Advance Payments for Goods, Services, and Other Items, 47175-47191 [2019-19197]
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Federal Register / Vol. 84, No. 174 / Monday, September 9, 2019 / Proposed Rules
(3) Will not have a significant
economic impact, positive or negative,
on a substantial number of small entities
under the criteria of the Regulatory
Flexibility Act.
List of Subjects in 14 CFR Part 39
Air transportation, Aircraft, Aviation
safety, Incorporation by reference,
Safety.
The Proposed Amendment
Accordingly, under the authority
delegated to me by the Administrator,
the FAA proposes to amend 14 CFR part
39 as follows:
PART 39—AIRWORTHINESS
DIRECTIVES
1. The authority citation for part 39
continues to read as follows:
■
Authority: 49 U.S.C. 106(g), 40113, 44701.
§ 39.13
[Amended]
2. The FAA amends § 39.13 by adding
the following new airworthiness
directive (AD):
■
328 Support Services GmbH (Type
Certificate Previously Held by AvCraft
Aerospace GmbH; Fairchild Dornier
GmbH; Dornier Luftfahrt GmbH): Docket
No. FAA–2019–0674; Product Identifier
2019–NM–079–AD.
(a) Comments Due Date
The FAA must receive comments by
October 24, 2019.
(b) Affected ADs
None.
(c) Applicability
This AD applies to 328 Support Services
GmbH Model 328–100 airplanes, certificated
in any category, serial numbers 3032 through
3063 inclusive.
(d) Subject
Air Transport Association (ATA) of
America Code 57, Wings.
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(e) Reason
This AD was prompted by a report of
missing rivets on landing flap support arm 2.
The FAA is issuing this AD to address
missing rivets, which could lead to the loss
of one of two load paths, reducing the fatigue
life of the affected flap arms and leading to
fatigue cracking of the support arms of the
flaps, which could result in reduced
structural integrity of the airplane.
(f) Compliance
Comply with this AD within the
compliance times specified, unless already
done.
(g) Requirements
Except as specified in paragraph (h) of this
AD: Comply with all required actions and
compliance times specified in, and in
accordance with, European Union Aviation
Safety Agency (EASA) AD 2019–0096, dated
April 30, 2019 (‘‘EASA AD 2019–0096’’).
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(h) Exceptions to EASA AD 2019–0096
(1) For purposes of determining
compliance with the requirements of this AD:
Where EASA AD 2019–0096 refers to its
effective date, this AD requires using the
effective date of this AD.
(2) The ‘‘Remarks’’ section of EASA AD
2019–0096 does not apply to this AD.
(i) Corrective Action for Cracking
If any crack is found during any inspection
required by paragraph (2) of EASA AD 2019–
0096: Before further flight, repair using a
method approved by the Manager,
International Section, Transport Standards
Branch, FAA; or the EASA; or 328 Support
Services GmbH’s EASA Design Organization
Approval (DOA). If approved by the DOA,
the approval must include the DOAauthorized signature.
(j) No Reporting Requirement
Although the service information
referenced in EASA AD 2019–0096 specifies
to submit certain information to the
manufacturer, this AD does not include that
requirement.
(k) Other FAA AD Provisions
The following provisions also apply to this
AD:
(1) Alternative Methods of Compliance
(AMOCs): The Manager, International
Section, Transport Standards Branch, FAA,
has the authority to approve AMOCs for this
AD, if requested using the procedures found
in 14 CFR 39.19. In accordance with 14 CFR
39.19, send your request to your principal
inspector or local Flight Standards District
Office, as appropriate. If sending information
directly to the International Section, send it
to the attention of the person identified in
paragraph (l)(2) of this AD. Information may
be emailed to: 9-ANM-116-AMOCREQUESTS@faa.gov. Before using any
approved AMOC, notify your appropriate
principal inspector, or lacking a principal
inspector, the manager of the local flight
standards district office/certificate holding
district office.
(2) Contacting the Manufacturer: For any
requirement in this AD to obtain instructions
from a manufacturer, the instructions must
be accomplished using a method approved
by the Manager, International Section,
Transport Standards Branch, FAA; or EASA;
or 328 Support Services GmbH’s EASA DOA.
If approved by the DOA, the approval must
include the DOA-authorized signature.
(l) Related Information
(1) For information about EASA AD 2019–
0096, contact the EASA, Konrad-AdenauerUfer 3, 50668 Cologne, Germany; phone: +49
221 89990 6017; email: ADs@easa.europa.eu;
Internet: www.easa.europa.eu. You may find
this EASA AD on the EASA website at
https://ad.easa.europa.eu. You may view this
EASA AD at the FAA, Transport Standards
Branch, 2200 South 216th St., Des Moines,
WA. For information on the availability of
this material at the FAA, call 206–231–3195.
EASA AD 2019–0096 may be found in the
AD docket on the internet at https://
www.regulations.gov by searching for and
locating Docket No. FAA–2019–0674.
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(2) For more information about this AD,
contact Todd Thompson, Aerospace
Engineer, International Section, Transport
Standards Branch, FAA, 2200 South 216th
St., Des Moines, WA 98198; phone and fax:
206–231–3228.
Issued in Des Moines, Washington, on
August 30, 2019.
Michael Kaszycki,
Acting Director, System Oversight Division,
Aircraft Certification Service.
[FR Doc. 2019–19297 Filed 9–6–19; 8:45 am]
BILLING CODE 4910–13–P
DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1
[REG–104554–18]
RIN 1545–B078
Advance Payments for Goods,
Services, and Other Items
Internal Revenue Service (IRS),
Treasury.
ACTION: Notice of proposed rulemaking.
AGENCY:
This document contains
proposed regulations regarding the
timing of income inclusion under
section 451 of the Internal Revenue
Code (Code) of advance payments for
goods, services, and certain other items.
The proposed regulations reflect
changes made by the Tax Cuts and Jobs
Act. These proposed regulations affect
taxpayers that use an accrual method of
accounting and receive advance
payments.
DATES: Written or electronic comments
or a request for a public hearing must
be received by November 8, 2019.
ADDRESSES: Submit electronic
submissions via the Federal
eRulemaking Portal at
www.regulations.gov (indicate IRS and
REG–104554–18) by following the
online instructions for submitting
comments. Once submitted to the
Federal eRulemaking Portal, comments
cannot be edited or withdrawn. The
Department of the Treasury (Treasury
Department) and the IRS will publish
for public availability any comment
received to its public docket, whether
submitted electronically or in hard
copy. Send hard copy submissions to
Internal Revenue Service,
CC:PA:LPD:PR (REG–104554–18), Room
5205, P.O. Box 7604, Ben Franklin
Station, Washington, DC 20044.
Submissions may be hand delivered
Monday through Friday between the
hours of 8 a.m. and 4 p.m. to Courier’s
Desk, Internal Revenue Service,
SUMMARY:
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CC:PA:LPD:PR (REG–104554–18), 1111
Constitution Avenue NW, Washington,
DC 20224.
FOR FURTHER INFORMATION CONTACT:
Concerning this proposed regulation,
Peter E. Ford, (202) 317–7003;
concerning submission of comments or
a request for a public hearing, Regina L.
Johnson, (202) 317–6901 (not toll-free
numbers).
SUPPLEMENTARY INFORMATION:
Background
This document contains proposed
amendments to 26 CFR part 1 under
section 451(c). On December 22, 2017,
section 451(c) was amended by section
13221 of the Tax Cuts and Jobs Act,
Public Law 115–97 (131 Stat. 2054) (the
Act), to provide that a taxpayer using an
accrual method of accounting (accrual
method taxpayer) with an applicable
financial statement (AFS) may use the
deferral method of accounting provided
in section 451(c) for advance payments.
These proposed regulations also provide
a deferral method of accounting for
taxpayers that do not have an AFS.
Unless otherwise indicated, all
references to section 451(c) in this
preamble are to section 451(c), as
amended by the Act.
In general, section 451 provides that
the amount of any item of gross income
is included in gross income for the
taxable year in which it is received by
the taxpayer, unless, under the method
of accounting used in computing taxable
income, the amount is to be properly
accounted for as of a different period.
Under § 1.451–1, accrual method
taxpayers generally include items of
income in gross income in the taxable
year when all the events occur that fix
the right to receive the income and the
amount of the income can be
determined with reasonable accuracy
(the all events test). All the events that
fix the right to receive income occur
when (1) the required performance takes
place, (2) payment is due, or (3)
payment is made, whichever happens
first. See Revenue Ruling 2003–10
(2003–1 CB 288); Revenue Ruling 84–31
(1984–1 CB 127); Revenue Ruling 80–
308 (1980–2 CB 162). Section 451(c)
requires an accrual method taxpayer
who receives an advance payment to
include the amount thereof in income in
the taxable year of receipt. Section
451(c) also generally codifies the current
deferral method of accounting for
certain advance payments for goods,
services, and other specified items
provided by the IRS under Revenue
Procedure 2004–34 (2004–22 IRB 991)
by allowing accrual method taxpayers to
elect to defer the inclusion of income
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associated with certain advance
payments to the taxable year following
the taxable year of receipt if such
income also is deferred for AFS
purposes.
On April 12, 2018, the Treasury
Department and the IRS issued Notice
2018–35 (2018–18 IRB 520) requesting,
in part, comments on future guidance
under section 451(c). The record of
public comments received in response
to Notice 2018–35 may be requested by
sending an email to Notice.comments@
irscounsel.treas.gov. This document
provides guidance on the application of
section 451(c), taking into account
comments that were received regarding
section 451(c). The application of
section 451(c) is addressed in separate
guidance published in the same issue of
the Federal Register as these proposed
regulations.
Explanation of Provisions
These proposed regulations describe
and clarify the statutory requirements of
section 451(c) by providing new
§ 1.451–8.
1. Deferral Methods Under § 1.451–8
A. AFS Deferral Method
Consistent with section 451(c)(1)(A),
these proposed regulations provide that
an accrual method taxpayer with an
AFS includes an advance payment in
gross income in the taxable year of
receipt unless the taxpayer uses the
deferral method in section 451(c)(1)(B)
and proposed § 1.451–8(c) (AFS deferral
method). A taxpayer using the AFS
deferral method must have an AFS, as
described in section 451(b)(1)(A)(i) or
(ii). These proposed regulations define
the term AFS by reference to the
definition of that term in proposed
§ 1.451–3(c)(1) (REG–104870–18). Under
the AFS deferral method, a taxpayer
with an AFS that receives an advance
payment must include: (i) The advance
payment in income in the taxable year
of receipt, to the extent that it is
included in revenue in its AFS, and (ii)
the remaining amount of the advance
payment in income in the next taxable
year. The AFS deferral method provided
in these proposed regulations closely
follows the deferral method of Revenue
Procedure 2004–34, as modified by
Revenue Procedure 2011–14 (2011–4
IRB 330), and as modified and clarified
by Revenue Procedure 2011–18 (2011–
5 IRB 443), and Revenue Procedure
2013–29 (2013–33 IRB 141) (Revenue
Procedure deferral method). Because
new section 451(c)(1)(B) was intended
to generally codify the Revenue
Procedure deferral method, the Treasury
Department and the IRS believe that
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rules similar to the Revenue Procedure
deferral method are necessary and
appropriate for the proper application of
section 451(c). See H.R. Rep. No. 115–
466, at 429 (2017) (Conf. Rep.).
B. Non-AFS Deferral Method
Section 451(c)(4)(A) generally defines
an advance payment as any payment the
full inclusion of which in gross income
of the taxpayer for the year of receipt is
a permissible method of accounting, any
portion of which is included in revenue
by the taxpayer in an AFS, and which
is for goods, services, or other items
identified by the Secretary. One
commenter noted that the financial
statement requirement within the
definition of an advance payment means
that the rule in Revenue Procedure
2004–34 that depended on determining
when the advance payment was earned
was not within the statutory text of
section 451(c). The Treasury
Department and the IRS have concluded
that section 451(c) does not prohibit a
deferral method that is otherwise
permissible under Revenue Procedure
2004–34. See H.R. Rep. No. 115–466, at
429 (2017) (Conf. Rep.). See also, Joint
Committee on Taxation, General
Explanation of Public Law 115–97 (JCS–
1–18) at 170–171 (Dec. 20, 2018).
Revenue Procedure 2004–34 permitted
non-AFS taxpayers to use the Revenue
Procedure deferral method based on
when the income is earned (earned
standard). See section 5.02(3)(b) of
Revenue Procedure 2004–34. The
Revenue Procedure deferral method
using the earned standard is a
permissible method of accounting for
non-AFS taxpayers and, therefore, these
proposed regulations also provide a
similar deferral method for non-AFS
taxpayers in proposed § 1.451–8(d)
(non-AFS deferral method). Under the
non-AFS deferral method, an accrual
method taxpayer without an AFS that
receives an advance payment must
include: (i) The advance payment in
income in the taxable year of receipt, to
the extent that it is earned, and (ii) the
remaining amount of the advance
payment in income in the next taxable
year.
2. Definition of Advance Payment
A. In General
Section 451(c)(4)(A) generally defines
advance payment as any payment (i) the
full inclusion of which in gross income
of the taxpayer for the taxable year of
receipt is a permissible method of
accounting, (ii) any portion of which is
included in revenue by the taxpayer in
an AFS (or such other financial
statement as the Secretary may specify)
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for a subsequent taxable year, and (iii)
which is for goods, services, or such
other items as may be identified by the
Secretary.
Proposed § 1.451–8(b)(1)(i) clarifies
that the definition of advance payment
under the AFS and non-AFS deferral
methods is consistent with the
definition of advance payment in
Revenue Procedure 2004–34, which
section 451(c) was meant to codify. See
H.R. Rep. No. 115–466, at 429 (2017)
(Conf. Rep.). The Treasury Department
and the IRS believe this definition of
advance payment: (1) Is consistent with
section 451(c), (2) minimizes additional
tax compliance burden and cost, (3)
provides clarity to taxpayers, and (4)
uses rules which are familiar to both
taxpayers and the IRS.
Two commenters suggested that
airline miles be explicitly included in
the list of items for which an advance
payment may be received. The
commenters suggested that airline miles
are a unique type of item, generally
redeemed for air travel and non-travel
rewards. The Treasury Department and
the IRS decline to specifically include
airline miles in the definition of
advance payment because the use of the
deferral method under these proposed
regulations, to the extent airline miles
are redeemable for goods or services, is
already permissible. Therefore, these
proposed regulations include examples
to illustrate that, to the extent certain
reward points are treated as separate
performance obligations, they may be
eligible for the deferral methods
provided under these proposed
regulations.
Another commenter suggested that
progress payments with respect to the
sale of an interest in real property
should be included in the definition of
an advance payment. Revenue
Procedure 2004–34 was intended to
provide a simplified and consistent
deferral period for the sale of goods,
services, and other items. However, the
definition of advance payment in
Revenue Procedure 2004–34 does not
include prepayments for interests in real
property. These proposed regulations
generally provide the same types of
items in the definition of advance
payment to those items provided in
Revenue Procedure 2004–34. However,
the Treasury Department and IRS will
consider any comments received in
determining whether it is appropriate to
include additional types of items in the
definition of advance payment.
B. Items Excluded From the Definition
of an Advance Payment
Section 451(c)(4)(B) provides that
certain items, except as otherwise
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provided by the Secretary, are to be
excluded from the definition of an
advance payment. Pursuant to section
451(c)(4)(B), the term advance payment
does not include rent; insurance
premiums governed by subchapter L;
payments with respect to financial
instruments; payments with respect to
certain warranty or guaranty contracts;
payments subject to section 871(a), 881,
1441, or 1442; payments in property to
which section 83 applies; and other
payments identified by the Secretary.
Several commenters requested that
certain payments for certain types of
goods be excluded from the definition of
an advance payment under section
451(c)(4)(B). A commenter requested
that certain pre-delivery payments for
the sale of high-value customerconfigured equipment that will be
delivered to customers at reasonably
certain times not be included in the
definition of advance payment. Another
commenter requested that an exclusion
be provided for goods for which (i) a
taxpayer receives a payment in a taxable
year with respect to a contract for the
sale of goods not properly includible in
such taxpayer’s finished goods
inventory, and (ii) on the last day of
such taxable year the taxpayer does not
have on hand (or available to it in such
year through its normal source of
supply) goods of a substantially similar
kind and in a sufficient quantity to
satisfy the contract during such contract
year. This commenter suggested a
narrowing of this exclusion could be
done according to whether a good is
commercially significant or of highvalue. A commercially significant good
has a useful life equal to or in excess of
10 years and it is developed, marketed,
and sold to customers in the aerospace
industry. Generally these goods require
a significant amount of capital to
produce and may require considerable
time from development to delivery.
Generally, for financial statement
purposes, such manufacturers recognize
revenue related to these goods when the
product is completed and delivered to
the customer and title and risk of loss
have transferred to the customer.
Proposed § 1.451–8(b)(1)(ii) provides
a list of items excluded from the
definition of advance payment that is
similar to Revenue Procedure 2004–34.
An additional exclusion is provided for
payments received in a taxable year
earlier than the taxable year
immediately preceding the taxable year
of the contractual delivery date for a
specified good, as defined in § 1.451–
8(b)(9). In response to the comments
received, the Treasury Department and
IRS have determined that an exclusion
is appropriate for certain goods for
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which a taxpayer requires a customer to
make an upfront payment under the
contract if (i) the contracted delivery
month and year of the good occurs at
least two taxable years after an upfront
payment, (ii) the taxpayer does not have
the good or a substantially similar good
on hand at the end of the year the
upfront payment is received, and (iii)
the taxpayer recognizes all of the
revenue from the sale of the good in its
AFS in the year of delivery.
The Treasury Department and the IRS
have employed the authority granted to
the Secretary in section 451(c)(4)(B)(vii)
to exclude certain payments, in a
limited manner, that would otherwise
constitute advance payments within the
meaning of section 451(c)(4)(A), in
response to the proposals described in
comments already received. In order to
fully consider other such potential
exclusions, detailed comments that
specifically address the following issues
are requested:
1. Does the authority granted to the
Secretary by section 451(c)(4)(B)(vii) to
exclude certain payments from the
definition of an advance payment under
section 451(c) also permit an exception
for those payments from the rules
regarding the all events test under
section 451(b)?
2. What significance, if any, should
the time it takes to manufacture or
create an item of property, or such item
of property’s useful life, be given in
determining whether a pre-delivery
payment for such item of property
should be included in income as an
advance payment?
3. Does the authority granted to the
Secretary by section 451(c)(4)(B)(vii)
authorize rules that change the timing of
deductions or provide a safe harbor
allowing specified categories of
taxpayers to use methods of accounting
for recognizing income other than an
accrual method under section 451? Is
there any particular authority under the
Code that would allow changing the
timing of deductions in this context
under section 451 or another section of
Subchapter E?
4. Does the authority granted to the
Secretary by section 451(c)(4)(B)(vii) to
exclude certain payments from the
definition of an advance payment also
authorize the imposition of conditions
unrelated to an accrual method of
accounting with respect to any such
exclusions? For example, could the
Secretary require that a taxpayer use an
alternative method of accounting as a
condition for excluding a type of
payment from the definition of advance
payment?
5. Does the authority granted to the
Secretary by section 451(c)(4)(B)(vii) to
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exclude certain payments from the
definition of advance payment also
authorize the imposition of a time limit
on such exclusion? For example, could
an exclusion under section
451(c)(4)(B)(vii) be limited to a specified
number of years after which all
remaining amounts would have to be
recognized in income? If so, what would
be an appropriate time limit?
6. Does the authority granted to the
Secretary by section 451(c)(4)(B)(vii)
allow deferral of income in an amount
equal to the estimated future
performance costs while requiring
current recognition of estimated profits
not in excess of the amounts of advance
payments? If so, does the authority
granted to the Secretary by section
451(c)(4)(B)(vii) permit rules to account
for the time value of money for any
variances in estimated costs or profits?
7. Would it be inappropriate to reduce
the amount a C corporation would be
permitted to defer for a given taxable
year under a potential exclusion under
section 451(c)(4)(B)(vii) by an amount
equal to the excess of (i) distributions
the C corporation made to its
shareholders with respect to its stock,
over (ii) the C corporation’s taxable
income for that taxable year?.
3. Advance Payment Acceleration
Provisions
Section 451(c)(3) provides that the
deferral method does not apply to an
advance payment received by the
taxpayer during a taxable year if such
taxpayer ceases to exist during (or with
the close of) the taxable year. In
contrast, Revenue Procedure 2004–34
provides more detailed acceleration
rules.
The Treasury Department and the IRS
have determined that rules similar to
the acceleration rules provided in
Revenue Procedure 2004–34 are
appropriate for the proper application of
the AFS and non-AFS deferral methods.
The continued use of the deferral
method for an advance payment is not
appropriate and should be limited in
certain situations, such as when the
taxpayer ceases to exist, or when their
obligation regarding the advance
payment is satisfied or otherwise ends.
Accordingly, proposed § 1.451–8(c)(2)
and (d)(6) provide rules to ensure the
acceleration of an advance payment
when a taxpayer either dies or ceases to
exist, or when a taxpayer’s obligation
regarding an advance payment is
satisfied or otherwise ends, except in
certain circumstances. Consistent with
Revenue Procedure 2004–34, the
acceleration rules do not apply to a
taxpayer that engages in a transaction to
which section 381 applies or certain
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transactions in which section 351
applies in the taxable year in which an
advance payment is received.
Section 451(c) does not specifically
address whether the deferral method
may be used when an amount is earned
in the taxable year, but deferred for AFS
purposes. The deferral method under
section 451(c) is an exception to the
requirement to include an amount in
income when it is received but is not an
exception to the requirement to include
an amount in income when it is earned
under the all events test. Accordingly,
consistent with Revenue Procedure
2004–34, these proposed regulations
permit deferral of advance payments
received to the extent, in the year of
receipt, the amount is not included in
revenue in the taxpayer’s AFS, and is
not otherwise earned in the taxable year
of receipt. The amounts not included in
gross income in the year of receipt must
be included in gross income in the next
taxable year.
4. Advance Payments and Financial
Statement Adjustments
Section 451(c) does not address the
treatment of financial statement
adjustments that cause amounts to not
be included in income.
Proposed § 1.451–8(c)(3) and (d)(7)
provide that a taxpayer that defers
inclusion of all or a portion of an
advance payment must include the
remainder of the advance payment in
gross income in the subsequent year,
notwithstanding any write-down or
adjustment for financial accounting
purposes. This provision is consistent
with a plain reading of section
451(c)(1)(B) and the rule in proposed
§ 1.451–3(j), which require that an item
of income treated as deferred revenue in
a taxpayer’s AFS in one year and
charged, in whole or part, to a capital
account in a subsequent year, is
included in revenue in the subsequent
year.
A financial accounting adjustment
may occur after certain equity
acquisitions. For example, after certain
equity acquisitions, the acquiring entity
may write-down or adjust the target’s
deferred revenue in the subsequent year
under purchase accounting rules. Some
taxpayers have asserted that a writedown or adjustment for financial
accounting purposes results in a
permanent exclusion of income for
federal income tax purposes. Proposed
§ 1.451–8(c)(3) and (d)(7) provide
clarification for instances in which a
taxpayer defers inclusion of an advance
payment and is subsequently acquired
in certain equity acquisitions. The
Treasury Department and the IRS
believe that financial statement write-
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downs or adjustments to deferred
revenue should not be taken into
account for federal income tax purposes
when determining the proper amount to
be included in income under the
deferral method. This clarification
ensures that a financial statement writedown or adjustment to deferred revenue
does not result in a permanent
exclusion of income for federal income
tax purposes.
5. Short Taxable Years and the 92-Day
Rule
Section 451(c) does not provide rules
relating to the treatment of short taxable
years. Proposed § 1.451–8(c)(4) and
(d)(8) use the short taxable year rules of
Revenue Procedure 2004–34 for the AFS
and non-AFS deferral methods because
a rule for short taxable years is
necessary to properly implement the
deferral method provided in section
451(c)(1)(B).
6. Performance Obligations for AFS and
Non-AFS Taxpayers
Sections 451(b) and (c)(4)(D) require
that taxpayers with contracts that
contain multiple performance
obligations must allocate transaction
price, and therefore defer (or accelerate)
income inclusion, consistent with the
transaction price allocation used for
AFS purposes. Proposed § 1.451–3(c)(3)
(REG–104870–18) defines the term
performance obligation to mean a
promise in a contract with a customer
to transfer to the customer either a good
or service (or a bundle of goods or
services) that is distinct, or a series of
distinct goods or services that are
substantially the same and that have the
same pattern of transfer to the customer.
Proposed § 1.451–8(b)(4) defines the
term performance obligation by crossreference to proposed § 1.451–3(c)(3) for
purposes of the allocation rule provided
in section 451(c)(4)(D).
