[Federal Register Volume 85, Number 131 (Wednesday, July 8, 2020)]
[Rules and Regulations]
[Pages 40892-40899]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-14426]
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DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Parts 1 and 602
[TD 9900]
RIN 1545-BP84
Carryback of Consolidated Net Operating Losses
AGENCY: Internal Revenue Service (IRS), Treasury.
ACTION: Temporary regulations.
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SUMMARY: This document contains temporary regulations under section
1502 of the Internal Revenue Code (Code) that affect corporations
filing consolidated returns. These regulations permit consolidated
groups that acquire new members that were members of another
consolidated group to elect in a year subsequent to the year of
acquisition to waive all or part of the pre-acquisition portion of an
extended carryback period under section 172 of the Code for certain
losses attributable to the acquired members where there is a
retroactive statutory extension of the NOL carryback period under
section 172. These regulations respond to the enactment of section 2303
of the CARES Act, which retroactively extends the carryback period
under section 172 for taxable years beginning after 2017 and before
2021.
DATES:
Effective date: These temporary regulations are effective on July
2, 2020.
Applicability date: For the date of applicability, see Sec.
1.1502-21T(h)(9).
FOR FURTHER INFORMATION CONTACT: Jonathan R. Neuville, at (202) 317-
5363 (not a toll-free number).
SUPPLEMENTARY INFORMATION: The text of these temporary regulations also
serves as the text of part of the proposed regulations set forth in the
related notice of proposed rulemaking on this subject (REG-125716-18)
in the Proposed Rules section in this issue of the Federal Register.
Background
This Treasury decision amends the Income Tax Regulations (26 CFR
part 1) under section 1502 of the Code. Section 1502 authorizes the
Secretary of the Treasury or his delegate (Secretary) to prescribe
regulations for an affiliated group of corporations that join in filing
(or that are required to join in filing) a consolidated return
(consolidated group) to reflect clearly the Federal income tax
liability of the consolidated group and to prevent avoidance of such
tax liability. See Sec. 1.1502-1(h) (defining the term ``consolidated
group''). For purposes of carrying out those objectives, section 1502
also permits the Secretary to prescribe rules that may be different
from the provisions of chapter 1 of the Code that would apply if the
corporations composing the consolidated group filed separate returns.
Terms used in the consolidated return regulations generally are defined
in Sec. 1.1502-1.
The Department of the Treasury (Treasury Department) and the IRS
are issuing these temporary regulations to provide guidance to
consolidated groups regarding the application of the net operating loss
(NOL) carryback rules under section 172(b) of the Code, as amended by
(i) section 2303(b) of the Coronavirus Aid, Relief, and Economic
Security Act, Public Law 116-136, 134 Stat. 281 (March 27, 2020) (CARES
Act), and (ii) any future statutory amendments to section 172.
Specifically, if there is a retroactive statutory extension of the NOL
carryback period under section 172, these temporary regulations permit
consolidated groups that acquired new members that were members of
another consolidated group prior to the statutory change to elect to
waive, in a taxable year subsequent to the taxable year of the
acquisition, all or part of the pre-acquisition portion of an extended
carryback period (as defined in part I of the Explanation of
Provisions) under section 172 for consolidated net operating losses
(CNOLs) attributable to the acquired members.
I. NOL Carrybacks and Carryovers Under Section 172
For purposes of section 172, an NOL equals the excess of a
taxpayer's deductions allowed by chapter 1 of the Code over the
taxpayer's gross income, computed with the modifications specified in
section 172(d). Section 172(c). For a taxable year beginning before
January 1, 2021, section 172(a)(1) allows as a deduction an amount
equal to the aggregate of the NOL carryovers and carrybacks to such
year. As amended by section 2303(b)(2) of the CARES Act, section
172(b)(1)(A)(i) of the Code provides that an NOL for any taxable year
must be an NOL carryback to the extent provided in section
172(b)(1)(B), 172(b)(1)(C)(i), and 172(b)(1)(D).
A. Tax Cuts and Jobs Act Amendments to Section 172
Prior to enactment of the CARES Act, section 172 was most recently
amended by Public Law 115-97, 131 Stat. 2054 (December 22, 2017),
commonly referred to as the Tax Cuts and Jobs Act (TCJA). In relevant
part, section 13302(b) of the TCJA amended section 172(b) to generally
prohibit the carryback of NOLs arising in taxable years beginning after
December 31, 2017 (post-2017 NOLs). The TCJA also provided limited
exceptions to the general carryback prohibition by amending sections
172(b)(1)(B) and 172(b)(1)(C)(i) to provide that farming losses (within
the meaning of section 172(b)(1)(B)(ii)) and losses incurred by
insurance companies (as defined in section 816(a) of the Code) other
than life insurance companies (non-life insurance companies),
respectively, must be carried back to each of the two taxable years
preceding the taxable year of the loss. Therefore, prior to enactment
of the CARES Act, taxpayers generally could not carry back post-2017
NOLs to prior taxable years.
