Temporary Income Tax Regs., supra, was

promulgated under the authority of sections 469(l)(4)18 and 7805,

the basic regulation-prescribing authority for the Treasury

Department. T.D. 8145, 1987-2 C.B. 47, 50. In the relevant

Notice of Proposed Rulemaking, the Commissioner concluded that

section 1.163-8T, Temporary Income Tax Regs., supra, is an

interpretative regulation. 52 Fed. Reg. 25036 (July 2, 1987);

1987-2 C.B. 1053. For purposes of the instant case, we agree

with the Commissioner’s conclusion and treat section 1.163-8T,

Temporary Income Tax Regs., supra, as an interpretative

regulation because the legislative delegation to the Secretary to

17
(...continued)
Given the interaction between secs. 1.163-8T and 1.163-9T,
Temporary Income Tax Regs., supra, and the fact that there is no
sec. 1.168-8T, Temporary Income Tax Regs., it appears that the
reference to sec. 1.168-8T, Temporary Income Tax Regs., supra, in
sec. 1.163-9T(b)(2)(i)(A), supra, should be to sec. 1.163-8T,
Temporary Income Tax Regs., supra, instead. See sec. 1.163-
9T(b)(3), Temporary Income Tax Regs., supra (cross-referencing
sec. 1.163-8T, Temporary Income Tax Regs., supra, for rules
determining the allocation of interest expense to various
activities).
18
Treasury Decision 8145 refers to sec. 469(k)(4). T.D.
8145, 1987-2 C.B. 47, 50. That provision was redesignated as
sec. 469(l)(4). See Appendix note 1. For convenience, we refer
to this provision as sec. 469(l)(4).
- 40 -

prescribe regulations relates to section 469 only. Sec.

469(l)(4); Hughes Intl. Sales Corp. v. Commissioner, 100 T.C.

293, 303-304 (1993).

Section 1.163-9T, Temporary Income Tax Regs., supra, was

promulgated under section 7805. T.D. 8168, 1988-1 C.B. 80, 83.

In the relevant Notice of Proposed Rulemaking, 1988-1 C.B. 926,

927, the Commissioner concluded that section 1.163-9T, Temporary

Income Tax Regs., supra, is an interpretative regulation. For

purposes of the instant case, we agree with the Commissioner’s

conclusion and treat section 1.163-9T, Temporary Income Tax

Regs., supra, as an interpretative regulation.

Although interpretative regulations are entitled to

considerable weight, they are accorded less deference than

legislative regulations, which are issued under a specific grant

of authority to address a matter raised by the relevant statute.

Chevron U.S.A. v. Natural Res. Def. Council, 467 U.S. 837, 843-

844 (1984); United States v. Vogel Fertilizer Co., 455 U.S. 16,

24 (1982). Temporary regulations are accorded the same weight as

final regulations. Peterson Marital Trust v. Commissioner, 102

T.C. 790, 797 (1994), affd. 78 F.3d 795 (2d Cir. 1996).

An interpretative regulation is to be upheld if it

“‘implement[s] the congressional mandate in some reasonable

manner.’” United States v. Vogel Fertilizer Co., 455 U.S. at 24

(quoting United States v. Correll, 389 U.S. 299, 307 (1967)). In
- 41 -

making this determination, we employ the following analysis set

forth by the Supreme Court:

Under the formulation now familiar, when we confront an
expert administrator’s statutory exposition, we inquire
first whether “the intent of Congress is clear” as to
“the precise question at issue.” Chevron U.S.A. Inc.
v. Natural Resources Defense Council, Inc., 467 U.S.
837, 842 (1984). If so, “that is the end of the
matter.” Ibid. But “if the statute is silent or
ambiguous with respect to the specific issue, the
question for the court is whether the agency’s answer
is based on a permissible construction of the statute.”
Id., at 843. If the administrator’s reading fills a
gap or defines a term in a way that is reasonable in
light of the legislature’s revealed design, we give the
administrator’s judgment “controlling weight.” Id., at
844. [NationsBank of N.C., N.A. v. Variable Annuity
Life Ins. Co., 513 U.S. 251, 257 (1995).]

Accordingly, we must first consider the statute and determine

whether section 163(h)(2)(A) is silent or ambiguous with respect

to the issue before us. If we conclude that it is, then we must

consider the Secretary’s regulatory interpretation of section

163(h)(2)(A) on this issue and determine whether that

interpretation represents a permissible construction of the

statute. We address each of these considerations in turn.

(2) Silence or Ambiguity

As set forth supra, the relevant inquiry in the instant case

is whether petitioners’ interest on their 1987 income tax

underpayment is “properly allocable to a trade or business”.

We have concluded (supra F (5) Conclusions From the Statute

and the History of the Legislation) that the statutory text does

not on its face provide the answer to the question before us. By
- 42 -

choosing to use a definition different from the statutory phrases

we had earlier construed, the Congress apparently intended a

meaning different from the meaning of those earlier statutory

phrases, but the statutory text does not reveal specifically what

that difference is. The history of the legislation provides some

support for a specific answer, but that support is rebuttable.

Every Court of Appeals which has addressed the issue

presented herein has reached the same conclusion that the statute

is silent or ambiguous. Kikalos v. Commissioner, 190 F.3d at

797; McDonnell v. United States, 180 F.3d at 723; Allen v. United

States, 173 F.3d at 536 (describing the term “properly allocable”

as “manifestly ambiguous”); Redlark v. Commissioner, 141 F.3d at

940 (describing as “untenable” the “assertion that the words,

‘properly allocable’, unambiguously specify that interest on

business-related personal income tax deficiencies should be

deductible”); Miller v. United States, 65 F.3d at 690 (describing

Congress’s failure to “define what constitutes business interest”

as “an implicit legislative delegation of authority to the

Commissioner to clarify whether income tax deficiency interest is

‘properly allocable to a trade or business.’”); see also Tedori

v. United States, 211 F.3d 488, 493 (9th Cir. 2000) (stating

“‘the common and ordinary meaning’ of the statutory phrase

‘properly allocable to a trade or business’ is not at all

plain”).
- 43 -

We conclude that section 163(h)(2)(A) is silent or

ambiguous. We now proceed to the second prong of our analysis;

i.e., whether the regulations in issue are based on permissible

constructions of section 163(h)(2)(A).

(3) Permissible Construction

To be valid, a regulation need not be the only, or even the

best, construction of the statute it purports to implement.

Atlantic Mut. Ins. Co. v. Commissioner, 523 U.S. 382, 389 (1998);

see Romann v. Commissioner, 111 T.C. 273, 282 (1998). The

Supreme Court has stated that a reviewing court--

need not conclude that the agency construction was the
only one it permissibly could have adopted to uphold
the construction, or even the reading the court would
have reached if the question initially had arisen in a
judicial proceeding. [Chevron U.S.A. v. Natural Res.
Def. Council, 467 U.S. at 843 n.11.]

