Quarterly Publication of Individuals Who Have Chosen to Expatriate

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The Quarterly Publication of Individuals Who Have Chosen to Expatriate, also known as the Quarterly Publication of Individuals, Who Have Chosen to Expatriate, as Required by Section 6039G, is a publication of the United States Internal Revenue Service (IRS) in the Federal Register , listing the names of certain individuals with respect to whom the IRS has received information regarding loss of citizenship during the preceding quarter.

Contents

Overview

The practice of publishing the names of ex-citizens is not unique to the United States. South Korea's Ministry of Justice, for example, also publishes the names of people losing South Korean nationality in the government gazette. [1] Prior to the 1990s, however, loss of United States citizenship was not a matter of public record; the State Department considered that routine disclosure of the names of people giving up U.S. citizenship might violate the Privacy Act of 1974 and other laws. [2] [3]

The United States government first released a list of former U.S. citizens in a State Department letter to Congress made public by a 1995 Joint Committee on Taxation report. [4] That report contained the names of 978 people who had relinquished U.S. citizenship between January 1, 1994 and April 25, 1995. [5] This action was in the larger context of widespread media attention to the issue of wealthy individuals who gave up citizenship to avoid United States taxes. As a result, several legislators proposed bills or amendments to end the confidentiality surrounding loss of citizenship, and to publish the names of ex-citizens. [6] The one that eventually passed was an amendment by Sam Gibbons (D-FL) to the Health Insurance Portability and Accountability Act of 1996. [7] That amendment added new provisions to the Internal Revenue Code (now at 26 U.S.C.   § 6039G) to require that the Treasury Department publish the names of persons relinquishing U.S. citizenship within thirty days after the end of each calendar quarter. Publication began in 1996; lists published in 1997 included the names of people losing citizenship after 1995. [8] The list includes only the names of former citizens, not their reasons for giving up citizenship or other information about them. [9] Lawyers familiar with the process state that it takes roughly six months after people give up citizenship for their names to appear in the list. [10]

Congress' motive for requiring this publication was to "shame or embarrass" people who give up U.S. citizenship for tax reasons. [11] However, Michael S. Kirsch of Notre Dame Law School questions the effectiveness of this, given that it may result in the shaming of people who give up U.S. citizenship for other reasons, while having little effect on or even acting as a badge of honor for wealthy individuals who are "particularly individualistic and unconcerned with how they may be perceived by the general population." [11] Gibbons expected that the list would include only "a handful of the wealthiest of the wealthy" motivated solely by taxes; however, the people named in the list turned out to have a wide variety of motivations for emigrating from the U.S. and later giving up citizenship, and few were publicly known to be wealthy. [7] As a Wall Street Journal article described the political environment of the mid-1990s which led to the creation of the list: "Congress got mad at legal aliens who use social services but don't become U.S. citizens. Less noisily, it got mad at Americans who become legal aliens in other countries, use services there, but decide not to remain U.S. citizens for life." [7]

Criteria for inclusion in list

Comparisons with other sources of data on ex-citizens suggest that the lists of ex-citizens published in the Federal Register may not necessarily include all ex-citizens. [12] Media reports from authors who believe that the IRS list is supposed to include all expatriates have suggested this means the Federal Register expatriate list has been "lowballing its numbers." [12] [13] Other sources advance a variety of explanations.

Non-covered expatriates

There are differences of opinion among lawyers over whether 26 U.S.C.   § 6039G mandates that the names of only some or all former citizens must appear in the Quarterly Publication. One opinion is that only those who are subject to the expatriation tax (so-called "covered expatriates") appear in the list. (Under current law, 26 U.S.C.   § 877(a)(2) , "covered expatriates" are those with more than $2,000,000 in assets, an average of $124,000—adjusted for inflation—in taxes owed or paid over the preceding five years, or who are unable to certify under penalty of perjury that they have complied with all tax form filing and payment obligations in the preceding five years.) Those with this opinion include David Lesperance and John Gaver. [14] In contrast, Andrew Mitchel, a Connecticut tax lawyer interviewed by The Wall Street Journal for its reports on Americans giving up citizenship, states that the list is required to include all former citizens. [15] Michael Kirsch also states that the list is required to include all former citizens, not just those deemed by Section 877 to be giving up citizenship for tax reasons. [16]