[[Page 40893]]
B. CARES Act Amendments to Section 172
Section 2303(b) of the CARES Act added section 172(b)(1)(D) to the
Code. This provision contains an additional exception to the general
prohibition of NOL carrybacks. Specifically, section 172(b)(1)(D)
provides that an NOL arising in a taxable year beginning after December
31, 2017, and before January 1, 2021, must be carried back to each of
the five taxable years preceding the taxable year in which that NOL
arises (five-year carryback period). Section 172(b)(2) requires
taxpayers to carry the entire amount of such NOL back to the earliest
taxable year of that five-year carryback period. Section 172(b)(2) also
provides that the portion of the NOL that must be carried to each
successive taxable year in the five-year carryback period equals the
amount, if any, that was not used in the preceding taxable years to
which the NOL was carried.
Section 172(b)(1)(D)(i)(II), as added by section 2303(b)(1) of the
CARES Act, further provides that the exceptions to the prohibition of
NOL carrybacks regarding farming losses and non-life insurance
companies do not apply to NOLs that are subject to the five-year
carryback period. See sections 172(b)(1)(B)(i) (regarding farming
losses) and 172(b)(1)(C)(i) (regarding non-life insurance companies).
Therefore, farming losses and losses incurred by non-life insurance
companies arising in a taxable year beginning after December 31, 2017,
and before January 1, 2021, are carried back five years instead of two
years. Section 172(b)(1)(D)(i)(II).
C. Election To Waive Carryback Under Section 172(b)(3)
Section 172(b)(3) permits a taxpayer entitled to a carryback period
under section 172(b)(1) to make, with respect to an NOL for any taxable
year, an irrevocable election to relinquish the carryback period. A
taxpayer generally must make this election (i) in such manner as may be
prescribed by the Secretary, and (ii) by the due date (including
extensions of time) for filing the taxpayer's return for the taxable
year of the NOL for which the election is to be in effect. However,
solely with regard to NOLs arising in a taxable year beginning in 2018
or 2019, section 172(b)(1)(D)(v)(II), as added by section 2303(b)(1) of
the CARES Act, provides a special rule that requires elections to waive
the carryback period for such NOLs under section 172(b)(3) to be made
no later than the due date (including extensions of time) for filing
the taxpayer's Federal income tax return for the first taxable year
ending after March 27, 2020. See also Rev. Proc. 2020-24, 2020-18
I.R.B. 750, Sec. Sec. 4.01(1), 4.03 (providing procedures regarding
the time and manner of filing elections for consolidated groups to
waive the carryback under section 172(b)(3) for NOLs arising in taxable
years beginning in 2018 or 2019).
II. Consolidated Return Regulations
Section 1.1502-21(a) defines the consolidated net operating loss
(that is, a CNOL) deduction for any consolidated return year as ``the
aggregate of the net operating loss carryovers and carrybacks to the
year,'' which consist of (i) CNOLs of the consolidated group, and (ii)
any NOLs of the group's members arising in separate return years. A
``CNOL'' is, for a consolidated return year, the excess of a
consolidated group's deductions over the group's gross income, as
determined under Sec. 1.1502-11(a) (without regard to any CNOL
deduction). See Sec. 1.1502-21(e).
A. General Rules Regarding NOL Carryovers and Carrybacks
The NOL carryovers and carrybacks to a taxable year are determined
under the principles of section 172 and Sec. 1.1502-21. Section
1.1502-21(b)(1). Thus, losses permitted to be absorbed in a
consolidated return year generally are absorbed in the order of the
taxable years in which they arose, and losses carried from taxable
years ending on the same date, and which are available to offset
consolidated taxable income for the year, generally are absorbed on a
pro rata basis. Id. If any percentage of the CNOL that is attributable
to a member (determined pursuant to Sec. 1.1502-21(b)(2)(iv)(B)) may
be carried to a separate return year of the member, the amount of the
CNOL that is attributable to the member is apportioned to the member
and carried to the separate return year. Section 1.1502-21(b)(2)(i). If
carried back to a separate return year, the apportioned loss may not be
carried back to an equivalent, or earlier, consolidated return year of
the group. Id.
B. General Waiver Election To Relinquish Entire Carryback
Section 1.1502-21(b)(3)(i) permits a consolidated group to make an
irrevocable election under section 172(b)(3) to relinquish the entire
carryback period with respect to a CNOL for any consolidated return
year (general waiver election). When making this general waiver
election for a consolidated return year, a consolidated group cannot
make this election separately for a particular member (whether or not
it remains a member). Section 1.1502-21(b)(3)(i). Rather, the
consolidated return regulations provide only a narrowly scoped ``split-
waiver election'' (as described in detail in part II.C of this
Background) that a consolidated group can make solely with respect to
one or more members that previously were members of another group. Id.
