Transcript Document
AICPA NFP10 Session 111
Tax Exemption:
Core Concepts
&
Management Strategies
Terry Miller
[email protected]
415-333-6320
www.terrymiller.biz
1
Introductions
Who’s here?
Purpose Today / Framing
Order of Concepts
Conceptual: Legal / Public Policy Purposes
Specific: Reporting on Form 990
Management: Planning Strategies
Questions as we go: universal vs. fact specific
Disclaimer
2
Objectives
Objectives
Issue spotting vs. memorize all
nobody knows everything
Know when to get help
don’t be penny-wise & pound-foolish
Context: the concept of “organized & operated”
general legal compliance required
“illegal” or in “contravention of public policy” ≠ exemption
3
Session Overview
Context: organization types / regulators / a word on words
Legal concepts: Tax Exemption (The “Big Four” + 2)
1.
2.
3.
4.
Commerciality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
[earned income]
Inurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
[insiders]
Public v. private benefit . . . . . . . . . . . . . . . . . . . . . . . .
[insiders OR outsiders]
Public policy advocacy . . . . . . . . . . . . . . . . . . .
[1. lobbying, 2. electioneering]
Public charity status / public support tests . . . . . . . . . .
[for 501(c)(3) charities]
Charitable deductions: substantiation & disclosure . . . .
[for (c)(3) charities]
Miscellaneous compliance issues
Reporting: Form 990 – ‘the rubber hits the road’
Management strategies: Planning Opportunities
Resources:
Supplemental materials
Related Sessions at NFP10
4
Context /
Organization Types
Types: Nonprofit Corps, Trusts, LLCs, L3Cs … [STATE law]
Types of Nonprofit corporations (some states)
Public Benefit, Mutual Benefit & Religious
Authority:
State Constitution & Statutes
Articles of Incorporation
Bylaws
Corporate formalities – liability protection (“piercing the veil”)
SOS: Registration
IRS: Income Tax Exemption & Charitable Tax Deductions
AG: Charitable Trust & Charitable Solicitation Registration
Charitable Solicitation Registration
cy pres
??: Sales & Property Tax Exemption, Charitable Gaming
5
“ Taxation?
But we’re a nonprofit ?! ”
Nonprofit = state corporation concept
Tax law: levels of benefit by type of Exempt Organization,
known by Internal Revenue Code Section
501(c)(1) Created by Congress; (c)(2) Title Holding
501(c)(3) Charities
Public Charities
Private Foundations
501(c)(4) Social Welfare / Civic Leagues
501(c)(5) Labor / Horticultural
501(c)(6) Biz League / Prof & Trade Assoc / Chamber Commerce
501(c)(7) Social Clubs
….up to 501(c)(27) and beyond…501(d,e,f,k,n), 527
6
More complicated
than taxable for-profits
The notion of “organized and operated” “exclusively”
Form 990 is mind-numbing
Measure whether sufficient exempt function activity is
occurring to justify favorable tax treatment
“Commensurate” test
Tax Exempt (most net income not taxable)
Tax Deductible (mostly 501(c)(3) organizations)
Form 990 as a Public Communication tool
Heightened public focus stoked by scandals
2008 Form 990 overhaul first in 30 years
7
A word on words
“nonprofit”, “not-for-profit”
“charity”
“charitable trust”
“EO” “exempt organization” “[income] tax-exempt”
“tax deductible [as a charitable gift]” “tax deduction”
“c3” “c4” …
“PF” “PC”
“new” 990
“income” = “support” + “revenue”
“UBI” “UBTI” “UBIT”
“exclusive” “substantial” “primary”
“facts & circumstances”
8
Legal Concepts
Legal Concepts:
the Big Four
(plus assorted details:
“the fine print” )
9
Internal Revenue Code
501(c) (3) (Complete! *)
“(3) Corporations, and any community chest, fund, or foundation, organized and
operated exclusively for religious, charitable, scientific, testing for public safety,
literary, or educational purposes, or to foster national or international amateur sports
competition (but only if no part of its activities involve the provision of athletic facilities
or equipment), or for the prevention of cruelty to children or animals, no part of the
net earnings of which inures to the benefit of any private shareholder or
individual, no substantial part of the activities of which is carrying on
propaganda, or otherwise attempting, to influence legislation (except as
otherwise provided in subsection (h)), and which does not participate in, or
intervene in (including the publishing or distributing of statements), any
political campaign on behalf of (or in opposition to) any candidate for public
office.”
