7 August 2001

See contents of full IRS Handbook of Criminal Investigation: http://cryptome.org/irs-ci/irs-ci.htm

## Handbook 109.1 Summons Handbook Chapter 1 Introduction
### Contents [109.1] 1.1 Overview [109.1] 1.2 Provisions of Law [109.1] 1.3 Authority [109.1] 1.3.1 Authority to Issue "John Doe" Summonses [109.1] 1.3.2 Authority to Issue Summonses Except "John Doe" Summonses [109.1] 1.3.3 Authority to Issue Summons Requiring Approval (Except "John Doe" Summonses) [109.1] 1.3.4 Authority to Serve Summons [109.1] 1.3.5 Authority to Designate [109.1] 1.3.6 Authority to Administer Oaths and Certifications [109.1] 1.4 Factors to Consider Before Issuing a Summons [109.1] 1.4.1 Documents from Financial Institutions in the Tenth Circuit [109.1] 1.4.2 Documents from Financial Institutions Located in Circuits Other than the Tenth Circuit [109.1] 1.4.3 Considerations and Limitations on Issuance of a Summons [109.1] 1.5 Description of Summons (Form 2039) Exhibit [109.1] 1-1 Form 2039, Summons Exhibit [109.1] 1-2 General Instructions For Preparation of a Summons
### [109.1] 1.1 (04-30-1999) Overview
The Summons Handbook provides guidelines for use by the Collection Division, Criminal Investigation, Examination, and Employee Plans & Exempt Organization. Specific function directed guidelines are covered where appropriate. This chapter contains the following sections: Provisions of law Authority Factors to consider Description of summons (Form 2039)
### [109.1] 1.2 (04-30-1999) Provisions of Law
The provisions of the law relating to the use and enforcement of a summons are contained in the following sections of the Internal Revenue Code: IRC 7602 Examination of Books and Witnesses IRC 7603 Service of Summons IRC 7604 Enforcement of Summons IRC 7605 Time and Place of Examination IRC 7609 Special Procedures for Third-Party Summonses IRC 7610 Fees and Costs for Witnesses IRC 7612 Special Procedures for Summonses for Computer Software IRC 7622 Authority to Administer Oaths and Certify IRC 7402 Jurisdiction of District Courts IRC 7210 Failure to Obey Summons IRC 6420(e)(2), 6421(g)(2) and 7427(j)(2) IRC 6503(j) Designated and Related Summons
### [109.1] 1.3 (04-30-1999) Authority
Authority has been granted to the Commissioner of Internal Revenue by 26 CFR 301.7602-1(b), 301.7603-1, 301.7604-1 and 301.7605-1(a) and the authorities contained in Section 7609 of the Internal Revenue Code of 1986 and vested in the Commissioner of Internal Revenue Service by Treasury Order No. 150-10 and delegated to the officers and employees of the Internal Revenue Service specified in paragraphs 1 through 6 of Delegation Order No. 4 (as revised) to: issue, serve and enforce summonses; set the time and place for appearance; take testimony under oath of the person summoned; to receive and examine data produced in compliance with the summons; and to perform other related duties described in Internal Revenue Code Sections 7609 (f), (g) and (i) (2).
### [109.1] 1.3.1 (04-30-1999) Authority to Issue "John Doe" Summonses
Delegation Order No. 4, Authority 1 provides the authority to issue a summons and to perform the other functions listed in Section 1.3, to the District Directors, and the following, when the proper name(s) of the taxpayer(s) is not identified because unknown or unidentifiable (hereinafter called a "John Doe" summons): Director (International District Operations), Director (International Programs), Chiefs of Divisions (District Criminal Investigation, Collection, Examination, and Employee Plans and Exempt Organizations).