A general waiver election must be made in a separate statement filed
with the group's Federal income tax return for the consolidated return
year in which the NOL arises. Id.
C. Special Election for Acquisitions of Members That Were Members of
Another Consolidated Group
A consolidated group (acquiring group) that acquires a new member
(acquired member) that was a member of another consolidated group
(former group) may make an irrevocable election to relinquish, with
respect to all CNOLs of the acquiring group that are attributable to
the acquired member, the portion of the carryback period for which the
acquired member was a member of a former group (split-waiver election).
See Sec. 1.1502-21(b)(3)(ii)(B). If an acquiring group makes a split-
waiver election for a consolidated return year, the portion of the
acquiring group's CNOL attributable to the acquired member for which
the election is made will not be carried back to a former group. Id.
Unlike a general waiver election, a split-waiver election is not a
yearly election, but rather applies to all CNOLs attributable to an
acquired member that otherwise would be subject to a carryback to a
taxable year of a former group under section 172. Id.
Eligibility for a split-waiver election is subject to certain
conditions and procedures. Importantly, a split-waiver election must be
made in a separate statement filed with the acquiring group's original
Federal income tax return for the year the corporation became a member.
Id. In other words, if a split-waiver election is not made with this
particular Federal income tax return, the election cannot later be made
by amending this return in a subsequent consolidated return year or by
attaching the above-described statement to a Federal income tax return
for a later consolidated return year. If any other corporation joining
the acquiring group was affiliated with the acquired member immediately
before the acquired member joined the acquiring group, that other
corporation also must be included in the split-waiver election. Id.
[[Page 40894]]
Explanation of Provisions
I. In General
On prior occasions, enacted legislation has amended section 172 to
extend the carryback period for NOLs. See Worker, Homeownership, and
Business Assistance Act of 2009, Public Law 111-92, 123 Stat. 2984
(November 6, 2009); Job Creation and Worker Assistance Act of 2002,
Public Law 107-147, 116 Stat. 21 (March 9, 2002). Most recently,
section 2303(b) of the CARES Act added section 172(b)(1)(D) to the
Code. As described in part I of the Background, section 172(b)(1)(D)
requires (in the absence of a waiver under section 172(b)(3)) a five-
year carryback period for an NOL that arises in a taxable year
beginning after December 31, 2017, and before January 1, 2021.
Such statutory changes to NOL carryback periods uniquely impact
consolidated groups that acquire one or more corporations prior to the
statutory extension of the carryback period. During the past two
decades, the Treasury Department and the IRS have provided consolidated
groups with certain additional elections for waiving carrybacks of
losses into other, former groups. See 75 FR 35643 (June 23, 2010) (2010
split-waiver regulations); 67 FR 38000 (May 31, 2002) (2002 split-
waiver regulations). These additional elections, while responsive to
particular statutory amendments, have reflected common policy
objectives of providing affected groups with the ability to waive all
or a portion of the statutorily extended NOL carryback period.
The Treasury Department and the IRS have determined that it is
appropriate to provide similar rules with regard to amendments to the
NOL carryback rules under section 2303(b) of the CARES Act, as well as
any similar statutory changes in the future. (For purposes of these
regulations, the amended NOL carryback rules implemented by the CARES
Act in particular or by future legislation more generally are referred
to as the ``amended carryback rules.'') Therefore, these temporary
regulations provide principle-based rules applicable to CNOLs arising
in taxable years to which amended carryback rules become applicable
after the acquisition of a member. Under these rules, which are
consistent with the 2002 and 2010 split-waiver regulations (although
these rules are not limited to a one-time statutory change of the NOL
carryback rules), acquiring groups would possess the opportunity to
waive, on a taxable-year-by-taxable-year basis, all or a portion of the
carryback period with regard to CNOLs attributable to acquired members
for pre-acquisition years during which the acquired members were
members of a former group.
Therefore, these temporary regulations provide two additional types
of split-waiver elections for consolidated groups that (i) include one
or more acquired members, and (ii) have CNOLs that, under amended
carryback rules, become eligible to be carried back for a greater
number of years than under statutory law in effect at the time of the
acquisition (default carryback period). See the discussion in parts II
through IV of this Explanation of Provisions. A default carryback
period may consist of zero years in the case of a complete prohibition
on carrybacks. The additional years added under amended carryback rules
constitute the ``extended carryback period.'' The two additional types
of split-waiver elections set forth in these temporary regulations
provide relief, and are subject to conditions and procedures,
consistent with the applicable split-waiver elections set forth in the
2002 and 2010 split-waiver regulations.
