Friday, May 9, 2014

In Identical Cases, Tax Court Finds it has No Jurisdiction Over Case Prior to Board Determination

Excerpts of the Tax Court's Decisions follow:

In its Petition, Washington Park acknowledges that it has not yet received a final determination from the Indiana Board. (See Pet’r Pet. ¶ 4; Pet’r Br. Supp. Pet. Enjoin Collection Tax at 3.) Accordingly, Washington Park admits that its case is not yet ripe to file a petition for an original tax appeal. (See Pet’r Br. Supp. Pet. Enjoin Collection Tax at 3.) Nonetheless, Washington Park maintains that this Court has subject matter jurisdiction to rule on its Petition for three reasons. 

I.

Washington Park first argues that

[b]y requiring a summary of the issues that Petitioner “will raise” in the original tax appeal, [Indiana Code § 33-26-6-2(b)] contemplate[s] the filing of an injunction request prior to the filing of an original tax appeal because if an original tax appeal had been filed, that filing would suffice to have “raised” the issues. There would be no need to recite issues that “will be” raised because those issues would have already been raised upon the filing of an original tax appeal.

(Pet’r Br. Resp. Mot. Dismiss (“Pet’r Br.”) at 2.) In addition, Washington Park argues that
the legislature has organized Indiana Code § 33-26-6-2 into separate and distinct sections to deal with the separate and distinct petitions that may be brought before this Court – a petition to set aside a final determination, on the one hand (Indiana Code § 33-26-6-2(a)); and a petition to enjoin the collection of tax, on the other hand (Indiana Code § 33-26-6-2(b)). The [injunction] petition . . . is not the same as the petition required to initiate an original tax appeal under Indiana Code § 33-26-6-2(a). If it were, there would be no need to refer separately to the injunction petition described in in subsections (b) and (c). (Pet’r Br. at 2.) Washington Park, however, has read Indiana Code § 33-26-6-2(b) in a vacuum.

When confronted with a question of statutory construction, the Court’s function is to determine and implement the intent of the legislature in enacting that statutory provision. See Johnson Cnty. Farm Bureau Coop. Ass’n v. Indiana Dep’t of State Revenue, 568 N.E.2d 578, 580 (Ind. Tax Ct. 1991), aff’d by 585 N.E.2d 1336 (Ind. 1992). In general, the best evidence of this intent is found in the actual language of the statute itself, as chosen by legislature. See id. at 581. To this end, the Court will endeavor to give meaning to each and every word used in a statute, as it will not be presumed that the legislature intended to enact a statutory provision that is superfluous, meaningless, or a nullity. See Chrysler Fin. Co. v. Indiana Dep’t of State Revenue, 761 N.E.2d 909, 916 (Ind. Tax Ct. 2002), review denied. Additionally, the Court will give those statutory words and phrases their plain, ordinary, and usual meaning. See Johnson Cnty. Farm Bureau, 568 N.E.2d at 581. Finally, the Court must read the statute as a whole, and not sections or parts of it piecemeal. See State v. Adams, 583 N.E.2d 799, 800 (Ind. Ct. App. 1992), trans. denied. Indeed, “[e]ach part [of a statute] must be considered with reference to all other parts [of the statute].” Id. (citation omitted).
Indiana Code § 33-26-6-2(a) states that 

[a] taxpayer who wishes to initiate an original tax appeal must file a petition in the tax court to set aside the final determination of the department of state revenue or the Indiana board of tax review. If a taxpayer fails to comply with any statutory requirement for the initiation of an original tax appeal, the tax court does not jurisdiction to hear the appeal. 