Proposed § 1.451–8(b)(7) defines the
term transaction price by cross-reference
to proposed § 1.451–3(c)(6). Proposed
§ 1.451–3(c)(6) defines the term
transaction price to mean the gross
amount of consideration to which a
taxpayer expects to be entitled for AFS
purposes in exchange for transferring
promised goods, services, or other
property, including amounts referred to
in proposed § 1.451–3(i). However, the
term transaction price does not include
certain items, such as amounts collected
on behalf of third parties that are not
otherwise income to the taxpayer,
increases for consideration to which a
taxpayer’s entitlement is contingent on
the occurrence or nonoccurrence of a
future event, and reductions for
amounts subject to section 461.
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Proposed § 1.451–3(c)(6)(ii) presumes
that an amount included in the
transaction price for AFS purposes is
not contingent unless, upon
examination of all of the facts and
circumstances existing at the end of the
taxable year, it can be established to the
satisfaction of the Commissioner that
the amount is contingent on the
occurrence or nonoccurrence of a future
event. Proposed § 1.451–3(c)(6)(ii) also
provides that certain amounts included
in transaction price for AFS purposes,
however, will not be treated as
contingent on the occurrence or
nonoccurrence of a future event.
Comments are requested on allocation
of the transaction price (i) to
performance obligations that are not
contractually based, (ii) for
arrangements that include both income
subject to section 451 and long-term
contracts subject to section 460, and (iii)
when the income realization event for
federal income tax purposes differs from
the income realization event for AFS
purposes.
For non-AFS taxpayers, there is a
continued need to provide an allocation
method consistent with the objective
criteria standard in Revenue Procedure
2004–34 because such taxpayers do not
have an AFS and cannot use the
transaction price allocation used for
AFS purposes, as provided in section
451(b)(4). Therefore, proposed § 1.451–
8(d)(5) permits a non-AFS taxpayer to
allocate the revenue of multiple
obligations in a single contract based on
how such obligations are separately
priced or on any method that may be
provided in guidance published in the
IRB.
7. Accelerated Cost Offset
Several commenters discussed the
need for a regulatory exception to the
existing statutory and regulatory timing
rules that apply to liabilities (for
example, deductions and offsets for
rebates, refunds, and cost of goods sold
(COGS) prior to when the liability for
such items is incurred under section
461) when advance payments are
required to be included in income under
section 451(c) prior to the completion of
the sale of goods or provision of services
(accelerated cost offset). The
commenters argued that not providing
an accelerated cost offset in the
regulations would cause a mismatch of
income and expenses and result in the
taxation of gross receipts.
An allowance to account for future
cost of goods sold, for future estimated
costs, or other cost offset is inconsistent
with sections 461(h) and, 471, 263A,
and the accompanying regulations.
Moreover, section 13221 does not
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change the timing rules provided in
sections 461, 471, 263A and elsewhere
that apply to liabilities. Section 13221
changes the timing of income for
advance payments for goods and
generally codifies Revenue Procedure
2004–34. See H.R. Rep. No. 115–466, at
429 (2017) (Conf. Rep.). Revenue
Procedure 2004–34 does not include an
accelerated cost offset when amounts
are included in income prior to the sale
of goods or provision of services.
The Conference Report also indicates
that section 13221 of the Act is
‘‘intended to override any deferral
method provided by Treasury
Regulation § 1.451–5 for advance
payments received for goods.’’ H.R. Rep.
No. 115–466, at 429 n 880 (2017) (Conf.
Rep.). Section 1.451–5 includes a
deferral method that allows an
accelerated cost offset when certain
amounts are included in income prior to
the sale of goods. See § 1.451–5(c).
Section 451(c) does not provide a cost
offset, and the Conference Report does
not provide any indication that
Congress intended to preserve the cost
offset rules permitted under § 1.451–5.
See also, Joint Committee on Taxation,
General Explanation of Public Law 115–
97 (JCS–1–18) at 156–157 and 164–165
(December 20, 2018). Final regulations
were published in the Federal Register
(84 FR 33691) on July 15, 2019, that
withdraw § 1.451–5, consistent with the
Act.
The Treasury Department and the IRS
believe that Congress intentionally
simplified the rules for advance
payments by limiting the deferral of
advance payments for taxpayers with an
AFS to a prescribed statutory method
that: (1) Does not include an accelerated
cost offset, (2) is consistent with
Revenue Procedure 2004–34, and (3)
overrides § 1.451–5. See H.R. Rep. No.
115–466, at 429 (2017) (Conf. Rep.).
Accordingly, the Treasury Department
and the IRS decline to provide an
accelerated cost offset in these proposed
regulations. The Treasury Department
and the IRS do not agree with the
contention that changes to the timing of
income under section 451 without an
accelerated cost offset cause a taxation
of gross receipts. Section 451(c) and
these proposed regulations merely
change the timing of income
recognition, do not preclude any
associated reduction or deduction for
properly incurred liabilities, and are
consistent with existing statutory and
regulatory timing requirements that
apply to liabilities.
Several commenters proposed a cost
offset mechanism for manufacturers of
certain property and taxpayers with
inventoriable goods in order to ensure
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matching of income and the associated
expenses. Commenters made the
following suggestions to alleviate the
potential mismatch of the acceleration
of income recognition with different
timing rules for associated costs: (i)
Permitting a taxpayer that uses a
percentage of completion method for
AFS purposes (book PCM), but not
subject to section 460, to elect to use
their AFS method for tax purposes; (ii)
permitting a taxpayer that uses book
PCM, but not subject to section 460, to
elect to apply section 460 for federal
income tax purposes; (iii) expanding the
recurring item exception in section
461(h)(3) to permit a taxpayer to offset
the portion of the advance payment
included in income for the taxable year
by the cost of goods sold related to this
payment if the goods are completed and
shipped to the customer within 81⁄2
months of the end of the taxable year
that the advance payment is included in
income; or (iv) providing a cost offset
for taxpayers that can demonstrate at the
time of the purchase agreement that a
net operating loss will remain unused
for the 5-year period after the taxable
year the advance payment is received.
The Treasury Department and the IRS
continue to consider whether any such
exceptions are an appropriate use of the
Secretary’s authority under section
461(h) or 460. To facilitate further
consideration of such potential
exceptions, detailed comments that
specifically address the following issues
are requested:
1. Under what authority would it be
appropriate for the Secretary to permit
a taxpayer to use book PCM as its tax
method? When inventory is involved,
what limitations could be instituted to
ensure that book PCM could not be used
to recover costs related to inventoriable
goods prior to the time when such costs
could be recovered under sections 471
and 263A? Under what specific
authority would it be appropriate to
permit a book PCM method to be used
to recover costs related to inventoriable
goods?
2. Would elective use of book PCM for
tax purposes provide an appropriate
cost offset? Would such a method be
characterized as one that reports
contract revenue according to a
taxpayer’s book method, while
accounting for costs, including
nondeductible costs, as deductions
under the Code? If not, how would such
a method account for costs for federal
income tax purposes?
3. Rather than make book PCM
elective, would it be appropriate for the
definition of ‘‘unique item’’ for purposes
of section 460 to be expanded?
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4. Section 460 requires use of the
look-back method to compensate for
improper acceleration or deferral of
income under PCM. It also requires that
all contract income be reported no later
than the year following contract
completion. Would elective use of a
PCM under section 460 without these
provisions invite abuse? If so, how
could such abuse be prevented?
published in the Federal Register, a
taxpayer may rely on these proposed
regulations for taxable years beginning
after December 31, 2017, provided that
the taxpayer: (1) Applies all the
applicable rules contained in these
proposed regulations, and (2)
consistently applies these proposed
regulations to all advance payments. See
section 7805(b)(7).
8. Section 451(c) Is a Method of
Accounting
Section 451(c)(2) provides that a
taxpayer may elect deferral treatment of
an advance payment governed by
section 451(c), and such election shall
be made at such time and manner and
with respect to such categories of
advance payments as specified by the
Secretary. Section 451(c)(2)(B) provides
that the deferral method is treated as a
method of accounting and the election
is effective for taxable years with respect
to which it is first made and for all
subsequent taxable years, unless the
taxpayer secures the consent of the
Secretary to change to a different
method of accounting.
The use of the AFS or non-AFS
deferral method is the adoption of, or a
change in, a method of accounting
under section 446. A taxpayer may
change its method of accounting to use
the deferral methods only with the
consent of the Commissioner as
required under section 446(e) and the
corresponding regulations. The Treasury
Department and the IRS intend to issue
future guidance that will provide the
procedures by which a taxpayer may
change its method of accounting to use
one of the deferral methods described in
these proposed regulations. However,
until further guidance for the treatment
of advance payments is applicable, a
taxpayer may continue to rely on
Revenue Procedure 2004–34, as
described in Notice 2018–35.
Statement of Availability of IRS
Documents
Proposed Applicability Date
Section 7805(b)(1)(A) and (B) of the
Code generally provides that no
temporary, proposed, or final regulation
relating to the internal revenue laws
may apply to any taxable period ending
before the earliest of (A) the date on
which such regulation is filed with the
Federal Register, or (B) in the case of a
final regulation, the date on which a
proposed or temporary regulation to
which the final regulation relates was
filed with the Federal Register.
These regulations are proposed to
apply to taxable years beginning on or
after the date the final regulations are
published in the Federal Register. Until
the date the Treasury decision adopting
these regulations as final regulations is
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The IRS notice, revenue ruling, and
revenue procedures cited in this
preamble are published in the Internal
Revenue Bulletin (or Cumulative
Bulletin) and are available from the
Superintendent of Documents, U.S.
Government Publishing Office,
Washington, DC 20402, or by visiting
the IRS website at https://www.irs.gov.
Special Analysis
l. Regulatory Planning and Review
Executive Orders 13771, 13563, and
12866 direct agencies to assess costs and
benefits of available regulatory
alternatives and, if regulation is
necessary, to select regulatory
approaches that maximize net benefits,
including potential economic,
environmental, public health and safety
effects, distributive impacts, and equity.
Executive Order 13563 emphasizes the
importance of quantifying both costs
and benefits, reducing costs,
harmonizing rules, and promoting
flexibility. The Executive Order 13771
designation for any final rule resulting
from these proposed regulations will be
informed by comments received. The
preliminary Executive Order 13771
designation for this proposed rule is
regulatory.
The proposed regulations have been
designated by the Office of Information
and Regulatory Affairs (OIRA) as subject
to review under Executive Order 12866
pursuant to the Memorandum of
Agreement (MOA, April 11, 2018)
between the Treasury Department and
the Office of Management and Budget
regarding review of tax regulations. The
Office of Information and Regulatory
Affairs has designated these proposed
regulations as significant under section
1(b) of the MOA. Accordingly, OMB has
reviewed these proposed regulations.
1. Background
Under section 451(a) of the Internal
Revenue Code, income is ‘‘recognized’’
(that is, included in gross income for tax
purposes) in the year in which it is
received by the taxpayer, unless it is
properly accounted for in a different
period under the taxpayer’s method of
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accounting. Because of this latter
condition, the tax treatment of certain
forms of income depends on the method
of accounting a taxpayer is using. For
taxpayers using the accrual method of
accounting, income is generally
recognized in the year in which all
events have occurred that fix the right
to receive that income and when the
amount of income can be determined
with reasonable accuracy (the ‘‘all
events test’’). Receipt of payment by the
business satisfies the all events test.
However, recognition of certain
payments for goods or services not yet
provided may be deferred to the year
following receipt of payment, to the
extent that recognition is also deferred
for on the taxpayer’s Applicable
Financial Statement (AFS). Such
payments are referred to as ‘‘advance
payments.’’
Prior to the December 22, 2017,
enactment of, ‘‘An Act to provide for
reconciliation pursuant to titles II and V
of the concurrent resolution on the
budget for fiscal year 2018,’’ Public Law
115–97, 131 Stat. 2054 (2017),
commonly referred to as the Tax Cuts
and Jobs Act (TCJA), taxpayers were
generally permitted to defer the tax on
these advance payments; in other
words, advance payments could be
recognized in a later taxable year.
Section 451(c), added by the TCJA,
allows accrual-method taxpayers to
elect to recognize as income only a
portion of such an advance payment in
the taxable year in which it is received,
and then recognize the remainder in the
following taxable year. Section 451(c)
essentially codifies the deferral method
of accounting for advance payments that
was permitted in Revenue Procedure
2004–34. (Joint Committee on Taxation,
General Explanation of Public Law 115–
97, (Washington, U.S. Government
Publishing Office, December 2018), at
167.) New section 451(c), the subject of
the proposed regulations, deals with
issues around how these advance
payments are defined and the timing in
which they need to be recognized in the
business’s income tax.
2. Need for the Proposed Regulations
These proposed regulations provide
certainty and clarity to taxpayers
affected by statutory changes introduced
in section 451(c). The Treasury
Department and IRS have received
questions and comments regarding the
meaning of various provisions in section
451(c) and issues not explicitly
addressed in the statute. The Treasury
Department and the IRS have
determined that such comments warrant
the issuance of further guidance.
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3. Overview of the Proposed Regulations
The proposed regulations provide
guidance regarding the new section
451(c). The subsequent economic
analysis covers proposed regulations to:
(1) Describe and clarify the deferral
rules for advance payments for
taxpayers without an Applicable
Financial Statement (AFS); (2) provide
acceleration rules for taxpayers that
cease to exist; (3) clarify the treatment
of financial statement adjustments for
taxpayers that have deferred advance
payments; (4) provide rules relating to
the treatment of short taxable years for
taxpayers deferring advance payments;
and (5) define and clarify the treatment
of performance obligations.
4. Economic Analysis
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A. Baseline
The Treasury Department and the IRS
have assessed the benefits and costs of
the proposed regulations relative to a
no-action baseline reflecting anticipated
Federal income tax-related behavior in
the absence of these proposed
regulations. The following largely
qualitative analysis describes the
anticipated economic effects of the
proposed regulation relative to this
baseline.
B. Summary of Economic Effects
The proposed regulations provide
certainty and consistency in the
application of section 451(c) by
providing definitions and clarifications
regarding the statute’s terms and rules.
An economically efficient tax system
generally aims to treat income and
expense derived from similar economic
decisions consistently across taxpayers
and across activities in order to reduce
incentives for businesses to make
choices based on tax rather than market
incentives. In the absence of the
guidance provided in these proposed
regulations, the chances that different
taxpayers might interpret the statute
differently is exacerbated. For example,
two similarly situated taxpayers might
interpret the statutory provisions
pertaining to the definition of advanced
payments differently, with one taxpayer
pursuing a project that another
comparable taxpayer might decline
because of a different interpretation of
how the income may be treated under
section 451(c). If this second taxpayer’s
activity is more profitable, an economic
loss arises. An economic loss might also
arise if all taxpayers have identical
interpretations under the baseline of the
tax treatment of particular income
streams but are more conservative (or
less conservative) regarding the
interpretation than Congress intended
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for these income streams. In this case,
guidance provides value by bringing
economic decisions closer in line with
the intents and purposes of the statute.
Because the proposed regulations
clarify the tax treatment of certain
income streams, there is the possibility
that investments or other business
decisions may change as a result of
these regulations. The Treasury
Department and the IRS have not made
projections of the change in investment
patterns that might arise due to the
discretionary aspects of the proposed
regulations. The Treasury Department
and the IRS have also not made
projections of any change in compliance
costs arising from the proposed
regulations, relative to the baseline. The
Treasury Department project that
changes in investment patterns and
compliance costs relative to the baseline
may generally be small because the
proposed regulations affect a relatively
small number of entities and because
they largely mirror the rules of Rev.
Proc. 2004–34.
The economic consequences of these
proposed regulations depend in part on
their interaction with other sections of
the Code, including section 460, which
governs when costs can be recovered
under the percentage of completion
method, and section 461(h), which
governs when costs incurred by a
taxpayer satisfy the all events test,
including a requirement for economic
performance, and are thereby allowed as
deductions for Federal income tax
purposes. The economic analysis of the
final regulations under section 451(c)
may address the economic effects of
regulatory guidance, if any, under
sections 460 and 461(h) or other
sections of the Code that interact with
section 451(c), that is issued between
the proposed and final regulations.
The Treasury Department and the IRS
project that approximately 15,000
business entities may be affected by
these regulations.
The Treasury Department and the IRS
solicit comments on this conclusion and
particularly solicit comments that
provide data, evidence, or models that
would enhance the rigor by which the
non-revenue economic effects might be
estimated for the final regulations.
C. Economic Analysis of Specific
Provisions
The Treasury Department and the IRS
solicit comments on the economics of
each of the items discussed
subsequently and of any other items of
the proposed regulations not discussed
in this section. The Treasury
Department and the IRS particularly
solicit comments that provide data,
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other evidence, or models that could
enhance the rigor of the process by
which provisions might be developed
for the final regulations.
i. Deferral Methods Under Section
451(c)
The statute prescribes a particular
deferral method for accrual-method
taxpayers that have an AFS (AFS
taxpayers) but does not explicitly
describe a deferral method to be used by
taxpayers that do not have an AFS (nonAFS taxpayers). To remedy this gap, the
proposed regulations describe and
clarify that a method similar to the
deferral method available to non-AFS
taxpayers under Revenue Procedure
2004–34 will be available to non-AFS
taxpayers.
The Treasury Department and the IRS
considered and rejected a narrow
interpretation of section 451(c) that
would have precluded non-AFS
taxpayers from using a deferral method
similar to that provided in Revenue
Procedure 2004–34. Section 451(c) does
not explicitly prohibit the use of such a
method by non-AFS taxpayers, and the
Treasury Department and IRS continue
to have authority under the Code to
prescribe a deferral method for such
taxpayers. Precluding non-AFS
taxpayers from using a deferral method
similar to that of AFS taxpayers would
treat AFS and non-AFS taxpayers quite
differently regarding business decisions
they might make that are otherwise
similar. Such treatment would result in
a less economically efficient tax system,
which generally treats similar economic
decisions similarly.
The Treasury Department and the IRS
solicit comments on this decision on the
treatment of deferral by non-AFS
taxpayers and particularly solicit
comments that provide data, other
evidence, or models that could enhance
the rigor by which the final regulations
over non-AFS deferral might be
developed.
ii. Advance Payment Acceleration
Provisions
If a taxpayer ceases to exist by the
close of a taxable year in which an
advance payment has been received and
deferred, then issues may arise as to
when or whether the remaining amount
of the payment will be recognized as
taxable income because there may not
be a succeeding taxable year in which
such income can be recognized.
Under the statute, if the taxpayer dies
or ceases to exist by the close of the
taxable year in which the advance
payment was received, any remaining
untaxed amounts of advance payments
must be included in income in the year
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they were received. The proposed
regulations extend this payment
‘‘acceleration’’ rule to situations in
which a performance obligation is
satisfied or otherwise ends in the
taxable year of receipt or in a
succeeding short taxable year, a
treatment that is consistent with a
similar rule in Revenue Procedure
2004–34.
The Treasury Department and the IRS
considered not modifying or expanding
the acceleration rule contained in
section 451(c), but rejected this
alternative because of the remaining
amount may never be picked up into
income risking a permanent exclusion
of the amount from taxable income. The
possibility of a permanent exclusion of
income provides incentives for
taxpayers to structure payments in ways
that avoid tax liability, thus reducing
Federal tax revenue without providing
an accompanying general economic
benefit. The proposed regulations treat
the expanded set of accelerated
transactions consistently with similar
types of transactions based on the
timing and structure of the payments
involved.
The Treasury Department and the IRS
solicit comments on the proposed
regulation’s treatment of acceleration
and particularly solicit comments that
provide data, other evidence, or models
that would enhance the rigor by which
the treatment of acceleration might be
developed for the final regulations.
iii. Advance Payments and Financial
Statement Adjustments
Under the statute, if a taxpayer counts
an advance payment as an item of
deferred revenue, under certain
conditions (for example, certain
acquisitions of one corporation by
another), the taxpayer may be required
by its system of accounting to adjust
that item on the balance sheet in a
subsequent year. The item would then
not be included in current earnings or
AFS revenues. In this case, taxpayers
might argue that they can exclude the
amount deferred from taxable income
because it is never ‘‘earned’’ nor
included in revenue under their AFS. If
this argument is upheld, taxpayers
could convert an income ‘‘deferral’’
amount into an income ‘‘exemption’’
amount. To address this issue and avoid
this possibility, the proposed
regulations specify that such financial
statement adjustments are to be treated
as ‘‘revenue.’’
The Treasury Department and the IRS
considered not providing clarity on the
treatment of financial statement writedowns, but rejected that approach,
because it would have risked an
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inappropriate permanent exclusion of
income. The possibility of a permanent
exclusion of income provides incentives
for taxpayers to structure payments in
ways that avoid tax liability, thus
reducing Federal tax revenue without
providing an accompanying general
economic benefit.
The Treasury Department and the IRS
solicit comments on these proposed
regulations and particularly solicits
comments that provide data, other
evidence, and models that would
enhance the rigor by which the final
regulations dealing with financial
statement adjustments might be
developed.
iv. Short Taxable Years and the 92-Day
Rule
Section 451(c) does not provide a rule
relating to the treatment of short taxable
years. In the absence of such a rule, it
will be unclear to taxpayers how they
should implement the deferral method
provided in section 451(c) in the case of
a short taxable year. To address this
issue, the proposed regulations provide
rules relating to the treatment of short
taxable years for advance payments that
are generally consistent with Revenue
Procedure 2004–34. The Treasury
Department and the IRS considered and
rejected not providing short taxable year
rules because such a decision would
have created significant confusion
among taxpayers, increased
administrative costs for the IRS, and
increased compliance costs for
taxpayers.
The Treasury Department and the IRS
solicit comments on these proposed
regulations and particularly solicit
comments that would provide data,
other evidence, and models that would
enhance the rigor by the treatment of
short taxable years might be developed
for the final regulations.
v. Performance Obligations for Non-AFS
Taxpayers
A performance obligation is a
contractual arrangement with a
customer to provide a good, service or
a series of goods or services that are
basically the same and have a routine
pattern of transfer. The statute requires
that taxpayers with contracts that
include multiple performance
obligations to allocate the transaction
price to each performance obligation in
the same manner that revenue is
allocated in the taxpayer’s AFS. The
statute does not, however, specify the
allocation rules to be used by non-AFS
taxpayers.
To address this issue, the proposed
regulations provide allocation rules for
non-AFS taxpayers consistent with a
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similar rule in Revenue Procedure
2004–34. That rule specifies that the
transaction price be allocated in a
manner that is based on payments the
taxpayer regularly receives for an item
or items it regularly sells or provides
separately. The Treasury Department
and the IRS considered not providing
allocation rules for non-AFS taxpayers
but rejected such an approach because
it would have treated similarly situated
taxpayers quite differently, and would
have led to increased administrative
costs for the IRS and increased
compliance costs for taxpayers. While
the allocation rules for AFS taxpayers
and non-AFS taxpayers under the
proposed regulations do differ, the
chosen solution provides a rule upon
which non-AFS taxpayers can rely,
while minimizing the differences
between AFS and non-AFS taxpayers in
this regard within the constraints
imposed by the statute.
The Treasury Department and the IRS
solicit comments on these proposed
regulations and particularly solicit
comments that would provide data,
other evidence, and models that would
enhance the rigor by which final
regulations affecting the treatment of
performance obligations taxable for nonAFS taxpayers might be developed for
the final regulations.
II. Paperwork Reduction Act
These proposed regulations do not
impose any additional information
collection requirements in the form of
reporting, recordkeeping requirements
or third-party disclosure requirements
related to tax compliance. However,
because the deferral methods described
in proposed §§ 1.451–8(c) and (d) are
methods of accounting, a portion of
affected taxpayers would be required to
request the consent of the Commissioner
for a change in their method of
accounting under section 446(e) and the
accompanying regulations. The IRS
expects that these taxpayers will request
this consent by filing Form 3115,
Application for Change in Accounting
Method (Parts I, II, IV and Schedule B).
Filing of Form 3115 and statements
attached thereto (for taxpayers who are
required to do so or who elect to do so
as a result of the proposed regulations)
is the sole collection of information
requirement imposed by the statute and
the proposed regulations. See
subsequent paragraphs for a description
of taxpayers who would be required to
change the method of accounting under
the statute and the proposed
regulations.
For purposes of the Paperwork
Reduction Act, the reporting burden
associated with the collection of
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information with respect to section
451(c) will be reflected in the
Paperwork Reduction Act submissions
for IRS Form 3115 (OMB control
numbers 1545–0074 for individual
filers, 1545–0123 for business filers, and
1545–2070 for all other types of filers).
The IRS may provide streamlined
method change procedures which could
permit the filing of a statement in lieu
of filing a Form 3115, or, in certain
cases, no notification (see, for example,
the revenue procedure accompanying
these proposed regulations).