Rather, the reviewing court need only conclude that the

regulation is reasonable. Cottage Savings Assn. v. Commissioner,

499 U.S. 554, 560-561 (1991)(citing National Muffler Dealers

Assn. v. United States, 440 U.S. 472, 476-477 (1979)). A

regulation is reasonable if it harmonizes with the plain

language, origin, and purpose of the statute it purports to

implement. United States v. Vogel Fertilizer Co., 455 U.S. at

25-26; National Muffler Dealers Assn. v. United States, 440 U.S.

at 477.

(a) Section 1.163-8T, Temporary Income Tax Regs., 52
Fed. Reg. 24999 (July 2, 1987).

Section 1.163-8T, Temporary Income Tax Regs., supra,

provides the rules for the allocation of interest expense for
- 44 -

purposes of sections 163(d), 163(h), and 469. Sec. 1.163-

8T(a)(1), Temporary Income Tax Regs., supra. Although the

Congress did not itself devise the allocation rules, the Congress

clearly stated how it expected the allocation rules to operate.

The Joint Statement of Managers portion of the conference

committee report dealing with section 469 states, in pertinent

part, as follows (H. Conf. Rept. 99-841 at II-146 (1986), 1986-3

C.B. (Vol. 4) at 146):

Expenses allocable to portfolio income.--The conference
agreement provides that portfolio income is reduced by the
deductible expenses (other than interest) that are clearly
and directly allocable to such income. Properly allocable
interest expense also reduces portfolio income. Such
deductions accordingly are not treated as attributable to a
passive activity.

The conferees anticipate that the Treasury will issue
regulations setting forth standards for appropriate
allocation of expenses and interest under the passive loss
rule. The conferees anticipate that regulations providing
guidance to taxpayers with respect to interest allocation
will be issued by December 31, 1986. These regulations
should be consistent with the purpose of the passive loss
rules to prevent sheltering of income from personal services
and portfolio income with passive losses. Moreover, the
regulations should attempt to avoid inconsistent allocation
of interest deductions under different Code provisions.4

In the case of entities, a proper method of
allocation may include, for example, allocation of
interest to portfolio income on the basis of assets,
although there may be situations in which tracing is
appropriate because of the integrated nature of the
transactions involved. Because of the difficulty of
recordkeeping that would be required were interest
expense of individuals allocated rather than traced, it
is anticipated that, in the case of individuals,
interest expense generally will be traced to the asset
or activity which is purchased or carried by incurring
or continuing the underlying indebtedness.
- 45 -

________________
4
For example, an interest deduction that is disallowed
under section 265 or 291 should not be allowed, capitalized,
or suspended under another provision.

The Congress’s suggestion, however, specifically related to

the allocation rules for section 469 only; the Joint Statement of

Managers portion of the conference committee report does not

provide a similar prescription for allocating interest expense

for purposes of subsections (d) and (h) of section 163. In TAMRA

1988, the Congress amended subsections (d) and (h) of section 163

to conform the relevant language thereof to the relevant language

of section 469 in order to achieve “consistent application of a

standard for allocation of interest” among the “related

provisions” of sections 163(d), 163(h), and 469. By conforming

the language of subsections (d) and (h) to section 163 to the

relevant language of section 469, the Congress gave a clear

indication that the tracing regime it contemplated for purposes

of section 469 is the allocation method that it also intended for

subsections (d) and (h) of section 163. See Appendix pp. 73-74.

An examination of section 1.163-8T, Temporary Income Tax

Regs., supra, shows that the Secretary heeded the Congress’s

suggestion. Section 1.163-8T, Temporary Income Tax Regs., supra,

imposes the very tracing regime that the Congress contemplated.

Sec. 1.163-8T(a)(3), Temporary Income Tax Regs., supra.

In sum, the Congress suggested the means by which to

allocate interest expense for purposes of section 469; the
- 46 -

Secretary followed that suggestion; and the Congress later

amended the relevant language of sections 163(d) and 163(h) to

conform to the relevant language of section 469. In light of

these circumstances, we conclude that the tracing regime that

section 1.163-8T, Temporary Income Tax Regs., supra, imposes is a

permissible construction of section 163(h)(2)(A).

In addition to providing rules for the allocation of

interest expense, section 1.163-8T, Temporary Income Tax Regs.,

supra, also provides rules for the treatment of interest expense

so allocated. Section 1.163-8T(a)(4)(A), Temporary Income Tax

Regs., supra, provides that “Interest expense allocated to a

trade or business expenditure (as defined in paragraph (b)(7) of

this section) is taken into account under section 163(h)(2)(A)”.

Section 163(h)(2)(A) is the provision that petitioners contend

applies to their payment of interest on their 1987 Federal

individual income tax deficiency. Section 1.163-8T(b)(7),

Temporary Income Tax Regs., supra, defines the term “trade or

business expenditure” to mean “an expenditure (other than a

passive activity expenditure or an investment expenditure) in

connection with the conduct of any trade or business other than

the trade or business of performing services as an employee.” If

an expenditure “is not a trade or business expenditure, a passive

activity expenditure, or an investment expenditure”, then section

1.163-8T(a)(4)(D), Temporary Income Tax Regs., supra, treats the
- 47 -

expenditure as personal interest for purposes of section 163(h).

Sec. 1.163-8T(b)(5), Temporary Income Tax Regs., supra.

As previously noted, section 1.163-8T(c)(3)(ii), Temporary

Income Tax Regs., 52 Fed. Reg. 25001 (July 2, 1987), allocates

petitioners’ payment of interest on their 1987 Federal individual

income tax underpayment to the satisfaction thereof. The

treatment of petitioners’ interest payment thus depends on

whether the payment of one’s Federal individual income tax

liability is an expenditure that is “in connection with the

conduct of any trade or business”. While reasonable arguments

may lie on either side of this issue, the Secretary has

undertaken to resolve it in promulgating section 1.163-9T(b)(2),

Temporary Income Tax Regs., 52 Fed. Reg. 48409 (Dec. 22, 1987),

and it is our charge not to resolve that issue ourselves, but

rather to determine “whether there is any reasonable basis for

the resolution embodied in the Commissioner's Regulation.”

Fulman v. United States, 434 U.S. 528, 536 (1978); see also CSX

Corp. v. Commissioner, 89 T.C. 134, 153 (1987). We now turn our

attention to that task.

(b) Section 1.163-9T(b)(2)(i)(A), Temporary Income Tax
Regs., 52 Fed. Reg. 48409 (Dec. 22, 1987)

As applied to the instant case, section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, treats

petitioners’ payment of interest on their 1987 income tax

underpayment as nondeductible “personal interest”. The text of
- 48 -

section 163(h)(2)(A) does not compel this result. The relevant

legislative history, however, lends some support to this

interpretation of the statute.

The Joint Committee staff summary, which we did not consider

in Redlark v. Commissioner, supra, provides, in pertinent part,

as follows: “Interest on underpayments of tax (other than certain

deferred estate taxes) is treated as personal interest under the

provision [sec. 163(h)].” Joint Committee staff summary at 18.