II. Amended Statute Split-Waiver Election
These temporary regulations permit an acquiring group to make a
special split-waiver election with regard to a CNOL for a consolidated
return year in which an acquired member was included in the acquiring
group and to which amended carryback rules apply (amended statute
split-waiver election). Through this election, an acquiring group can
relinquish that part of the extended carryback period during which an
acquired member was a member of a former group (for the portion of a
CNOL attributable to the acquired member), notwithstanding that the
group did not file a split-waiver election for the year in which the
acquired member became a member of the acquiring group (as required by
Sec. 1.1502-21(b)(3)(ii)(B)). Accordingly, an amended statute split-
waiver election applies only to the portion of a CNOL that is
attributable to an acquired member for the portion of the carryback
period (including the default carryback period and the extended
carryback period) during which the acquired member was a member of a
former group.
An acquiring group makes an amended statute split-waiver election
on a year-by-year basis, consistent with the 2002 and 2010 split-waiver
regulations. Consequently, an acquiring group may make this election
for the portion of a CNOL attributable to an acquired member that
arises in any particular taxable year to which an amended carryback
rule applies (amended carryback CNOL), regardless of whether the
acquiring group makes such an election for CNOLs arising in other
consolidated return years. However, also consistent with the 2002 and
2010 split-waiver regulations, an acquiring group can make an amended
statute split-waiver election with respect to an amended carryback CNOL
only if any carryback to a taxable year included in the extended
carryback period is not claimed on a return or other filing by a former
group that is filed on or before the date this election is filed by the
acquiring group. Also consistent with the 2002 and 2010 split-waiver
regulations, an acquiring group can make an amended statute split-
waiver election with respect to an acquired member only if the
acquiring group did not file (i) a valid split-waiver election with
respect to that acquired member on or before the effective date of the
relevant amended carryback rules, or (ii) a general waiver election
with respect to a CNOL of the acquiring group from which the amended
carryback CNOL is attributed to the acquired member.
The amended statute split-waiver election generally must be made by
attaching a statement to the acquiring group's timely filed tax return
(including extensions) with regard to the consolidated return year
during which the amended carryback CNOL was incurred. In certain
circumstances, the statement may be attached to an amended return, but
that return must be filed no later than 150 days after the effective
date of the relevant amended carryback rules. These regulations also
include rules specific to the amendments to section 172 made by section
2303(b) of the CARES Act, which provide an additional option under
which the statement may be attached to an amended return filed no later
than November 30, 2020 (a date that is 150 days after the date of
filing of these temporary regulations). These filing requirements
incorporate the principles of the filing requirements set forth in the
2002 and 2010 split-waiver regulations, which were tailored to specific
enacted legislation.
III. Extended Split-Waiver Election
To provide acquiring groups with additional flexibility for making
split-waiver elections, these temporary regulations provide a second,
alternative split-waiver election (extended split-waiver election) that
applies solely to the extended carryback period (that is, the
additional carryback years provided under amended carryback rules).
Through an extended split-waiver
[[Page 40895]]
election, an acquiring group can ensure that amended carryback CNOLs
are carried back to taxable years of former groups only to the extent
those losses would have been carried back under prior law (that is, the
default carryback period). In other words, this election affects only
the extended carryback period for an acquired member's attributed loss.
The extended split-waiver election and the amended statute split-
waiver election are subject to the same conditions and procedures, and
provide the same relief, except that the extended split-waiver election
waives only the extended carryback period. Therefore, any CNOL
carryback to default carryback years would be unaffected by an extended
split-waiver election. For example, if the default carryback period
were two years and a change in law extended the carryback period to
five years, an acquiring group could make an extended split-waiver
election to waive the carryback to a former group of only the three
additional carryback years with respect to the amended carryback CNOL.
Accordingly, the extended split-waiver election is available if losses
attributable to the acquired member have been carried back solely to
taxable years of a former group in the default carryback period, but
not in the extended carryback period.
IV. Applicability Date
These temporary regulations apply to any CNOLs arising in a taxable
year ending after July 2, 2020. However, consistent with the
applicability date for the amendments to section 172(b) pursuant to
section 2303(b) of the CARES Act, and pursuant to section 7805(b)(2),
taxpayers may apply these temporary regulations to any CNOLs arising in
a taxable year beginning after December 31, 2017. The applicability of
these temporary regulations will expire on July 3, 2023.
V. Good Cause
The Treasury Department and the IRS are issuing these temporary
regulations without prior notice and the opportunity for public comment
pursuant to section 553(b)(B) of the Administrative Procedure Act
(APA), which provides that advance notice and the opportunity for
public comment are not required with respect to a rulemaking when an
agency ``for good cause finds (and incorporates the finding and a brief
statement of reasons therefor in the rules issued) that notice and
public procedure thereon are impracticable, unnecessary, or contrary to
the public interest.'' Under the ``public interest'' prong of 5 U.S.C.
553(b)(B), the good cause exception appropriately applies where notice
and comment would harm, defeat, or frustrate the public interest,
rather than serving it.
These temporary regulations, which solely provide certain acquiring
groups with elective relief, are necessary to permit certain acquiring
groups to elect to waive all or a portion of the carryback period for
certain losses attributable to acquired members for pre-acquisition
years during which the acquired members were members of a former group.