### [109.1] 1.3.2 (04-30-1999) Authority to Issue Summonses Except "John Doe" Summonses
Delegation Order No. 4, Authority 2 provides the authority to issue summonses except "John Doe" summonses, and to perform other related functions as stated in Delegation Order No. 4, Authority 1 and delegates this authority to: Director, Office of Investigations and Technology, Special Agents, Group Managers (including large case managers) in District Collection, Examination, and Employee Plans and Exempt Organizations
### [109.1] 1.3.3 (04-30-1999) Authority to Issue Summons Requiring Approval (Except "John Doe" Summonses)
Delegation Order No. 4, Authority 3 provides the authority to issue summonses, (except "John Doe" summonses) and to perform other related functions as stated in Delegation Order No. 4, Authority 1. The following officers/employees are authorized to issue a summons to a third party witness, where the issuing officer's manager, or any supervisory official above that level, has authorized the issuance of the summons in advance (evidenced by the supervisor's signature on the summons, or by a statement on the summons, signed by the issuing officer, that he or she had prior authorization to issue the summons and stating the name and title of the authorizing official and date of authorization). Internal Revenue Agents, Estate Tax Attorneys, Estate Tax Examiners, Revenue Service and Assistant Revenue Service Representatives, Tax Auditors, Revenue Officers, GS-9 and above, Tax Law Specialists, Compliance Officers.
### [109.1] 1.3.4 (04-30-1999) Authority to Serve Summons
The authority to serve summonses whether issued personally or by another official is provided per Delegation Order No. 4, Authority 4 and delegated to: Each of the officer/employees listed in Authorities 1,2 and 3 of Delegation Order No. 4, Revenue Officers and Tax Examiners, GS-5 and above (whose duties include contacting taxpayers in person), Revenue Officer Aides, GS-5 and above, Tax Fraud Investigative Aides, GS-5 and above,
### [109.1] 1.3.5 (04-30-1999) Authority to Designate
Delegation No. 4, Authority 5 provides for the authority to designate any of the following officer/employees as the individual before whom a summoned person shall appear, and for the designated individual to take testimony under oath of the person summoned, to set the time and place of examination and to receive and examine data produced in compliance with the summons: Assistant Chief of Division and/or Branch Chief (District Criminal Investigation, Collection, Examination, and Employee Plans and Exempt Organizations), Deputy Assistant Commissioner (International), Special Agents, Case Managers, Group Managers, Internal Revenue Agents, Estate Tax Attorneys, Estate Tax Law Clerks, Estate Tax Examiners, Revenue Service and Assistant Revenue Service Representatives, Tax Auditors, Revenue Officers, Compliance Officers, Tax Examiners whose duties include contacting taxpayers in person, Tax Law Specialists, Service Center Tax Examiners in the correspondence examination function. This authority is delegated to each of the officers/employees listed in Authorities 1,2 and 3 of Delegation Order No. 4. District Directors, Service Center Directors, and the Director, Office of Investigations and Technology may redelegate this authority to Student Trainees (Revenue Officer), (Internal Revenue Agent), and (Special Agent), and Examination Aides, Tax Fraud Investigative Aides and Revenue Officer Aides. Provided each student trainee or aide receives appropriate supervision from a Revenue Officer, Tax Auditor, Internal Revenue Agent, Special Agent as applicable.
### [109.1] 1.3.6 (04-30-1999) Authority to Administer Oaths and Certifications
Delegation Order No. 4, Authority 6 provides for the authority to administer oaths and affirmations and to certify to those papers when necessary except that the authority to certify shall not apply to papers or documents whose certification is authorized by separate order or directive. This authority is delegated to each of the officers/employees listed in Authorities 1, 2, 3 and 5 of Delegation Order No. 4, except for Tax Examiners and Tax Fraud Investigative Aides. Tax Examiners and Tax Fraud Investigative Aides are not designated to administer oaths or to perform the other functions mentioned in these paragraphs. They may, however, certify the method and manner of giving notice after serving summonses.