* (color, bold & underlines added)
10
Internal Revenue Code
501(c) (4),(5) & (6) (Complete*)
“(4) (A) Civic leagues or organizations not organized for profit but operated
exclusively for the promotion of social welfare, or local associations of employees,
the membership of which is limited to the employees of a designated person or
persons in a particular municipality, and the net earnings of which are devoted
exclusively to charitable, educational, or recreational purposes.
(B) Subparagraph (A) shall not apply to an entity unless no part of the net
earnings of such entity inures to the benefit of any private shareholder or
individual.
(5) Labor, agricultural, or horticultural organizations.
(6) Business leagues, chambers of commerce, real-estate boards, boards of
trade, or professional football leagues (whether or not administering a pension fund
for football players), not organized for profit and no part of the net earnings of
which inures to the benefit of any private shareholder or individual.”
11
* (color, bold & underlines added)
Legal Concepts:
The “Big Four”
Commerciality
How much can we operate like a business and still be tax exempt?
Can we charge for services?
Private Inurement - Insiders
How much can we pay the boss?
Can we rent from the Chairperson?
Public vs. Private Benefit
Who really benefits from our work, on balance?
Politics & Lobbying
Can we support candidates for office?
Can we join a coalition to oppose legislation?
12
Commerciality -1
History
destination test, until
NYU / Mueller Macaroni, circa 1950
Pizza parlor example: “operated for” charitable (not
commercial) purpose
“Exempt function income” / program service revenue
income as a by-product of program activity
The concept of Unrelated Business Income (Tax)
1)
trade or business
2)
regularly carried on
3)
unrelated to the exempt purpose
13
Commerciality -2
Common problem / error: technical assistance
substantially below cost
Useful exclusions from UBI follow from definition
passive – not “carried on” at all
interest, rents & royalties (watch out for debt-financed property)
gains & losses
not regularly carried on
substantially by volunteers – not “trade or business”
sale of donated merchandise – not “trade or business”
convenience of patrons – “related”
All revenues are one of these three:
Related Exempt Function Income (a/k/a “program svc revenue”)
UBTI
UBI but for exclusion
14
Commerciality -3
Qualified Sponsorship Payments (v. advertising)
no price & item, inducement to buy, comparative messaging
watch out for web links!
RESOURCE:
Session 19 (qualified sponsorships)
Dual types For-Profit & Nonprofit/EO: (e.g. hospitals)
usually means there will be specific guidance
frustrating issue: evolutionary enterprises (e.g. schools): poaching
RESOURCE – Session 55 (hospitals & community benefit)
Commercial sub-activities
when UBI activity becomes jeopardizing: substantial (?)
for-profit subsidiary
15
Private Inurement -1
about INSIDERS (power to exercise major influence)
History: William Aramony
(resigned 1992, convicted 1995, released 2001)
Need for “Intermediate Sanctions” – IRC 4958
Continued concern driven by juicy scandals: Smithsonian, American
University, Irvine Foundation, etc etc etc
Excess compensation most common issue
“Excess Benefit Transactions” includes loans & other (buy/sell/rent)
T. Pattara says Grassley on a tear about this (recent news about
Grassley & Boys & Girls Clubs) – Congress as a wild card
16
Private Inurement -2
Conflicts of Interest / Conflict of Interest Policies
Definition?
Who covered?
IRS: close family & business
Domestic partners? Best friends?
How declared?
IRS: directors & officers (they define officer to include CEO & CFO)
All employees? Volunteers?
What relationships to report?
IRS: concerned about self-dealing
Confidential information? “Settling scores”?
IRS: at least annually – report all relationships that could give rise
Duty of loyalty – develop sensitivities to disclosure & openness
How monitored & enforced?
Disclosure & recusal is usually enough
17
Private Inurement -3
Section 4958 Overview: (c)(3) pub charities & (c)(4) orgs
Penalties doubled by Pension Protection Act
Severe – on individuals
notion of “intermediate sanctions” scrambled up by Caracci case
4958 “rebuttable presumption” basics – re: “disqualified persons”
1.
2.