The amended carryback rules enacted by section 2303(b) of the CARES Act
apply for NOLs arising in a taxable year beginning after December 31,
2017, and before January 1, 2021. Consequently, good cause arises from
the fact that these temporary regulations will affect taxable years of
certain acquiring groups for which tax returns already are due or may
become due during a period of comment and delayed effectiveness.
Deferring the effectiveness of the temporary regulations until after
such a period could prevent taxpayers from immediately electing to
obtain the intended benefits of section 2303(b) of the CARES Act and
increase taxpayer compliance costs and uncertainty because of delay of
the time before which relevant acquiring groups could make the
elections permitted by the regulations with certainty.
Special Analyses
I. 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.
These regulations are not subject to review under section 6(b) of
Executive Order 12866 pursuant to the Memorandum of Agreement (April
11, 2018) between the Treasury Department and the Office of Management
and Budget regarding review of tax regulations.
II. Paperwork Reduction Act
The collections of information in these temporary regulations are
in Sec. 1.1502-21T(b)(3)(ii)(C)(5)(i) and Sec. 1.1502-
21T(b)(3)(ii)(C)(5)(ii). The information is required to inform the IRS
on whether, and to what extent, an acquiring group makes either of the
elections described in these temporary regulations.
The collection of information provided by these temporary
regulations has been approved by the Office of Management and Budget
(OMB) under control number 1545-0123. For purposes of the Paperwork
Reduction Act, 44 U.S.C. 3501 et seq. (PRA), the reporting burden
associated with the collection of information in Form 1120 (U.S.
Corporation Income Tax Return) will be reflected in the PRA Submission
associated with OMB control number 1545-0123.
In general, if the acquiring group makes an election under Sec.
1.1502-21T(b)(3)(ii)(C), the acquiring group is required to attach a
separate statement to its Form 1120 as provided in Sec. 1.1502-
21T(b)(3)(ii)(C)(5)(i) and Sec. 1.1502-21T(b)(3)(ii)(C)(5)(ii),
respectively. This statement must be filed as provided in Sec. 1.1502-
21T(b)(3)(ii)(C)(6).
The following table displays the number of respondents estimated to
be required to report on Form 1120 with respect to the collections of
information required by these temporary regulations. Due to the absence
of historical tax data, direct estimates of the number of respondents
required to attach a statement to other types of tax returns, as
applicable, are not available.
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Number of
respondents
(estimated)
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Amended Statute Split-Waiver Election & Extended Split-Waiver Election
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Form 1120............................................... 17,500
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Source: RAAS:CDW.
The numbers of respondents in the table were estimated by the
Research, Applied Analytics and Statistics Division (RAAS) of the IRS
from the Compliance Data Warehouse (CDW). Data for Form 1120 represents
estimates of the total number of taxpayers that may attach an election
statement to their Form 1120 to make the elections in Sec. 1.1502-
21T(b)(3)(ii)(C)(5)(i) and Sec. 1.1502-21T(b)(3)(ii)(C)(5)(ii).
It is estimated that 17,500 consolidated entities will be required
to attach a statement under these temporary regulations. The burden
associated with the information collections in these temporary
regulations are included in aggregated burden estimates for the OMB
control number 1545-0123. The burden estimates provided in the OMB
control
[[Page 40896]]
numbers in the following table are aggregate amounts that relate to the
entire package of forms associated with the OMB control number, and
will in the future include, but not isolate, the estimated burden of
those information collections associated with these temporary
regulations. To guard against over-counting the burden that
consolidated tax provisions imposed prior to Sec. 1.1502-21T, the
Treasury Department and the IRS urge readers to recognize that these
burden estimates have also been cited by regulations that rely on the
applicable OMB control numbers in order to collect information from the
applicable types of filers.
----------------------------------------------------------------------------------------------------------------
Form Type of filer OMB No. Status
----------------------------------------------------------------------------------------------------------------
Form 1120............................. Corporation.............. 1545-0123 Published in the Federal
Register on 9/30/19. Public
Comment period closed on 11/
29/19. Approved by OIRA
through 1/31/2021.
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Link: https://www.federalregister.gov/documents/2018/10/09/2018-21846/proposed-collection-comment-request-for-forms-1065-1065-b-1066-1120-1120-1120-f-1120-h-1120-nd.
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Source: RAAS:CDW.
III. Regulatory Flexibility Act
These temporary regulations do not impose a collection of
information on small entities. Further, pursuant to the Regulatory
Flexibility Act (5 U.S.C. chapter 6), it is hereby certified that these
temporary regulations would not have a significant economic impact on a
substantial number of small entities. This certification is based on
the fact that these temporary regulations apply only to corporations
that file consolidated Federal income tax returns, and that such
corporations tend to be larger businesses. Therefore, these temporary
regulations would not create additional obligations for, or impose an
economic impact on, small entities.