### [109.1] 1.4 (04-30-1999) Factors to Consider Before Issuing a Summons
Attempt to obtain information voluntarily from taxpayers and witnesses prior to issuing a summons. Consent may be obtained voluntarily by acquainting the taxpayer or witness with the provisions of the Internal Revenue Code. See the reverse side of Form 2039-A. Consider all surrounding circumstances before issuing a summons. Analyze each situation in the light of its particular facts and circumstances. Weigh the importance of the desired information against the: tax liability involved, time and expense of obtaining the records, probability of having to institute court action, adverse effect on voluntary compliance by others if the enforcement efforts are not successful, whether a criminal case is pending. Additionally, consider serving a summons in the following situations: No records are made available to permit an adequate examination within a reasonable period of time. Submitted records are known or suspected to be incomplete. Additional records are presumed to be in the possession of the taxpayer or a third party that may disclose material matters not reflected in the submitted records (i.e. broker statements, contracts, and bills for legal expenses). Taxpayers or taxpayers' representatives will not seriously attempt to provide documentation for substantiation to the examiner because they intend to offer records and explanations at another level or after a notice of deficiency has been issued. The existence and location of records are in doubt. A summons may be issued to require testimony, under oath, as to what records exist and the location of such records. A subsequent summons may be issued describing the records. If the records are in the possession or custody or subject to the control of the person who has testified, it may be served at the time of the testimony or thereafter.
### [109.1] 1.4.1 (04-30-1999) Documents from Financial Institutions in the Tenth Circuit
As indicated in subsection 1.4(1), Service employees should attempt to obtain information informally from third party sources. If the third party voluntarily provides the information, the Service need not follow formal summons procedures. This approach also applies when seeking financial records from financial institutions, except in cases governed by the Tenth Circuit's interpretation of the Right to Financial Privacy Act (RFPA). In general, the RFPA requires that account owners be given notice of (and an opportunity to challenge) a government agency's intent to obtain records of their finances from a financial institution. However, the RFPA also provides an exception to these requirements as they apply to the Service. Specifically, section 3413(c) states: "Nothing in [the RFPA] prohibits the disclosure of financial records in accordance with procedures authorized by the [IRC]." In all circuits other than the Tenth, the Service takes the position that an informal request for records is a procedure authorized under IRC 7602. The Tenth Circuit reached the opposite conclusion in Neece v. Internal Revenue Service , 922 F.2d 572 (10th Cir. 1990) and ruled that a bank's voluntary disclosure of a customer's financial records to the Service, without prior notice to the customer, violated the RFPA. The Tenth Circuit reasoned that IRC 7609, not section 7602, contained the procedures for obtaining records concerning a taxpayer from a financial institution. See subsection 1.4.1(6) below for a discussion of IRC 7609(j), enacted in RRA 1998, as it affects this reasoning. The Tenth Circuit states are Kansas, Oklahoma, Wyoming, Utah, Colorado, and New Mexico. When issuing a summons, follow the procedures of IRC 7609 (if applicable), and refrain from seeking financial information from financial institutions by using only credentials, letters of circularization (for example: Letters 1040(DO), 1029(DO), and LP62(ACS)) or any other nonsummons method if the following conditions exist: the financial institution is located in the Tenth Circuit; the information sought concerns taxpayers residing in the Tenth Circuit, regardless of the location of the financial institution; the Internal Revenue Service office is located in the Tenth Circuit, regardless of the location of the financial institution or the residence of the taxpayer. Seek the advice of District Counsel if there is any doubt as to whether Neece applies. Do not attempt to obtain financial information voluntarily from financial institutions if the above conditions exist. To do otherwise could result in actual and punitive damages awarded in suits against the Service, and the expenditure of valuable resources in defending such damage suits. In RRA 1998, Congress enacted IRC 7609(j), which provides that nothing in IRC 7609 shall be construed to limit the Service's ability to obtain information, other than by summons, through formal or informal procedures authorized by IRC 7601 and 7602. This section indicates that the Service's ability to informally seek the voluntary exchange of records, i.e., without a summons, constitutes a procedure authorized by the Code. Nevertheless, the Service will follow the Neece ruling in cases described in 1.4.1(3).
### [109.1] 1.4.2 (04-30-1999) Documents from Financial Institutions Located in Circuits Other than the Tenth Circuit
The Service does not follow the Neece rationale in other circuits; therefore, information may continue to be obtained voluntarily from financial institutions in other circuits using credentials or voluntary methods.