Under this view, interest on underpayments of “certain deferred

estate taxes” is the only type of interest on underpayments of

tax that is excluded from the definition of personal interest.

This view supports section 1.163-9T(b)(2)(i)(A), Temporary Income

Tax Regs., supra, which includes interest paid on underpayments

of Federal income taxes within the definition of personal

interest.

We acknowledge that the Joint Committee staff summary is not

the official legislative document for the conference committee’s

decisions about TRA 1986; that distinction is accorded the

conference committee report. Joint Committee staff summary at

XIII. Further, by definition, the Joint Committee staff summary

may not be a complete or thorough statement of the conference

decisions; summaries are designed to cover concisely the main

points of the summarized topic, and they may lack specific

detail. However, the Joint Committee staff summary was provided
- 49 -

to the Members of the House and Senate for their reference before

Congress enacted TRA 1986, and consequently it is part of the

history of the legislation. See, e.g., Newborn v. Commissioner,

94 T.C. 610, 620, 623 (1990). Thus, before the enactment of TRA

1986, the Members of Congress had before them an interpretation

of section 163(h) that included within the definition of

“personal interest” interest on underpayments of income tax.

Although not as clearly expressed as in the Joint Committee

staff summary, the relevant portions of the Joint Statement of

Managers portion of the conference committee report may be read

to echo the views expressed in the Joint Committee staff summary.

The relevant portions of the Joint Statement of Managers portion

of the conference committee report provide that “Personal

interest also generally includes interest on tax deficiencies”

and that “personal interest does not include * * * interest

payable on estate tax deferred under sec. 6163 or 6166.” H.

Conf. Rept. 99-841, at II-154, supra, 1986-3 C.B. (Vol. 4) at

154. These portions of the Joint Statement of Managers Portion

of the conference committee report may be read to support a view

that interest on all tax underpayments other than interest in

respect of estate tax deferred under either section 6163 or 6166

is to be treated as personal interest.

Although the Joint Statement of Managers portion of the

conference committee report does not speak as clearly to the
- 50 -

issue before us as the Joint Committee staff summary does, one

may reasonably view these two pieces of legislative history as

being consistent with one another. At the very least, in light

of the Joint Committee staff summary, and the validation of

section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., supra,

by five Courts of Appeals, an interpretation of the Joint

Statement of Managers portion of the conference committee report

that includes income tax deficiencies within the definition of

personal interest cannot be said to be clearly inconsistent with

section 163(h)(2)(A). We so conclude.

We reached the opposite conclusion in Redlark v.

Commissioner, 106 T.C. at 46, and we used that conclusion as the

basis for disregarding the 1986 Blue Book. The 1986 Blue Book

provides, in pertinent part, as follows:

Personal interest also includes interest on
underpayments of individual Federal, State or local
income taxes notwithstanding that all or a portion of
the income may have arisen in a trade or business,
because such taxes are not considered derived from the
conduct of a trade or business.60 However, personal
interest does not include interest payable on estate
tax deferred under sections 6163 or 6166.
________________
60
Personal interest does not include interest on
taxes, other than income taxes, that are incurred in
connection with a trade or business. (For the rule
that taxes on net income are not attributable to a
trade or business, see Treas. Reg. sec. 1.62-1(d),
relating to nondeductibility of State income taxes in
computing adjusted gross income.) * * * [1986 Blue
Book at 266.]
- 51 -

The above quoted portion of the 1986 Blue Book clearly supports

section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., supra.

In Redlark v. Commissioner, supra, we did not assign any

weight to the 1986 Blue Book because we concluded that it

conflicted with the Joint Statement of Managers and with what we

there believed to be relevant prior caselaw. As we have

explained, supra, that caselaw construed statutory language

different from what we deal with herein. Also, the 1986 Blue

Book is consistent with the Joint Committee staff summary, and we

believe that the Joint Committee staff summary is consistent with

the Joint Statement of Managers.

Whether one views the legislative history of section 163(h)

as inconclusive or as consistent with section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, the 1986 Blue

Book warrants consideration. See FPC v. Memphis Light, Gas &

Water Div., 411 U.S. 458, 471-472 (1973); Bank of Clearwater v.

United States, 7 Cl. Ct. 289, 294 (1985). Consideration of the

1986 Blue Book (where, as here, it does not conflict with the

enacted statutory language and does not conflict with what we

have referred to as the conference committee sentence (supra

F.(4) Thirdly)), in combination with the Joint Committee staff

summary and the relevant portion of the Joint Statement of

Managers portion of the conference committee report points toward

a conclusion that section 1.163-9T(b)(2)(i)(A), Temporary Income
- 52 -

Tax Regs., supra, is a permissible construction of section

163(h)(2)(A). We so conclude.

We have concluded that section 163(h)(2)(A) is silent or

ambiguous. We have also concluded that section 1.163-8T,

Temporary Income Tax Regs., supra, and section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, are

permissible constructions of section 163(h)(2)(A). Accordingly,

we also conclude that both regulations are not invalid. To the

extent that Redlark v. Commissioner, supra, is inconsistent

herewith, we no longer follow that opinion.

H. Petitioners’ Alternative Contention

Alternatively, petitioners contend that section 1.163-

9T(b)(2)(i)(A), Temporary Income Tax Regs., supra, does not

control because it relates to section 163(h)(2)(A) as enacted by

TRA 1986, not to section 163(h)(2)(A) as amended by TAMRA 1988;

section 163(h)(2)(A) as amended by TAMRA 1988 is the provision

which applies in the instant case. Respondent contends that

section 1.163-9T(b)(2)(i)(A), Temporary Income Tax Regs., supra,

controls because the amendment to section 163(h)(2)(A) was not

intended to make any substantive change to the statute. We agree

with respondent.

As we stated in Redlark v. Commissioner, 106 T.C. at 34 n.3:

The amended language, effective for the years in
issue, was intended to conform the definition of
personal interest to the language of the related
passive loss and investment interest limitation
- 53 -

provisions, to permit consistent application of a
standard for allocation of interest. See S. Rept. 100-
445, at 36 (1988); H. Rept. 100-795, at 35 (1988).
There is no indication that the change in language was
intended to make any substantive change in the meaning
of the statutory language.

We hold for respondent on this issue.

Decision will be entered

for respondent.

Reviewed by the Court.

COHEN, WHALEN, HALPERN, BEGHE, and MARVEL, JJ., agree with
the majority opinion.

GERBER, CHIECHI, and GALE, JJ., concur.

FOLEY, J., did not participate in consideration of this
case.
- 54 -

Appendix

History of the Legislation

(1) The Treasury Report

In November 1984, the Treasury Department issued a report to

the President entitled “Tax Reform for Fairness, Simplicity, and

Economic Growth”, hereinafter sometimes referred to as the

Treasury Report. In the Treasury Report, the Treasury Department

explained that under then-governing law, all interest expense was

“deductible, either as a business or investment expense or as an

itemized deduction.” The Treasury Report at 83. To

curtail the subsidy implicit in the [then] current law
deduction for interest on debt to finance large amounts of
passive, tax-preferred, investment assets (such as corporate
stock) or extraordinary consumption expenditures (such as
second homes).

the Treasury Department proposed to limit the deductions

individuals could claim for interest expense “to the sum of

mortgage interest on the principal residence of the taxpayer,

passive investment income (including interest income), and $5,000

per return.” Id.