Pursuant to section 7805(f) of the Internal Revenue Code, these
temporary regulations have been submitted to the Chief Counsel for
Advocacy of the Small Business Administration for comment on its 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 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 2020, that threshold is approximately $156 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. These temporary regulations do not
have federalism implications, do not impose substantial direct
compliance costs on state and local governments, and do not preempt
state law within the meaning of the Executive Order.
Statement of Availability of IRS Documents
IRS Revenue Procedures, Revenue Rulings, and Notices 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 http://www.irs.gov.
Drafting Information
The principal author of these regulations is Jonathan R. Neuville
of the Office of Associate Chief Counsel (Corporate). However, other
personnel from the Treasury Department and the IRS participated in
their development.
List of Subjects
26 CFR Part 1
Income taxes, Reporting and recordkeeping requirements.
26 CFR Part 602
Reporting and recordkeeping requirements.
Adoption of Amendments to the Regulations
Accordingly, 26 CFR parts 1 and 602 are amended as follows:
PART 1--INCOME TAX
0
Paragraph 1. The authority citation for part 1 continues to read in
part as follows:
Authority: 26 U.S.C. 7805 * * *
0
Par. 2. Section 1.1502-21T is revised to read as follows:
Sec. 1.1502-21T Net operating losses (temporary).
(a) For further guidance, see Sec. 1.1502-21(a).
(b) For further guidance, see Sec. 1.1502-21(b) introductory text
through (b)(2).
(1) and (2) [Reserved]
(3) For further guidance, see Sec. 1.1502-21(b)(3) introductory
text through (b)(3)(ii)(B).
(i) [Reserved]
(ii)(A) [Reserved]
(B) [Reserved]
(C) Waiver of carryback period for losses in taxable years to which
statutorily amended carryback rules apply--(1) In general. An acquiring
group may make either (but not both) an amended statute split-waiver
election or an extended split-waiver election with respect to a
particular amended carryback CNOL. (See paragraph (b)(3)(ii)(C)(2) of
this section for definitions of terms used in paragraph this
(b)(3)(ii)(C) and paragraph (b)(3)(ii)(D) of this section.) These
elections are available only if the statutory amendment to the
carryback period referred to in paragraph (b)(3)(ii)(C)(2)(iv) of this
section occurs after the date of acquisition of an acquired member. A
separate election is available for each taxable year to which amended
carryback rules apply. An acquiring group may make an amended statute
split-waiver election or an extended split-waiver election only if the
acquiring group, with regard to that election--
(i) Satisfies the requirements in paragraph (b)(3)(ii)(C)(3) of
this section; and
(ii) Follows the procedures in paragraphs (b)(3)(ii)(C)(5) and (6)
of this section, as relevant to that election.
(2) Definitions. The definitions provided in this paragraph
(b)(3)(ii)(C)(2) apply for purposes of this paragraph (b)(3)(ii)(C) and
paragraph (b)(3)(ii)(D) of this section.
(i) Acquired member. The term acquired member means a member of a
consolidated group that joins another consolidated group.
[[Page 40897]]
(ii) Acquiring group. The term acquiring group means a consolidated
group that has acquired a former member of another consolidated group
(that is, an acquired member).
(iii) Amended carryback CNOL. The term amended carryback CNOL means
the portion of a CNOL attributable to an acquired member (determined
pursuant to Sec. 1.1502-21(b)(2)(iv)(B)) arising in a taxable year to
which amended carryback rules apply.
(iv) Amended carryback rules. The term amended carryback rules
means the rules of section 172 of the Code after amendment by statute
to extend the carryback period for NOLs attributable to an acquired
member (determined pursuant to Sec. 1.1502-21(b)(2)(iv)(B)).
(v) Amended statute split-waiver election. The term amended statute
split-waiver election means, with respect to any amended carryback
CNOL, an irrevocable election made by an acquiring group to relinquish
the portion of the carryback period (including the default carryback
period and the extended carryback period) for that loss during which an
acquired member was a member of any former group.
(vi) Amended statute split-waiver election statement. The term
amended statute split-waiver election statement has the meaning
provided in paragraph (b)(3)(ii)(C)(5)(i) of this section.
(vii) Default carryback period. The term default carryback period
means the NOL carryback period existing at the time the acquiring group
acquired the acquired member, before the applicability of amended
carryback rules.
(viii) Extended carryback period. The term extended carryback
period means the additional taxable years added to a default carryback
period by any amended carryback rules.
(ix) Extended split-waiver election. The term extended split-waiver
election means, with respect to any amended carryback CNOL, an
irrevocable election made by an acquiring group to relinquish solely
the portion of the extended carryback period (and no part of the
default carryback period) for that loss during which an acquired member
was a member of any former group.
(x) Extended split-waiver election statement. The term extended
split-waiver election statement has the meaning provided in paragraph
(b)(3)(ii)(C)(5)(ii) of this section.