### [109.1] 1.4.3 (04-30-1999) Considerations and Limitations on Issuance of a Summons
Use credentials or circular letters (Letters 1040(DO), 1029(DO) and LP62(ACS)) to get information when possible. NOTE: Special Agents, Criminal Investigation, should ensure that the requirements stated in IRM Handbook 9.3 Chapter 1 Sub-Section 1.3.3 are met when using circular letters. Collection/Exam/EP/EO should get clearance from CI and/or District Counsel before issuing a summons in connection with a pending criminal case to: Obtain more information from the taxpayer or a witness. Uncover assets to apply against assessed liabilities. NOTE: Collection personnel can issue a summons if firm indications of fraud have not been developed. As required by IRC 7602(d), do not issue a summons to investigate a taxable year (or period) where the Service has referred the same taxpayer's case and the same taxable year (or period) to the Department of Justice for criminal prosecution. Do not issue a summons to request proof of filing, copies of returns, or proof of payment if the desired documents are available from Service records. Employment and excise tax returns can be processed under IRC 6020(b). IRC 6331(g) forbids the levy or seizure of property of the taxpayer on the day that the taxpayer (or officer or employee of the taxpayer) appears in response to a summons issued for the purpose of collecting any under-payment of tax. NOTE: Exception: In a jeopardy situation, a levy or seizure of property may be appropriate even though the taxpayer is appearing in response to a summons.
### [109.1] 1.5 (04-30-1999) Description of Summons (Form 2039)
The Form 2039 summons (Exhibit 109.1.1-1) and assembly consists of five parts, as follows: Original (Form 2039) Summons, with the Service of Summons, Notice, and Recordkeeper Certificates on the reverse side; Part A (Form 2039-A) Summons (attested copy), with a reprint of pertinent IRC provisions on the reverse side; Part B (Form 2039-B) Notice to Third-Party Recipient of IRS Summons; with a reprint of IRC 7609 on the reverse side; Part C (Form 2039-C) Summons (copy), with a reprint of pertinent IRC provisions on the reverse side; and Part D (Form 2039-D) notice explaining the right to contest the administrative summons, with a reprint of IRC 7609 on the reverse side. NOTE: General Instructions for preparation of a summons, Exhibit 109.1.1-2.
Exhibit [109.1] 1-1 (04/30/99) Form 2039, Summons
Exhibit [109.1] 1-2 (04/30/99) General Instructions For Preparation of a Summons "In the matter of" : Insert in the space provided the name of the taxpayer whose tax liability is being investigated, collected, or examined. Include in the same space any other information a summoned third-party, e.g., a bank, would need to accurately identify the taxpayer. This information might include the taxpayer's address (complete with street number, city, state, and zip code)."Internal Revenue District of" : Insert the name of the Internal Revenue district: in which the returns were filed, or should have been filed, or where the assessment for collection is outstanding. NOTE: If returns under investigation were filed in various districts, include the name of each district. Periods : Insert all of the calendar years, fiscal years, quarterly or monthly periods involved in the examination or investigation. The periods should be specifically stated,e.g.,"quarterly periods ended March 31, 1999 and June 30, 1999." Do not use abbreviations such as "9906" or "6/30/99.""To" : Insert the correct name of the person summoned and the name or names by which he or she is customarily known. Add the title or official status of the person, if the purpose of the summons is to obtain testimony or records from a person in his or her capacity as trustee, receiver, custodian, corporate, or public official. If the name of a corporate custodian of records is unknown and his or her testimony is not needed (i.e., the summons seeks only the production of documents and not testimony), the summons may be directed to the corporation."At" : Insert the correct address of the person summoned. the street and number of the place of business, the place of residence, or the location of the place where the person is found. "To Appear Before" : name and title of the Service employee who is to take the testimony or examine the books and records, or name and title of the Service employee the person summoned is to appear before. NOTE: In some instances, the name will be the same as that of the Service employee authorized to issue the summons. However, the Service employee authorized to issue a summons may desire the person summoned to appear before another Service employee. When the summons requires the production of books and records, papers, or other data, it is important that they be properly designated and described, including the inclusive dates covered by the documents. If the witness is not required to produce books and records, papers or other data, eliminate from the summons the phrase "and to bring with you and produce for examination the following books, records and papers, and other data" . NOTE: The summons should not require the witness to do anything other than to appear on a given date to give testimony and to bring existing books, papers and records. A summons cannot require a witness to prepare or create documents, including tax returns, that are not currently in existence. "Business