I.C. § 33-26-6-2(a). Thus, when section (b) indicates that a taxpayer may file an injunction petition, it is assumed that an original tax appeal has been initiated under section (a). Indeed, the words in section (b) state that “[a] taxpayer who wishes to enjoin the collection of a tax pending the original tax appeal . . ..” Id. at (b) (emphases added). The use of the word “pending” together with the definite article “the” strongly suggests that injunctive relief is proper only when an original tax appeal has been commenced. See, e.g., BLACK’S LAW DICTIONARY 1248 (9th ed. 2009) (defining “pending” as “[t]hroughout the continuance of; during . . . [w]hile awaiting; until”); WEBSTER’S THIRD NEW INT’L DICTIONARY 2368 (2002) (stating that the word “the” is “used as a function word to indicate that a following noun or noun equivalent refers to someone or something previously mentioned or clearly understood from the context or the situation”). This interpretation is further supported by the fact that Tax Court Rule 3(F) states that “[i]f the petitioner wishes to enjoin the collection of a tax pending the original tax appeal, there must be included with the original tax appeal a petition to enjoin the collection of the tax[.]” Ind. Tax Court Rule 3(F) (emphasis added). For these reasons, the Court finds that the language “will raise” in Indiana Code § 33-26-6-2(b)(1) does not mean that injunctive relief can be granted before an original tax appeal has been initiated.

II. 

Next, Washington Park asserts that

the nature of preliminary injunctive relief typically seeks an order from the Court BEFORE the full presentation of evidence on the merits, not AFTER. By authorizing this Court to grant injunctive relief and by authorizing this Court to hold an evidentiary hearing for the purpose of determining whether to grant equitable relief, the legislature has authorized this Court to hear evidence BEFORE a dispute has been fully litigated at the [Indiana Board.] (Pet’r Br. at 4.) Washington Park, however, asks the Court to exert power where it has none. As just explained, the Tax Court may grant injunctive relief only if an original tax appeal is pending.

III.

Finally, Washington Park argues that the principle of stare decisis requires the Court to follow its rationale and holding in American Trucking Associations, Inc. v. Indiana, 512 N.E.2d 920 (Ind. Tax Ct. 1987). (See Pet’r Br. at 5-7.) While the rationale and holding in American Trucking does indeed support Washington Park’s position, this Court declines to follow it.


In its Petition, West Ohio acknowledges that it has not yet received a final determination from the Indiana Board. (See Pet’r Am. Pet. ¶ 5; Pet’r Br. Supp. Am. Pet. Enjoin Collection Tax at 1.) Accordingly, West Ohio admits that its case is not yet ripe to file a petition for an original tax appeal. (See Pet’r Br. Supp. Am. Pet. Enjoin Collection Tax at 1-2.) Nonetheless, West Ohio maintains that this Court has subject matter jurisdiction to rule on its Petition for three reasons.

I. 

West Ohio first argues that

[b]y requiring a summary of the issues that Petitioner “will raise” in the original tax appeal, [Indiana Code § 33-26-6-2(b)] contemplate[s] the filing of an injunction request prior to the filing of an original tax appeal because if an original tax appeal had been filed, that filing would suffice to have “raised” the issues. There would be no need to recite issues that “will be” raised because those issues would have already been raised upon the filing of an original tax appeal. 

(Pet’r Br. Resp. Mot. Dismiss (“Pet’r Br.”) at 2.) In addition, West Ohio argues that the legislature has organized Indiana Code § 33-26-6-2 into separate and distinct sections to deal with the separate and distinct petitions that may be brought before this Court – a petition to set aside a final determination, on the one hand (Indiana Code § 33-26-6-2(a)); and a petition to enjoin the collection of tax, on the other hand (Indiana Code § 33-26-6-2(b)). The [injunction] petition . . . is not the same as the petition required to initiate an original tax appeal under Indiana Code § 33-26-6-2(a). If it were, there would be no need to refer separately to the injunction petition described in in subsections (b) and (c).  (Pet’r Br. at 2.) West Ohio, however, has read Indiana Code § 33-26-6-2(b) in a vacuum.