3.
4.
Written comparables, saved with minutes
Disinterested majority of board, with interested party/parties out of room
Good faith determination best interest of the organization
Prior to transaction
Some in Congress want safe harbor steps required
IRS considers it best practice; pressure to report
IRS concerned about quality of “comparables”
Risks: notion of “Automatic” Excess Benefit Transactions / Listed Property
RESOURCES: Session 48 (intermediate sanctions)
Session 53 (comparability audits)
18
Public v. Private Benefit -1
501(c)(3)’s & 501(c)(4)’s
Subtle / requires step back & ask: “who really benefits?”
NOT about insiders, necessarily
avoid: “more than incidental private benefit”
“the presence of private benefit, if substantial in nature, will destroy taxexempt status regardless of an organization’s other charitable purposes or
activities” – Marcus Owens on Better Business Bureau case (Resources)
Charitable class – how big? Public?
Private Benefit: IRS’ new all-purpose hammer?
“commensurate” test
“efficiency & effectiveness”
dovetails with public skepticism
19
Public v. Private Benefit -2
Famous cases
American Campaign Academy
Consumer Credit Counseling
current: Seller-financed Down Payment Assistance
Governance as indicator of risk: audit flag
v. denial of exemption application
unpredictable
good governance policies & controls; Owens’ paper (Pg 111-64), e.g.:
broad Board
clear records on achievements
conflict of interest & whistleblower policies
commitment to proper arm’s length
outside auditor & if big enough, internal auditor
greater disclosure than required
accountable plan for reimbursements
compensation process use rebuttable presumption
20
Public Policy Advocacy:
Lobbying v. Politics
Key distinction: Lobbying v. Candidate Electioneering
big danger in jumbling them !!
[C3 Public Charity] Lobbying = legislation
including work on referenda even though elections involved
[C456] Lobbying = legislation
plus certain executive branch decision making
Electioneering = candidates for elected office
some targeted lobbying IS electioneering
21
Public Policy Advocacy:
Lobbying -1
501(c)(3) Public Charities
History: 1930, 1934, 1955, 1970, 1990
Expenditure Test v. Substantial Part Test
Expenditure Test: more objective (IRC 501(h), Regs 4911)
Direct v. Grassroots lobbying
“Specific legislative proposal”
Substantial Part Test: “facts & circumstances”
501(c)(3) Private Foundations
No explicit lobbying (earmarked / restricted)
Some wiggle room (general support, or project support less than the
non-lobbying portion of the project)
mostly they just don’t want to hear about it
22
Public Policy Advocacy:
Lobbying -2
501(c)(non-3) Exempt Organizations
Unlimited if related to exempt purpose
501(c)(4)’s (NRA, Sierra Club, etc) lobby a LOT
501(c)(5) (Labor unions, Farm Bureau) lobby a LOT
501(c)(6) (Trade associations, chambers of commerce, professional
associations) lobby a LOT
501(c)(7) social & recreational: not so much
Different definitions: legislation (other than local), plus
certain executive branch policies
Business dues non-deductible as biz expense if used for
lobbying, & must apply dues income first to Lobbying
Notify members of non-deductible portion, or
Pay 35% proxy tax
23
Public Policy Advocacy:
Lobbying -3
Remember: this has been about TAX law
Fed / State / (Local?) ethics & registration rules such as
Congressional “Lobbying Disclosure Act” (LDA)
Trigger points ($ level)
Different definitions
Wining & dining & gifts & travel, money in politics, including by individuals
from organization (!)
LDA allows public charities that have elected the
expenditure test to use some of the tax definitions
Ballot measures may involve State election commissions
and “PAC” regulation / registration / reporting
RESOURCE:
Session 43 (elect & lobbying reporting: beyond tax)
24
Public Policy Advocacy:
Candidate Electioneering -1
IRC Section 527 & “527 Activities” = political = “electioneering”
True meaning: influence the election of candidates
“527” As used in the press: issue advocacy targeted at influencing
election of candidates which escapes election commission jurisdiction by
not being explicit
will Citizens United kill off such “issue 527’s” of this sort?