(xi) Former group. The term former group means a consolidated group
of which an acquired member previously was a member.
(3) Conditions for making an amended statute split-waiver election
or an extended split-waiver election. An acquiring group may make an
amended statute split-waiver election or an extended split-waiver
election (but not both) with respect to an amended carryback CNOL only
if--
(i) The acquiring group has not filed a valid election described in
Sec. 1.1502-21(b)(3)(ii)(B) with respect to the acquired member on or
before the effective date of amended carryback rules;
(ii) The acquiring group has not filed a valid election described
in section 172(b)(3) and Sec. 1.1502-21(b)(3)(i) with respect to a
CNOL of the acquiring group from which the amended carryback CNOL is
attributed to the acquired member;
(iii) Any other corporation joining the acquiring group that was
affiliated with the acquired member immediately before the acquired
member joined the acquiring group is included in the waiver; and
(iv) A former group does not claim any carryback (as provided in
paragraph (b)(3)(ii)(C)(4) of this section) to any taxable year in the
carryback period (in the case of an amended statute split-waiver
election) or in the extended carryback period (in the case of an
extended split-waiver election) with respect to the amended carryback
CNOL on a return or other filing filed on or before the date the
acquiring group files the election.
(4) Claim for a carryback. For purposes of paragraph
(b)(3)(ii)(C)(3)(iv) of this section, a carryback is claimed with
respect to an amended carryback CNOL if there is a claim for refund, an
amended return, an application for a tentative carryback adjustment, or
any other filing that claims the benefit of the NOL in a taxable year
prior to the taxable year of the loss, whether or not subsequently
revoked in favor of a claim based on the period provided for in the
amended carryback rules.
(5) Procedures for making an amended statute split-waiver election
or an extended split-waiver election--(i) Amended statute split-waiver
election. An amended statute split-waiver election must be made in a
separate statement entitled ``THIS IS AN ELECTION UNDER SECTION 1.1502-
21T(b)(3)(ii)(C)(2)(v) TO WAIVE THE PRE-[insert first day of the first
taxable year for which the acquired member was a member of the
acquiring group] CARRYBACK PERIOD FOR THE CNOLS ATTRIBUTABLE TO THE
[insert taxable year of losses] TAXABLE YEAR(S) OF [insert names and
employer identification numbers of members]'' (amended statute split-
waiver election statement). This statement must be filed as provided in
paragraph (b)(3)(ii)(C)(6) of this section.
(ii) Extended split-waiver election. An extended split-waiver
election must be made in a separate statement entitled ``THIS IS AN
ELECTION UNDER SECTION 1.1502-21T(b)(3)(ii)(C)(2)(ix) TO WAIVE THE PRE-
[insert first day of the first taxable year for which the acquired
member was a member of the acquiring group] EXTENDED CARRYBACK PERIOD
FOR THE CNOLS ATTRIBUTABLE TO THE [insert taxable year of losses]
TAXABLE YEAR(S) OF [insert names and employer identification numbers of
members]'' (extended split-waiver election statement). This statement
must be filed as provided in paragraph (b)(3)(ii)(C)(6) of this
section.
(6) Time and manner for filing statement--(i) In general. Except as
otherwise provided in paragraph (b)(3)(ii)(C)(6)(ii) or (iii) of this
section, an amended statute split-waiver election statement or extended
split-waiver election statement must be filed with the acquiring
group's timely filed consolidated return (including extensions) for the
year during which the amended carryback CNOL is incurred.
(ii) Amended returns. This paragraph (b)(3)(ii)(C)(6)(ii) applies
if the date of the filing required under paragraph (b)(3)(ii)(C)(6)(i)
of this section is not at least 150 days after the date of the
statutory amendment to the carryback period referred to in paragraph
(b)(3)(ii)(C)(2)(iv) of this section. Under this paragraph
(b)(3)(ii)(C)(6)(ii), an amended statute split-waiver election
statement or extended split-waiver election statement may be attached
to an amended return filed by the date that is 150 days after the date
of the statutory amendment referred to in paragraph
(b)(3)(ii)(C)(2)(iv) of this section.
(iii) Certain taxable years beginning before January 1, 2021. This
paragraph (b)(3)(ii)(C)(6)(iii) applies to taxable years beginning
before January 1, 2021, for which the date of the filing required under
paragraph (b)(3)(ii)(C)(6)(i) of this section precedes November 30,
2020. Under this paragraph (b)(3)(ii)(C)(6)(iii), an amended statute
split-waiver election statement or extended split-waiver election
statement may be attached to an amended return filed by November 30,
2020.