The Treasury Department and the IRS
anticipate that these proposed
regulations would require an accrual
method taxpayer that receives an
advance payment and chooses to make
an election to use the deferral method
described in proposed § 1.451–8(c) or
(d) to file a Form 3115 to change the
method of accounting to comply with
these proposed regulations. See
proposed § 1.451–8(e). The Treasury
Department and IRS estimate that
20,000–40,000 taxpayers will be
required to file a Form 3115 in order to
change to the deferral method described
in proposed § 1.451–8(c).a The Treasury
Department and the IRS anticipate a
certain number of accrual method
taxpayers without an AFS that receive
advance payments may choose to use
the non-AFS deferral method described
in proposed § 1.451–8(d). The Treasury
Department and IRS plan to provide
streamlined procedures for taxpayers to
change to the methods of accounting
described in proposed § 1.451–8(c) and
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a This estimate is based on data from the
Compliance Data Warehouse of accrual-method
taxpayers (includes C corporations, S corporations,
partnerships, and sole proprietorships) with an AFS
that E-filed schedule M–3 during 2012–2016.
Schedule M–3 is used to report a net income (loss)
reconciliation but not all taxpayers who should file
an M–3 do so. The rules for filing the M–3 differ
based on taxpayer status. For example, for C
corporations, in general only those with assets of
$10 million or more file an M–3 schedule with their
Form 1120.
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(d). See the revenue procedure
accompanying these proposed
regulations.
For a taxpayer with an AFS that uses
the deferral method in proposed
§ 1.451–8(c), a change in the taxpayer’s
revenue recognition policies for
financial accounting purposes requires
the taxpayer to seek the consent of the
Commissioner under section 446(e) to
use the method for federal income tax
purposes. See proposed § 1.451–8(e). It
is anticipated that the reporting burden
associated with the collection of
information for a statement in lieu of the
Form 3115 would be reflected in the
Paperwork Reduction Act Submission
associated with Revenue Procedure
2018–31, 2018–22 IRB 637 (or
successor) (OMB control number 1545–
1551). See the revenue procedure
accompanying these proposed
regulations.
In 2018, the IRS released and invited
comment on a draft of Form 3115 in
order to give members of the public the
opportunity to benefit from certain
specific provisions made to the Code.
The IRS received no comments on the
forms during the comment period.
Consequently, the IRS made the forms
available in January 2019 for use by the
public. The IRS notes that Form 3115
applies to changes of accounting
methods generally and is therefore
broader than section 451(c).
The current status of the Paperwork
Reduction Act submissions related to
the information collections in the
proposed regulations is provided in the
accompanying table. The overall burden
estimates provided for the OMB control
numbers below are aggregate amounts
that relate to the entire package of forms
associated with the applicable OMB
control number and will in the future
include, but not isolate, the estimated
burden of the tax forms that will be
created or revised as a result of the
information collections in the proposed
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regulations. These numbers are
therefore unrelated to the future
calculations needed to assess the burden
imposed by the proposed regulations.
These burdens have been reported for
other regulations that rely on the same
OMB control numbers to conduct
information collections under the
Paperwork Reduction Act, and the
Treasury Department and the IRS urge
readers to recognize that these numbers
are duplicates and to guard against
overcounting the burden that the
regulations that cite these OMB control
numbers impose. No burden estimates
specific to the forms affected by the
proposed regulations are currently
available. The Treasury Department and
the IRS have not estimated the burden,
including that of any new information
collections, related to the requirements
under the proposed regulations. For the
OMB control numbers discussed above,
the Treasury Department and the IRS
estimate PRA burdens on a taxpayertype basis rather than a provisionspecific basis. Those estimates capture
both changes made by the Act and those
that arise out of discretionary authority
exercised in the proposed regulations
(when final) and other regulations that
affect the compliance burden for that
form.
The Treasury Department and the IRS
request comments on all aspects of
information collection burdens related
to the proposed regulations, including
estimates for how much time it would
take to comply with the paperwork
burdens described above for each
relevant form and ways for the IRS to
minimize the paperwork burden. In
addition, when available, drafts of IRS
forms are posted for comment at https://
apps.irs.gov/app/picklist/list/
draftTaxForms.htm. IRS forms are
available at https://www.irs.gov/formsinstructions. Forms will not be finalized
until after they have been approved by
OMB under the PRA.
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III. Regulatory Flexibility Act
It is hereby certified that these
proposed regulations will not have a
significant economic impact on a
substantial number of small entities
within the meaning of section 601(6) of
the Regulatory Flexibility Act (5 U.S.C.
chapter 6).
The Treasury Department and the IRS
have estimated the number of business
entities that may be affected by the
statute and these proposed regulations.
The statute and proposed regulations
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affect only those business entities that
use an accrual method of accounting.
Regarding the accrual method of
accounting, the Treasury Department
and the IRS estimate that approximately
9 percent of business entities with gross
receipts of $25 million or less used an
accrual method of accounting in taxable
year 2016. Furthermore, section 13102
of TCJA modified section 448 to expand
the number of taxpayers eligible to use
the cash method. In general, C
corporations and partnerships with a C
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corporation partner are now permitted
to use the cash receipts and
disbursements method of accounting if
average annual gross receipts are $25
million or less (up from $5 million or
less in 2016). The Treasury Department
and the IRS project that in future years,
the number of entities with gross
receipts not greater than $25 million
that will be using the accrual method
will be less than 9 percent of all entities
with gross receipts not greater than $25
million.
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47185
Number of returns (taxable year 2016)
(thousands)
Entity
Method of accounting
All returns
Accrual
C Corporations:
Gross Receipts >$25 mil ......................................................................................................
Gross Receipts ™$25 mil .....................................................................................................
Cash
30
1,567
28
700
2
867
Total ...............................................................................................................................
S Corporations:
Gross Receipts >$25 mil ......................................................................................................
Gross Receipts ™$25 mil .....................................................................................................
1,597
728
869
41
4,551
34
1,140
7
3,411
Total ...............................................................................................................................
Partnerships:
Gross Receipts >$25 mil ......................................................................................................
Gross Receipts ™$25 mil .....................................................................................................
4,592
1,174
3,418
20
3,743
17
860
3
2,883
Total ...............................................................................................................................
Sole Proprietors and LLCs:
Gross Receipts >$25 mil ......................................................................................................
Gross Receipts ™$25 mil .....................................................................................................
3,763
877
2,886
1
25,524
1
358
0
25,166
Total ...............................................................................................................................
All Entities:
Gross Receipts >$25 mil ......................................................................................................
Gross Receipts ™$25 mil .....................................................................................................
25,525
359
25,166
92
35,385
80
3,058
12
32,327
Total ...............................................................................................................................
35,477
3,138
32,339
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Source: Statistics of Income data. Cash accounting includes cash, other, and unknown.
Regarding the applicable financial
statement, the Treasury Department and
the IRS estimate that 235,000–250,000
entities with gross receipts of $25
million or less had an audited income
statement in taxable year 2016. This is
an upper bound estimate of entities that
may be affected by these proposed
regulations because small entities are
less likely to have a financial statement
that falls within the definition of AFS in
proposed § 1.451–3(c)(1) (which
generally refers to certified audited
financial statements in accordance with
GAAP or IFRS). An AFS is generally a
financial statement that is certified as
being prepared in accordance with
GAAP or IFRS that is issued for credit
purposes, reporting to shareholders, or
other non-tax purpose. The smaller the
entity, the less likely that it will engage
a CPA firm to audit their financial
statements. An AFS does not include
financial statements that have only been
compiled or reviewed by a CPA firm,
which are more affordable for small
entities, as these types of statements are
not certified as prepared in accordance
with GAAP or IFRS.
Affected taxpayers would be required
to file Form 3115. As an indicator of
whether a taxpayer is likely to have to
file a Form 3115, the Treasury
Department and the IRS estimated the
number of businesses that used the
accrual method of accounting, had a
financial statement, and indicated they
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had unearned or deferred income.
Approximately 15,000 businesses with
gross receipts of $25 million or less fit
this category. This is an upper bound
estimate of the number of taxpayers
relying of Revenue Procedure 2004–34
that will need to file a Form 3115 since
some reporting of unearned or deferred
income may just have deferral for
financial reporting and not tax reporting
reasons.
These proposed rules will not have a
significant economic impact on small
entities affected because the costs to
comply with these proposed regulations
are not significant. An entity is required
to file a Form 3115 (Parts I, II, IV and
Schedule B) to change its method of
accounting in order to use the deferral
method described in proposed § 1.451–
8(c) or (d). The Treasury Department
and IRS plan to provide streamlined
procedures for taxpayers to change to
the methods of accounting described in
proposed § 1.451–8(c)1 and (d). See the
revenue procedure accompanying these
proposed regulations. As noted in this
revenue procedure, the estimated
cumulative annual reporting and/or
recordkeeping burden for the statutory
method changes described under OMB
control number 1545–1551, before
publication of the revenue procedure, is
27,336 respondents, and a total annual
reporting and/or recordkeeping burden
of 30,580 hours. The estimated annual
burden per respondent/recordkeeper
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under OMB control number 1545–1551
before publication of this revenue
procedure varies from 1⁄6 hour to 81⁄2
hours, depending on individual
circumstances, with an estimated
average of 11⁄4 hours. The estimated
cumulative annual reporting and/or
recordkeeping burden for the method
changes described under OMB control
number 1545–1551 after that revenue
procedure is accounted for is 27,346
respondents, and a total annual
reporting and/or recordkeeping burden
is 31,479 hours, leaving the average
reporting and recordkeeping burden
essentially unchanged. These burdens
are essentially unaffected by these
proposed regulations.
Notwithstanding this certification that
the proposed rule would not have a
significant economic impact on a
substantial number of small entities, the
Treasury Department and the IRS invite
comments from the public about the
impact of this proposed rule on small
entities.
Pursuant to section 7805(f), these
regulations will be submitted to the
Chief Counsel for Advocacy of the Small
Business Administration for comment
on their impact on small business.
IV. Unfunded Mandates Reform Act
Section 202 of the Unfunded
Mandates Reform Act of 1995 requires
that agencies assess anticipated costs
and benefits and take certain other
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actions before issuing a final rule that
includes any Federal mandate that may
result in expenditures in any one year
by a state, local, or tribal government, in
the aggregate, or by the private sector, of
$100 million in 1995 dollars, updated
annually for inflation. In 2018, that
threshold is approximately $150
million. This rule does not include any
Federal mandate that may result in
expenditures by state, local, or tribal
governments, or by the private sector in
excess of that threshold.
V. Executive Order 13132: Federalism
Executive Order 13132 (entitled
‘‘Federalism’’) prohibits an agency from
publishing any rule that has federalism
implications if the rule either imposes
substantial, direct compliance costs on
state and local governments, and is not
required by statute, or preempts state
law, unless the agency meets the
consultation and funding requirements
of section 6 of the Executive Order. This
rule does not have federalism
implications and does not impose
substantial direct compliance costs on
state and local governments or preempt
state law within the meaning of the
Executive Order.
Comments and Requests for a Public
Hearing
Before these proposed regulations are
adopted as final regulations,
consideration will be given to any
comments that are submitted timely to
the IRS as prescribed in this preamble
under the ADDRESSES heading. The
Treasury Department and the IRS
request comments on all aspects of the
proposed regulations. All comments
will be available at https://
www.regulations.gov or upon request. A
public hearing will be scheduled if
requested in writing by any person that
timely submits written comments. If a
public hearing is scheduled, notice of
the date, time, and place for the public
hearing will be published in the Federal
Register.
Effect on Other Documents
When finalized, these proposed
regulations will obsolete Revenue
Procedure 2004–34, Revenue Procedure
2011–18, Revenue Procedure 2013–29
and Notice 2018–35.
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Drafting Information
The principal author of these
proposed regulations is Peter E. Ford,
IRS Office of the Associate Chief
Counsel (Income Tax and Accounting).
However, other personnel from the
Treasury Department and the IRS
participated in their development.
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List of Subjects in 26 CFR Part 1
Income taxes, Reporting and
recordkeeping requirements.
Proposed Amendments to the
Regulations
Accordingly, 26 CFR part 1 is
proposed to be amended as follows:
PART 1—INCOME TAXES
Paragraph 1. The authority citation for
part 1 continues to read in part as
follows:
■
Authority: 26 U.S.C. 7805 * * *
Sections 26 U.S.C. 451(c)(2)(A), (3),
(4)(A)(iii), (4)(B)(vii);
Par. 2. Section 1.451–8 is added to
read as follows:
■
§ 1.451–8 Advance payments for goods,
services, and certain other items.
(a) In general. Except as provided in
paragraph (c) or (d) of this section, an
accrual method taxpayer shall include
an advance payment in gross income no
later than in the taxable year in which
the taxpayer receives the advance
payment as provided under § 1.451–
1(a).
(b) Definitions. Except as otherwise
provided in this section, the following
definitions apply for purposes of this
section:
(1) Advance payment—(i) In general.
An advance payment is a payment
received by a taxpayer if:
(A) The full inclusion of the payment
in the gross income of the taxpayer for
the taxable year of receipt is a
permissible method of accounting,
without regard to this section;
(B) Any portion of the payment is
included in revenue by the taxpayer in
an applicable financial statement for a
subsequent taxable year;
(C) The payment is for:
(1) Services;
(2) The sale of goods;
(3) The use, including by license or
lease, of intellectual property, including
copyrights, patents, trademarks, service
marks, trade names, and similar
intangible property rights, such as
franchise rights and arena naming
rights;
(4) The occupancy or use of property
if the occupancy or use is ancillary to
the provision of services, for example,
advance payments for the use of rooms
or other quarters in a hotel, booth space
at a trade show, campsite space at a
mobile home park, and recreational or
banquet facilities, or other uses of
property, so long as the use is ancillary
to the provision of services to the
property user;
(5) The sale, lease, or license of
computer software;
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(6) Guaranty or warranty contracts
ancillary to an item or items described
in paragraph (b)(1)(i)(C)(1), (2), (3), (4),
or (5) of this section;
(7) Subscriptions in tangible or
intangible format. Subscriptions for
which an election under section 455 is
in effect is not included in this
paragraph (b)(1)(i)(C)(7);
(8) Memberships in an organization.
Memberships for which an election
under section 456 is in effect are not
included in this paragraph
(b)(1)(i)(C)(8);
(9) An eligible gift card sale;
(10) Any other payment specified by
the Secretary in other guidance
published in the Internal Revenue
Bulletin (see § 601.601(d)(2)); or
(11) Any combination of items
described in paragraphs (b)(1)(i)(C)(1)
through (10) of this section.
(ii) Exclusions from the definition of
advance payment. An advance payment
does not include:
(A) Rent, except for amounts paid
with respect to an item or items
described in paragraph (b)(1)(i)(C)(3), (4)
or (5) of this section;
(B) Insurance premiums, to the extent
the inclusion of those premiums is
governed by subchapter L;
(C) Payments with respect to financial
instruments (for example, debt
instruments, deposits, letters of credit,
notional principal contracts, options,
forward contracts, futures contracts,
foreign currency contracts, credit card
agreements (including rewards or
loyalty points under such agreements),
financial derivatives, or similar items),
including purported prepayments of
interest;
(D) Payments with respect to service
warranty contracts for which the
taxpayer uses the accounting method
provided in Revenue Procedure 97–38
(1997–2 CB 479);
(E) Payments with respect to warranty
and guaranty contracts under which a
third party is the primary obligor;
(F) Payments subject to section 871(a),
881, 1441, or 1442;
(G) Payments in property to which
section 83 applies; and
(H) Payments received in a taxable
year earlier than the taxable year
immediately preceding the taxable year
of the contractual delivery date for a
specified good.
(2) Applicable financial statement.
Applicable financial statement has the
same meaning as provided in proposed
§ 1.451–3(c)(1).
(3) Eligible gift card sale. Eligible gift
card sale means the sale of a gift card
or gift certificate if:
(i) The taxpayer is primarily liable to
the customer, or holder of the gift card,
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for the value of the card until
redemption or expiration; and
(ii) The gift card is redeemable by the
taxpayer or by any other entity that is
legally obligated to the taxpayer to
accept the gift card from a customer as
payment for items listed in paragraphs
(b)(1)(i)(C)(1) through (11) of this
section.
(4) Performance obligation.
Performance obligation has the same
meaning as provided in proposed
§ 1.451–3(c)(3).
(5) Received. An item of gross income
is received by the taxpayer if it is
actually or constructively received, or if
it is due and payable to the taxpayer.
(6) Revenue. Revenue has the same
meaning as provided in proposed
§ 1.451–3(c)(4) and is determined under
the rules provided in proposed § 1.451–
3.
(7) Transaction price. Transaction
price has the same meaning as provided
in proposed § 1.451–3(c)(6).
(8) Contractual delivery date.
Contractual delivery date means the
month and year of delivery listed in the
written contract to the transaction.
(9) Specified good. A specified good
means a good for which:
(i) During the taxable year a payment
is received, the taxpayer does not have
on hand (or available to it in such year
through its normal source of supply)
goods of a substantially similar kind and
in a sufficient quantity to satisfy the
contract to transfer the good to the
customer; and
(ii) All the revenue from the sale of
the good is recognized in the taxpayer’s
AFS in the year of delivery.
(c) Deferral method for taxpayers with
an applicable financial statement
(AFS)—
(1) In general. An accrual method
taxpayer with an AFS that receives an
advance payment may elect the deferral
method described in this paragraph (c)
if the taxpayer is able to determine the
extent to which advance payments are
included in revenue in its AFS in the
taxable year received, including a short
taxable year (if applicable). A taxpayer
that uses the deferral method must:
(i) Include the advance payment, or
any portion thereof, in gross income in
the taxable year of receipt to the extent
included in revenue in its AFS; and
(ii) Include the remaining portion of
such advance payment in gross income
in the taxable year following the taxable
year in which such payment is received.
(2) Acceleration of advance
payments—(i) In general. A taxpayer
that uses the deferral method described
in this paragraph (c) must include in
gross income for the taxable year of
receipt or, if applicable, for a short
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taxable year described in paragraph
(c)(4) of this section, all advance
payments not previously included in
gross income:
(A) If, in that taxable year, the
taxpayer either dies or ceases to exist in
a transaction other than a transaction to
which section 381(a) applies; or
(B) If, and to the extent that, in that
taxable year, the taxpayer’s obligation
with respect to the advance payments is
satisfied or otherwise ends other than
in:
(1) A transaction to which section
381(a) applies; or
(2) A section 351(a) transfer that is
part of a section 351 transaction in
which:
(i) Substantially all assets of the trade
or business (including advance
payments) are transferred;
(ii) The transferee adopts or uses the
deferral method in the year of transfer;
and
(iii) The transferee and the transferor
are members of the same consolidated
group, as defined in § 1.1502–1(h).
(ii) Example. Ceasing to exist. A is a
calendar year taxpayer and is in the business
of selling and licensing computer software
(off the shelf, fully customized, and semicustomized) and providing customer support.
On July 1, 2018, A enters into a 2-year
software maintenance contract and receives
an advance payment. Under the contract, A
will provide software updates if it develops
an update within the contract period, as well
as online and telephone customer support. A
ceases to exist on December 1, 2018, in a
transaction that does not involve a section
351(a) transfer described in paragraph
(c)(2)(i)(B)(2) of this section and is not a
transaction to which section 381(a) applies.
For federal income tax purposes, A must
include the entire advance payment in gross
income in its 2018 taxable year.
(3) Financial statement adjustments—
(i) In general. Notwithstanding section
451(c)(4)(A)(ii), if a taxpayer treats an
advance payment as an item of deferred
revenue in its AFS and writes-down or
adjusts that item, or portion thereof, to
an equity account (for example, retained
earnings) or otherwise writes-down or
adjusts that item of deferred revenue in
a subsequent taxable year, revenue for
that subsequent taxable year includes
that item, or portion thereof, that is
written down or adjusted.
(ii) Examples—(A) Example 1. On May 1,
2018, A, a corporation that files its federal
income tax return on a calendar year basis,
received $100 as an advance payment for a
2-year contract to provide services. For
financial accounting purposes, A recorded
$100 as a deferred revenue liability in its
AFS, expecting to report 1⁄4 of the advance
payment in revenue in its AFS for 2018, 1⁄2
for 2019, and 1⁄4 for 2020. On August 31,
2018, C, an unrelated corporation that files
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its federal income tax return on a calendar
year basis, acquired all of the stock of A, and
A joined C’s consolidated group. A’s short
taxable year ended on August 31, 2018, and,
as of that date, A had included only 1⁄4 ($25)
of the advance payment in revenue in its
AFS. On September 1, 2018, after the stock
acquisition, and in accordance with purchase
accounting rules, C wrote down A’s deferred
revenue liability to its fair value of $10 as of
the date of the acquisition. The $10 will be
included in revenue on A’s AFS in
accordance with the method of accounting A
uses for financial accounting purposes. For
federal income tax purposes, A uses the
deferral method. For federal income tax
purposes, A must take 1⁄4 ($25) of the
advance payment into income for its short
taxable year ending August 31, 2018, and the
remainder of the advance payment ($75) ($65
write down + $10 future financial statement
revenue) must be included in income for A’s
next succeeding taxable year.
(B) Example 2. On May 1, 2018, B, a
corporation that files its federal income tax
return on a calendar year basis, received $100
advance payment for a contract to be
performed in 2018, 2019, and 2020. On
August 31, 2018, D, a corporation that is not
consolidated for federal income tax purposes,
acquired all of the stock of B. Before the stock
acquisition, on its AFS for 2018, B included
$40 of the advance payment in revenue, and
$60 as a deferred revenue liability. On
September 1, 2018, after the stock acquisition
and in accordance with purchase accounting
rules, D wrote down its $60 deferred revenue
liability to $10 (its fair value) as of the date
of the acquisition. After the acquisition, B
does not include in revenue any of the $10
deferred revenue liability in its 2018 AFS. B
does include $5 in revenue in 2019, and $5
in revenue in 2020. For federal income tax
purposes, B uses the deferral method. For
federal income tax purposes, B must take $40
of the advance payment into income in 2018,
and the remainder of the advance payment
($60) ($50 write down + $10 future financial
statement revenue) must be included in
income for B’s next succeeding taxable year,
2019.
(4) Short taxable year rule—(i) In
general. If the taxpayer’s next
succeeding taxable year is a short
taxable year, other than a taxable year in
which the taxpayer dies or ceases to
exist in a transaction other than a
transaction to which section 381(a)
applies, and the short taxable year
consists of 92 days or less, a taxpayer
using the deferral method must include
the portion of the advance payment not
included in the taxable year of receipt
in gross income for the short taxable
year to the extent included in revenue
in an AFS. Any amount of the advance
payment not included in the taxable
year of receipt and the short taxable year
must be included in gross income for
the taxable year immediately following
the short taxable year.
(ii) Example. A is a calendar year taxpayer
and is in the business of selling and licensing
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computer software (off the shelf, fully
customized, and semi-customized) and
providing customer support. On July 1, 2018,
A receives an advance payment for a 2-year
software maintenance contract. Under the
contract, A will provide software updates if
it develops an update within the contract
period, as well as online and telephone
customer support. A changes its taxable
period to a fiscal year ending March 31 so
that A has a short taxable year beginning
January 1, 2019, and ending March 31, 2019.
In its AFS, A includes 1⁄4 of the payment in
revenue for the taxable year ending December
31, 2018; 1⁄6 in revenue for the short taxable
year ending March 31, 2019; 1⁄4 in revenue
for the taxable year ending March 31, 2020;
and 1⁄4 in revenue for the taxable year ending
March 31, 2021. Because the taxable year
ending March 31, 2019, is 92 days or less, A
must include 1⁄4 of the payment in gross
income for the taxable year ending December
31, 2018, 1⁄6 in gross income for the short
taxable year ending March 31, 2019, and the
remaining amount in gross income for the
taxable year ending March 31, 2020.
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(5) Financial statement conformity
requirement. A taxpayer that uses the
deferral method under this paragraph (c)
must use the same financial statement
that is used to apply the rules in section
451(b) and the accompanying
regulations when applying the deferral
method provided in section 451(c) and
these regulations.
(6) Allocation of transaction price. A
taxpayer using the deferral method
under this paragraph (c) must use the
allocation rules provided in proposed
§ 1.451–3(g).
(7) Rules relating to eligible gift card
sales. For purposes of paragraphs
(b)(1)(i)(B) and (c)(1) of this section, if
an eligible gift card is redeemable by an
entity described in paragraph (b)(3)(ii)
of this section whose financial results
are not included in the taxpayer’s AFS,
a payment will be treated as included by
the taxpayer in revenue in its AFS to the
extent the gift card is redeemed by the
entity during the taxable year.