501(c)(3) Charities (both PC & PF)
CANDIDATE ELECTIONEERING PROHIBITED
Revocation and/or penalties on charity AND on individuals (Board)
Non-partisan voter registration, voter education & get out the vote are all
OK if done just right
(think: League of Women Voters)
25
Public Policy Advocacy:
Candidate Electioneering -2
501(c)(4,5,6 …) organizations
Must be not primary purpose, conducted legally, and consistent with
overall exempt purpose
Primary: 51/49%? No clear standard
EACH year, no rolling periods
Legal: jurisdiction of FEC or State/Local equivalents
Usually means hiring election law coun$el
Notion of Separate Segregated Fund
527 Organizations
Not just “soft PACs / issue 527’s” – includes parties, candidate cttees
Risk if not political enough
(more than insubstantial “non-exempt purposes”)
26
Recap: The Big Four
1. Commerciality
Exempt Function Income
Unrelated Business Income
UBI but for Exclusion(s)
2. Inurement – insiders
3. Public v. Private Benefit – insiders or outsiders
4. Public Policy Advocacy
Lobbying v. Candidate Electioneering
Next:
Private Foundation v. Public Charity & the public support tests
Charitable Deduction Rules
Misc Compliance Issues
27
501(c)(3): Public Charity or
Private Foundation?
501(c)(3) charities are private foundations (PF) by default, unless
can qualify as a public charity (PC)
status tests (e.g. school) or public support tests
“Grandma’s Foundation” vs. Publicly-Supported Charity
PC is better; much less regulated than PF
better donor deductibility (% of AGI, FMV v. Basis)
more transactions with insiders allowed + safe harbor avail (for now)
no tax on investment income, fewer “excise tax” penalties
may MAKE grants to any entity (including foreign) for specific charitable
purposes (if entity not a c3)
only practical way to get many PF grants is to be a PC
may lobby
28
PC or PF?
Types of Public Charity
Qualify as Public Charity under IRC 509(a)(1)-(4)
509(a)(1) says:
1. 170(b)(1)(A)(i)
2. 170(b)(1)(A)(ii)
3. 170(b)(1)(A)(iii)
4. 170(b)(1)(A)(iv)
5. 170(b)(1)(A)(v)
6. 170(b)(1)(A)(vi)
170(b)(1)(A)(i) - (vi)
Church
School
Hospital / medical research org
Support org to public college or univ
Governmental unit
Publicly supported charity – gifts
status
status
status
status
status
test
7. 509(a)(2) Publicly supported charity – fees
test
8. 509(a)(3) Supporting Org (four sub-types )
mix
RESOURCE: Session 47 (supporting organizations)
9. 509(a)(4)
Product Safety Testing Org
29
status
PC or PF?
Public Support Test(s)
Two Public Support Tests:
Both are complex – dynamic formula (mix of donors & revenues by size)
5 year measurement period
Advance period for startup – don’t prove until Year 6 (2-3-4-5-6)
509(a)(1) & 170(b)(1)(A)(vi): broad gift support
more forgiving and flexible than (a)(2)
some changes with New 990
509(a)(2): broad base of earned revenue from program
services, plus very small gifts
extraordinarily complex math – 1 yr, 5 yr & data from inception
unforgiving, inflexible test
switching between is OK
30
Donor Deductibility -1
Donor Substantiation (Receipting)
Publication 1771 & Deeper: Pub 526
Cash (& Un-reimbursed Volunteer Participation) Gifts >= $250
donor must have receipt with required language if audited
Cash v. Non-Cash gifts
valuation: internal estimate (books) v. donor receipt (no value estimate!)
for charitable use vs. for resale: key issue
Quid pro Quo gifts > $75
FMV, not cost, stated in Solicitation or Receipt
TIP: fundraising events need TWO income lines each
exception: low cost logo items (“coffee mug”) for certain gifts
Common Errors
Donated services (+ whole concept of confusion about “a write-off”)
Earmarked for individual beneficiaries
Non-cash valuations estimated on receipt (donor pressure!)
31
earned
donated
Donor Deductibility -2
Intangible Membership & Religious Benefits
best to read Pub 1771
rules are pretty common-sense
Penalties
Failure to disclose non-deductibility (attn C4s!)