Under 26 U.S.C.   § 877 (the old expatriation tax statute) as in effect from the 1996 passage of HIPAA until the American Jobs Creation Act of 2004, expatriation tax was imposed only if the IRS determined that "one of the principal purposes" of a U.S. person's abandonment of citizenship or permanent residence status was avoidance of taxation. Nevertheless, according to a 2000 Congressional Research Service memorandum, the IRS did not at that time make the determination of principal purposes before including a person's name in the Quarterly Publication, and so stated that "these lists include expatriates whose motivation may not have been tax avoidance". [17]

Robert Wood of Wood LLP in San Francisco, writing in Forbes , states that the Quarterly Publication does not include "[w]hat is often called consular expatriations, where people don’t file exit tax forms with the IRS". [18] The American Bar Association's Taxation Section believes 26 U.S.C.   § 6039G should be read not to require persons whose loss of citizenship occurred before the passage of the American Jobs Creation Act of 2004 to file the exit tax form (Form 8854), and has urged the issuance of Treasury regulations clarifying this interpretation. [19]

Non-citizen former permanent residents

The Quarterly Publication may be required to include the names not just of former U.S. citizens but of certain former permanent residents ("ex-green card holders") as well. Under 26 U.S.C.   § 6039G(d)(3) , "the Federal agency primarily responsible for administering the immigration laws shall provide to the Secretary the name of each lawful permanent resident of the United States (within the meaning of section 7701 (b)(6)) whose status as such has been revoked or has been administratively or judicially determined to have been abandoned." The Quarterly Publication includes a statement that "for purposes of this listing, long-term residents, as defined in section 877(e)(2), are treated as if they were citizens of the United States who lost citizenship". [20] Andrew Mitchel, a Connecticut tax lawyer, believes that the law requires the IRS to include former long-term green card holders in the Quarterly Publication, but given the number of names which appear, he finds it unlikely that they are actually included. [21]

In 2000, a Government Accountability Office report noted that while the Immigration and Naturalization Service provided data to the IRS in electronic form identifying individuals who gave up permanent residence status, the data did not fulfill the IRS' needs because it did not generally include Taxpayer Identification Numbers nor contain information on the length of time for which each of the former permanent residents had held his or her status, and thus the IRS could not use the information for tracking people who were subject to the expatriation tax. [22] The tax law definition of abandonment of lawful permanent residence does not include people whose green cards expire; they continue to be subject to federal tax as U.S. residents rather than the expatriation tax, and are not regarded by the IRS as having "expatriated" even though they may no longer possess the right to reside in the United States. According to 26 CFR 301.7701(b)-1 , the only way for an individual to initiate the process of administrative determination of abandonment of lawful residence is to file Form I-407. Additionally, a green card holder who takes a tax treaty-based return position as a non-resident of the U.S. also triggers the expatriation tax. [20]

Reinsurance companies

Three reinsurance companies have been included in the Quarterly Publication: RBC Reinsurance, Ltd. in Q2 2000; ING Re Limited (Ireland) in Q1 2003; and Imagine International Reinsurance Limited in Q2 2003. International tax practitioners were uncertain why companies would appear in the Quarterly Publication, as the expatriation tax provisions and the provisions of 26 U.S.C.   § 6039G(d) establishing the list itself all refer to "individual[s]" losing United States citizenship; although the term "individual" is not defined in the Internal Revenue Code, it is unlikely that it could be interpreted to include entities (unlike the term "person", which 26 U.S.C.   § 7701(a)(1) explicitly defines to include legal persons). Furthermore, Section 6039G makes no allowance for publication of the names of entities that engage in tax inversions (which are sometimes mistakenly referred to in the popular press as "corporations renouncing their citizenship"). [23]