(2) The President’s Proposals

In May 1985, President Reagan issued a report entitled “The

President’s Tax Proposals to the Congress for Fairness, Growth,

and Simplicity”, hereinafter sometimes referred to as the

President’s Proposals. Chapter 13.01 of the President’s

Proposals addressed interest deductions and proposed to subject,
- 55 -

inter alia, “all interest not incurred in connection with a trade

or business” to the then governing limitation on the deduction of

investment interest under section 163(d). The President’s

Proposals at 323. Underlying this proposal was a concern that

“consumer interest”, defined as “i.e., interest incurred to

acquire personal assets, such as a car or vacation home”,

undermined the then existing “limitations on investment interest

and interest incurred to acquire tax-exempt bonds.” Id. at 322-

323.

(3) The House Bill

Subsection (d) of section 163 in then-current law was

entitled “Limitation on Interest on Investment Indebtedness.” In

section 402(a) of H.R. 3838, the Ways and Means Committee

proposed to deal with several concerns by revising subsection

(d), which would be reentitled “Limitation on Nonbusiness

Interest.” The bill combined the different concerns into a

single overall test, as appears from proposed new paragraphs (1)

and (3) of subsection (d), as follows:

SEC. 402. LIMITATION ON DEDUCTION FOR NONBUSINESS INTEREST.

(a) General Rule.--Subsection (d) of section 163
(relating to limitation on interest on investment
indebtedness) is amended to read as follows:

“(d) Limitation on Nonbusiness Interest.--

“(1) In general.--In the case of a taxpayer other
than a corporation, the amount allowed as a deduction
under this chapter for nonbusiness interest for any
taxable year shall not exceed the sum of--
- 56 -

“(A) $10,000 ($20,000, in the case of a
joint return), plus

“(B) the net investment income for the
taxable year.

“In the case of a trust, the amount specified in
subparagraph (A) shall be zero.

* * * * * * *

“(3) Nonbusiness interest.--For purposes of this
subsection, the term ‘nonbusiness interest’ means any
interest allowable as a deduction under this chapter
(determined without regard to paragraph (1)); except
that such term shall not include--

“(A) any qualified residence interest, and

“(B) any interest which is allowable as a
deduction in computing adjusted gross income
and which is not attributable to a limited
business interest.

For purposes of the preceding sentence, the term
‘interest’ includes any amount allowable as a deduction
in connection with personal property used in a short
sale.[”]

The term “limited business interest” is defined (in subsec.

(d)(6)) in terms of lack of active participation in the business;

it apparently would not apply to Edward’s law practice. As to

the prior law’s deductibility of interest in computing adjusted

gross income, see infra F. (3) Pre-TRA 1986 Cases.

The Ways and Means Committee Report to accompany H.R. 3838,

H. Rept. 99-426 (1985), 1986-3 C.B. (Vol. 2) 1, states, in

pertinent part, as follows:
- 57 -

B. Interest Deduction Limitations (Sec. 402 of the bill
and sec. 163(d) of the Code)

Present Law

In general

* * * * * * *

Under present law, no limitation is imposed under
section 163(d) on the deductibility of either interest
on indebtedness incurred to purchase or carry
consumption goods, (i.e., personal (consumer)
interest), or interest on indebtedness incurred in
connection with the taxpayer’s trade or business. [H.
Rept. 99-426 at 296 supra, 1986-3 C.B. (Vol. 2) at
296.]

* * * * * * *

Explanation of Provision

In general

The bill expands the scope of the interest
limitation, and alters the calculation of the amount of
the limitation. Under the bill, all nonbusiness
interest is subject to the limitation on deductibility,
including consumer interest and certain interest that
is not treated as investment interest subject to
limitation under present law. Nonbusiness interest
subject to the limitation under the bill does not
include interest on debt secured by the taxpayer’s
principal residence (to the extent of its fair market
value), and interest on debt secured by a second
residence of the taxpayer (to the extent of its fair
market value). Interest expense that is paid or
incurred in carrying on a trade or business (except for
interest attributable to certain limited business
interests not involving low-income housing), is not
subject to the interest deduction limitation under the
bill. [Id. at 298.]

* * * * * * *
- 58 -

Interest subject to the limitation

Under the bill, interest subject to the limitation
is all interest on debt not incurred in connection with
the taxpayer’s trade or business, other than debt
secured by the taxpayer’s residences (as described
above). Thus, interest subject to limitation generally
includes investment interest subject to the section
163(d) limitation under present law and consumer
interest, such as interest paid or incurred to purchase
an automobile for personal use. * * * [Id. at 299-300.]

The House of Representatives passed H.R. 3838 without

amendment to section 402 of H.R. 3838 as reported by the Ways and

Means Committee.

(4) The Senate’s Amendment

H.R. 3838 was received in the Senate on December 18, 1985,

and referred to the Finance Committee. Section 1421 of H.R. 3838

as reported by the Finance Committee separated the above-noted

considerations--investment interest and “consumer” interest.

Section 1421(b) of the Finance Committee’s amendment revised

section 163(d) but, unlike the House-passed bill, left that Code

provision as one dealing with investment interest. Section

1421(a) of the Finance Committee’s amendment proposed a new

section 163(h), which provided in pertinent part as follows:

SEC. 1421. LIMITATIONS ON DEDUCTION FOR NONBUSINESS
INTEREST.

(a) Disallowance of Deduction for Consumer Interest of
Individuals.--Section 163 (relating to deduction for
interest) is amended by redesignating subsection (h) as
subsection (i) and by inserting after subsection (g) the
following new subsection:
- 59 -

“(h) Disallowance of Deduction for Consumer
Interest.--

“(1) In general.--In the case of a taxpayer other
than a corporation, no deduction shall be allowed under
this chapter for consumer interest paid or accrued
during the taxable year.

“(2) Consumer interest.--For purposes of this
subsection--

“(A) In general.--The term ‘consumer
interest’ means any interest allowable as a
deduction under this chapter other than interest
paid or accrued on indebtedness incurred or
continued in connection with--

“(i) the conduct of a trade or business
(other than the trade or business of
performing services as an employee), or

“(ii) an activity described in section
212.

“(B) Exception for qualified residence
interest.--The term ‘consumer interest’ shall not
include any qualified residence interest.[”]

The Senate Finance Committee report, provides, in pertinent

part, as follows (S. Rept. 99-313, at 802-806 (1986), 1986-3 C.B.

(Vol. 3) 1, 802-806):

G. Interest Deduction Limitations (sec. 1421 of the
bill and secs. 163(d) and (h) of the Code)

Present Law

* * * * * * *

Other interest

Under present law, no limitation is imposed under
section 163(d) on the deductibility of interest on
indebtedness incurred for other purposes, e.g. to
purchase or carry consumption goods. Interest on
indebtedness incurred in connection with the taxpayer’s
- 60 -

trade or business is also not subject to the section
163(d) limitation under present law.