Failure to provide quid-pro-quo information
Vehicles, Boats & Planes: Pub 526
general direction of law
Other high-value non-cash items
8282 / 8283
RESOURCE:
Session 24 (charitable contribution compliance)
32
Other Compliance Issues
990 Disclosure (Guidestar does not count)
1023/1024 Disclosure
“Complete & Accurate” Return: statute of limitations, penalties if severe
Late Filing: Penalties
3 years Non-Filing: Revocation
Donor Advised Funds & certain “fiscal sponsorships”
Abuses: 1) parking place, 2) self-serving grants, 3) self-serving investments
RESOURCE:
Session 59 (working with community fdns)
Foreign Activity: PATRIOT Act / know your customer
RESOURCE:
Session 36 (foreign operations)
33
Reporting: Form 990
Reporting:
Form 990
(the rubber hits the road)
34
Key Parts of the New 990:
Core Form
PART
I
Summary
III
Program Service Accomplishments
IV
Checklist of Required Schedules
V
Other Filings & Tax Compliance
VI
Governance, Mgt & Disclosure
VII
Compensation
(dashboard for the public)
Functional Expenses
X
Balance Sheet
(trigger questions)
(various compliance)
(private benefit / inurement)
(inurement)
VIII Revenue
IX
(commensurate test)
(commerciality; UBI analysis)
(commensurate test)
(inurement)
35
New 990:
The 16 Schedules -1
(Which schedules to file? Based on “trigger question” – thresholds)
SCHEDULE
A
Public Support Tests / Pub Char Status
B
Contributors (no change from “old” 990)
C
Campaign & Lobbying Activity
D
Supplemental Financial Statement Detail
(various)
E
Private Schools [Education] (no substantive change)
(special)
F
Foreign Activities & Grants
G
Gaming (& Fundraising)
H
Hospitals
(public charity status)
(deductibility)
(public policy advocacy)
(special: PATRIOT Act / terrorism)
(commerciality; private benefit)
(commensurate test; public benefit)
36
New 990:
The 16 Schedules -2
I
Grants (Domestic - Inside U.S.)
(public benefit)
J
(Justify) Compensation
K
Bonds
(public benefit; compliance)
L
Loans
(inurement)
M
Non-Cash Contributions
N
Termination / Disposition of Assets
O
Open for Narrative Responses
R
Related Organizations
37
(inurement)
(deductibility; excess benefit)
(inurement / public benefit)
(various)
(various / public benefit)
990: Core Form Pg 1
see Full-Size Form
in
Supplemental Materials !
(Page 23)
Core Form Page 1
Parts I and II
Dashboard / Overview
38
990: Core Form Pg 2
Core Form Page 2
Part III
Program
Accomplishments
Commensurate Test
Key Communication
Tool
39
990: Core Form Pg 3
Core Form Page 3
Part IV
“Trigger Questions”
threshold(s) where IRS
has concern
40
990: Core Form Pg 4
Core Form Page 4
Part IV continued
41
990: Core Form Pg 5
Core Form Page 5
Part V
Other Filings &
Compliance
42
990: Core Form Pg 6
Core Form Page 6
Part VI
“Governance,
Management &
Disclosure”
IRS Theory: Public v.