When confronted with a question of statutory construction, the Court’s function is to determine and implement the intent of the legislature in enacting that statutory provision. See Johnson Cnty. Farm Bureau Coop. Ass’n v. Indiana Dep't of State Revenue, 568 N.E.2d 578, 580 (Ind. Tax Ct. 1991), aff’d by 585 N.E.2d 1336 (Ind. 1992). In general, the best evidence of this intent is found in the actual language of the statute itself, as chosen by legislature. See id. at 581. To this end, the Court will endeavor to give meaning to each and every word used in a statute, as it will not be presumed that the legislature intended to enact a statutory provision that is superfluous, meaningless, or a nullity. See Chrysler Fin. Co. v. Indiana Dep’t of State Revenue, 761 N.E.2d 909, 916 (Ind. Tax Ct. 2002), review denied. Additionally, the Court will give those statutory words and phrases their plain, ordinary, and usual meaning. See Johnson Cnty. Farm Bureau, 568 N.E.2d at 581. Finally, the Court must read the statute as a whole, and not sections or parts of it piecemeal. See State v. Adams, 583 N.E.2d 799, 800 (Ind. Ct. App. 1992), trans. denied. Indeed, “[e]ach part [of a statute] must be considered with reference to all other parts [of the statute].” Id. (citation omitted).
Indiana Code § 33-26-6-2(a) states that

[a] taxpayer who wishes to initiate an original tax appeal must file a petition in the tax court to set aside the final determination of the department of state revenue or the Indiana board of tax review. If a taxpayer fails to comply with any statutory requirement for the initiation of an original tax appeal, the tax court does not jurisdiction to hear the appeal. 

I.C. § 33-26-6-2(a). Thus, when section (b) indicates that a taxpayer may file an injunction petition, it is assumed that an original tax appeal has been initiated under section (a). Indeed, the words in section (b) state that “[a] taxpayer who wishes to enjoin the collection of a tax pending the original tax appeal . . ..” I.C. § 33-26-6-2(b) (emphases added). The use of the word “pending” together with the definite article “the” strongly suggests that injunctive relief is proper only when an original tax appeal has been commenced. See, e.g., BLACK’S LAW DICTIONARY 1248 (9th ed. 2009) (defining “pending” as “[t]hroughout the continuance of; during . . . [w]hile awaiting; until”); WEBSTER’S THIRD NEW INT’L DICTIONARY 2368 (2002) (stating that the word “the” is “used as a function word to indicate that a following noun or noun equivalent refers to someone or something previously mentioned or clearly understood from the context or the situation”). This interpretation is further supported by the fact that Tax Court Rule 3(F) states that “[i]f the petitioner wishes to enjoin the collection of a tax pending the original tax appeal, there must be included with the original tax appeal a petition to enjoin the collection of the tax[.]” Ind. Tax Court Rule 3(F). For these reasons, the Court finds that the language “will raise” in Indiana Code § 33-26-6-2(b)(1) does not mean that injunctive relief can be granted before an original tax appeal has been initiated.

II.

Next, West Ohio asserts that 

the nature of preliminary injunctive relief typically seeks an order from the Court BEFORE the full presentation of evidence on the merits, not AFTER. By authorizing this Court to grant injunctive relief and by authorizing this Court to hold an evidentiary hearing for the purpose of determining whether to grant equitable relief, the legislature has authorized this Court to hear evidence BEFORE a dispute has been fully litigated at the [Indiana Board.]

(Pet’r Br. at 4.) West Ohio, however, asks the Court to exert power where it has none. As just explained, the Tax Court may grant injunctive relief only if an original tax appeal is pending.

III.

Finally, West Ohio argues that the principle of stare decisis requires the Court to follow its rationale and holding in American Trucking Associations, Inc. v. Indiana, 512 N.E.2d 920 (Ind. Tax Ct. 1987). (See Pet’r Br. at 5-7.) While the rationale and holding in American Trucking does indeed support West Ohio’s position, this Court declines to follow it.