(8) Examples. The following examples
illustrate the rules of this paragraph (c).
In each example in paragraphs (c)(8)(i)
through (xxv) of this section, the
taxpayer uses an accrual method of
accounting for federal income tax
purposes and files its returns on a
calendar year basis. Except as stated
otherwise, the taxpayer in each example
has an AFS.
(i) Example 1. Services. On November 1,
2018, A, in the business of giving dancing
lessons, receives an advance payment for a 1year contract commencing on that date and
providing for up to 48 individual, 1-hour
lessons. A provides eight lessons in 2018 and
another 35 lessons in 2019. In its AFS, A
includes 1⁄6 of the payment in revenue for
2018, and 5⁄6 of the payment in revenue for
2019. A uses the deferral method. For federal
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income tax purposes, A must include 1⁄6 of
the payment in gross income for 2018, and
the remaining 5⁄6 of the payment in gross
income for 2019.
(ii) Example 2. Services. Assume the same
facts as in Example 1 in paragraph (c)(8)(i) of
this section, except that the advance payment
is received for a 3-year contract under which
up to 96 lessons are provided. A provides
eight lessons in 2018, 48 lessons in 2019, and
40 lessons in 2020. In its AFS, A includes 1⁄12
of the payment in revenue for 2018, 1⁄2 of the
payment in revenue for 2019, and 5⁄12 of the
payment in gross revenue for 2020. For
federal income tax purposes, A must include
1⁄12 of the payment in gross income for 2018,
and the remaining 11⁄12 of the payment in
gross income for 2019.
(iii) Example 3. Goods and Services. On
June 1, 2018, B, a landscape architecture
firm, receives an advance payment for goods
and services that, under the terms of the
agreement, must be provided by December
2019. On December 31, 2018, B estimates that
3⁄4 of the work under the agreement has been
completed. In its AFS, B includes 3⁄4 of the
payment in revenue for 2018 and 1⁄4 of the
payment in revenue for 2019. B uses the
deferral method. For federal income tax
purposes, B must include 3⁄4 of the payment
in gross income for 2018, and the remaining
1⁄4 of the payment in gross income for 2019,
regardless of whether B completes the job in
2019.
(iv) Example 4. Repair Contracts. On July
1, 2018, C, in the business of selling and
repairing television sets, receives an advance
payment for a 2-year contract under which C
agrees to repair or replace, or authorizes a
representative to repair or replace, certain
parts in the customer’s television set if those
parts fail to function properly. In its AFS, C
includes 1⁄4 of the payment in revenue for
2018, 1⁄2 of the payment in revenue for 2019,
and 1⁄4 of the payment in revenue for 2020.
C uses the deferral method. For federal
income tax purposes, C must include 1⁄4 of
the payment in gross income for 2018 and the
remaining 3⁄4 of the payment in gross income
for 2019.
(v) Example 5. Online website Design. D, in
the business of building and designing
websites, receives advance payments that
oblige D to build and design various
websites. D tracks each request for a website
with unique identifying numbers. On July 20,
2018, D receives online payments for 2
websites. One of the website requests is
submitted and processed on September 1,
2018, and the other is submitted and
processed on February 1, 2020. In its AFS, D
includes the payment for the September 1,
2018, website in revenue for 2018 and the
payment for the February 1, 2020, website in
revenue for 2020. D uses the deferral method.
For federal income tax purposes, D must
include the payment for the September 1,
2018, website in gross income for 2018 and
the payment for the February 1, 2020,
website in gross income for 2019.
(vi) Example 6. Gift Cards. E, a hair styling
salon, receives advance payments for gift
cards that may later be redeemed at the salon
for hair styling services or hair care products
at the face value of the gift card. The gift
cards look like standard credit cards, and
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each gift card has a magnetic strip that, in
connection with E’s computer system,
identifies the available balance. The gift
cards may not be redeemed for cash and have
no expiration date. In its AFS, E includes
advance payments for gift cards in revenue
when redeemed. E is not able to determine
the extent to which advance payments are
included in revenue in its AFS for the taxable
year of receipt and therefore does not meet
this requirement of paragraph (c)(1) of this
section. Therefore, E may not use the deferral
method for these advance payments.
(vii) Example 7. Gift Cards. Assume the
same facts as in Example 6 in paragraph
(c)(8)(vi) of this section, except that the gift
cards have an expiration date 12 months
from the date of sale, E does not accept
expired gift cards, and E includes
unredeemed gift cards in revenue in its AFS
for the taxable year in which the cards
expire. Because E tracks the sale date and the
expiration date of the gift cards for purposes
of its AFS, E is able to determine the extent
to which advance payments are included in
revenue for the taxable year of receipt.
Therefore, E meets this requirement of
paragraph (c)(1) of this section and may use
the deferral method for these advance
payments.
(viii) Example 8. Online Subscriptions. G is
in the business of compiling and providing
business information for a particular industry
in an online format accessible over the
internet. On September 1, 2018, G receives an
advance payment from a subscriber for 1 year
of access to its online database, beginning on
that date. In its AFS, G includes 1⁄3 of the
payment in revenue for 2018 and the
remaining 2⁄3 in revenue for 2019. G uses the
deferral method. For federal income tax
purposes, G must include 1⁄3 of the payment
in gross income for 2018 and the remaining
2⁄3 of the payment in gross income for 2019.
(ix) Example 9. Membership Fees. On
December 1, 2018, H, in the business of
operating a chain of ‘‘shopping club’’ retail
stores, receives advance payments for
membership fees. Upon payment of the fee,
a member is allowed access for a 1-year
period to H’s stores, which offer discounted
merchandise and services. In its AFS, H
includes 1⁄12 of the payment in revenue for
2018 and 11⁄12 of the payment in revenue for
2019. H uses the deferral method. For federal
income tax purposes, H must include 1⁄12 of
the payment in gross income for 2018, and
the remaining 11⁄12 of the payment in gross
income for 2019.
(x) Example 10. Cruise. In 2018, I, in the
business of operating tours, receives
payments from customers for a 10-day cruise
that will take place in April 2019. Under the
agreement, I charters a cruise ship, hires a
crew and a tour guide, and arranges for
entertainment and shore trips for the
customers. In its AFS, I includes the
payments in revenue for 2019. I uses the
deferral method. For federal income tax
purposes, I must include the payments in
gross income for 2019.
(xi) Example 11. Travel agent services. On
November 1, 2018, J, a travel agent, receives
payment from a customer for an airline flight
that will take place in April 2019. J purchases
and delivers the airline ticket to the customer
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on November 14, 2018. J retains a portion of
the customer’s payment (the excess of the
customer’s payment over the cost of the
airline ticket) as its commission. Because J is
not required to provide any services after the
ticket is delivered to the customer, J earns its
commission when the airline ticket is
delivered. The customer may cancel the
flight and receive a refund from J only to the
extent the airline itself provides refunds. In
its AFS, J includes its commission in revenue
for 2019. The commission is not an advance
payment because the payment is not earned
by J, in whole or in part, in a subsequent
taxable year. Thus, J may not use the deferral
method for this payment.
(xii) Example 12. Broadcasting Rights. K, a
professional sports franchise, is a member of
a sports league that enters into contracts with
television networks for the right to broadcast
games to be played between teams in the
league. The money received by the sports
league under the contracts is divided equally
among the member teams. The league entered
into a 3-year broadcasting contract beginning
October 1, 2018. K receives three equal
installment payments on October 1 of each
contract year, beginning in 2018. In its AFS,
K includes 1⁄4 of the first installment payment
in revenue for 2018 and 3⁄4 in revenue for
2019; K includes 1⁄4 of the second installment
in revenue for 2019 and 3⁄4 in revenue for
2020; K includes 1⁄4 of the third installment
in revenue for 2020 and 3⁄4 in revenue for
2021. K uses the deferral method. Each
installment payment constitutes an advance
payment under paragraph (b)(1) of this
section. For federal income tax purposes, K
must include 1⁄4 of the first installment
payment in gross income for 2018 and 3⁄4 in
gross income for 2019; 1⁄4 of the second
installment in gross income for 2019 and 3⁄4
in gross income for 2020; and 1⁄4 of the third
installment in gross income for 2020 and 3⁄4
in gross income for 2021.
(xiii) Example 13. Insurance Claims
Administration. L is in the business of
negotiating, placing, and servicing insurance
coverage and administering claims for
insurance companies. On December 1, 2018,
L enters into a contract with an insurance
company to provide property and casualty
claims administration services for a 4-year
period beginning January 1, 2019. Pursuant
to the contract, the insurance company
makes four equal annual payments to L; each
payment relates to a year of service and is
made during the month prior to the service
year (for example, L is paid on December 1,
2018, for the service year beginning January
1, 2019). In its AFS, L includes the first
payment in revenue for 2019; the second
payment in revenue for 2020; the third
payment in revenue for 2021; and the fourth
payment in revenue for 2022. L uses the
deferral method. Each annual payment
constitutes an advance payment under
paragraph (b)(1) of this section. For federal
income tax purposes, L must include the first
payment in gross income for 2019; the
second payment in gross income for 2020;
the third payment in gross income for 2021;
and the fourth payment in gross income for
2022.
(xiv) Example 14. Internet Services. M is a
cable internet service provider that enters
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into contracts with subscribers to provide
internet services for a monthly fee (paid prior
to the service month). For those subscribers
who do not own a compatible modem, M
provides a rental cable modem for an
additional monthly charge (also paid prior to
the service month). Pursuant to the contract,
M will replace or repair the cable modem if
it proves defective during the contract
period. In December 2018, M receives
payments from subscribers for January 2019
internet service and cable modem use. In its
AFS, M includes the entire amount of these
payments in revenue for 2019. M uses the
deferral method. Because a subscriber’s use
of a cable modem is ancillary to the provision
of internet services by M, and because the
cable modem warranty is ancillary to the use
of the cable modem, the payments are
advance payments. For federal income tax
purposes, M must include the advance
payments in gross income for 2019.
(xv) Example 15. License Agreement. On
January 1, 2019, N enters into, and receives
advance payments pursuant to, a 5-year
license agreement for the use of N’s
trademark. Under the contract, the licensee
pays N both the first-year (2019) license fee
and the fifth-year (2023) license fee upon
commencement of the agreement. The fees
for the second, third, and fourth years are
payable on January 1 of each license year.
The contract provides the customer with
access to N’s trademark throughout the term
of the agreement. In its AFS, N includes the
fees in revenue for the respective license
year. N uses the deferral method. For federal
income tax purposes, N must include the
first-year license fee in gross income for
2019, the second-year and the fifth-year
license fee in gross income for 2020, the
third-year license fee in gross income for
2021, and the fourth-year license fee in gross
income for 2022.
(xvi) Example 16. Computer Software
Subscription. On July 1, 2018, O, in the
business of licensing computer software (off
the shelf, fully customized, and semicustomized) and providing customer support,
receives an advance payment for a 2-year
‘‘software subscription contract’’ under
which O will provide software updates if it
develops an update within the contract
period, as well as online and telephone
customer support. In its AFS, O includes 1⁄4
of the payment in revenue for 2018, 1⁄2 in
revenue for 2019, and the remaining 1⁄4 in
revenue for 2020, regardless of when O
provides updates or customer support. O
uses the deferral method. For federal income
tax purposes, O must include 1⁄4 of the
payment in gross income for 2018 and 3⁄4 in
gross income for 2019.
(xvii) Example 17. Performance Obligation.
P is in the business of licensing computer
software (off the shelf, fully customized, and
semi-customized) and providing customer
support. On July 1, 2018, P receives an
advance payment of $100 for a 2-year
software subscription that includes a 1-year
‘‘software maintenance contract’’ under
which P will provide integral software
updates within the contract period, as well
as a ‘‘customer support agreement’’ for online
and telephone customer support. In its AFS,
P allocates $80 of the payment to the
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subscription agreement and $20 to the
customer support agreement. With respect to
the $80 allocable to the subscription
agreement, P includes 1⁄4 ($20) in revenue for
2018, 1⁄2 ($40) in revenue for 2019, and the
remaining 1⁄4 ($20) in revenue for 2020. With
respect to the $20 allocable to the customer
support agreement, P includes 1⁄2 ($10) in
revenue for 2018, and the remaining 1⁄2 ($10)
in revenue for 2019 regardless of when P
provides the customer support. For federal
income tax purposes, P must include $30 in
gross income for 2018 ($20 allocable to the
subscription agreement and $10 allocable to
the customer support agreement) and the
remaining $70 in gross income for 2019.
(xviii) Example 18. Gift Cards
Administered by Another. Q corporation
operates department stores. U corporation, V
corporation, and W corporation are wholly
owned domestic subsidiaries of Q that file a
consolidated federal income tax return with
Q. X corporation is a controlled foreign
subsidiary of Q that is prohibited from filing
a consolidated return with Q. U sells Brand
A goods, V sells Brand B goods, X sells Brand
C goods, and Z is an unrelated entity that
sells Brand D goods. W administers a gift
card program for the Q consolidated group,
X, and Z. Pursuant to the underlying
agreements, W issues gift cards that are
redeemable for goods or services offered by
U, V, X, and Z. In addition, U, V, X, and Z
sell gift cards to customers on behalf of W
and remit amounts received to W. The
agreements provide that W is primarily liable
to the customer for the value of the gift card
until redemption, and U, V, X, and Z are
obligated to accept the gift card as payment
for goods or services. When a customer
purchases goods or services with a gift card
at U, V, X, or Z, W reimburses that entity for
the sales price of the goods or services
purchased with the gift card, up to the total
gift card value. In 2018, W sells gift cards
with a total value of $900,000, and, at the end
of 2018, the unredeemed balance of the gift
cards is $100,000. In the consolidated group’s
AFS, the group includes revenue from the
sale of a gift card when the gift card is
redeemed. W tracks sales and redemptions of
gift cards electronically, is able to determine
the extent to which advance payments are
included in revenue in its consolidated AFS
for the taxable year of receipt, and meets the
requirements of paragraph (c)(1) of this
section. The payments W receives from the
sale of gift cards are advance payments
because they are payments for eligible gift
cards. Thus, W is eligible to use the deferral
method. At the end of 2018, W includes
$800,000 in income in its consolidated AFS.
Under the deferral method, W must include
$800,000 of the payments from gift card sales
in gross income in 2018 and the remaining
$100,000 of the payments in gross income in
2019.
(xix) Example 19. Gift Cards of Affiliates.
R is a Subchapter S corporation that operates
an affiliated restaurant corporation and
manages other affiliated restaurants. These
other restaurants are owned by other
Subchapter S corporations, partnerships, and
limited liability companies. R has a
partnership interest or an equity interest in
some of the restaurants. R administers a gift
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card program for participating restaurants.
Each participating restaurant operates under
a different trade name. Under the gift card
program, R and each of the participating
restaurants sell gift cards, which are issued
with R’s brand name and are redeemable at
all participating restaurants. Participating
restaurants sell the gift cards to customers
and remit the proceeds to R, R is primarily
liable to the customer for the value of the gift
card until redemption, and the participating
restaurants are obligated under an agreement
with R to accept the gift card as payment for
food, beverages, taxes, and gratuities. When
a customer uses a gift card to make a
purchase at a participating restaurant, R is
obligated to reimburse that restaurant for the
amount of the purchase, up to the total gift
card value. In R’s AFS, R includes revenue
from the sale of a gift card when a gift card
is redeemed at a participating restaurant. R
tracks sales and redemptions of gift cards
electronically, is able to determine the extent
to which advance payments are included in
revenue in its AFS for the taxable year of
receipt, and meets the requirements of
paragraph (c)(1) of this section. The
payments R receives from the sale of gift
cards are advance payments because they are
payments for eligible gift card sales. Thus, for
federal income tax purposes, R is eligible to
use the deferral method. In the taxable year
of receipt, R must include the advance
payment in income to the extent included in
its AFS, and must include any remaining
amount in income in the taxable year
following the taxable year of receipt.
(xx) Example 20. Gift Cards for Domestic
and International Hotels. S is a corporation
that operates for the benefit of its franchisee
members, who own and operate domestic
and international individual member hotels.
S collects membership fees from the member
hotels in exchange for providing a wide
variety of management support services,
which include making reservations for
customers at the various member hotels. S
also administers a gift card program for its
members by selling gift cards that may be
redeemed for hotel rooms and food or
beverages provided by any member hotel.
The agreements underlying the gift card
program provide that S is entitled to the
proceeds from the sale of the gift cards, must
reimburse the member hotel for the value of
a gift card redeemed, and until redemption
remains primarily liable to the customer for
the value of the card. In S’s AFS, S includes
payments from the sale of a gift card when
the card is redeemed. S tracks sales and
redemptions of gift cards electronically, is
able to determine the extent to which
advance payments are included in revenue in
its AFS for the taxable year of receipt, and
meets the requirements of paragraph (c)(1) of
this section. The payments S receives from
the sale of gift cards are advance payments
because they are payments for eligible gift
card sales. Thus, for federal income tax
purposes, S is eligible to use the deferral
method. In the taxable year of receipt, S must
include in income the advance payment to
the extent included in its AFS, and must
include any remaining amount in income in
the taxable year following the taxable year of
receipt.
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(xxi) Example 21. Discount Voucher. On
December 10, 2018, T, in the business of
selling home appliances, sells a washing
machine for $500. As part of the sale, T gives
the customer a 40 percent discount voucher
for any future purchases of T’s goods up to
$100 in the next 60 days. In its AFS, T treats
the discount voucher as a separate
performance obligation and allocates $30 of
the $500 sales price to the discount voucher.
T includes $12 of the amount allocated to the
discount voucher in revenue for 2018 and
includes $18 of the discount voucher in
revenue for 2019. T uses the deferral method.
For federal income tax purposes, T must
include the $12 allocable to the discount
voucher in gross income in 2018 and the
remaining $18 allocated to the discount
voucher in gross income in 2019.
(xxii) Example 22. Rewards. On December
31, 2018, U, in the business of selling
consumer electronics, sells a new TV for
$1,000 and gives the customer 50 reward
points. Each reward point is redeemable for
a $1 discount on any future purchase of U’s
products. The reward points are not
redeemable for cash and have a 2-year
expiration date. U tracks each customer’s
reward points and does not sell reward
points separately. In its AFS, U treats the
rewards points as a separate performance
obligation and allocates $45 of the $1,000
sales price to the rewards points. U does not
include any of the amount allocated to the
reward points in revenue for 2018. U
includes $25 of the reward points in revenue
for 2019 and $20 of the reward points in
revenue for 2020. U uses the deferral method.
For federal income tax purposes, U does not
include any amount of the reward points in
gross income in 2018, and includes the entire
$45 allocated to the reward points in gross
income in 2019.
(xxiii) Example 23. Credit Card Rewards.
V, a wholly owned credit card company,
issues credit cards. V also has a loyalty
program in which cardholders earn reward
points for the use of its credit card to make
purchases. Each reward point is redeemable
for a $1 on any future purchases. V may not
use the deferral method because payments
under credit card agreements including
rewards for credit card purchases are
excluded from the definition of an advance
payment under paragraph (b)(1)(ii)(C) of this
section.
(xxiv) Example 24. Airline Reward Miles.
On January 1, 2018, W, in the business of
transporting passengers on airplanes, sells a
customer a $700 airline ticket to fly roundtrip
in 2018. As part of the purchase, the
customer also receives 7,000 points (air
miles) from W to be used for future air travel.
In its AFS, W allocates $665 to the roundtrip
airfare and $35 to the air miles. In its AFS,
the $665 allocated to the airfare is included
in Year 1 when the customer takes the
roundtrip flight. The $35 allocated to the air
miles is deferred and included in Year 3
when the customer redeems the air miles. W
uses the deferral method described in
paragraph (c) of this section. For federal
income tax purposes, the $665 is included in
gross income in Year 1 and the $35 allocated
to the air miles is included in gross income
in Year 2.
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(xxv) Example 25. Chargebacks. Taxpayer
X, a manufacturer of pharmaceuticals, is a
calendar-year accrual method taxpayer with
an AFS. In addition to billing the wholesaler
for the sale of the pharmaceuticals at the
wholesale acquisition cost under the
contract, X generally credits or pays
wholesalers a chargeback of 40% of the
wholesale acquisition cost for sales made by
those wholesalers to qualifying customers. In
2018, X enters into a contract to sell 1,000
units to W, a wholesaler, for $10 per unit,
totaling $10,000 (1,000 × $10 = $10,000). The
contract also provides that X will issue a
40% chargeback for sales by W to certain
qualifying customers. X delivers 600 units to
W on December 31, 2018, and bills W $6,000
under the contract. For AFS purposes, X
adjusts its revenue by 40% for all sales to W
for anticipated chargebacks. As such, in its
2018 AFS, X reports $3,600 ($6,000¥$2,400
= $3,600) of revenue from the contract with
W, decreasing revenue by $2,400 (40% ×
$6,000 = $2,400) for anticipated chargeback
claims. For federal income tax purposes,
under proposed § 1.451–3(c)(4), X’s 2018
revenue is $6,000 because revenue is not
reduced for anticipated chargebacks. Because
no portion of the $6,000 is included in
revenue on an AFS in a subsequent taxable
year (that is, on an AFS after 2018), none of
the $6,000 is an advance payment under
paragraph (b)(1)(i) of this section.
(d) Deferral method for taxpayers
without an AFS (non-AFS deferral
method)—(1) In general. Only a
taxpayer described in paragraph (d)(2)
of this section may elect to use the nonAFS deferral method described in
paragraph (d)(4) of this section.
(2) Taxpayers eligible to use the nonAFS deferral method. A taxpayer is
eligible to use the non-AFS deferral
method if the taxpayer does not have an
applicable financial statement as
defined in proposed § 1.451–3(c)(1) and
is able to determine the extent to which
advance payments are earned in the
taxable year of receipt, or a short taxable
year, if applicable.
(3) Advance payment. For purposes of
the non-AFS deferral method, in
applying paragraph (b)(1)(i)(B) of this
section, an advance payment is any
portion of the payment received that is
earned by the taxpayer, in whole or in
part, in a subsequent taxable year.
(4) Deferral of advance payments
based on when payment is earned—(i)
In general. The non-AFS deferral
method described in this paragraph (d)
is a permissible method of accounting
that may be used only by a taxpayer
described in paragraph (d)(2) of this
section. Under the non-AFS deferral
method of accounting, a taxpayer
includes the advance payment in gross
income for the taxable year of receipt,
including, if applicable, a short taxable
year described in paragraph (d)(8) of
this section, to the extent that it is
earned in that taxable year and includes
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the remaining portion of the advance
payment in gross income in the next
succeeding taxable year.
(ii) When payment is earned. A
payment is earned when the all events
test described in § 1.451–1(a) is met,
without regard to when the amount is
received, as defined under paragraph
(b)(5) of this section, by the taxpayer. If
a taxpayer is unable to determine the
extent to which a payment is earned in
the taxable year of receipt, the taxpayer
may determine that amount:
(A) On a statistical basis if adequate
data are available to the taxpayer;
(B) On a straight line ratable basis
over the term of the agreement if the
taxpayer receives advance payments
under a fixed term agreement and if it
is not unreasonable to anticipate at the
end of the taxable year of receipt that
the advance payment will be earned
ratably over the term of the agreement;
or
(C) By the use of any other basis that
in the opinion of the Commissioner
results in a clear reflection of income.
(5) Contracts with multiple
obligations—(i) In general. If a taxpayer
receives a payment that is attributable to
more than one item described in
paragraph (b)(1)(i)(C) of this section, the
taxpayer must allocate the payment to
such items in a manner that is based on
objective criteria.
(ii) Objective criteria. A taxpayer’s
allocation method with respect to a
payment described in paragraph (d)(5)(i)
of this section is based on objective
criteria if the allocation method is based
on payments the taxpayer regularly
receives for an item or items it regularly
sells or provides separately or any
method that may be provided in
guidance published in the Internal
Revenue Bulletin (see § 601.601(d) of
this chapter).
(6) Acceleration of advance payments.
For purposes of this paragraph (d), the
acceleration rules provided in paragraph
(c)(2) of this section apply to a taxpayer
that uses the non-AFS deferral method.
(7) Advance payments in certain
acquisitions and other financial
statement adjustments. For purposes of
this paragraph (d), the rules provided in
paragraph (c)(3) of this section apply to
a taxpayer that uses the non-AFS
deferral method.
(8) Short taxable year rule. For
purposes of this paragraph (d), the short
taxable year rule provided in paragraph
(c)(4) of this section applies to a
taxpayer that uses the non-AFS deferral
method.
(9) Eligible gift card sale. For purposes
of paragraphs (b)(1)(i)(B) and (d)(4) of
this section, if an eligible gift card is
redeemable by an entity described in
VerDate Sep<11>2014
18:17 Sep 06, 2019
Jkt 247001
paragraph (b)(3)(ii), including an entity
whose financial results are not included
in the taxpayer’s financial statement, a
payment will be treated as earned by the
taxpayer to the extent the gift card is
redeemed by the entity during the
taxable year.