Reasons for Change

* * * * * * *

Nonbusiness (consumer) interest

* * * * * * *

Although the committee believes it would not be
advisable to subject to income tax imputed rental
income with respect to consumer durables owned by the
taxpayer, it does believe that it is appropriate and
practical to address situations where consumer
expenditures are financed by borrowing. By phasing out
the present deductibility of consumer interest, the
committee believes that it has eliminated from the
present tax law a significant disincentive to saving.

* * * * * * *

Explanation of Provisions

In general

The bill expands the scope of the interest
limitation, and alters the calculation of the amount of
the limitation. Under the bill, all nonbusiness
interest is subject to the limitation on deductibility,
including consumer interest and certain interest that
is not treated as investment interest subject to
limitation under present law. Interest subject to the
limitation under the bill does not include interest on
debt secured by the taxpayer’s principal residence (to
the extent of its fair market value), and interest on
debt secured by a second residence of the taxpayer (to
the extent of its fair market value). Interest expense
that is paid or incurred in carrying on a trade or
business is not subject to the interest deduction
limitation under the bill (except for interest
attributable to certain limited business interests).

In general, under the bill, consumer interest is
not deductible, and the deduction for investment
interest is limited to investment income for the year
- 61 -

with an indefinite carryforward of disallowed
investment interest.

Investment interest limitation

Interest subject to the limitation.–-Under the
bill, interest subject to the investment interest
limitation is all interest (other than consumer
interest and qualified residence interest) on debt not
incurred in connection with the taxpayer’s trade or
business. * * *

* * * * * * *

Consumer interest limitation

Under the bill, consumer interest is not
deductible. Consumer interest generally includes all
interest not incurred or continued in connection with
the conduct of a trade or business (other than the
performance of services as an employee) * * *. Thus,
consumer interest includes, for example, interest on a
loan to purchase an automobile for personal use, and
credit card interest incurred for personal expenses.

In all material respects, section 1421 of H.R. 3838 as

passed by the Senate on June 24, 1986, was identical to section

1421 of H.R. 3838 as reported by the Senate Finance Committee.

Section 1401 of the Senate amendment as reported by the

Finance Committee proposed to add a new section, section 469,

relating to limitations on losses and credits from passive

activities. Neither the House bill, nor the President’s

Proposals contained a corresponding provision. H. Conf. Rept.

99-841, II-137 (1986), 1986-3 C.B. (Vol. 4) 137; Joint Committee

on Taxation, Comparison of Tax Reform Provisions of H.R. 3838 as

passed by the House and Senate (JCS-15-86), 51 (July 15, 1986).

(Section 501 of the House-passed version of the bill did,
- 62 -

however, propose to deny excess passive activity losses for

purposes of computing the amount of the alternative minimum

taxable income. See TRA 1986 sec. 701, 100 Stat. 2320, 2336;

H. Rept. 99-426, at 320-323; supra, 1986-3 C.B. (Vol. 2) 320-

323.)

Section 1401 of the Senate amendment to H.R. 3838 as

reported by the Finance Committee provides, in pertinent part, as

follows:

SEC. 469. LIMITATIONS ON LOSSES AND CREDITS FROM PASSIVE
ACTIVITIES.

* * * * * * *

(h) Regulations.--The Secretary shall prescribe such
regulations as may be necessary or appropriate to carry out
provisions of this section, including regulations--

(1) which specify what constitutes an activity or
material participation for purposes of this section,

(2) which provide that certain items of gross
income will not be taken into account in determining
income or loss from any activity (and the treatment of
expenses allocable to such income), and

(3) if necessary to prevent avoidance of this
section, determining whether income, gain, or loss from
a limited partnership or other passive activity is
treated as described in subsection (c)(3).

The Finance Committee report on H.R. 3838 did not explain

how the regulations promulgated under section 469 were to

allocate interest expense. S. Rept. 99-313, at 713-746, supra,

1986-3 C.B. (Vol. 3) at 713-746.
- 63 -

Section 1401 of the Senate amendment to H.R. 3838 was

amended by a floor amendment and passed; the amendment did not

affect the above quoted language. 132 Cong. Rec. S 8817, S 8915-

8916 (June 26, 2986); Joint Committee on Taxation, Comparison of

Tax Reform Provisions of H.R. 3838 as passed by the House and

Senate (JCS-15-86), 52 (July 15, 1986).

(5) The Conference Committee

On August 29, 1986, the staff of the Joint Committee on

Taxation published a pamphlet (hereinafter sometimes referred to

as the Joint Committee staff summary) described as follows (Joint

Committee staff summary at xiii):

This pamphlet1 provides a title-by-title summary
of the principal provisions of H.R. 3838 (Tax Reform
Act of 1986), as agreed to by the House-Senate
Conferees on August 16, 1986. As a general rule, this
pamphlet does not describe agreements of the Conferees
not to adopt a particular provision that was only in
the House-passed bill or only in the Senate-passed
bill, i.e., agreements to retain present law on
particular issues.

This pamphlet is provided for the use of the
Members of the House and the Senate. The official
legislative document on the conference decisions on
H.R. 3838 will be the conference report on the bill
(including the Statement of Managers explaining the
conference decisions).
_________________
1
This pamphlet may be cited as follows: Joint
Committee on Taxation, Summary of Conference Agreement
on H.R. 3838 (Tax Reform Act of 19886)(JCS-16-86),
August 29, 1986.

The Joint Committee staff summary describes the relevant

portion of the conference agreement as follows:
- 64 -

C. Interest Deduction Limitation

No deduction is allowed for personal interest
(such as interest on car loans or credit card balances
for personal expenditures). Interest on underpayments
of tax (other than certain deferred estate taxes) is
treated as personal interest under the provision. * * *
[Joint Committee Summary at 18.]

The conference committee report (H. Conf. Rept. 99-841,

supra, 1986-3 C.B. (Vol. 4) 1) was published on September 18,

1986. Section 511 of the conference committee report corresponds

to section 1421 of H.R. 3838 as passed by the Senate. In large

part, section 511(b) of the conference committee report tracks

section 1421(a) of H.R. 3838 as passed by the Senate. Section

511(b) of the conference committee report presents a new section

163(h), which provides in pertinent part as follows:

(h) Disallowance of Deduction for Personal Interest.--

(1) In general.--In the case of a
taxpayer other than a corporation, no
deduction shall be allowed under this chapter
for personal interest paid or accrued during
the taxable year.

(2) Personal interest.–-For purposes of
this subsection, the term “personal interest”
means any interest allowable as a deduction
under this chapter other than--

(A) interest paid or accrued on indebtedness
incurred or continued in connection with the
conduct of a trade or business (other than the
trade or business of performing services as an
employee),

(B) any investment interest (within the
meaning of subsection (d)),
- 65 -

(C) any interest which is taken into account
under section 469 in computing income or loss from
a passive activity of the taxpayer,

(D) any qualified residence interest (within
the meaning of paragraph (3)), and

(E) any interest payable under section
6601 on any unpaid portion of the tax imposed
by section 2001 for the period during which
an extension of time for payment of such tax
is in effect under section 6163 or 6166. [H.
Conf. Rept. 99-841, at I-171 (1986).]