address and telephone number of Internal Revenue Service officer named above" : Insert the business address and telephone number of the IRS employee named in the body of the summons."Place and time for appearance at" : Insert the complete address, including the room number where the person is required to appear.Insert the date and time the witness is to appear. IRC 7605 provides that the date and time set for appearance be reasonable under the circumstances and not less than 10 calendar days from the date of the summons. In computing the 10-day period, exclude the date of service and the date of appearance which should not be prior to the day after the 10th day following service of the summons. In short, for practical purposes, use 11 calendar days. Strict compliance with this provision is necessary in the preparation and issuance of a summons in order to enable the enforcement of obedience to its requirements when the person refuses or fails to comply. The date for appearance should be on a workday. Do not set the date for appearance of the person summoned on a weekend or legal holiday. When summoning a third-party, set the date for appearance at least 24 to 26 days after the date notice of the summons is given to all persons entitled to notice. IRC 7609(a)(1) provides that noticees must be given notice "within 3 days of the day on which service is made (on the third-party summoned), but no later than the 23rd day before the day fixed in the summons" as the appearance date. The date of appearance cannot be counted in the 23 day period. Therefore, if the noticee receives notice on the same date the summons is served, the appearance date must be at least 24 days later. If the noticee receives notice on the third day after the summons was served, the date of appearance must be at least 26 days later."Issued under authority of the Internal Revenue Code this" : Insert the date on which the summons is signed by the issuing officer. This date is not to be considered as the "date of the summons" in setting the date for appearance pursuant to IRC 7605 (see item 10 above).The authorized issuing officer will manually sign the summons in the space labeled "Signature of Issuing Officer" and insert his or her official title in the space labeled "Title" .Insert the signature and title of the approving officer, if appropriate. (Group or Case Manager)Insert in the space provided the date and the time of day the summons was served.Show the manner in which the summons was served by checking one of the squares provided.Insert the address of the place or the location where the attested copy of the summons was delivered to the person summoned.If the summons was served by leaving an attested copy with a person at the last and usual place of abode of the party summoned, enter the name and address of the person to whom it was handed. If the summons was merely left at the individual's last and usual place of abode, state only the address, and eliminate the phrase "with the following person" from the printed sentence above the space for entering the name of the person. NOTE: It is desirable that the summons be left with a responsible person, over 16 years of age, who is capable of understanding the importance of giving the summons to the summoned party. The officer serving the summons should sign the certificate of service in the space provided for "Signature" and enter his or her official title in the space designated "Title" .When a summons is served on a third-party, complete the certificate of notice, showing date, time of notice, and name and address of noticee. Check the appropriate square if notice is not required. The copy of the summons given to the summoned party, Form 2039 (Part A), must bear the server's original signature on the front page. If using a revision of Form 2039 bearing the notation (4-97), insert the pen and ink changes specified in this Handbook at subsection 6.3.2(2) Note and at 6.6.4(3) Note. NOTE: If the person summoned is a third-party entitled to payment for search, reproduction and transportation costs, give that person the third part of the summons form which explains payment procedures. Otherwise, this part may be discarded. The Service employee giving the notice should sign the certificate of notice in the space provided for "Signature" and enter his or her official title in the space designated "Title" .The Service employee should sign in the space for "Signature" and enter his or her official title in the space for "Title" certifying that : the period prescribed for beginning a proceeding to quash the summons has expired, that no such proceeding was instituted, or that the noticee consented to the examination. If a person (named in the body of the summons) is entitled to notice of the summons, provide Part C of Form 2039 to the noticee along with the notice, Part D, explaining the rights to stay compliance and intervene.If the summons is served on a third-party and notice is not required, discard Parts C and D of Form 2039 (Rev.4-97).All copies served on the person to whom the summons is directed should contain the following statement: "I hereby certify that I have examined and compared this copy of the summons with the original and that it is a true and correct copy of the original."
### Internal Revenue Manual | ### Hndbk. 109.1 Chap. 1 Introduction | ### (04-30-1999)

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