(10) Examples. The rules of this
paragraph (d) are illustrated by the
examples in paragraphs (d)(10)(i) and
(ii). In each of these examples, the
taxpayer uses the non-AFS deferral
method described in this paragraph (d).
(i) Example 1. A, a video arcade operator,
receives payments in 2018 for game tokens
that are used by customers to play the video
games offered by A. The tokens cannot be
redeemed for cash. The tokens are imprinted
with the name of the video arcade, but they
are not individually marked for
identification. A completed a study on a
statistical basis, based on adequate data
available to A, and concluded that for
payments received in the current year, x
percent of tokens are expected to be used in
the current year, y percent of tokens are
expected to be used in the next year, and the
remaining z percent of tokens are expected to
never be used. Based on the study, A treats
as earned for 2018 x percent (for tokens
expected to be used in that year) as well as
z percent (for tokens that are expected to
never be used). Using the study, A
determines the extent to which advance
payments are earned in the taxable year of
receipt. A may determine the extent to which
a payment is earned in the taxable year of
receipt on a statistical basis provided that
any portion that is not included in the
taxable year of receipt is included in the next
succeeding taxable year. Thus, for federal
income tax purposes, A must include x
percent and z percent of the advance
payments in gross income for 2018 and y
percent of the advance payments in gross
income for 2019.
(ii) Example 2. B is in the business of
providing internet services. On September 1,
2018, B receives an advance payment from a
customer for a 2-year term for access to its
internet services, beginning on that date. B
does not have an AFS. B is unable to
determine the extent to which the payment
is earned in the taxable year of receipt. For
federal income tax purposes, B may
determine the extent to which the payment
is earned in the year of receipt on a straight
line ratable basis over the term of the
agreement if it is not unreasonable to
anticipate at the end of the taxable year of
receipt that the advance payment will be
earned ratably over the term of the
agreement.
(e) Method of accounting. The use of
the deferral method under paragraph (c)
of this section or the non-AFS deferral
method under paragraph (d) of this
section is the adoption of, or a change
in, a method of accounting under
section 446 of the Internal Revenue
Code or the accompanying regulations.
In addition, a change in the manner of
recognizing advance payments in
PO 00000
Frm 00044
Fmt 4702
Sfmt 4702
47191
revenue in an AFS that changes or could
change the timing of the inclusion of
income for federal income tax purposes
is a change in method of accounting
under section 446 and the
accompanying regulations. A taxpayer
may change its method of accounting to
use the methods described in
paragraphs (c) or (d) of this section, or
change its manner of recognizing
advance payments in revenue in an AFS
only with the consent of the
Commissioner as required under section
446(e) and the corresponding
regulations.
(f) Applicability date. The rules of this
section are applicable for taxable years
beginning on or after the date of
publication of the Treasury decision
adopting these rules as final regulations
in the Federal Register. Until the date
the Treasury decision adopting these
regulations as final regulations is
published in the Federal Register, a
taxpayer may rely on these proposed
regulations for taxable years beginning
after December 31, 2017, provided that
the taxpayer applies all the applicable
rules contained in these proposed
regulations, and consistently applies
these proposed regulations to all
advance payments. See section
7805(b)(7).
Kirsten Wielobob,
Deputy Commissioner for Services and
Enforcement.
[FR Doc. 2019–19197 Filed 9–5–19; 4:15 pm]
BILLING CODE 4830–01–P
DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1
[REG–104870–18]
RIN 1545–BO68
Taxable Year of Income Inclusion
Under an Accrual Method of
Accounting
Internal Revenue Service (IRS),
Treasury.
ACTION: Notice of proposed rulemaking.
AGENCY:
This document contains
proposed regulations regarding the
timing of income inclusion under
section 451 of the Internal Revenue
Code (Code). The proposed regulations
reflect changes made by the Tax Cuts
and Jobs Act. These proposed
regulations affect taxpayers that use an
accrual method of accounting and have
an applicable financial statement.
SUMMARY:
E:\FR\FM\09SEP1.SGM
09SEP1
Agencies
[Federal Register Volume 84, Number 174 (Monday, September 9, 2019)]
[Proposed Rules]
[Pages 47175-47191]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-19197]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1
[REG-104554-18]
RIN 1545-B078
Advance Payments for Goods, Services, and Other Items
AGENCY: Internal Revenue Service (IRS), Treasury.
ACTION: Notice of proposed rulemaking.
-----------------------------------------------------------------------
SUMMARY: This document contains proposed regulations regarding the
timing of income inclusion under section 451 of the Internal Revenue
Code (Code) of advance payments for goods, services, and certain other
items. The proposed regulations reflect changes made by the Tax Cuts
and Jobs Act. These proposed regulations affect taxpayers that use an
accrual method of accounting and receive advance payments.
DATES: Written or electronic comments or a request for a public hearing
must be received by November 8, 2019.
ADDRESSES: Submit electronic submissions via the Federal eRulemaking
Portal at www.regulations.gov (indicate IRS and REG-104554-18) by
following the online instructions for submitting comments. Once
submitted to the Federal eRulemaking Portal, comments cannot be edited
or withdrawn. The Department of the Treasury (Treasury Department) and
the IRS will publish for public availability any comment received to
its public docket, whether submitted electronically or in hard copy.
Send hard copy submissions to Internal Revenue Service, CC:PA:LPD:PR
(REG-104554-18), Room 5205, P.O. Box 7604, Ben Franklin Station,
Washington, DC 20044. Submissions may be hand delivered Monday through
Friday between the hours of 8 a.m. and 4 p.m. to Courier's Desk,
Internal Revenue Service,
[[Page 47176]]
CC:PA:LPD:PR (REG-104554-18), 1111 Constitution Avenue NW, Washington,
DC 20224.
FOR FURTHER INFORMATION CONTACT: Concerning this proposed regulation,
Peter E. Ford, (202) 317-7003; concerning submission of comments or a
request for a public hearing, Regina L. Johnson, (202) 317-6901 (not
toll-free numbers).
SUPPLEMENTARY INFORMATION:
Background
This document contains proposed amendments to 26 CFR part 1 under
section 451(c). On December 22, 2017, section 451(c) was amended by
section 13221 of the Tax Cuts and Jobs Act, Public Law 115-97 (131
Stat. 2054) (the Act), to provide that a taxpayer using an accrual
method of accounting (accrual method taxpayer) with an applicable
financial statement (AFS) may use the deferral method of accounting
provided in section 451(c) for advance payments. These proposed
regulations also provide a deferral method of accounting for taxpayers
that do not have an AFS. Unless otherwise indicated, all references to
section 451(c) in this preamble are to section 451(c), as amended by
the Act.
In general, section 451 provides that the amount of any item of
gross income is included in gross income for the taxable year in which
it is received by the taxpayer, unless, under the method of accounting
used in computing taxable income, the amount is to be properly
accounted for as of a different period. Under Sec. 1.451-1, accrual
method taxpayers generally include items of income in gross income in
the taxable year when all the events occur that fix the right to
receive the income and the amount of the income can be determined with
reasonable accuracy (the all events test). All the events that fix the
right to receive income occur when (1) the required performance takes
place, (2) payment is due, or (3) payment is made, whichever happens
first. See Revenue Ruling 2003-10 (2003-1 CB 288); Revenue Ruling 84-31
(1984-1 CB 127); Revenue Ruling 80-308 (1980-2 CB 162). Section 451(c)
requires an accrual method taxpayer who receives an advance payment to
include the amount thereof in income in the taxable year of receipt.
Section 451(c) also generally codifies the current deferral method of
accounting for certain advance payments for goods, services, and other
specified items provided by the IRS under Revenue Procedure 2004-34
(2004-22 IRB 991) by allowing accrual method taxpayers to elect to
defer the inclusion of income associated with certain advance payments
to the taxable year following the taxable year of receipt if such
income also is deferred for AFS purposes.
On April 12, 2018, the Treasury Department and the IRS issued
Notice 2018-35 (2018-18 IRB 520) requesting, in part, comments on
future guidance under section 451(c). The record of public comments
received in response to Notice 2018-35 may be requested by sending an
email to [email protected]. This document provides
guidance on the application of section 451(c), taking into account
comments that were received regarding section 451(c). The application
of section 451(c) is addressed in separate guidance published in the
same issue of the Federal Register as these proposed regulations.
Explanation of Provisions
These proposed regulations describe and clarify the statutory
requirements of section 451(c) by providing new Sec. 1.451-8.
1. Deferral Methods Under Sec. 1.451-8
A. AFS Deferral Method
Consistent with section 451(c)(1)(A), these proposed regulations
provide that an accrual method taxpayer with an AFS includes an advance
payment in gross income in the taxable year of receipt unless the
taxpayer uses the deferral method in section 451(c)(1)(B) and proposed
Sec. 1.451-8(c) (AFS deferral method). A taxpayer using the AFS
deferral method must have an AFS, as described in section
451(b)(1)(A)(i) or (ii). These proposed regulations define the term AFS
by reference to the definition of that term in proposed Sec. 1.451-
3(c)(1) (REG-104870-18). Under the AFS deferral method, a taxpayer with
an AFS that receives an advance payment must include: (i) The advance
payment in income in the taxable year of receipt, to the extent that it
is included in revenue in its AFS, and (ii) the remaining amount of the
advance payment in income in the next taxable year. The AFS deferral
method provided in these proposed regulations closely follows the
deferral method of Revenue Procedure 2004-34, as modified by Revenue
Procedure 2011-14 (2011-4 IRB 330), and as modified and clarified by
Revenue Procedure 2011-18 (2011-5 IRB 443), and Revenue Procedure 2013-
29 (2013-33 IRB 141) (Revenue Procedure deferral method). Because new
section 451(c)(1)(B) was intended to generally codify the Revenue
Procedure deferral method, the Treasury Department and the IRS believe
that rules similar to the Revenue Procedure deferral method are
necessary and appropriate for the proper application of section 451(c).
See H.R. Rep. No. 115-466, at 429 (2017) (Conf. Rep.).
B. Non-AFS Deferral Method
Section 451(c)(4)(A) generally defines an advance payment as any
payment the full inclusion of which in gross income of the taxpayer for
the year of receipt is a permissible method of accounting, any portion
of which is included in revenue by the taxpayer in an AFS, and which is
for goods, services, or other items identified by the Secretary. One
commenter noted that the financial statement requirement within the
definition of an advance payment means that the rule in Revenue
Procedure 2004-34 that depended on determining when the advance payment
was earned was not within the statutory text of section 451(c). The
Treasury Department and the IRS have concluded that section 451(c) does
not prohibit a deferral method that is otherwise permissible under
Revenue Procedure 2004-34. See H.R. Rep. No. 115-466, at 429 (2017)
(Conf. Rep.). See also, Joint Committee on Taxation, General
Explanation of Public Law 115-97 (JCS-1-18) at 170-171 (Dec. 20, 2018).
Revenue Procedure 2004-34 permitted non-AFS taxpayers to use the
Revenue Procedure deferral method based on when the income is earned
(earned standard). See section 5.02(3)(b) of Revenue Procedure 2004-34.
The Revenue Procedure deferral method using the earned standard is a
permissible method of accounting for non-AFS taxpayers and, therefore,
these proposed regulations also provide a similar deferral method for
non-AFS taxpayers in proposed Sec. 1.451-8(d) (non-AFS deferral
method). Under the non-AFS deferral method, an accrual method taxpayer
without an AFS that receives an advance payment must include: (i) The
advance payment in income in the taxable year of receipt, to the extent
that it is earned, and (ii) the remaining amount of the advance payment
in income in the next taxable year.
2. Definition of Advance Payment
A. In General
Section 451(c)(4)(A) generally defines advance payment as any
payment (i) the full inclusion of which in gross income of the taxpayer
for the taxable year of receipt is a permissible method of accounting,
(ii) any portion of which is included in revenue by the taxpayer in an
AFS (or such other financial statement as the Secretary may specify)
[[Page 47177]]
for a subsequent taxable year, and (iii) which is for goods, services,
or such other items as may be identified by the Secretary.
Proposed Sec. 1.451-8(b)(1)(i) clarifies that the definition of
advance payment under the AFS and non-AFS deferral methods is
consistent with the definition of advance payment in Revenue Procedure
2004-34, which section 451(c) was meant to codify. See H.R. Rep. No.
115-466, at 429 (2017) (Conf. Rep.). The Treasury Department and the
IRS believe this definition of advance payment: (1) Is consistent with
section 451(c), (2) minimizes additional tax compliance burden and
cost, (3) provides clarity to taxpayers, and (4) uses rules which are
familiar to both taxpayers and the IRS.
Two commenters suggested that airline miles be explicitly included
in the list of items for which an advance payment may be received. The
commenters suggested that airline miles are a unique type of item,
generally redeemed for air travel and non-travel rewards. The Treasury
Department and the IRS decline to specifically include airline miles in
the definition of advance payment because the use of the deferral
method under these proposed regulations, to the extent airline miles
are redeemable for goods or services, is already permissible.
Therefore, these proposed regulations include examples to illustrate
that, to the extent certain reward points are treated as separate
performance obligations, they may be eligible for the deferral methods
provided under these proposed regulations.
Another commenter suggested that progress payments with respect to
the sale of an interest in real property should be included in the
definition of an advance payment. Revenue Procedure 2004-34 was
intended to provide a simplified and consistent deferral period for the
sale of goods, services, and other items. However, the definition of
advance payment in Revenue Procedure 2004-34 does not include
prepayments for interests in real property. These proposed regulations
generally provide the same types of items in the definition of advance
payment to those items provided in Revenue Procedure 2004-34. However,
the Treasury Department and IRS will consider any comments received in
determining whether it is appropriate to include additional types of
items in the definition of advance payment.
B. Items Excluded From the Definition of an Advance Payment
Section 451(c)(4)(B) provides that certain items, except as
otherwise provided by the Secretary, are to be excluded from the
definition of an advance payment. Pursuant to section 451(c)(4)(B), the
term advance payment does not include rent; insurance premiums governed
by subchapter L; payments with respect to financial instruments;
payments with respect to certain warranty or guaranty contracts;
payments subject to section 871(a), 881, 1441, or 1442; payments in
property to which section 83 applies; and other payments identified by
the Secretary.
Several commenters requested that certain payments for certain
types of goods be excluded from the definition of an advance payment
under section 451(c)(4)(B). A commenter requested that certain pre-
delivery payments for the sale of high-value customer-configured
equipment that will be delivered to customers at reasonably certain
times not be included in the definition of advance payment. Another
commenter requested that an exclusion be provided for goods for which
(i) a taxpayer receives a payment in a taxable year with respect to a
contract for the sale of goods not properly includible in such
taxpayer's finished goods inventory, and (ii) on the last day of such
taxable year the taxpayer does not have on hand (or available to it in
such year through its normal source of supply) goods of a substantially
similar kind and in a sufficient quantity to satisfy the contract
during such contract year. This commenter suggested a narrowing of this
exclusion could be done according to whether a good is commercially
significant or of high-value. A commercially significant good has a
useful life equal to or in excess of 10 years and it is developed,
marketed, and sold to customers in the aerospace industry. Generally
these goods require a significant amount of capital to produce and may
require considerable time from development to delivery. Generally, for
financial statement purposes, such manufacturers recognize revenue
related to these goods when the product is completed and delivered to
the customer and title and risk of loss have transferred to the
customer.
Proposed Sec. 1.451-8(b)(1)(ii) provides a list of items excluded
from the definition of advance payment that is similar to Revenue
Procedure 2004-34. An additional exclusion is provided for payments
received in a taxable year earlier than the taxable year immediately
preceding the taxable year of the contractual delivery date for a
specified good, as defined in Sec. 1.451-8(b)(9). In response to the
comments received, the Treasury Department and IRS have determined that
an exclusion is appropriate for certain goods for which a taxpayer
requires a customer to make an upfront payment under the contract if
(i) the contracted delivery month and year of the good occurs at least
two taxable years after an upfront payment, (ii) the taxpayer does not
have the good or a substantially similar good on hand at the end of the
year the upfront payment is received, and (iii) the taxpayer recognizes
all of the revenue from the sale of the good in its AFS in the year of
delivery.
The Treasury Department and the IRS have employed the authority
granted to the Secretary in section 451(c)(4)(B)(vii) to exclude
certain payments, in a limited manner, that would otherwise constitute
advance payments within the meaning of section 451(c)(4)(A), in
response to the proposals described in comments already received. In
order to fully consider other such potential exclusions, detailed
comments that specifically address the following issues are requested:
1. Does the authority granted to the Secretary by section
451(c)(4)(B)(vii) to exclude certain payments from the definition of an
advance payment under section 451(c) also permit an exception for those
payments from the rules regarding the all events test under section
451(b)?
2. What significance, if any, should the time it takes to
manufacture or create an item of property, or such item of property's
useful life, be given in determining whether a pre-delivery payment for
such item of property should be included in income as an advance
payment?
3. Does the authority granted to the Secretary by section
451(c)(4)(B)(vii) authorize rules that change the timing of deductions
or provide a safe harbor allowing specified categories of taxpayers to
use methods of accounting for recognizing income other than an accrual
method under section 451? Is there any particular authority under the
Code that would allow changing the timing of deductions in this context
under section 451 or another section of Subchapter E?
4. Does the authority granted to the Secretary by section
451(c)(4)(B)(vii) to exclude certain payments from the definition of an
advance payment also authorize the imposition of conditions unrelated
to an accrual method of accounting with respect to any such exclusions?
For example, could the Secretary require that a taxpayer use an
alternative method of accounting as a condition for excluding a type of
payment from the definition of advance payment?
5. Does the authority granted to the Secretary by section
451(c)(4)(B)(vii) to
[[Page 47178]]
exclude certain payments from the definition of advance payment also
authorize the imposition of a time limit on such exclusion? For
example, could an exclusion under section 451(c)(4)(B)(vii) be limited
to a specified number of years after which all remaining amounts would
have to be recognized in income? If so, what would be an appropriate
time limit?
6. Does the authority granted to the Secretary by section
451(c)(4)(B)(vii) allow deferral of income in an amount equal to the
estimated future performance costs while requiring current recognition
of estimated profits not in excess of the amounts of advance payments?
If so, does the authority granted to the Secretary by section
451(c)(4)(B)(vii) permit rules to account for the time value of money
for any variances in estimated costs or profits?
7. Would it be inappropriate to reduce the amount a C corporation
would be permitted to defer for a given taxable year under a potential
exclusion under section 451(c)(4)(B)(vii) by an amount equal to the
excess of (i) distributions the C corporation made to its shareholders
with respect to its stock, over (ii) the C corporation's taxable income
for that taxable year?.
3. Advance Payment Acceleration Provisions
Section 451(c)(3) provides that the deferral method does not apply
to an advance payment received by the taxpayer during a taxable year if
such taxpayer ceases to exist during (or with the close of) the taxable
year. In contrast, Revenue Procedure 2004-34 provides more detailed
acceleration rules.
The Treasury Department and the IRS have determined that rules
similar to the acceleration rules provided in Revenue Procedure 2004-34
are appropriate for the proper application of the AFS and non-AFS
deferral methods. The continued use of the deferral method for an
advance payment is not appropriate and should be limited in certain
situations, such as when the taxpayer ceases to exist, or when their
obligation regarding the advance payment is satisfied or otherwise
ends. Accordingly, proposed Sec. 1.451-8(c)(2) and (d)(6) provide
rules to ensure the acceleration of an advance payment when a taxpayer
either dies or ceases to exist, or when a taxpayer's obligation
regarding an advance payment is satisfied or otherwise ends, except in
certain circumstances. Consistent with Revenue Procedure 2004-34, the
acceleration rules do not apply to a taxpayer that engages in a
transaction to which section 381 applies or certain transactions in
which section 351 applies in the taxable year in which an advance
payment is received.
Section 451(c) does not specifically address whether the deferral
method may be used when an amount is earned in the taxable year, but
deferred for AFS purposes. The deferral method under section 451(c) is
an exception to the requirement to include an amount in income when it
is received but is not an exception to the requirement to include an
amount in income when it is earned under the all events test.
Accordingly, consistent with Revenue Procedure 2004-34, these proposed
regulations permit deferral of advance payments received to the extent,
in the year of receipt, the amount is not included in revenue in the
taxpayer's AFS, and is not otherwise earned in the taxable year of
receipt. The amounts not included in gross income in the year of
receipt must be included in gross income in the next taxable year.
4. Advance Payments and Financial Statement Adjustments
Section 451(c) does not address the treatment of financial
statement adjustments that cause amounts to not be included in income.
Proposed Sec. 1.451-8(c)(3) and (d)(7) provide that a taxpayer
that defers inclusion of all or a portion of an advance payment must
include the remainder of the advance payment in gross income in the
subsequent year, notwithstanding any write-down or adjustment for
financial accounting purposes. This provision is consistent with a
plain reading of section 451(c)(1)(B) and the rule in proposed Sec.
1.451-3(j), which require that an item of income treated as deferred
revenue in a taxpayer's AFS in one year and charged, in whole or part,
to a capital account in a subsequent year, is included in revenue in
the subsequent year.
A financial accounting adjustment may occur after certain equity
acquisitions. For example, after certain equity acquisitions, the
acquiring entity may write-down or adjust the target's deferred revenue
in the subsequent year under purchase accounting rules. Some taxpayers
have asserted that a write-down or adjustment for financial accounting
purposes results in a permanent exclusion of income for federal income
tax purposes. Proposed Sec. 1.451-8(c)(3) and (d)(7) provide
clarification for instances in which a taxpayer defers inclusion of an
advance payment and is subsequently acquired in certain equity
acquisitions. The Treasury Department and the IRS believe that
financial statement write-downs or adjustments to deferred revenue
should not be taken into account for federal income tax purposes when
determining the proper amount to be included in income under the
deferral method. This clarification ensures that a financial statement
write-down or adjustment to deferred revenue does not result in a
permanent exclusion of income for federal income tax purposes.
5. Short Taxable Years and the 92-Day Rule
Section 451(c) does not provide rules relating to the treatment of
short taxable years. Proposed Sec. 1.451-8(c)(4) and (d)(8) use the
short taxable year rules of Revenue Procedure 2004-34 for the AFS and
non-AFS deferral methods because a rule for short taxable years is
necessary to properly implement the deferral method provided in section
451(c)(1)(B).
6. Performance Obligations for AFS and Non-AFS Taxpayers
Sections 451(b) and (c)(4)(D) require that taxpayers with contracts
that contain multiple performance obligations must allocate transaction
price, and therefore defer (or accelerate) income inclusion, consistent
with the transaction price allocation used for AFS purposes. Proposed
Sec. 1.451-3(c)(3) (REG-104870-18) defines the term performance
obligation to mean a promise in a contract with a customer to transfer
to the customer either a good or service (or a bundle of goods or
services) that is distinct, or a series of distinct goods or services
that are substantially the same and that have the same pattern of
transfer to the customer. Proposed Sec. 1.451-8(b)(4) defines the term
performance obligation by cross-reference to proposed Sec. 1.451-
3(c)(3) for purposes of the allocation rule provided in section
451(c)(4)(D).
Proposed Sec. 1.451-8(b)(7) defines the term transaction price by
cross-reference to proposed Sec. 1.451-3(c)(6). Proposed Sec. 1.451-
3(c)(6) defines the term transaction price to mean the gross amount of
consideration to which a taxpayer expects to be entitled for AFS
purposes in exchange for transferring promised goods, services, or
other property, including amounts referred to in proposed Sec. 1.451-
3(i). However, the term transaction price does not include certain
items, such as amounts collected on behalf of third parties that are
not otherwise income to the taxpayer, increases for consideration to
which a taxpayer's entitlement is contingent on the occurrence or
nonoccurrence of a future event, and reductions for amounts subject to
section 461.
[[Page 47179]]
Proposed Sec. 1.451-3(c)(6)(ii) presumes that an amount included in
the transaction price for AFS purposes is not contingent unless, upon
examination of all of the facts and circumstances existing at the end
of the taxable year, it can be established to the satisfaction of the
Commissioner that the amount is contingent on the occurrence or
nonoccurrence of a future event. Proposed Sec. 1.451-3(c)(6)(ii) also
provides that certain amounts included in transaction price for AFS
purposes, however, will not be treated as contingent on the occurrence
or nonoccurrence of a future event.
Comments are requested on allocation of the transaction price (i)
to performance obligations that are not contractually based, (ii) for
arrangements that include both income subject to section 451 and long-
term contracts subject to section 460, and (iii) when the income
realization event for federal income tax purposes differs from the
income realization event for AFS purposes.