Comparison with other sources of data on ex-citizens

Since 1998, the Federal Bureau of Investigation has also maintained its own list of people who have renounced citizenship under 8 U.S.C.   § 1481(a)(5) , as this is one of the categories of people prohibited from purchasing firearms under the Gun Control Act of 1968 and who must be entered into the National Instant Criminal Background Check System (NICS) under the Brady Handgun Violence Prevention Act of 1993. [24] [25] The names are not made public, but each month the FBI issues a report on the number of entries added in each category. NICS covers a different population from the Federal Register expatriate list: the former includes only those who renounce U.S. citizenship, while the latter should include those who voluntarily lose citizenship by any means, and possibly certain former permanent residents as well. [12] [26]

In 2012, the FBI added 4,652 records to the NICS "renounced U.S. citizenship" category in 2012, much larger than the number of names published in the Federal Register expatriate lists during the same period. [12] About 2,900 of those were added to NICS in one large batch in October 2012; FBI spokesman Stephen G. Fischer attributed this jump to State Department efforts to clear a backlog of earlier renunciants who had not been provided to the FBI previously. [27] However, in 2013, the number of records of renunciants added to NICS again exceeded the number of names published in the Federal Register expatriate list, with 3,128 renunciants in the former against only 3,000 losing citizenship or permanent residence by any means in the latter. [26]

United States Citizenship and Immigration Services stated, in response to a 2013 Freedom of Information Act request, that an average of 18,196 people per year filed Form I-407 to abandon their LPR status in each of Fiscal Years 2010 through 2012. [20] In 2014 Paperwork Reduction Act filings, USCIS estimated that annually, 9,371 people would file Form I-407 in the following three years. [28] The State Department estimated in 2007 that annually, 2,298 people file Form DS-4079 to relinquish their United States citizenship. [29] Finally, the IRS estimated in 2012 that Notices 97-19 and 98-34, which "provide guidance regarding the federal tax consequences for certain individuals who lose U.S. citizenship" or "cease to be taxed as U.S. lawful permanent residents", apply to 12,350 people annually. [30]

The State Department stated that 1,100 people renounced citizenship at only one particular US consulate post during the first ten months of 2014. [31] There are more than 270 US consular posts. [32] In September 2015, the State Department estimated that there would be 5,986 renunciants and 559 relinquishers during Fiscal Year 2015. [33]

Statistics

Count of names in the Quarterly Publication of Individuals Who Have Chosen to Expatriate
500
1,000
1,500
2,000
2,500
3,000
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
2022
2023
 Number of persons whose names were published after the IRS received information on their loss of citizenship during the quarter in question Data for 1997 are not directly comparable to other years because lists published that year also included the names of people who lost citizenship in 1995 and 1996 [8]

"Count of names" refers to the number of entries contained in that quarter's list. This figure may include names which are duplicated in previous lists, as well as erroneous list entries such as a street address in Switzerland which was listed as the name of a person giving up citizenship in the fourth quarter of 2013. [26] "Publication delay" refers to the number of days between the end of the calendar quarter and the day on which the list appeared in the Federal Register. Delays longer than the maximum 30 days required by law are shown in red.