The Joint Statement of Managers portion of the conference

committee report provides, in pertinent part, as follows:

House Bill

Under the House bill, the deduction for nonbusiness
interest of noncorporate taxpayers is limited to $10,000
($20,000 for joint returns), plus net investment income,
plus certain deductible expenditures in excess of rental
income from net lease property. * * *

* * * * * * *

Nonbusiness interest means all interest not incurred in
the taxpayer’s trade or business, including the taxpayer’s
share of interest of S corporations in whose management he
does not actively participate, the taxpayer’s share of
interest expense of limited partnerships in which he is a
limited partner, and the taxpayer’s share of interest
expense of certain trusts and other entities in which he is
a limited entrepreneur.

* * * * * * *

Senate Amendment

The Senate amendment provides that the deduction for
investment interest of noncorporate taxpayers is limited to
net investment income, plus certain deductible expenditures
in excess of rental income from net lease property.
Consumer interest is not deductible. Interest on debt
secured by the taxpayer’s principal residence and a second
- 66 -

residence of the taxpayer (to the extent of their fair
market values) is not subject to limitation.

* * * Consumer interest means interest not attributable
to a trade or business (other than the trade or business of
performing services as an employee) or to an activity
engaged in for profit.

* * * * * * *

Conference Agreement

The conference agreement follows the Senate amendment,
with modifications and clarifications.

* * * * * * *

Personal interest

The conference agreement follows the Senate amendment
provision with respect to consumer interest (denominated
personal interest under the conference agreement), with
modifications and clarifications.

Under the conference agreement, personal interest is
not deductible. Personal interest is any interest, other
than interest incurred or continued in connection with the
conduct of a trade or business (other than the trade or
business of performing services as a employee), investment
interest, or interest taken into account in computing the
taxpayer’s income or loss from passive activities for the
year. Personal interest also generally includes interest on
tax deficiencies.

Personal interest does not include qualified residence
interest of the taxpayer, nor does it include interest
payable on estate tax deferred under sec. 6163 or 6166. [H.
Conf. Rept. 99-841, at II-151 to II-154, supra, 1986-3 C.B.
(Vol. 4) at 151-154.]

In all material respects, section 511(b) as reported by the

conference committee was identical to section 511(b) of H.R. 3838

as ultimately enacted, on October 22, 1986. TRA 1986 sec.

511(b), Pub. L. 99-514, 100 Stat. 2085, 2246-2248, 2963.
- 67 -

The conference agreement on H.R. 3838 generally follows

section 1401 of the Senate amendment, relating to limitations on

losses and credits from passive activities, but with certain

modifications and clarifications. H. Conf. Rept. 99-841, at II-

138, supra, 1986-3 C.B. (Vol. 4) at 138. As modified, clarified,

and enacted, section 469 provides, in pertinent part, as follows:

SEC. 469. PASSIVE ACTIVITY LOSSES AND CREDITS LIMITED.

* * * * * * *

(k) Regulations.–-The Secretary shall prescribe such
regulations as may be necessary or appropriate to carry out
provisions of this section, including regulations–-

* * * * * * *

(4) which provide for the determination of the
allocation of interest expense for purposes of this
section * * *.[1] [TRA 1986 sec. 501(a), Pub. L. 99-514,
100 Stat. 2085, 2233, 2240.]

The Joint Statement of Managers portion of the conference

committee report explaining interest expense allocation under

section 469 provides--

Expenses allocable to portfolio income.–-The
conference agreement provides that portfolio income is
reduced by the deductible expenses (other than
interest) that are clearly and directly allocable to
such income. Properly allocable interest expense also
reduces portfolio income. Such deductions accordingly
are not treated as attributable to a passive activity.

The conferees anticipate that the Treasury will
issue regulations setting forth standards for

1
Sec. 10212(a) of the Omnibus Budget Reconciliation Act of
1987, Pub. L. 100-203, 101 Stat. 1330, 1330-405, redesignated
sec. 469(k)(4) as sec. 469(l)(4).
- 68 -

appropriate allocation of expenses and interest under
the passive loss rule. The conferees anticipate that
regulations providing guidance to taxpayers with
respect to interest allocation will be issued by
December 31, 1986. These regulations should be
consistent with the purpose of the passive loss rules
to prevent sheltering of income from personal services
and portfolio income with passive losses. Moreover,
the regulations should attempt to avoid inconsistent
allocation of interest deductions under different Code
provisions.4

In the case of entities, a proper method of
allocation may include, for example, allocation of
interest to portfolio income on the basis of assets,
although there may be situations in which tracing is
appropriate because of the integrated nature of the
transactions involved. Because of the difficulty of
recordkeeping that would be required were interest
expense of individuals allocated rather than traced, it
is anticipated that, in the case of individuals,
interest expense generally will be traced to the asset
or activity which is purchased or carried by incurring
or continuing the underlying indebtedness.

_____________________
4
For example, an interest deduction that is disallowed
under section 265 [relating to expenses and interest
relating to tax-exempt income] or 291 [relating to
special rules relating to corporate preference items]
should not be allowed, capitalized, or suspended under
another provision. [H. Conf. Rept. 99-841, at II-146,
supra, 1986-3 C.B. (Vol. 4), at 146.]

(6) 1986 Blue Book

On May 4, 1987, the staff of the Joint Committee on Taxation

published its General Explanation of the Tax Reform Act of 1986

(1986 Blue Book), which states in pertinent part as follows (pp.

262-264, 266):

C. Interest Deduction Limitations (Sec. 511 of the Act and
secs. 163(d) and (h) of the Code)55
- 69 -

Prior Law

* * * * * * *

Other interest

Under prior law, no limitation was imposed under
section 163(d) on the deductibility of interest on
indebtedness incurred for other purposes, e.g. to purchase
or carry consumption goods. Under prior and present law,
interest on indebtedness incurred in connection with the
taxpayer’s trade or business is also not subject to the
limitation on the deductibility of interest expense under
section 163.

Reasons for Change

* * * * * * *

Personal interest

Prior law excluded or mismeasured income arising from
the ownership of housing and other consumer durables.
Investment in such goods allowed consumers to avoid the tax
that would apply if funds were invested in assets producing
taxable income and to avoid the cost of renting these items,
a cost which would not be deductible in computing tax
liability. Thus, the tax system under prior law provided an
incentive to invest in consumer durables rather than assets
which produce taxable income and, therefore, an incentive to
consume rather than save.