For non-AFS taxpayers, there is a continued need to provide an
allocation method consistent with the objective criteria standard in
Revenue Procedure 2004-34 because such taxpayers do not have an AFS and
cannot use the transaction price allocation used for AFS purposes, as
provided in section 451(b)(4). Therefore, proposed Sec. 1.451-8(d)(5)
permits a non-AFS taxpayer to allocate the revenue of multiple
obligations in a single contract based on how such obligations are
separately priced or on any method that may be provided in guidance
published in the IRB.
7. Accelerated Cost Offset
Several commenters discussed the need for a regulatory exception to
the existing statutory and regulatory timing rules that apply to
liabilities (for example, deductions and offsets for rebates, refunds,
and cost of goods sold (COGS) prior to when the liability for such
items is incurred under section 461) when advance payments are required
to be included in income under section 451(c) prior to the completion
of the sale of goods or provision of services (accelerated cost
offset). The commenters argued that not providing an accelerated cost
offset in the regulations would cause a mismatch of income and expenses
and result in the taxation of gross receipts.
An allowance to account for future cost of goods sold, for future
estimated costs, or other cost offset is inconsistent with sections
461(h) and, 471, 263A, and the accompanying regulations. Moreover,
section 13221 does not change the timing rules provided in sections
461, 471, 263A and elsewhere that apply to liabilities. Section 13221
changes the timing of income for advance payments for goods and
generally codifies Revenue Procedure 2004-34. See H.R. Rep. No. 115-
466, at 429 (2017) (Conf. Rep.). Revenue Procedure 2004-34 does not
include an accelerated cost offset when amounts are included in income
prior to the sale of goods or provision of services.
The Conference Report also indicates that section 13221 of the Act
is ``intended to override any deferral method provided by Treasury
Regulation Sec. 1.451-5 for advance payments received for goods.''
H.R. Rep. No. 115-466, at 429 n 880 (2017) (Conf. Rep.). Section 1.451-
5 includes a deferral method that allows an accelerated cost offset
when certain amounts are included in income prior to the sale of goods.
See Sec. 1.451-5(c). Section 451(c) does not provide a cost offset,
and the Conference Report does not provide any indication that Congress
intended to preserve the cost offset rules permitted under Sec. 1.451-
5. See also, Joint Committee on Taxation, General Explanation of Public
Law 115-97 (JCS-1-18) at 156-157 and 164-165 (December 20, 2018). Final
regulations were published in the Federal Register (84 FR 33691) on
July 15, 2019, that withdraw Sec. 1.451-5, consistent with the Act.
The Treasury Department and the IRS believe that Congress
intentionally simplified the rules for advance payments by limiting the
deferral of advance payments for taxpayers with an AFS to a prescribed
statutory method that: (1) Does not include an accelerated cost offset,
(2) is consistent with Revenue Procedure 2004-34, and (3) overrides
Sec. 1.451-5. See H.R. Rep. No. 115-466, at 429 (2017) (Conf. Rep.).
Accordingly, the Treasury Department and the IRS decline to provide an
accelerated cost offset in these proposed regulations. The Treasury
Department and the IRS do not agree with the contention that changes to
the timing of income under section 451 without an accelerated cost
offset cause a taxation of gross receipts. Section 451(c) and these
proposed regulations merely change the timing of income recognition, do
not preclude any associated reduction or deduction for properly
incurred liabilities, and are consistent with existing statutory and
regulatory timing requirements that apply to liabilities.
Several commenters proposed a cost offset mechanism for
manufacturers of certain property and taxpayers with inventoriable
goods in order to ensure matching of income and the associated
expenses. Commenters made the following suggestions to alleviate the
potential mismatch of the acceleration of income recognition with
different timing rules for associated costs: (i) Permitting a taxpayer
that uses a percentage of completion method for AFS purposes (book
PCM), but not subject to section 460, to elect to use their AFS method
for tax purposes; (ii) permitting a taxpayer that uses book PCM, but
not subject to section 460, to elect to apply section 460 for federal
income tax purposes; (iii) expanding the recurring item exception in
section 461(h)(3) to permit a taxpayer to offset the portion of the
advance payment included in income for the taxable year by the cost of
goods sold related to this payment if the goods are completed and
shipped to the customer within 8\1/2\ months of the end of the taxable
year that the advance payment is included in income; or (iv) providing
a cost offset for taxpayers that can demonstrate at the time of the
purchase agreement that a net operating loss will remain unused for the
5-year period after the taxable year the advance payment is received.
The Treasury Department and the IRS continue to consider whether
any such exceptions are an appropriate use of the Secretary's authority
under section 461(h) or 460. To facilitate further consideration of
such potential exceptions, detailed comments that specifically address
the following issues are requested:
1. Under what authority would it be appropriate for the Secretary
to permit a taxpayer to use book PCM as its tax method? When inventory
is involved, what limitations could be instituted to ensure that book
PCM could not be used to recover costs related to inventoriable goods
prior to the time when such costs could be recovered under sections 471
and 263A? Under what specific authority would it be appropriate to
permit a book PCM method to be used to recover costs related to
inventoriable goods?
2. Would elective use of book PCM for tax purposes provide an
appropriate cost offset? Would such a method be characterized as one
that reports contract revenue according to a taxpayer's book method,
while accounting for costs, including nondeductible costs, as
deductions under the Code? If not, how would such a method account for
costs for federal income tax purposes?
3. Rather than make book PCM elective, would it be appropriate for
the definition of ``unique item'' for purposes of section 460 to be
expanded?
[[Page 47180]]
4. Section 460 requires use of the look-back method to compensate
for improper acceleration or deferral of income under PCM. It also
requires that all contract income be reported no later than the year
following contract completion. Would elective use of a PCM under
section 460 without these provisions invite abuse? If so, how could
such abuse be prevented?
8. Section 451(c) Is a Method of Accounting
Section 451(c)(2) provides that a taxpayer may elect deferral
treatment of an advance payment governed by section 451(c), and such
election shall be made at such time and manner and with respect to such
categories of advance payments as specified by the Secretary. Section
451(c)(2)(B) provides that the deferral method is treated as a method
of accounting and the election is effective for taxable years with
respect to which it is first made and for all subsequent taxable years,
unless the taxpayer secures the consent of the Secretary to change to a
different method of accounting.
The use of the AFS or non-AFS deferral method is the adoption of,
or a change in, a method of accounting under section 446. A taxpayer
may change its method of accounting to use the deferral methods only
with the consent of the Commissioner as required under section 446(e)
and the corresponding regulations. The Treasury Department and the IRS
intend to issue future guidance that will provide the procedures by
which a taxpayer may change its method of accounting to use one of the
deferral methods described in these proposed regulations. However,
until further guidance for the treatment of advance payments is
applicable, a taxpayer may continue to rely on Revenue Procedure 2004-
34, as described in Notice 2018-35.
Proposed Applicability Date
Section 7805(b)(1)(A) and (B) of the Code generally provides that
no temporary, proposed, or final regulation relating to the internal
revenue laws may apply to any taxable period ending before the earliest
of (A) the date on which such regulation is filed with the Federal
Register, or (B) in the case of a final regulation, the date on which a
proposed or temporary regulation to which the final regulation relates
was filed with the Federal Register.
These regulations are proposed to apply to taxable years beginning
on or after the date the final regulations are published in the Federal
Register. Until the date the Treasury decision adopting these
regulations as final regulations is published in the Federal Register,
a taxpayer may rely on these proposed regulations for taxable years
beginning after December 31, 2017, provided that the taxpayer: (1)
Applies all the applicable rules contained in these proposed
regulations, and (2) consistently applies these proposed regulations to
all advance payments. See section 7805(b)(7).
Statement of Availability of IRS Documents
The IRS notice, revenue ruling, and revenue procedures cited in
this preamble are published in the Internal Revenue Bulletin (or
Cumulative Bulletin) and are available from the Superintendent of
Documents, U.S. Government Publishing Office, Washington, DC 20402, or
by visiting the IRS website at https://www.irs.gov.
Special Analysis
l. Regulatory Planning and Review
Executive Orders 13771, 13563, and 12866 direct agencies to assess
costs and benefits of available regulatory alternatives and, if
regulation is necessary, to select regulatory approaches that maximize
net benefits, including potential economic, environmental, public
health and safety effects, distributive impacts, and equity. Executive
Order 13563 emphasizes the importance of quantifying both costs and
benefits, reducing costs, harmonizing rules, and promoting flexibility.
The Executive Order 13771 designation for any final rule resulting from
these proposed regulations will be informed by comments received. The
preliminary Executive Order 13771 designation for this proposed rule is
regulatory.
The proposed regulations have been designated by the Office of
Information and Regulatory Affairs (OIRA) as subject to review under
Executive Order 12866 pursuant to the Memorandum of Agreement (MOA,
April 11, 2018) between the Treasury Department and the Office of
Management and Budget regarding review of tax regulations. The Office
of Information and Regulatory Affairs has designated these proposed
regulations as significant under section 1(b) of the MOA. Accordingly,
OMB has reviewed these proposed regulations.
1. Background
Under section 451(a) of the Internal Revenue Code, income is
``recognized'' (that is, included in gross income for tax purposes) in
the year in which it is received by the taxpayer, unless it is properly
accounted for in a different period under the taxpayer's method of
accounting. Because of this latter condition, the tax treatment of
certain forms of income depends on the method of accounting a taxpayer
is using. For taxpayers using the accrual method of accounting, income
is generally recognized in the year in which all events have occurred
that fix the right to receive that income and when the amount of income
can be determined with reasonable accuracy (the ``all events test'').
Receipt of payment by the business satisfies the all events test.
However, recognition of certain payments for goods or services not yet
provided may be deferred to the year following receipt of payment, to
the extent that recognition is also deferred for on the taxpayer's
Applicable Financial Statement (AFS). Such payments are referred to as
``advance payments.''
Prior to the December 22, 2017, enactment of, ``An Act to provide
for reconciliation pursuant to titles II and V of the concurrent
resolution on the budget for fiscal year 2018,'' Public Law 115-97, 131
Stat. 2054 (2017), commonly referred to as the Tax Cuts and Jobs Act
(TCJA), taxpayers were generally permitted to defer the tax on these
advance payments; in other words, advance payments could be recognized
in a later taxable year. Section 451(c), added by the TCJA, allows
accrual-method taxpayers to elect to recognize as income only a portion
of such an advance payment in the taxable year in which it is received,
and then recognize the remainder in the following taxable year. Section
451(c) essentially codifies the deferral method of accounting for
advance payments that was permitted in Revenue Procedure 2004-34.
(Joint Committee on Taxation, General Explanation of Public Law 115-97,
(Washington, U.S. Government Publishing Office, December 2018), at
167.) New section 451(c), the subject of the proposed regulations,
deals with issues around how these advance payments are defined and the
timing in which they need to be recognized in the business's income
tax.
2. Need for the Proposed Regulations
These proposed regulations provide certainty and clarity to
taxpayers affected by statutory changes introduced in section 451(c).
The Treasury Department and IRS have received questions and comments
regarding the meaning of various provisions in section 451(c) and
issues not explicitly addressed in the statute. The Treasury Department
and the IRS have determined that such comments warrant the issuance of
further guidance.
[[Page 47181]]
3. Overview of the Proposed Regulations
The proposed regulations provide guidance regarding the new section
451(c). The subsequent economic analysis covers proposed regulations
to: (1) Describe and clarify the deferral rules for advance payments
for taxpayers without an Applicable Financial Statement (AFS); (2)
provide acceleration rules for taxpayers that cease to exist; (3)
clarify the treatment of financial statement adjustments for taxpayers
that have deferred advance payments; (4) provide rules relating to the
treatment of short taxable years for taxpayers deferring advance
payments; and (5) define and clarify the treatment of performance
obligations.
4. Economic Analysis
A. Baseline
The Treasury Department and the IRS have assessed the benefits and
costs of the proposed regulations relative to a no-action baseline
reflecting anticipated Federal income tax-related behavior in the
absence of these proposed regulations. The following largely
qualitative analysis describes the anticipated economic effects of the
proposed regulation relative to this baseline.
B. Summary of Economic Effects
The proposed regulations provide certainty and consistency in the
application of section 451(c) by providing definitions and
clarifications regarding the statute's terms and rules. An economically
efficient tax system generally aims to treat income and expense derived
from similar economic decisions consistently across taxpayers and
across activities in order to reduce incentives for businesses to make
choices based on tax rather than market incentives. In the absence of
the guidance provided in these proposed regulations, the chances that
different taxpayers might interpret the statute differently is
exacerbated. For example, two similarly situated taxpayers might
interpret the statutory provisions pertaining to the definition of
advanced payments differently, with one taxpayer pursuing a project
that another comparable taxpayer might decline because of a different
interpretation of how the income may be treated under section 451(c).
If this second taxpayer's activity is more profitable, an economic loss
arises. An economic loss might also arise if all taxpayers have
identical interpretations under the baseline of the tax treatment of
particular income streams but are more conservative (or less
conservative) regarding the interpretation than Congress intended for
these income streams. In this case, guidance provides value by bringing
economic decisions closer in line with the intents and purposes of the
statute.
Because the proposed regulations clarify the tax treatment of
certain income streams, there is the possibility that investments or
other business decisions may change as a result of these regulations.
The Treasury Department and the IRS have not made projections of the
change in investment patterns that might arise due to the discretionary
aspects of the proposed regulations. The Treasury Department and the
IRS have also not made projections of any change in compliance costs
arising from the proposed regulations, relative to the baseline. The
Treasury Department project that changes in investment patterns and
compliance costs relative to the baseline may generally be small
because the proposed regulations affect a relatively small number of
entities and because they largely mirror the rules of Rev. Proc. 2004-
34.
The economic consequences of these proposed regulations depend in
part on their interaction with other sections of the Code, including
section 460, which governs when costs can be recovered under the
percentage of completion method, and section 461(h), which governs when
costs incurred by a taxpayer satisfy the all events test, including a
requirement for economic performance, and are thereby allowed as
deductions for Federal income tax purposes. The economic analysis of
the final regulations under section 451(c) may address the economic
effects of regulatory guidance, if any, under sections 460 and 461(h)
or other sections of the Code that interact with section 451(c), that
is issued between the proposed and final regulations.
The Treasury Department and the IRS project that approximately
15,000 business entities may be affected by these regulations.
The Treasury Department and the IRS solicit comments on this
conclusion and particularly solicit comments that provide data,
evidence, or models that would enhance the rigor by which the non-
revenue economic effects might be estimated for the final regulations.
C. Economic Analysis of Specific Provisions
The Treasury Department and the IRS solicit comments on the
economics of each of the items discussed subsequently and of any other
items of the proposed regulations not discussed in this section. The
Treasury Department and the IRS particularly solicit comments that
provide data, other evidence, or models that could enhance the rigor of
the process by which provisions might be developed for the final
regulations.
i. Deferral Methods Under Section 451(c)
The statute prescribes a particular deferral method for accrual-
method taxpayers that have an AFS (AFS taxpayers) but does not
explicitly describe a deferral method to be used by taxpayers that do
not have an AFS (non-AFS taxpayers). To remedy this gap, the proposed
regulations describe and clarify that a method similar to the deferral
method available to non-AFS taxpayers under Revenue Procedure 2004-34
will be available to non-AFS taxpayers.
The Treasury Department and the IRS considered and rejected a
narrow interpretation of section 451(c) that would have precluded non-
AFS taxpayers from using a deferral method similar to that provided in
Revenue Procedure 2004-34. Section 451(c) does not explicitly prohibit
the use of such a method by non-AFS taxpayers, and the Treasury
Department and IRS continue to have authority under the Code to
prescribe a deferral method for such taxpayers. Precluding non-AFS
taxpayers from using a deferral method similar to that of AFS taxpayers
would treat AFS and non-AFS taxpayers quite differently regarding
business decisions they might make that are otherwise similar. Such
treatment would result in a less economically efficient tax system,
which generally treats similar economic decisions similarly.
The Treasury Department and the IRS solicit comments on this
decision on the treatment of deferral by non-AFS taxpayers and
particularly solicit comments that provide data, other evidence, or
models that could enhance the rigor by which the final regulations over
non-AFS deferral might be developed.
ii. Advance Payment Acceleration Provisions
If a taxpayer ceases to exist by the close of a taxable year in
which an advance payment has been received and deferred, then issues
may arise as to when or whether the remaining amount of the payment
will be recognized as taxable income because there may not be a
succeeding taxable year in which such income can be recognized.
Under the statute, if the taxpayer dies or ceases to exist by the
close of the taxable year in which the advance payment was received,
any remaining untaxed amounts of advance payments must be included in
income in the year
[[Page 47182]]
they were received. The proposed regulations extend this payment
``acceleration'' rule to situations in which a performance obligation
is satisfied or otherwise ends in the taxable year of receipt or in a
succeeding short taxable year, a treatment that is consistent with a
similar rule in Revenue Procedure 2004-34.
The Treasury Department and the IRS considered not modifying or
expanding the acceleration rule contained in section 451(c), but
rejected this alternative because of the remaining amount may never be
picked up into income risking a permanent exclusion of the amount from
taxable income. The possibility of a permanent exclusion of income
provides incentives for taxpayers to structure payments in ways that
avoid tax liability, thus reducing Federal tax revenue without
providing an accompanying general economic benefit. The proposed
regulations treat the expanded set of accelerated transactions
consistently with similar types of transactions based on the timing and
structure of the payments involved.
The Treasury Department and the IRS solicit comments on the
proposed regulation's treatment of acceleration and particularly
solicit comments that provide data, other evidence, or models that
would enhance the rigor by which the treatment of acceleration might be
developed for the final regulations.
iii. Advance Payments and Financial Statement Adjustments
Under the statute, if a taxpayer counts an advance payment as an
item of deferred revenue, under certain conditions (for example,
certain acquisitions of one corporation by another), the taxpayer may
be required by its system of accounting to adjust that item on the
balance sheet in a subsequent year. The item would then not be included
in current earnings or AFS revenues. In this case, taxpayers might
argue that they can exclude the amount deferred from taxable income
because it is never ``earned'' nor included in revenue under their AFS.
If this argument is upheld, taxpayers could convert an income
``deferral'' amount into an income ``exemption'' amount. To address
this issue and avoid this possibility, the proposed regulations specify
that such financial statement adjustments are to be treated as
``revenue.''
The Treasury Department and the IRS considered not providing
clarity on the treatment of financial statement write-downs, but
rejected that approach, because it would have risked an inappropriate
permanent exclusion of income. The possibility of a permanent exclusion
of income provides incentives for taxpayers to structure payments in
ways that avoid tax liability, thus reducing Federal tax revenue
without providing an accompanying general economic benefit.
The Treasury Department and the IRS solicit comments on these
proposed regulations and particularly solicits comments that provide
data, other evidence, and models that would enhance the rigor by which
the final regulations dealing with financial statement adjustments
might be developed.
iv. Short Taxable Years and the 92-Day Rule
Section 451(c) does not provide a rule relating to the treatment of
short taxable years. In the absence of such a rule, it will be unclear
to taxpayers how they should implement the deferral method provided in
section 451(c) in the case of a short taxable year. To address this
issue, the proposed regulations provide rules relating to the treatment
of short taxable years for advance payments that are generally
consistent with Revenue Procedure 2004-34. The Treasury Department and
the IRS considered and rejected not providing short taxable year rules
because such a decision would have created significant confusion among
taxpayers, increased administrative costs for the IRS, and increased
compliance costs for taxpayers.
The Treasury Department and the IRS solicit comments on these
proposed regulations and particularly solicit comments that would
provide data, other evidence, and models that would enhance the rigor
by the treatment of short taxable years might be developed for the
final regulations.
v. Performance Obligations for Non-AFS Taxpayers
A performance obligation is a contractual arrangement with a
customer to provide a good, service or a series of goods or services
that are basically the same and have a routine pattern of transfer. The
statute requires that taxpayers with contracts that include multiple
performance obligations to allocate the transaction price to each
performance obligation in the same manner that revenue is allocated in
the taxpayer's AFS. The statute does not, however, specify the
allocation rules to be used by non-AFS taxpayers.
To address this issue, the proposed regulations provide allocation
rules for non-AFS taxpayers consistent with a similar rule in Revenue
Procedure 2004-34. That rule specifies that the transaction price be
allocated in a manner that is based on payments the taxpayer regularly
receives for an item or items it regularly sells or provides
separately. The Treasury Department and the IRS considered not
providing allocation rules for non-AFS taxpayers but rejected such an
approach because it would have treated similarly situated taxpayers
quite differently, and would have led to increased administrative costs
for the IRS and increased compliance costs for taxpayers. While the
allocation rules for AFS taxpayers and non-AFS taxpayers under the
proposed regulations do differ, the chosen solution provides a rule
upon which non-AFS taxpayers can rely, while minimizing the differences
between AFS and non-AFS taxpayers in this regard within the constraints
imposed by the statute.
The Treasury Department and the IRS solicit comments on these
proposed regulations and particularly solicit comments that would
provide data, other evidence, and models that would enhance the rigor
by which final regulations affecting the treatment of performance
obligations taxable for non-AFS taxpayers might be developed for the
final regulations.
II. Paperwork Reduction Act
These proposed regulations do not impose any additional information
collection requirements in the form of reporting, recordkeeping
requirements or third-party disclosure requirements related to tax
compliance. However, because the deferral methods described in proposed
Sec. Sec. 1.451-8(c) and (d) are methods of accounting, a portion of
affected taxpayers would be required to request the consent of the
Commissioner for a change in their method of accounting under section
446(e) and the accompanying regulations. The IRS expects that these
taxpayers will request this consent by filing Form 3115, Application
for Change in Accounting Method (Parts I, II, IV and Schedule B).
Filing of Form 3115 and statements attached thereto (for taxpayers who
are required to do so or who elect to do so as a result of the proposed
regulations) is the sole collection of information requirement imposed
by the statute and the proposed regulations. See subsequent paragraphs
for a description of taxpayers who would be required to change the
method of accounting under the statute and the proposed regulations.
For purposes of the Paperwork Reduction Act, the reporting burden
associated with the collection of
[[Page 47183]]
information with respect to section 451(c) will be reflected in the
Paperwork Reduction Act submissions for IRS Form 3115 (OMB control
numbers 1545-0074 for individual filers, 1545-0123 for business filers,
and 1545-2070 for all other types of filers). The IRS may provide
streamlined method change procedures which could permit the filing of a
statement in lieu of filing a Form 3115, or, in certain cases, no
notification (see, for example, the revenue procedure accompanying
these proposed regulations).
The Treasury Department and the IRS anticipate that these proposed
regulations would require an accrual method taxpayer that receives an
advance payment and chooses to make an election to use the deferral
method described in proposed Sec. 1.451-8(c) or (d) to file a Form
3115 to change the method of accounting to comply with these proposed
regulations. See proposed Sec. 1.451-8(e). The Treasury Department and
IRS estimate that 20,000-40,000 taxpayers will be required to file a
Form 3115 in order to change to the deferral method described in
proposed Sec. 1.451-8(c).\a\ The Treasury Department and the IRS
anticipate a certain number of accrual method taxpayers without an AFS
that receive advance payments may choose to use the non-AFS deferral
method described in proposed Sec. 1.451-8(d). The Treasury Department
and IRS plan to provide streamlined procedures for taxpayers to change
to the methods of accounting described in proposed Sec. 1.451-8(c) and
(d). See the revenue procedure accompanying these proposed regulations.
---------------------------------------------------------------------------
\a\ This estimate is based on data from the Compliance Data
Warehouse of accrual-method taxpayers (includes C corporations, S
corporations, partnerships, and sole proprietorships) with an AFS
that E-filed schedule M-3 during 2012-2016. Schedule M-3 is used to
report a net income (loss) reconciliation but not all taxpayers who
should file an M-3 do so. The rules for filing the M-3 differ based
on taxpayer status. For example, for C corporations, in general only
those with assets of $10 million or more file an M-3 schedule with
their Form 1120.
---------------------------------------------------------------------------
For a taxpayer with an AFS that uses the deferral method in
proposed Sec. 1.451-8(c), a change in the taxpayer's revenue
recognition policies for financial accounting purposes requires the
taxpayer to seek the consent of the Commissioner under section 446(e)
to use the method for federal income tax purposes. See proposed Sec.
1.451-8(e). It is anticipated that the reporting burden associated with
the collection of information for a statement in lieu of the Form 3115
would be reflected in the Paperwork Reduction Act Submission associated
with Revenue Procedure 2018-31, 2018-22 IRB 637 (or successor) (OMB
control number 1545-1551). See the revenue procedure accompanying these
proposed regulations.