Private Benefit risk
assessment: audit flags
BIG emphasis
43
990: Core Form Pg 7
Core Form Page 7
Part VII
Compensation of:
Officers
Directors (Trustees)
Key employees
Highest comped ees
Former ODKE’s
Inurement
IRS Focus: audit flags:
more BIG emphasis
44
990: Core Form Pg 8
Core Form Page 8
Part VII continued
Trigger
Questions
45
990: Core Form Pg 9
Core Form Page 9
Part VIII
Income (“Revenue”)
Support v. revenue
Classify revenues
Related
UBTI
UBI but for exclusion
46
990: Core Form Pg 10
Core Form Page 10
Part IX
Functional expenses
Program
Mgt & Gen (Admin)
Fundraising
47
990: Core Form Pg 11
Core Form Page 11
Part X
Balance Sheet
Inurement
48
990: Core Form Pg 12
Core Form Page 12
Part XI
Accounting methods,
auditors, etc
49
Schedule Highlights:
Schedule J Pg 1
Schedule J Page 1
Inurement
compensation setting
basis & practices
compensation-like
reimbursements
50
Schedule Highlights:
Schedule L
Schedule L
Inurement: Loans &
other transactions with
insiders
51
Schedule Highlights:
Schedule M Pg 1
Schedule M, Page 1
Deductibility: non-cash
gifts
Private benefit / excess
benefit: certain hard-tovalue noncash gifts
Governance Type
Questions
52
Planning Strategies
Management:
Planning Strategies
53
Planning Strategies -1
General
Fads & fashions in tax law enforcement
Unfortunate but true
Australia: the “tall poppy” syndrome
Read trade publications
Congress – official & individual
Sen. Grassley, but earlier was J.J. Pickle
Subscribe to IRS’ free “EO Update” newsletter
Read Chronicle of Philanthropy
Retain counsel
54
Planning Strategies -2
Commerciality
Broaden exempt purposes – amend articles, review 1023
Master exclusions
Logo wear vs. message wear
Sponsorship deals
if UBTI: calculate expenses with consistent methodology
if UBTI approaching substantial activity: for-profit subsidiary
Inurement
Benchmarking – not everyone is above average / 75th %ile
Audit committees – value squeaky wheels – avoid groupthink
Compensation committee – do regular review; document
Learn to spot compensatory reasoning and handle it correctly
watch out for listed property
Managing [even the appearance of] Conflicts of Interest
55
Planning Strategies -3
Public v. Private Benefit
Commensurate test – think critically
Mission & (re)-evaluation regularly
New blood
Take governance seriously
Public Policy Advocacy
Master the lobbying rules
Find one person or committee to really master it
Train train train
C3’s: Watch out for Election Years
Consider tandem c3/c4 or triad c3/c4/527
56
Planning Strategies -4
Public Support
the notion of “tipping”
run a test at Year 3
don’t panic about 10% + facts & circumstances
if tipping, consider alternates:
509(a)(3)
501(c)(4)
private foundation
private operating foundation
sponsored project
merger into / with another public charity
57
Resources:
Supplemental Materials
Supplemental Materials
1. Form 990 markups: Core Form, Schedules J (Pg 1), L, M (Pg 1)
33
2. Types of Tax Exempt Organizations (from IRS.gov)
48
3. “Nonprofit Governance, and Effectiveness and Efficiency of Operations,” speech
by former IRS EO Commissioner Steven T. Miller, April 2008
50
4. “Current Climate for Charities,” speech by Miller, October 2007
58
5. “More Scrutiny of Charities Expected, Regulators Told,” article about IRS EO
Director Lois Lerner speech to NASCO
63
6. UBTI exclusion codes – good short reference (from 2007 990 instructions)
66
7. “Private vs. Public Benefit,” Marcus Owens, 2007, AICPA NFP conference
67
8. IRS Pub 1771: “Charitable Contributions: Substantiation & Disclosure”
76
9. Bibliography: Public Policy Advocacy
84
10. Additional Resources
93
58
Resources: Directly Related
Sessions at NFP10
19
22
24
36
42
43
47
48
49
53
55
58
59
Qualified Sponsorship Payments
(commerciality)
2009-2010 Tax Year Update (repeats in 49)
(general)
Charitable Contribution Compliance
(donor deductions)
Foreign Operations / Schedule F
(anti-terrorism)
New 990: Lessons & Ambiguities
(general)
Election & Lobbying Reporting: Beyond Tax
(policy advocacy)
Supporting Organizations
(public charity status)
Compliance w/ Intermediate Sanctions Rules [4958]
(inurement)
(repeat) 2009-2010 Tax Year Update
(general)
Managing Comparability & Compensation Audits
(inurement)
Hospitals & Community Benefit
(special)
Ask the Experts Panel: Tax
(varies)
Working with Community Fdns – Planning Opptys
(public support)
59
Resources: Other EO Tax
Sessions at NFP10
202
205
6
13
18
25
30
35
54
60
Form 990-T: What’s New?
(commerciality-UBIT / general)
Reporting 403(b) Plans on Form 5500
(inurement)
View from the IRS
(general)
Issues With Related & Affiliated Orgs
(varies)
Tax Exempt Bond Compliance
(varies)
Tax Ethics / Practitioners
(varies)
Private Foundations: Current Developments
(PF / advanced)
Form 990 Part IX / Functional Accounting
(commensurate test)
Alternative Investments
(charitable trust)
Advanced Non-Qualified Deferred Comp
(inurement)
60
End
Questions?
61