* * * * * * *

Explanation of Provisions

In general

In general, under the Act, personal interest is not
deductible, and the deduction for investment interest is
limited to investment income for the year with an indefinite
carryforward of disallowed investment interest. The
personal interest limitation does not apply to interest on
debt secured by the taxpayer’s principal residence (to the
extent of its basis plus the amount of such debt used to pay
certain educational or medical expenses) and interest on
debt secured by a second residence of the taxpayer (to the
- 70 -

extent of its basis plus the amount of such debt used to pay
certain educational or medical expenses), provided the total
amount of such debt does not exceed the fair market value of
such residence.

* * * * * * *

Personal interest

Under the Act, personal interest is not deductible.
Personal interest is any interest, other than interest
incurred or continued in connection with the conduct of a
trade or business (other than the trade or business of
performing services as an employee), * * * investment
interest, or interest taken into account of computing the
taxpayer’s income or loss from passive activities for the
year. Thus, personal interest includes, for example,
interest on a loan to purchase an automobile, interest on a
loan to purchase a life insurance policy, and credit card
interest, where such interest is not incurred or continued
in connection with the conduct of a trade or business.
Personal interest also includes interest on underpayments of
individual Federal, State or local income taxes
notwithstanding that all or a portion of the income may have
arisen in a trade or business, because such taxes are not
considered derived from the conduct of a trade or
business.60 However, personal interest does not include
interest payable on estate tax deferred under sections 6163
or 6166.

Personal interest does not include qualified residence
interest of the taxpayer, as discussed below.

_____________
55
For legislative background of the provision, see: H.R.
3838, as reported by the House Committee on Ways and Means
on December 7, 1985, sec. 402; H.Rep. 99-426, pp. 296-301;
H.R. 3838 as reported by the Senate Committee on Finance on
May 29, 1986, sec. 1421; S.Rep. 99-313, pp. 802-808; and
H.Rep. 99-841, Vol. II (September 18, 1986), pp. 151-157
(Conference Report).
60
Personal interest does not include interest on taxes,
other than income taxes, that are incurred in connection
with a trade or business. (For the rule that taxes on net
income are not attributable to a trade or business, see
Treas. Reg. sec. 1.62-1(d), relating to nondeductibility of
State income taxes in computing adjusted gross income.) In
- 71 -

addition, personal interest does not include interest of an
S corporation which is attributable to an underpayment of
income tax from a year in which the corporation was a C
corporation or from the underpayment of the taxes imposed by
sec. 1374 or 1375. Nor does personal interest include
interest on an underpayment of income tax of a corporation
payable by a shareholder by reason of transferee liability
(under sec. 6901).

(7) TAMRA 1988

On June 10, 1987, the Technical Corrections Act of 1987 was

introduced in the House of Representatives (H.R. 2636) by Ways

and Means Committee Chairman Rostenkowski and Congressman Duncan,

and in the Senate (S. 1350) by Finance Committee Chairman Bentsen

and Senator Packwood. Section 105(c) of the bills provided as

follows:

SEC. 105. AMENDMENTS RELATED TO TITLE V OF THE REFORM ACT.
[The Tax Reform Act of 1986, see sec. 1(b)(2)
of the bills.]

* * * * * * *

(c) Amendments Related to Section 511 of the Reform
Act.--

(1) Subparagraph (A) of section 163(d)(3) of the
1986 Code (defining investment interest) is amended by
striking out “incurred or continued to purchase or
carry” and inserting in lieu thereof “properly
allocable to”.

* * * * * * *

(4) Subparagraph (A) of section 163(h)(2) of the
1986 Code is amended by striking out “incurred or
continued in connection with the conduct of” and
inserting in lieu thereof “properly allocable to”.
- 72 -

Section 119 of the bills provided that these amendments

“shall take effect as if included in the provision of the Reform

Act to which such amendment relates.”

On June 15, 1987, the staff of the Joint Committee on

Taxation released its Description of the Technical Corrections

Act of 1987 (H.R. 2636 and S. 1350) (JCS-15-87), June 15, 1987.

At pages 25 and 26, this staff pamphlet describes the above

amendments as follows:

Explanation of Provisions

Investment interest.–-The bill conforms the
language of the definition of investment interest to
the language of a related provision that allocates
interest expense to portfolio income under the passive
loss rule. Thus, under the bill, investment interest
is that which is properly allocable to property held
for investment. This change results in consistency in
the language of the provisions allocating interest
expense to the category of investment interest, and
permits consistent application of a standard for
allocation of interest. This change is not intended to
suggest the adoption of any particular method of
allocation, but rather to give Treasury the ability to
devise allocation rules as simple as possible
consistent with the objectives of the provision.

* * * * * * *

Personal interest.–-The bill conforms the language
of the definition of personal interest to the language
of related provisions (the passive loss rule and the
investment interest limitation) under which interest
expense may be allocated. Thus, the bill provides that
personal interest does not include interest that is
properly allocable to a trade or business. This change
results in consistency in the language of several
significant provisions under which interest is likely
to be allocated, and permits consistent application of
a standard for allocation of interest.
- 73 -

As amended, the provisions of the House bill were included

as Subtitle B of Title X (Revenue Provisions) of the Omnibus

Budget Reconciliation Act of 1987 (H.R. 3545) as passed by the

House in October 1987. H. Rept. 100-795, at 2. Paragraphs (1)

and (4) of section 10205(c) of the House-passed H.R. 3545 are

identical to the language of paragraphs (1) and (4) of section

105(c) of H.R. 2636 set forth supra. The description of the

amendment to the definition of “personal interest” in the House

Budget Committee’s report (the committee report for H.R. 3545) is

identical to the description of the amendment in the staff

pamphlet describing section 105(c)(4) of H.R. 2636 as introduced,

set forth supra. H. Rept. 100-391, at 1171 (1987). The report’s

description of the amendment to the definition of “investment

interest” adds to the description in the staff pamphlet

describing section 105(c)(1) of H.R. 2636 as introduced, set

forth supra. Id. at 1170. Below is the committee report

explanation of the amendment to the definition of “investment

interest”; the underscored language signifies language that was

not included in the staff pamphlet describing section 105(c)(1)

of H.R. 2636 as introduced:

Explanation of Provisions

Investment interest.–-The bill conforms the
language of the definition of investment interest to
the language of a related provision that allocates
interest expense to portfolio income under the passive
loss rule. Thus, under the bill, investment interest
is that which is properly allocable to property held
- 74 -

for investment. This change results in consistency in
the language of the provisions allocating interest
expense to the category of investment interest, and
permits consistent application of a standard for
allocation of interest. This change is not intended to
suggest that the adoption of any particular method of
allocation is required, but rather to give Treasury the
ability to devise allocation rules as simple as
possible consistent with the objectives of the
provision. The committee believes that the Treasury
should consider rules relating to the securing of
property to mitigate some of the complexities of
tracing where simplicity is desirable, so that, for
example, any interest on a loan secured by personal use
property could be considered personal interest, and any
interest on a loan secured by investment assets could
be considered investment interest. [H. Rept. 100-391,
at 1170 (1987); emphasis added.]