In 2018, the IRS released and invited comment on a draft of Form
3115 in order to give members of the public the opportunity to benefit
from certain specific provisions made to the Code. The IRS received no
comments on the forms during the comment period. Consequently, the IRS
made the forms available in January 2019 for use by the public. The IRS
notes that Form 3115 applies to changes of accounting methods generally
and is therefore broader than section 451(c).
The current status of the Paperwork Reduction Act submissions
related to the information collections in the proposed regulations is
provided in the accompanying table. The overall burden estimates
provided for the OMB control numbers below are aggregate amounts that
relate to the entire package of forms associated with the applicable
OMB control number and will in the future include, but not isolate, the
estimated burden of the tax forms that will be created or revised as a
result of the information collections in the proposed regulations.
These numbers are therefore unrelated to the future calculations needed
to assess the burden imposed by the proposed regulations. These burdens
have been reported for other regulations that rely on the same OMB
control numbers to conduct information collections under the Paperwork
Reduction Act, and the Treasury Department and the IRS urge readers to
recognize that these numbers are duplicates and to guard against
overcounting the burden that the regulations that cite these OMB
control numbers impose. No burden estimates specific to the forms
affected by the proposed regulations are currently available. The
Treasury Department and the IRS have not estimated the burden,
including that of any new information collections, related to the
requirements under the proposed regulations. For the OMB control
numbers discussed above, the Treasury Department and the IRS estimate
PRA burdens on a taxpayer-type basis rather than a provision-specific
basis. Those estimates capture both changes made by the Act and those
that arise out of discretionary authority exercised in the proposed
regulations (when final) and other regulations that affect the
compliance burden for that form.
The Treasury Department and the IRS request comments on all aspects
of information collection burdens related to the proposed regulations,
including estimates for how much time it would take to comply with the
paperwork burdens described above for each relevant form and ways for
the IRS to minimize the paperwork burden. In addition, when available,
drafts of IRS forms are posted for comment at https://apps.irs.gov/app/picklist/list/draftTaxForms.htm. IRS forms are available at https://www.irs.gov/forms-instructions. Forms will not be finalized until after
they have been approved by OMB under the PRA.
[[Page 47184]]
[GRAPHIC] [TIFF OMITTED] TP09SE19.001
III. Regulatory Flexibility Act
It is hereby certified that these proposed regulations will not
have a significant economic impact on a substantial number of small
entities within the meaning of section 601(6) of the Regulatory
Flexibility Act (5 U.S.C. chapter 6).
The Treasury Department and the IRS have estimated the number of
business entities that may be affected by the statute and these
proposed regulations. The statute and proposed regulations affect only
those business entities that use an accrual method of accounting.
Regarding the accrual method of accounting, the Treasury Department
and the IRS estimate that approximately 9 percent of business entities
with gross receipts of $25 million or less used an accrual method of
accounting in taxable year 2016. Furthermore, section 13102 of TCJA
modified section 448 to expand the number of taxpayers eligible to use
the cash method. In general, C corporations and partnerships with a C
corporation partner are now permitted to use the cash receipts and
disbursements method of accounting if average annual gross receipts are
$25 million or less (up from $5 million or less in 2016). The Treasury
Department and the IRS project that in future years, the number of
entities with gross receipts not greater than $25 million that will be
using the accrual method will be less than 9 percent of all entities
with gross receipts not greater than $25 million.
[[Page 47185]]
----------------------------------------------------------------------------------------------------------------
Number of returns (taxable year 2016)
(thousands)
-----------------------------------------------
Entity Method of accounting
All returns -------------------------------
Accrual Cash
----------------------------------------------------------------------------------------------------------------
C Corporations:
Gross Receipts >$25 mil..................................... 30 28 2
Gross Receipts [lE]$25 mil.................................. 1,567 700 867
-----------------------------------------------
Total................................................... 1,597 728 869
S Corporations:
Gross Receipts >$25 mil..................................... 41 34 7
Gross Receipts [lE]$25 mil.................................. 4,551 1,140 3,411
-----------------------------------------------
Total................................................... 4,592 1,174 3,418
Partnerships:
Gross Receipts >$25 mil..................................... 20 17 3
Gross Receipts [lE]$25 mil.................................. 3,743 860 2,883
-----------------------------------------------
Total................................................... 3,763 877 2,886
Sole Proprietors and LLCs:
Gross Receipts >$25 mil..................................... 1 1 0
Gross Receipts [lE]$25 mil.................................. 25,524 358 25,166
-----------------------------------------------
Total................................................... 25,525 359 25,166
All Entities:
Gross Receipts >$25 mil..................................... 92 80 12
Gross Receipts [lE]$25 mil.................................. 35,385 3,058 32,327
-----------------------------------------------
Total................................................... 35,477 3,138 32,339
----------------------------------------------------------------------------------------------------------------
Source: Statistics of Income data. Cash accounting includes cash, other, and unknown.
Regarding the applicable financial statement, the Treasury
Department and the IRS estimate that 235,000-250,000 entities with
gross receipts of $25 million or less had an audited income statement
in taxable year 2016. This is an upper bound estimate of entities that
may be affected by these proposed regulations because small entities
are less likely to have a financial statement that falls within the
definition of AFS in proposed Sec. 1.451-3(c)(1) (which generally
refers to certified audited financial statements in accordance with
GAAP or IFRS). An AFS is generally a financial statement that is
certified as being prepared in accordance with GAAP or IFRS that is
issued for credit purposes, reporting to shareholders, or other non-tax
purpose. The smaller the entity, the less likely that it will engage a
CPA firm to audit their financial statements. An AFS does not include
financial statements that have only been compiled or reviewed by a CPA
firm, which are more affordable for small entities, as these types of
statements are not certified as prepared in accordance with GAAP or
IFRS.
Affected taxpayers would be required to file Form 3115. As an
indicator of whether a taxpayer is likely to have to file a Form 3115,
the Treasury Department and the IRS estimated the number of businesses
that used the accrual method of accounting, had a financial statement,
and indicated they had unearned or deferred income. Approximately
15,000 businesses with gross receipts of $25 million or less fit this
category. This is an upper bound estimate of the number of taxpayers
relying of Revenue Procedure 2004-34 that will need to file a Form 3115
since some reporting of unearned or deferred income may just have
deferral for financial reporting and not tax reporting reasons.
These proposed rules will not have a significant economic impact on
small entities affected because the costs to comply with these proposed
regulations are not significant. An entity is required to file a Form
3115 (Parts I, II, IV and Schedule B) to change its method of
accounting in order to use the deferral method described in proposed
Sec. 1.451-8(c) or (d). The Treasury Department and IRS plan to
provide streamlined procedures for taxpayers to change to the methods
of accounting described in proposed Sec. 1.451-8(c)1 and (d). See the
revenue procedure accompanying these proposed regulations. As noted in
this revenue procedure, the estimated cumulative annual reporting and/
or recordkeeping burden for the statutory method changes described
under OMB control number 1545-1551, before publication of the revenue
procedure, is 27,336 respondents, and a total annual reporting and/or
recordkeeping burden of 30,580 hours. The estimated annual burden per
respondent/recordkeeper under OMB control number 1545-1551 before
publication of this revenue procedure varies from \1/6\ hour to 8\1/2\
hours, depending on individual circumstances, with an estimated average
of 1\1/4\ hours. The estimated cumulative annual reporting and/or
recordkeeping burden for the method changes described under OMB control
number 1545-1551 after that revenue procedure is accounted for is
27,346 respondents, and a total annual reporting and/or recordkeeping
burden is 31,479 hours, leaving the average reporting and recordkeeping
burden essentially unchanged. These burdens are essentially unaffected
by these proposed regulations.
Notwithstanding this certification that the proposed rule would not
have a significant economic impact on a substantial number of small
entities, the Treasury Department and the IRS invite comments from the
public about the impact of this proposed rule on small entities.
Pursuant to section 7805(f), these regulations will be submitted to
the Chief Counsel for Advocacy of the Small Business Administration for
comment on their impact on small business.
IV. Unfunded Mandates Reform Act
Section 202 of the Unfunded Mandates Reform Act of 1995 requires
that agencies assess anticipated costs and benefits and take certain
other
[[Page 47186]]
actions before issuing a final rule that includes any Federal mandate
that may result in expenditures in any one year by a state, local, or
tribal government, in the aggregate, or by the private sector, of $100
million in 1995 dollars, updated annually for inflation. In 2018, that
threshold is approximately $150 million. This rule does not include any
Federal mandate that may result in expenditures by state, local, or
tribal governments, or by the private sector in excess of that
threshold.
V. Executive Order 13132: Federalism
Executive Order 13132 (entitled ``Federalism'') prohibits an agency
from publishing any rule that has federalism implications if the rule
either imposes substantial, direct compliance costs on state and local
governments, and is not required by statute, or preempts state law,
unless the agency meets the consultation and funding requirements of
section 6 of the Executive Order. This rule does not have federalism
implications and does not impose substantial direct compliance costs on
state and local governments or preempt state law within the meaning of
the Executive Order.
Comments and Requests for a Public Hearing
Before these proposed regulations are adopted as final regulations,
consideration will be given to any comments that are submitted timely
to the IRS as prescribed in this preamble under the ADDRESSES heading.
The Treasury Department and the IRS request comments on all aspects of
the proposed regulations. All comments will be available at https://www.regulations.gov or upon request. A public hearing will be scheduled
if requested in writing by any person that timely submits written
comments. If a public hearing is scheduled, notice of the date, time,
and place for the public hearing will be published in the Federal
Register.
Effect on Other Documents
When finalized, these proposed regulations will obsolete Revenue
Procedure 2004-34, Revenue Procedure 2011-18, Revenue Procedure 2013-29
and Notice 2018-35.
Drafting Information
The principal author of these proposed regulations is Peter E.
Ford, IRS Office of the Associate Chief Counsel (Income Tax and
Accounting). However, other personnel from the Treasury Department and
the IRS participated in their development.
List of Subjects in 26 CFR Part 1
Income taxes, Reporting and recordkeeping requirements.
Proposed Amendments to the Regulations
Accordingly, 26 CFR part 1 is proposed to be amended as follows:
PART 1--INCOME TAXES
0
Paragraph 1. The authority citation for part 1 continues to read in
part as follows:
Authority: 26 U.S.C. 7805 * * *
Sections 26 U.S.C. 451(c)(2)(A), (3), (4)(A)(iii), (4)(B)(vii);
0
Par. 2. Section 1.451-8 is added to read as follows:
Sec. 1.451-8 Advance payments for goods, services, and certain other
items.
(a) In general. Except as provided in paragraph (c) or (d) of this
section, an accrual method taxpayer shall include an advance payment in
gross income no later than in the taxable year in which the taxpayer
receives the advance payment as provided under Sec. 1.451-1(a).
(b) Definitions. Except as otherwise provided in this section, the
following definitions apply for purposes of this section:
(1) Advance payment--(i) In general. An advance payment is a
payment received by a taxpayer if:
(A) The full inclusion of the payment in the gross income of the
taxpayer for the taxable year of receipt is a permissible method of
accounting, without regard to this section;
(B) Any portion of the payment is included in revenue by the
taxpayer in an applicable financial statement for a subsequent taxable
year;
(C) The payment is for:
(1) Services;
(2) The sale of goods;
(3) The use, including by license or lease, of intellectual
property, including copyrights, patents, trademarks, service marks,
trade names, and similar intangible property rights, such as franchise
rights and arena naming rights;
(4) The occupancy or use of property if the occupancy or use is
ancillary to the provision of services, for example, advance payments
for the use of rooms or other quarters in a hotel, booth space at a
trade show, campsite space at a mobile home park, and recreational or
banquet facilities, or other uses of property, so long as the use is
ancillary to the provision of services to the property user;
(5) The sale, lease, or license of computer software;
(6) Guaranty or warranty contracts ancillary to an item or items
described in paragraph (b)(1)(i)(C)(1), (2), (3), (4), or (5) of this
section;
(7) Subscriptions in tangible or intangible format. Subscriptions
for which an election under section 455 is in effect is not included in
this paragraph (b)(1)(i)(C)(7);
(8) Memberships in an organization. Memberships for which an
election under section 456 is in effect are not included in this
paragraph (b)(1)(i)(C)(8);
(9) An eligible gift card sale;
(10) Any other payment specified by the Secretary in other guidance
published in the Internal Revenue Bulletin (see Sec. 601.601(d)(2));
or
(11) Any combination of items described in paragraphs
(b)(1)(i)(C)(1) through (10) of this section.
(ii) Exclusions from the definition of advance payment. An advance
payment does not include:
(A) Rent, except for amounts paid with respect to an item or items
described in paragraph (b)(1)(i)(C)(3), (4) or (5) of this section;
(B) Insurance premiums, to the extent the inclusion of those
premiums is governed by subchapter L;
(C) Payments with respect to financial instruments (for example,
debt instruments, deposits, letters of credit, notional principal
contracts, options, forward contracts, futures contracts, foreign
currency contracts, credit card agreements (including rewards or
loyalty points under such agreements), financial derivatives, or
similar items), including purported prepayments of interest;
(D) Payments with respect to service warranty contracts for which
the taxpayer uses the accounting method provided in Revenue Procedure
97-38 (1997-2 CB 479);
(E) Payments with respect to warranty and guaranty contracts under
which a third party is the primary obligor;
(F) Payments subject to section 871(a), 881, 1441, or 1442;
(G) Payments in property to which section 83 applies; and
(H) Payments received in a taxable year earlier than the taxable
year immediately preceding the taxable year of the contractual delivery
date for a specified good.
(2) Applicable financial statement. Applicable financial statement
has the same meaning as provided in proposed Sec. 1.451-3(c)(1).
(3) Eligible gift card sale. Eligible gift card sale means the sale
of a gift card or gift certificate if:
(i) The taxpayer is primarily liable to the customer, or holder of
the gift card,
[[Page 47187]]
for the value of the card until redemption or expiration; and
(ii) The gift card is redeemable by the taxpayer or by any other
entity that is legally obligated to the taxpayer to accept the gift
card from a customer as payment for items listed in paragraphs
(b)(1)(i)(C)(1) through (11) of this section.
(4) Performance obligation. Performance obligation has the same
meaning as provided in proposed Sec. 1.451-3(c)(3).
(5) Received. An item of gross income is received by the taxpayer
if it is actually or constructively received, or if it is due and
payable to the taxpayer.
(6) Revenue. Revenue has the same meaning as provided in proposed
Sec. 1.451-3(c)(4) and is determined under the rules provided in
proposed Sec. 1.451-3.
(7) Transaction price. Transaction price has the same meaning as
provided in proposed Sec. 1.451-3(c)(6).
(8) Contractual delivery date. Contractual delivery date means the
month and year of delivery listed in the written contract to the
transaction.
(9) Specified good. A specified good means a good for which:
(i) During the taxable year a payment is received, the taxpayer
does not have on hand (or available to it in such year through its
normal source of supply) goods of a substantially similar kind and in a
sufficient quantity to satisfy the contract to transfer the good to the
customer; and
(ii) All the revenue from the sale of the good is recognized in the
taxpayer's AFS in the year of delivery.
(c) Deferral method for taxpayers with an applicable financial
statement (AFS)--
(1) In general. An accrual method taxpayer with an AFS that
receives an advance payment may elect the deferral method described in
this paragraph (c) if the taxpayer is able to determine the extent to
which advance payments are included in revenue in its AFS in the
taxable year received, including a short taxable year (if applicable).
A taxpayer that uses the deferral method must:
(i) Include the advance payment, or any portion thereof, in gross
income in the taxable year of receipt to the extent included in revenue
in its AFS; and
(ii) Include the remaining portion of such advance payment in gross
income in the taxable year following the taxable year in which such
payment is received.
(2) Acceleration of advance payments--(i) In general. A taxpayer
that uses the deferral method described in this paragraph (c) must
include in gross income for the taxable year of receipt or, if
applicable, for a short taxable year described in paragraph (c)(4) of
this section, all advance payments not previously included in gross
income:
(A) If, in that taxable year, the taxpayer either dies or ceases to
exist in a transaction other than a transaction to which section 381(a)
applies; or
(B) If, and to the extent that, in that taxable year, the
taxpayer's obligation with respect to the advance payments is satisfied
or otherwise ends other than in:
(1) A transaction to which section 381(a) applies; or
(2) A section 351(a) transfer that is part of a section 351
transaction in which:
(i) Substantially all assets of the trade or business (including
advance payments) are transferred;
(ii) The transferee adopts or uses the deferral method in the year
of transfer; and
(iii) The transferee and the transferor are members of the same
consolidated group, as defined in Sec. 1.1502-1(h).
(ii) Example. Ceasing to exist. A is a calendar year taxpayer
and is in the business of selling and licensing computer software
(off the shelf, fully customized, and semi-customized) and providing
customer support. On July 1, 2018, A enters into a 2-year software
maintenance contract and receives an advance payment. Under the
contract, A will provide software updates if it develops an update
within the contract period, as well as online and telephone customer
support. A ceases to exist on December 1, 2018, in a transaction
that does not involve a section 351(a) transfer described in
paragraph (c)(2)(i)(B)(2) of this section and is not a transaction
to which section 381(a) applies. For federal income tax purposes, A
must include the entire advance payment in gross income in its 2018
taxable year.
(3) Financial statement adjustments--(i) In general.
Notwithstanding section 451(c)(4)(A)(ii), if a taxpayer treats an
advance payment as an item of deferred revenue in its AFS and writes-
down or adjusts that item, or portion thereof, to an equity account
(for example, retained earnings) or otherwise writes-down or adjusts
that item of deferred revenue in a subsequent taxable year, revenue for
that subsequent taxable year includes that item, or portion thereof,
that is written down or adjusted.
(ii) Examples--(A) Example 1. On May 1, 2018, A, a corporation
that files its federal income tax return on a calendar year basis,
received $100 as an advance payment for a 2-year contract to provide
services. For financial accounting purposes, A recorded $100 as a
deferred revenue liability in its AFS, expecting to report \1/4\ of
the advance payment in revenue in its AFS for 2018, \1/2\ for 2019,
and \1/4\ for 2020. On August 31, 2018, C, an unrelated corporation
that files its federal income tax return on a calendar year basis,
acquired all of the stock of A, and A joined C's consolidated group.
A's short taxable year ended on August 31, 2018, and, as of that
date, A had included only \1/4\ ($25) of the advance payment in
revenue in its AFS. On September 1, 2018, after the stock
acquisition, and in accordance with purchase accounting rules, C
wrote down A's deferred revenue liability to its fair value of $10
as of the date of the acquisition. The $10 will be included in
revenue on A's AFS in accordance with the method of accounting A
uses for financial accounting purposes. For federal income tax
purposes, A uses the deferral method. For federal income tax
purposes, A must take \1/4\ ($25) of the advance payment into income
for its short taxable year ending August 31, 2018, and the remainder
of the advance payment ($75) ($65 write down + $10 future financial
statement revenue) must be included in income for A's next
succeeding taxable year.
(B) Example 2. On May 1, 2018, B, a corporation that files its
federal income tax return on a calendar year basis, received $100
advance payment for a contract to be performed in 2018, 2019, and
2020. On August 31, 2018, D, a corporation that is not consolidated
for federal income tax purposes, acquired all of the stock of B.
Before the stock acquisition, on its AFS for 2018, B included $40 of
the advance payment in revenue, and $60 as a deferred revenue
liability. On September 1, 2018, after the stock acquisition and in
accordance with purchase accounting rules, D wrote down its $60
deferred revenue liability to $10 (its fair value) as of the date of
the acquisition. After the acquisition, B does not include in
revenue any of the $10 deferred revenue liability in its 2018 AFS. B
does include $5 in revenue in 2019, and $5 in revenue in 2020. For
federal income tax purposes, B uses the deferral method. For federal
income tax purposes, B must take $40 of the advance payment into
income in 2018, and the remainder of the advance payment ($60) ($50
write down + $10 future financial statement revenue) must be
included in income for B's next succeeding taxable year, 2019.
(4) Short taxable year rule--(i) In general. If the taxpayer's next
succeeding taxable year is a short taxable year, other than a taxable
year in which the taxpayer dies or ceases to exist in a transaction
other than a transaction to which section 381(a) applies, and the short
taxable year consists of 92 days or less, a taxpayer using the deferral
method must include the portion of the advance payment not included in
the taxable year of receipt in gross income for the short taxable year
to the extent included in revenue in an AFS. Any amount of the advance
payment not included in the taxable year of receipt and the short
taxable year must be included in gross income for the taxable year
immediately following the short taxable year.
(ii) Example. A is a calendar year taxpayer and is in the
business of selling and licensing
[[Page 47188]]
computer software (off the shelf, fully customized, and semi-
customized) and providing customer support. On July 1, 2018, A
receives an advance payment for a 2-year software maintenance
contract. Under the contract, A will provide software updates if it
develops an update within the contract period, as well as online and
telephone customer support. A changes its taxable period to a fiscal
year ending March 31 so that A has a short taxable year beginning
January 1, 2019, and ending March 31, 2019. In its AFS, A includes
\1/4\ of the payment in revenue for the taxable year ending December
31, 2018; \1/6\ in revenue for the short taxable year ending March
31, 2019; \1/4\ in revenue for the taxable year ending March 31,
2020; and \1/4\ in revenue for the taxable year ending March 31,
2021. Because the taxable year ending March 31, 2019, is 92 days or
less, A must include \1/4\ of the payment in gross income for the
taxable year ending December 31, 2018, \1/6\ in gross income for the
short taxable year ending March 31, 2019, and the remaining amount
in gross income for the taxable year ending March 31, 2020.
(5) Financial statement conformity requirement. A taxpayer that
uses the deferral method under this paragraph (c) must use the same
financial statement that is used to apply the rules in section 451(b)
and the accompanying regulations when applying the deferral method
provided in section 451(c) and these regulations.
(6) Allocation of transaction price. A taxpayer using the deferral
method under this paragraph (c) must use the allocation rules provided
in proposed Sec. 1.451-3(g).
(7) Rules relating to eligible gift card sales. For purposes of
paragraphs (b)(1)(i)(B) and (c)(1) of this section, if an eligible gift
card is redeemable by an entity described in paragraph (b)(3)(ii) of
this section whose financial results are not included in the taxpayer's
AFS, a payment will be treated as included by the taxpayer in revenue
in its AFS to the extent the gift card is redeemed by the entity during
the taxable year.
(8) Examples. The following examples illustrate the rules of this
paragraph (c). In each example in paragraphs (c)(8)(i) through (xxv) of
this section, the taxpayer uses an accrual method of accounting for
federal income tax purposes and files its returns on a calendar year
basis. Except as stated otherwise, the taxpayer in each example has an
AFS.
(i) Example 1. Services. On November 1, 2018, A, in the business
of giving dancing lessons, receives an advance payment for a 1-year
contract commencing on that date and providing for up to 48
individual, 1-hour lessons. A provides eight lessons in 2018 and
another 35 lessons in 2019. In its AFS, A includes \1/6\ of the
payment in revenue for 2018, and \5/6\ of the payment in revenue for
2019. A uses the deferral method. For federal income tax purposes, A
must include \1/6\ of the payment in gross income for 2018, and the
remaining \5/6\ of the payment in gross income for 2019.
(ii) Example 2. Services. Assume the same facts as in Example 1
in paragraph (c)(8)(i) of this section, except that the advance
payment is received for a 3-year contract under which up to 96
lessons are provided. A provides eight lessons in 2018, 48 lessons
in 2019, and 40 lessons in 2020. In its AFS, A includes \1/12\ of
the payment in revenue for 2018, \1/2\ of the payment in revenue for
2019, and \5/12\ of the payment in gross revenue for 2020. For
federal income tax purposes, A must include \1/12\ of the payment in
gross income for 2018, and the remaining \11/12\ of the payment in
gross income for 2019.
(iii) Example 3. Goods and Services. On June 1, 2018, B, a
landscape architecture firm, receives an advance payment for goods
and services that, under the terms of the agreement, must be
provided by December 2019. On December 31, 2018, B estimates that
\3/4\ of the work under the agreement has been completed. In its
AFS, B includes \3/4\ of the payment in revenue for 2018 and \1/4\
of the payment in revenue for 2019. B uses the deferral method. For
federal income tax purposes, B must include \3/4\ of the payment in
gross income for 2018, and the remaining \1/4\ of the payment in
gross income for 2019, regardless of whether B completes the job in
2019.
(iv) Example 4. Repair Contracts. On July 1, 2018, C, in the
business of selling and repairing television sets, receives an
advance payment for a 2-year contract under which C agrees to repair
or replace, or authorizes a representative to repair or replace,
certain parts in the customer's television set if those parts fail
to function properly. In its AFS, C includes \1/4\ of the payment in
revenue for 2018, \1/2\ of the payment in revenue for 2019, and \1/
4\ of the payment in revenue for 2020. C uses the deferral method.