Names from 1996–2002
Year & quarterCitationDate
Publication
delay (days)
Count
of names
1996     
     
     
Q4 62 FR 4570 1997‑01‑303090
1997Q1 62 FR 23532 1997‑04‑3030238
Q2 62 FR 39305 1997‑07‑22221,208
Q3 62 FR 59758 1997‑11‑0435254
Q4 63 FR 6609 1998‑02‑0940116
1998Q1 64 FR 48894 1999‑09‑08527136
Q2 65 FR 15041 2000‑03‑2062975
Q3 63 FR 56696 1998‑10‑2222151
Q4 64 FR 3339 1999‑01‑212136
1999Q1 64 FR 19858 1999‑04‑2222128
Q2 64 FR 38944 1999‑07‑2020107
Q3 64 FR 56837 1999‑10‑2121118
Q4 65 FR 5020 2000‑02‑023381
2000Q1 65 FR 35423 2000‑06‑0263185
Q2 65 FR 50050 2000‑08‑164789
Q3 65 FR 80494 2000-12-218288
Q4 66 FR 48913 2001‑09‑2426769
2001Q1 66 FR 48915 2001‑09‑24177225
Q2 66 FR 48912 2001‑09‑2486190
Q3 67 FR 11375 2002‑03‑13154123
Q4 67 FR 11374 2002‑03‑1310321
2002Q1 67 FR 19621 2002‑04‑2253109
Q2 67 FR 47889 2002‑07‑222270
Q3 67 FR 66456 2002‑10‑3131225
Q4 68 FR 4549 2003‑01‑292999
Names from 2003–2009
Year & quarterCitationDate
Publication
delay (days)
Count
of names
2003Q1 68 FR 23180 2003‑04‑3030114
Q2 68 FR 44840 2003‑07‑3030209
Q3 69 FR 61906 2004‑10‑21386115
Q4 69 FR 61910 2004‑10‑21294133
2004Q1 69 FR 61907 2004‑10‑21204108
Q2 69 FR 61908 2004‑10‑21113138
Q3 69 FR 61909 2004‑10‑2121443
Q4 70 FR 5511 2005‑02‑0233142
2005Q1 70 FR 23295 2005‑05‑0434122
Q2 71 FR 68901 2006‑11‑28516416
Q3 70 FR 68511 2005‑11‑1041126
Q4 71 FR 6312 2006‑02‑073898
2006Q1 71 FR 25648 2006‑05‑0131100
Q2 71 FR 50993 2006‑08‑285931
Q3 71 FR 63857 2006‑10‑313141
Q4 72 FR 5103 2007‑02‑0233106
2007Q1 72 FR 26687 2007‑05‑1040107
Q2 72 FR 44228 2007‑08‑0738114
Q3 72 FR 63237 2007‑11‑0839105
Q4 73 FR 7631 2008‑02‑0839144
2008Q1 73 FR 26190 2008‑05‑0838123
Q2 73 FR 43285 2008‑07‑242423
Q3 73 FR 65036 2008‑10‑313122
Q4 74 FR 6219 2009‑02‑053663
2009Q1 74 FR 20105 2009‑04‑303067
Q2 74 FR 35911 2009‑07‑212115
Q3 74 FR 60039 2009‑11‑1950158
Q4 75 FR 9028 2010‑02‑2657503
Names from 2010–2016
Year & quarterCitationDate
Publication
delay (days)
Count
of names
2010Q1 75 FR 28853 2010‑05‑2454179
Q2 75 FR 69160 2010‑11‑10133560
Q3 75 FR 69158 2010‑11‑1041397
Q4 76 FR 7907 2011‑02‑1142398
2011Q1 76 FR 27175 2011‑05‑1040499
Q2 76 FR 46898 2011‑08‑0334519
Q3 76 FR 66361 2011‑10‑2626403
Q4 77 FR 5308 2012‑02‑0233360
2012Q1 77 FR 25538 2012‑04‑3030460
Q2 77 FR 44310 2012‑07‑2727189
Q3 77 FR 66084 2012‑11‑0132238
Q4 78 FR 10692 2013‑02‑244545
2013Q1 78 FR 26867 2013‑05‑0838679
Q2 78 FR 48773 2013‑08‑09401,130
Q3 78 FR 68151 2013‑11‑1344560
Q4 79 FR 7504 2014‑02‑0738631
2014Q1 79 FR 25176 2014‑05‑02321,001
Q2 79 FR 46306 2014‑08‑0738576
Q3 79 FR 64031 2014‑10‑2727776
Q4 80 FR 7685 2015‑02‑11421,062
2015Q1 80 FR 26618 2015‑05‑08381,335
Q2 80 FR 45709 2015-07-3131460
Q3 80 FR 65851 2015-10-27271,426
Q4 81 FR 6598 2016-02-08391,058
2016Q1 81 FR 27198 2016-05-05351,158
Q2 81 FR 50058 2016-07-2929509
Q3 81 FR 79098 2016-11-10411,379
Q4 82 FR 10185 2017-02-09402,364
Names since 2017
Year & quarterCitationDate
Publication
delay (days)
Count
of names
2017Q1 82 FR 21877 2017‑05‑10401,313
Q2 82 FR 36188 2017-08-03341,758
Q3 82 FR 50960 2017-11-02331,376
Q4 83 FR 5830 2018-02-0940685
2018Q1 83 FR 20914 2018-05-08381,099
Q2 83 FR 37616 2018-08-01321,086
Q3 83 FR 58321 2018-11-19501,104
Q4 84 FR 9204 2019-03-1372685
2019Q1 84 FR 20954 2019-05-13431,018
Q2 84 FR 41807 2019-08-1546609
Q3 84 FR 61137 2019-11-1243183
Q4 85 FR 7847 2020-02-1142261
2020Q1 85 FR 27507 2020-05-08382,907
Q2 85 FR 47843 2020-08-06372,406
Q3 85 FR 68625 2020-10-2929732
Q4 86 FR 8251 2021-02-0435660
2021Q1 86 FR 22781 2021-04-2929228
Q2 86 FR 40899 2021-07-2929733
Q3 86 FR 63091 2021-11-1546977
Q4 87 FR 4106 2022-01-2626488
2022Q1 87 FR 24639 2022-04-2626568
Q2 87 FR 45403 2022-07-28281,474
Q3 87 FR 64842 2022-10-2626750
Q4 88 FR 5418 2023-01-27271,024
2023Q1 88 FR 24270 2023-04-1919536
Q2 88 FR 47238 2023-07-2121830
Q3 88 FR 74232 2023-10-3030749
Q4 89 FR 5606 2024-01-29291,145