On December 4, 1987, Senate Budget Committee Chairman Chiles

reported S. 1920 to the Senate; part II of subtitle B of title IV

of S. 1920 as reported relates to technical amendments to TRA

1986. Paragraphs (1) and (4) of section 4665(c) of S. 1920 as

reported are identical to the language of paragraphs (1) and (4)

of section 105(c) of S. 1350 as introduced, set forth supra. The

paragraph of the document explaining the bill’s (S. 1920)

amendment to the definition of “investment interest” as reported,

except for two typographical errors, is identical to the

corresponding paragraph of the House report, set forth supra.

Reconciliation Submissions of the Instructed Committees Pursuant

to the Concurrent Resolution on the Budget for Fiscal Year 1988

(H. Con. Res. 93, Rept. 100-76), Senate Budget Committee, 100th

Cong., 1st Sess. at 272. The paragraph of the document

explaining the bill’s (S. 1920) amendment to the definition of
- 75 -

“personal interest” is identical to both the corresponding

paragraph in the House report and the staff pamphlet describing

the provision in S. 1350 as introduced, set forth supra.

Reconciliation Submissions of the Instructed Committees Pursuant

to the Concurrent Resolution on the Budget for Fiscal Year 1988

(H. Con. Res. 93, Rept. 100-76), Senate Budget Committee, 100th

Cong., 1st Sess. at 272.

As a result of a budget summit with the White House, the

technical corrections were taken out of the budget reconciliation

bill for 1987. H. Rept. 100-495, at 1014 (1987), 1987-3 C.B. at

294; 133 Cong. Rec. 34899 (Dec. 10, 1987) (colloquy between

Finance Committee Chairman Bentsen and Senator Cranston.) The

Senate then considered S. 1920, and, after completing work on

floor amendments, called up the House-passed bill (H.R. 3545),

substituted the text of S. 1920 as amended, and asked for a

conference. 133 Cong. Rec. 34935 (Dec. 10, 1987). The Senate-

passed amendment to H.R. 3545 did not include the technical

corrections in S. 1920 and they were not included in the bill as

enacted. S. Rept. 100-445 at 3.

On March 31, 1988, the Technical Corrections Act of 1988 was

introduced in the House of Representatives (H.R. 4333) by Ways

and Means Committee Chairman Rostenkowski and Congressman Duncan,

and in the Senate (S. 2238) by Finance Committee Chairman Bentsen

and Senator Packwood. Paragraphs (1) and (4) of section 105(c)
- 76 -

of the bills were identical to paragraphs (1) and (4) of section

105(c) of H.R. 2636 and S. 1350 as introduced on June 10, 1987,

set forth supra.

Section 121 of the bills (H.R. 4333 and S. 2238) provided

that these amendments “shall take effect as if included in the

provision of the Reform Act to which such amendment relates.”

On April 6, 1988, the staff of the Joint Committee on

Taxation released its Description of the Technical Corrections

Act of 1988 (H.R. 4333 and S. 2238) (JCS-10-88), March 31, 1988.

At pages 34 and 35, the staff pamphlet descriptions of the above

amendments are identical to the committee report explanations of

the same amendments to the definitions of “investment interest”

and “personal interest” as proposed in 1987, set forth supra.

On July 26, 1988, the Ways and Means Committee reported H.R.

4333 with an amendment that replaced the entire text of the

introduced bill. H. Rept. 100-795, at 1 (1988). Paragraphs (1)

and (4) of section 105(c) of the Committee’s amendment are

identical to the introduced bill’s language and to paragraphs (1)

and (4) of section 105(c) of H.R. 2636 and S. 1350 as introduced

on June 10, 1987, set forth supra. The Committee’s report

states, in pertinent part, as follows (H. Rept. 100-795, at 3

(1988)):
- 77 -

II. EXPLANATION OF THE BILL

TITLE I.–-TECHNICAL CORRECTIONS TO THE TAX REFORM ACT
OF 1986

The technical correction titles (Title I and Title
II)[2] contain clerical, conforming and clarifying
amendments to the provisions enacted by the Tax Reform
Act of 1986 (P.L. 99-514) and other recently enacted
legislation. All amendments are [sic] made by these
titles are meant to carry out the intent of Congress in
enacting the original legislation. Therefore, no
separate “Reasons for Change” is set forth for each
individual amendment. Except as otherwise described,
the amendments made by the technical correction titles
will take effect as if included in the original
legislation to which each amendment relates.

The report’s descriptions of the amendments to the

definitions of “investment interest” and “personal interest” are

identical to the descriptions in the staff pamphlet describing

the introduced bill which are identical to the 1987 committee

report descriptions of the same amendments, set forth supra.

H. Rept. 100-795, at 34, 35 (1988).

On August 3, 1988, the Finance Committee reported S. 2238

with an amendment that replaced the entire text of the introduced

bill. S. Rept. 100-445, at 1 (1988). Paragraphs (1) and (4) of

section 105(c) of the Committee’s amendment are identical to the

introduced bill’s language and to paragraphs (1) and (4) of

section 105(c) as introduced in 1987 in H.R. 2636 and S. 1350,

2
The Ways and Means Committee’s amendment added titles III
(Substantive Tax Provisions) and IV (Ways and Means Subcommittee
Provisions), and changed the short title of the bill (sec. 1(a))
to Miscellaneous Revenue Act of 1988.
- 78 -

set forth supra. The first paragraph of the Committee report’s

explanation of the bill is identical to the corresponding

paragraph of the Ways and Means Committee’s report which is

identical to the Committee report explanations of the same

amendment as introduced on June 10, 1987 in H.R. 2636 and S.

1350, set forth supra.3 S. Rept. 100-445, at 4 (1988).

The Finance Committee report’s descriptions of the

amendments to the definitions of “investment interest” and

“personal interest” are identical to the descriptions in the

staff pamphlet describing the introduced bill which are identical

to the 1987 committee report explanations of the same amendments,

set forth supra. Id. at 35, 36.

The Senate considered S. 2238 and, after completing work on

floor amendments, called up the House-passed bill (H.R. 4333),

substituted the text of S. 2238 as amended, passed H.R. 4333 as

so amended, and asked for a conference. 134 Cong. Rec. 29792

(Oct. 11, 1988). The House and Senate amendments to the

investment interest and personal interest definitions being

identical, they were approved without further explanation by the

conference committee. H. Conf. Rept. 100-1104, Vol. I at 53, 54,

3
The Finance Committee’s amendment added titles III
(Corrections to Collection and Exemption Procedures for Excise
Taxes on Diesel and Nongasoline Aviation Fuels), IV (Other
Corrections and Modifications), V (Railroad Unemployment and
Retirement Amendments), and VI (Social Security Act Amendments),
but did not change the short title of the bill (sec. 1(a)).
- 79 -

Vol. II at 2 (1988), 1988-3 C.B. 473, 492; see Staff of Joint

Committee on Taxation, Comparison of Differing Provisions of

Technical Corrections (JCX-30-88), 2 (1988).

The above-described amendments were enacted by paragra

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Source: Frix Law Library, https://www.frixlaw.com/law-library/cases/4334008. Public record. Not legal advice.