For federal income tax purposes, C must include \1/4\ of the payment
in gross income for 2018 and the remaining \3/4\ of the payment in
gross income for 2019.
(v) Example 5. Online website Design. D, in the business of
building and designing websites, receives advance payments that
oblige D to build and design various websites. D tracks each request
for a website with unique identifying numbers. On July 20, 2018, D
receives online payments for 2 websites. One of the website requests
is submitted and processed on September 1, 2018, and the other is
submitted and processed on February 1, 2020. In its AFS, D includes
the payment for the September 1, 2018, website in revenue for 2018
and the payment for the February 1, 2020, website in revenue for
2020. D uses the deferral method. For federal income tax purposes, D
must include the payment for the September 1, 2018, website in gross
income for 2018 and the payment for the February 1, 2020, website in
gross income for 2019.
(vi) Example 6. Gift Cards. E, a hair styling salon, receives
advance payments for gift cards that may later be redeemed at the
salon for hair styling services or hair care products at the face
value of the gift card. The gift cards look like standard credit
cards, and each gift card has a magnetic strip that, in connection
with E's computer system, identifies the available balance. The gift
cards may not be redeemed for cash and have no expiration date. In
its AFS, E includes advance payments for gift cards in revenue when
redeemed. E is not able to determine the extent to which advance
payments are included in revenue in its AFS for the taxable year of
receipt and therefore does not meet this requirement of paragraph
(c)(1) of this section. Therefore, E may not use the deferral method
for these advance payments.
(vii) Example 7. Gift Cards. Assume the same facts as in Example
6 in paragraph (c)(8)(vi) of this section, except that the gift
cards have an expiration date 12 months from the date of sale, E
does not accept expired gift cards, and E includes unredeemed gift
cards in revenue in its AFS for the taxable year in which the cards
expire. Because E tracks the sale date and the expiration date of
the gift cards for purposes of its AFS, E is able to determine the
extent to which advance payments are included in revenue for the
taxable year of receipt. Therefore, E meets this requirement of
paragraph (c)(1) of this section and may use the deferral method for
these advance payments.
(viii) Example 8. Online Subscriptions. G is in the business of
compiling and providing business information for a particular
industry in an online format accessible over the internet. On
September 1, 2018, G receives an advance payment from a subscriber
for 1 year of access to its online database, beginning on that date.
In its AFS, G includes \1/3\ of the payment in revenue for 2018 and
the remaining \2/3\ in revenue for 2019. G uses the deferral method.
For federal income tax purposes, G must include \1/3\ of the payment
in gross income for 2018 and the remaining \2/3\ of the payment in
gross income for 2019.
(ix) Example 9. Membership Fees. On December 1, 2018, H, in the
business of operating a chain of ``shopping club'' retail stores,
receives advance payments for membership fees. Upon payment of the
fee, a member is allowed access for a 1-year period to H's stores,
which offer discounted merchandise and services. In its AFS, H
includes \1/12\ of the payment in revenue for 2018 and \11/12\ of
the payment in revenue for 2019. H uses the deferral method. For
federal income tax purposes, H must include \1/12\ of the payment in
gross income for 2018, and the remaining \11/12\ of the payment in
gross income for 2019.
(x) Example 10. Cruise. In 2018, I, in the business of operating
tours, receives payments from customers for a 10-day cruise that
will take place in April 2019. Under the agreement, I charters a
cruise ship, hires a crew and a tour guide, and arranges for
entertainment and shore trips for the customers. In its AFS, I
includes the payments in revenue for 2019. I uses the deferral
method. For federal income tax purposes, I must include the payments
in gross income for 2019.
(xi) Example 11. Travel agent services. On November 1, 2018, J,
a travel agent, receives payment from a customer for an airline
flight that will take place in April 2019. J purchases and delivers
the airline ticket to the customer
[[Page 47189]]
on November 14, 2018. J retains a portion of the customer's payment
(the excess of the customer's payment over the cost of the airline
ticket) as its commission. Because J is not required to provide any
services after the ticket is delivered to the customer, J earns its
commission when the airline ticket is delivered. The customer may
cancel the flight and receive a refund from J only to the extent the
airline itself provides refunds. In its AFS, J includes its
commission in revenue for 2019. The commission is not an advance
payment because the payment is not earned by J, in whole or in part,
in a subsequent taxable year. Thus, J may not use the deferral
method for this payment.
(xii) Example 12. Broadcasting Rights. K, a professional sports
franchise, is a member of a sports league that enters into contracts
with television networks for the right to broadcast games to be
played between teams in the league. The money received by the sports
league under the contracts is divided equally among the member
teams. The league entered into a 3-year broadcasting contract
beginning October 1, 2018. K receives three equal installment
payments on October 1 of each contract year, beginning in 2018. In
its AFS, K includes \1/4\ of the first installment payment in
revenue for 2018 and \3/4\ in revenue for 2019; K includes \1/4\ of
the second installment in revenue for 2019 and \3/4\ in revenue for
2020; K includes \1/4\ of the third installment in revenue for 2020
and \3/4\ in revenue for 2021. K uses the deferral method. Each
installment payment constitutes an advance payment under paragraph
(b)(1) of this section. For federal income tax purposes, K must
include \1/4\ of the first installment payment in gross income for
2018 and \3/4\ in gross income for 2019; \1/4\ of the second
installment in gross income for 2019 and \3/4\ in gross income for
2020; and \1/4\ of the third installment in gross income for 2020
and \3/4\ in gross income for 2021.
(xiii) Example 13. Insurance Claims Administration. L is in the
business of negotiating, placing, and servicing insurance coverage
and administering claims for insurance companies. On December 1,
2018, L enters into a contract with an insurance company to provide
property and casualty claims administration services for a 4-year
period beginning January 1, 2019. Pursuant to the contract, the
insurance company makes four equal annual payments to L; each
payment relates to a year of service and is made during the month
prior to the service year (for example, L is paid on December 1,
2018, for the service year beginning January 1, 2019). In its AFS, L
includes the first payment in revenue for 2019; the second payment
in revenue for 2020; the third payment in revenue for 2021; and the
fourth payment in revenue for 2022. L uses the deferral method. Each
annual payment constitutes an advance payment under paragraph (b)(1)
of this section. For federal income tax purposes, L must include the
first payment in gross income for 2019; the second payment in gross
income for 2020; the third payment in gross income for 2021; and the
fourth payment in gross income for 2022.
(xiv) Example 14. Internet Services. M is a cable internet
service provider that enters into contracts with subscribers to
provide internet services for a monthly fee (paid prior to the
service month). For those subscribers who do not own a compatible
modem, M provides a rental cable modem for an additional monthly
charge (also paid prior to the service month). Pursuant to the
contract, M will replace or repair the cable modem if it proves
defective during the contract period. In December 2018, M receives
payments from subscribers for January 2019 internet service and
cable modem use. In its AFS, M includes the entire amount of these
payments in revenue for 2019. M uses the deferral method. Because a
subscriber's use of a cable modem is ancillary to the provision of
internet services by M, and because the cable modem warranty is
ancillary to the use of the cable modem, the payments are advance
payments. For federal income tax purposes, M must include the
advance payments in gross income for 2019.
(xv) Example 15. License Agreement. On January 1, 2019, N enters
into, and receives advance payments pursuant to, a 5-year license
agreement for the use of N's trademark. Under the contract, the
licensee pays N both the first-year (2019) license fee and the
fifth-year (2023) license fee upon commencement of the agreement.
The fees for the second, third, and fourth years are payable on
January 1 of each license year. The contract provides the customer
with access to N's trademark throughout the term of the agreement.
In its AFS, N includes the fees in revenue for the respective
license year. N uses the deferral method. For federal income tax
purposes, N must include the first-year license fee in gross income
for 2019, the second-year and the fifth-year license fee in gross
income for 2020, the third-year license fee in gross income for
2021, and the fourth-year license fee in gross income for 2022.
(xvi) Example 16. Computer Software Subscription. On July 1,
2018, O, in the business of licensing computer software (off the
shelf, fully customized, and semi-customized) and providing customer
support, receives an advance payment for a 2-year ``software
subscription contract'' under which O will provide software updates
if it develops an update within the contract period, as well as
online and telephone customer support. In its AFS, O includes \1/4\
of the payment in revenue for 2018, \1/2\ in revenue for 2019, and
the remaining \1/4\ in revenue for 2020, regardless of when O
provides updates or customer support. O uses the deferral method.
For federal income tax purposes, O must include \1/4\ of the payment
in gross income for 2018 and \3/4\ in gross income for 2019.
(xvii) Example 17. Performance Obligation. P is in the business
of licensing computer software (off the shelf, fully customized, and
semi-customized) and providing customer support. On July 1, 2018, P
receives an advance payment of $100 for a 2-year software
subscription that includes a 1-year ``software maintenance
contract'' under which P will provide integral software updates
within the contract period, as well as a ``customer support
agreement'' for online and telephone customer support. In its AFS, P
allocates $80 of the payment to the subscription agreement and $20
to the customer support agreement. With respect to the $80 allocable
to the subscription agreement, P includes \1/4\ ($20) in revenue for
2018, \1/2\ ($40) in revenue for 2019, and the remaining \1/4\ ($20)
in revenue for 2020. With respect to the $20 allocable to the
customer support agreement, P includes \1/2\ ($10) in revenue for
2018, and the remaining \1/2\ ($10) in revenue for 2019 regardless
of when P provides the customer support. For federal income tax
purposes, P must include $30 in gross income for 2018 ($20 allocable
to the subscription agreement and $10 allocable to the customer
support agreement) and the remaining $70 in gross income for 2019.
(xviii) Example 18. Gift Cards Administered by Another. Q
corporation operates department stores. U corporation, V
corporation, and W corporation are wholly owned domestic
subsidiaries of Q that file a consolidated federal income tax return
with Q. X corporation is a controlled foreign subsidiary of Q that
is prohibited from filing a consolidated return with Q. U sells
Brand A goods, V sells Brand B goods, X sells Brand C goods, and Z
is an unrelated entity that sells Brand D goods. W administers a
gift card program for the Q consolidated group, X, and Z. Pursuant
to the underlying agreements, W issues gift cards that are
redeemable for goods or services offered by U, V, X, and Z. In
addition, U, V, X, and Z sell gift cards to customers on behalf of W
and remit amounts received to W. The agreements provide that W is
primarily liable to the customer for the value of the gift card
until redemption, and U, V, X, and Z are obligated to accept the
gift card as payment for goods or services. When a customer
purchases goods or services with a gift card at U, V, X, or Z, W
reimburses that entity for the sales price of the goods or services
purchased with the gift card, up to the total gift card value. In
2018, W sells gift cards with a total value of $900,000, and, at the
end of 2018, the unredeemed balance of the gift cards is $100,000.
In the consolidated group's AFS, the group includes revenue from the
sale of a gift card when the gift card is redeemed. W tracks sales
and redemptions of gift cards electronically, is able to determine
the extent to which advance payments are included in revenue in its
consolidated AFS for the taxable year of receipt, and meets the
requirements of paragraph (c)(1) of this section. The payments W
receives from the sale of gift cards are advance payments because
they are payments for eligible gift cards. Thus, W is eligible to
use the deferral method. At the end of 2018, W includes $800,000 in
income in its consolidated AFS. Under the deferral method, W must
include $800,000 of the payments from gift card sales in gross
income in 2018 and the remaining $100,000 of the payments in gross
income in 2019.
(xix) Example 19. Gift Cards of Affiliates. R is a Subchapter S
corporation that operates an affiliated restaurant corporation and
manages other affiliated restaurants. These other restaurants are
owned by other Subchapter S corporations, partnerships, and limited
liability companies. R has a partnership interest or an equity
interest in some of the restaurants. R administers a gift
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card program for participating restaurants. Each participating
restaurant operates under a different trade name. Under the gift
card program, R and each of the participating restaurants sell gift
cards, which are issued with R's brand name and are redeemable at
all participating restaurants. Participating restaurants sell the
gift cards to customers and remit the proceeds to R, R is primarily
liable to the customer for the value of the gift card until
redemption, and the participating restaurants are obligated under an
agreement with R to accept the gift card as payment for food,
beverages, taxes, and gratuities. When a customer uses a gift card
to make a purchase at a participating restaurant, R is obligated to
reimburse that restaurant for the amount of the purchase, up to the
total gift card value. In R's AFS, R includes revenue from the sale
of a gift card when a gift card is redeemed at a participating
restaurant. R tracks sales and redemptions of gift cards
electronically, is able to determine the extent to which advance
payments are included in revenue in its AFS for the taxable year of
receipt, and meets the requirements of paragraph (c)(1) of this
section. The payments R receives from the sale of gift cards are
advance payments because they are payments for eligible gift card
sales. Thus, for federal income tax purposes, R is eligible to use
the deferral method. In the taxable year of receipt, R must include
the advance payment in income to the extent included in its AFS, and
must include any remaining amount in income in the taxable year
following the taxable year of receipt.
(xx) Example 20. Gift Cards for Domestic and International
Hotels. S is a corporation that operates for the benefit of its
franchisee members, who own and operate domestic and international
individual member hotels. S collects membership fees from the member
hotels in exchange for providing a wide variety of management
support services, which include making reservations for customers at
the various member hotels. S also administers a gift card program
for its members by selling gift cards that may be redeemed for hotel
rooms and food or beverages provided by any member hotel. The
agreements underlying the gift card program provide that S is
entitled to the proceeds from the sale of the gift cards, must
reimburse the member hotel for the value of a gift card redeemed,
and until redemption remains primarily liable to the customer for
the value of the card. In S's AFS, S includes payments from the sale
of a gift card when the card is redeemed. S tracks sales and
redemptions of gift cards electronically, is able to determine the
extent to which advance payments are included in revenue in its AFS
for the taxable year of receipt, and meets the requirements of
paragraph (c)(1) of this section. The payments S receives from the
sale of gift cards are advance payments because they are payments
for eligible gift card sales. Thus, for federal income tax purposes,
S is eligible to use the deferral method. In the taxable year of
receipt, S must include in income the advance payment to the extent
included in its AFS, and must include any remaining amount in income
in the taxable year following the taxable year of receipt.
(xxi) Example 21. Discount Voucher. On December 10, 2018, T, in
the business of selling home appliances, sells a washing machine for
$500. As part of the sale, T gives the customer a 40 percent
discount voucher for any future purchases of T's goods up to $100 in
the next 60 days. In its AFS, T treats the discount voucher as a
separate performance obligation and allocates $30 of the $500 sales
price to the discount voucher. T includes $12 of the amount
allocated to the discount voucher in revenue for 2018 and includes
$18 of the discount voucher in revenue for 2019. T uses the deferral
method. For federal income tax purposes, T must include the $12
allocable to the discount voucher in gross income in 2018 and the
remaining $18 allocated to the discount voucher in gross income in
2019.
(xxii) Example 22. Rewards. On December 31, 2018, U, in the
business of selling consumer electronics, sells a new TV for $1,000
and gives the customer 50 reward points. Each reward point is
redeemable for a $1 discount on any future purchase of U's products.
The reward points are not redeemable for cash and have a 2-year
expiration date. U tracks each customer's reward points and does not
sell reward points separately. In its AFS, U treats the rewards
points as a separate performance obligation and allocates $45 of the
$1,000 sales price to the rewards points. U does not include any of
the amount allocated to the reward points in revenue for 2018. U
includes $25 of the reward points in revenue for 2019 and $20 of the
reward points in revenue for 2020. U uses the deferral method. For
federal income tax purposes, U does not include any amount of the
reward points in gross income in 2018, and includes the entire $45
allocated to the reward points in gross income in 2019.
(xxiii) Example 23. Credit Card Rewards. V, a wholly owned
credit card company, issues credit cards. V also has a loyalty
program in which cardholders earn reward points for the use of its
credit card to make purchases. Each reward point is redeemable for a
$1 on any future purchases. V may not use the deferral method
because payments under credit card agreements including rewards for
credit card purchases are excluded from the definition of an advance
payment under paragraph (b)(1)(ii)(C) of this section.
(xxiv) Example 24. Airline Reward Miles. On January 1, 2018, W,
in the business of transporting passengers on airplanes, sells a
customer a $700 airline ticket to fly roundtrip in 2018. As part of
the purchase, the customer also receives 7,000 points (air miles)
from W to be used for future air travel. In its AFS, W allocates
$665 to the roundtrip airfare and $35 to the air miles. In its AFS,
the $665 allocated to the airfare is included in Year 1 when the
customer takes the roundtrip flight. The $35 allocated to the air
miles is deferred and included in Year 3 when the customer redeems
the air miles. W uses the deferral method described in paragraph (c)
of this section. For federal income tax purposes, the $665 is
included in gross income in Year 1 and the $35 allocated to the air
miles is included in gross income in Year 2.
(xxv) Example 25. Chargebacks. Taxpayer X, a manufacturer of
pharmaceuticals, is a calendar-year accrual method taxpayer with an
AFS. In addition to billing the wholesaler for the sale of the
pharmaceuticals at the wholesale acquisition cost under the
contract, X generally credits or pays wholesalers a chargeback of
40% of the wholesale acquisition cost for sales made by those
wholesalers to qualifying customers. In 2018, X enters into a
contract to sell 1,000 units to W, a wholesaler, for $10 per unit,
totaling $10,000 (1,000 x $10 = $10,000). The contract also provides
that X will issue a 40% chargeback for sales by W to certain
qualifying customers. X delivers 600 units to W on December 31,
2018, and bills W $6,000 under the contract. For AFS purposes, X
adjusts its revenue by 40% for all sales to W for anticipated
chargebacks. As such, in its 2018 AFS, X reports $3,600 ($6,000-
$2,400 = $3,600) of revenue from the contract with W, decreasing
revenue by $2,400 (40% x $6,000 = $2,400) for anticipated chargeback
claims. For federal income tax purposes, under proposed Sec. 1.451-
3(c)(4), X's 2018 revenue is $6,000 because revenue is not reduced
for anticipated chargebacks. Because no portion of the $6,000 is
included in revenue on an AFS in a subsequent taxable year (that is,
on an AFS after 2018), none of the $6,000 is an advance payment
under paragraph (b)(1)(i) of this section.
(d) Deferral method for taxpayers without an AFS (non-AFS deferral
method)--(1) In general. Only a taxpayer described in paragraph (d)(2)
of this section may elect to use the non-AFS deferral method described
in paragraph (d)(4) of this section.
(2) Taxpayers eligible to use the non-AFS deferral method. A
taxpayer is eligible to use the non-AFS deferral method if the taxpayer
does not have an applicable financial statement as defined in proposed
Sec. 1.451-3(c)(1) and is able to determine the extent to which
advance payments are earned in the taxable year of receipt, or a short
taxable year, if applicable.
(3) Advance payment. For purposes of the non-AFS deferral method,
in applying paragraph (b)(1)(i)(B) of this section, an advance payment
is any portion of the payment received that is earned by the taxpayer,
in whole or in part, in a subsequent taxable year.
(4) Deferral of advance payments based on when payment is earned--
(i) In general. The non-AFS deferral method described in this paragraph
(d) is a permissible method of accounting that may be used only by a
taxpayer described in paragraph (d)(2) of this section. Under the non-
AFS deferral method of accounting, a taxpayer includes the advance
payment in gross income for the taxable year of receipt, including, if
applicable, a short taxable year described in paragraph (d)(8) of this
section, to the extent that it is earned in that taxable year and
includes
[[Page 47191]]
the remaining portion of the advance payment in gross income in the
next succeeding taxable year.
(ii) When payment is earned. A payment is earned when the all
events test described in Sec. 1.451-1(a) is met, without regard to
when the amount is received, as defined under paragraph (b)(5) of this
section, by the taxpayer. If a taxpayer is unable to determine the
extent to which a payment is earned in the taxable year of receipt, the
taxpayer may determine that amount:
(A) On a statistical basis if adequate data are available to the
taxpayer;
(B) On a straight line ratable basis over the term of the agreement
if the taxpayer receives advance payments under a fixed term agreement
and if it is not unreasonable to anticipate at the end of the taxable
year of receipt that the advance payment will be earned ratably over
the term of the agreement; or
(C) By the use of any other basis that in the opinion of the
Commissioner results in a clear reflection of income.
(5) Contracts with multiple obligations--(i) In general. If a
taxpayer receives a payment that is attributable to more than one item
described in paragraph (b)(1)(i)(C) of this section, the taxpayer must
allocate the payment to such items in a manner that is based on
objective criteria.
(ii) Objective criteria. A taxpayer's allocation method with
respect to a payment described in paragraph (d)(5)(i) of this section
is based on objective criteria if the allocation method is based on
payments the taxpayer regularly receives for an item or items it
regularly sells or provides separately or any method that may be
provided in guidance published in the Internal Revenue Bulletin (see
Sec. 601.601(d) of this chapter).
(6) Acceleration of advance payments. For purposes of this
paragraph (d), the acceleration rules provided in paragraph (c)(2) of
this section apply to a taxpayer that uses the non-AFS deferral method.
(7) Advance payments in certain acquisitions and other financial
statement adjustments. For purposes of this paragraph (d), the rules
provided in paragraph (c)(3) of this section apply to a taxpayer that
uses the non-AFS deferral method.
(8) Short taxable year rule. For purposes of this paragraph (d),
the short taxable year rule provided in paragraph (c)(4) of this
section applies to a taxpayer that uses the non-AFS deferral method.
(9) Eligible gift card sale. For purposes of paragraphs
(b)(1)(i)(B) and (d)(4) of this section, if an eligible gift card is
redeemable by an entity described in paragraph (b)(3)(ii), including an
entity whose financial results are not included in the taxpayer's
financial statement, a payment will be treated as earned by the
taxpayer to the extent the gift card is redeemed by the entity during
the taxable year.
(10) Examples. The rules of this paragraph (d) are illustrated by
the examples in paragraphs (d)(10)(i) and (ii). In each of these
examples, the taxpayer uses the non-AFS deferral method described in
this paragraph (d).
(i) Example 1. A, a video arcade operator, receives payments in
2018 for game tokens that are used by customers to play the video
games offered by A. The tokens cannot be redeemed for cash. The
tokens are imprinted with the name of the video arcade, but they are
not individually marked for identification. A completed a study on a
statistical basis, based on adequate data available to A, and
concluded that for payments received in the current year, x percent
of tokens are expected to be used in the current year, y percent of
tokens are expected to be used in the next year, and the remaining z
percent of tokens are expected to never be used. Based on the study,
A treats as earned for 2018 x percent (for tokens expected to be
used in that year) as well as z percent (for tokens that are
expected to never be used). Using the study, A determines the extent
to which advance payments are earned in the taxable year of receipt.
A may determine the extent to which a payment is earned in the
taxable year of receipt on a statistical basis provided that any
portion that is not included in the taxable year of receipt is
included in the next succeeding taxable year. Thus, for federal
income tax purposes, A must include x percent and z percent of the
advance payments in gross income for 2018 and y percent of the
advance payments in gross income for 2019.
(ii) Example 2. B is in the business of providing internet
services. On September 1, 2018, B receives an advance payment from a
customer for a 2-year term for access to its internet services,
beginning on that date. B does not have an AFS. B is unable to
determine the extent to which the payment is earned in the taxable
year of receipt. For federal income tax purposes, B may determine
the extent to which the payment is earned in the year of receipt on
a straight line ratable basis over the term of the agreement if it
is not unreasonable to anticipate at the end of the taxable year of
receipt that the advance payment will be earned ratably over the
term of the agreement.
(e) Method of accounting. The use of the deferral method under
paragraph (c) of this section or the non-AFS deferral method under
paragraph (d) of this section is the adoption of, or a change in, a
method of accounting under section 446 of the Internal Revenue Code or
the accompanying regulations. In addition, a change in the manner of
recognizing advance payments in revenue in an AFS that changes or could
change the timing of the inclusion of income for federal income tax
purposes is a change in method of accounting under section 446 and the
accompanying regulations. A taxpayer may change its method of
accounting to use the methods described in paragraphs (c) or (d) of
this section, or change its manner of recognizing advance payments in
revenue in an AFS only with the consent of the Commissioner as required
under section 446(e) and the corresponding regulations.
(f) Applicability date. The rules of this section are applicable
for taxable years beginning on or after the date of publication of the
Treasury decision adopting these rules as final regulations in the
Federal Register. Until the date the Treasury decision adopting these
regulations as final regulations is published in the Federal Register,
a taxpayer may rely on these proposed regulations for taxable years
beginning after December 31, 2017, provided that the taxpayer applies
all the applicable rules contained in these proposed regulations, and
consistently applies these proposed regulations to all advance
payments. See section 7805(b)(7).
Kirsten Wielobob,
Deputy Commissioner for Services and Enforcement.
[FR Doc. 2019-19197 Filed 9-5-19; 4:15 pm]
BILLING CODE 4830-01-P