Titles

Since 2022, the title of the publication has been Quarterly Publication of Individuals, Who Have Chosen To Expatriate. Previously, the title was Quarterly Publication of Individuals, Who Have Chosen To Expatriate, as Required by Section 6039G in every edition except:

Titles of individual publications before 2022
Quarter and yearTitleNotes
Q4 1996Quarterly Publication of Individuals, Who Have Chosen To Expatriate, as Required by Section 877(a)Section 877(a) of the Internal Revenue Code does not require this publication.
Q1, Q2, Q4 1997Quarterly Publication of Individuals, Who Have Chosen To Expatriate, as Required by Section 3069FThere is no section 3069F in the Internal Revenue Code. Probably a misspelling of 6039F, which was renumbered 6039G in August 1997.
Q3 1997Quarterly Publication of Individuals, Who Have Chosen To Expatriate, as Required by Section 6039(f)There is no section 6039(f) in the Internal Revenue Code. Probably a misspelling of 6039F, which was renumbered 6039G in August 1997.
Q1 2012, Q1 2013,
Q3 2021
Quarterly Publication of Individuals, Who Have Chosen To ExpatriateWith comma.
Q4 2021Quarterly Publication of Individuals, Who Have Chosen to Expatriate
Q4 2013Quarterly Publication of Individuals Who Have Chosen To ExpatriateWithout comma.

Before 2022, the publication incorrectly spelled the acronym of the Health Insurance Portability and Accountability Act (HIPAA) as "HIPPA" in all but six editions (Q2 1999, Q1 2008, Q2 2008, Q3 2009, Q4 2011, Q3 2015).

See also

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References

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  4. Kirsch 2004 , p. 889
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