(D) Examples. The following examples illustrate the rules of
paragraph (b)(3)(ii)(C) of this section. For purposes of these
examples: All affiliated groups file consolidated returns; all
corporations are includible corporations that have calendar taxable
years; each of P, X, and T is a
[[Page 40898]]
corporation having one class of stock outstanding; each of P and X is
the common parent of a consolidated group (P Group and X Group,
respectively); neither the P Group nor the X Group includes an
insolvent financial institution or an insurance company; no NOL is a
farming loss; there are no other relevant NOL carrybacks to the X
Group's consolidated taxable years; except as otherwise stated, the X
Group has sufficient consolidated taxable income determined under Sec.
1.1502-11 (CTI) to absorb the stated NOL carryback by T; T has
sufficient SRLY register income within the X Group to absorb the stated
NOL carryback by T; all transactions occur between unrelated parties;
and the facts set forth the only relevant transactions.
(1) Example 1: Computation and absorption of amended carrybacks--
(i) Facts. In Year 1, T became a member of the X Group. On the last day
of Year 5, P acquired all the stock of T from X. At the time of P's
acquisition of T stock, the default carryback period was zero taxable
years. The P Group did not make an irrevocable split-waiver election
under Sec. 1.1502-21(b)(3)(ii)(B) to relinquish, with respect to all
CNOLs attributable to T while a member of the P Group, the portion of
the carryback period for which T was a member of the X Group (that is,
a former group). In Year 7, the P Group sustained a $1,000 CNOL, $600
of which was attributable to T pursuant to Sec. 1.1502-
21(b)(2)(iv)(B). In that year, P did not make an irrevocable general
waiver election under section 172(b)(3) and Sec. 1.1502-21(b)(3)(i)
with respect to the $1,000 CNOL when the P Group filed its consolidated
return for Year 7. In Year 8, legislation was enacted that amended
section 172 to require a carryback period of five years for NOLs
arising in a taxable year beginning after Year 5 and before Year 9.
(ii) Analysis. As a result of the amended carryback rules enacted
in Year 8, the P Group's $1,000 CNOL in Year 7 must be carried back to
Year 2. Therefore, T's $600 attributed portion of the P Group's Year 7
CNOL (that is, T's amended carryback CNOL) must be carried back to
taxable years of the X Group. See Sec. Sec. 1.1502-21(b)(1) and
1.1502-21(b)(2)(i). To the extent T's amended carryback CNOL is not
absorbed in the X Group's Year 2 taxable year, the remaining portion
must be carried to the X Group's Year 3, Year 4, and Year 5 taxable
years, as appropriate. See id. Any remaining portion of T's amended
carryback CNOL is carried to consolidated return years of the P Group.
See Sec. 1.1502-21(b)(1).
(2) Example 2: Amended statute split-waiver election--(i) Facts.
The facts are the same as in paragraph (b)(3)(ii)(D)(1)(i) of this
section (Example 1), except that, following the change in statutory
carryback period in Year 8, the P Group made a valid amended statute
split-waiver election under paragraph (b)(3)(ii)(C) of this section to
relinquish solely the carryback of T's amended carryback CNOL.
(ii) Analysis. Because the P Group made a valid amended statute
split-waiver election, T's amended carryback CNOL is not eligible to be
carried back to any taxable years of the X Group (that is, a former
group). However, the amended statute split-waiver election does not
prevent T's Year 7 amended carryback CNOL from being carried back to
years of the P group (that is, the acquiring group) during which T was
a member. See paragraph (b)(3)(ii)(C)(1)(v) of this section. As a
result, the entire amount of T's amended carryback CNOL is eligible to
be carried back to taxable Year 6 of the P Group. Any remaining CNOL
may then be carried over within the P Group. See Sec. 1.1502-21(b)(1).
(3) Example 3: Computation and absorption of extended carrybacks--
(i) Facts. The facts are the same as in paragraph (b)(3)(ii)(D)(1)(i)
of this section (Example 1), except that the X Group had $300 of CTI in
Year 4 and $200 of CTI in Year 5 and, at the time of the P Group's
acquisition of T, the default carryback period was two years.
Therefore, T's $600 attributed portion of the P Group's Year 7 CNOL was
required to be carried back to the X Group's Year 5 taxable year, and
the X Group was able to offset $200 of CTI in Year 5.
(ii) Analysis. As a result of the amended carryback rules, the X
Group must offset its $300 of CTI in Year 4 against T's amended
carryback CNOL. See Sec. Sec. 1.1502-21(b)(1) and (b)(2)(i). The
remaining $100 ($600-$300-$200) of T's amended carryback CNOL is
carried to taxable years of the P Group. See Sec. 1.1502-21(b)(1).
(4) Example 4: Extended split-waiver election--(i) Facts. The facts
are the same as in paragraph (b)(3)(ii)(D)(3)(i) of this section
(Example 3), except that, following the change in law in Year 8, the P
Group made a valid extended split-waiver election under paragraph
(b)(3)(ii)(C) of this section to relinquish the extended carryback
period for T's amended carryback CNOL for years in which T was a member
of the X Group.
(ii) Analysis. As a result of the P Group's extended split-waiver
election, T's amended carryback CNOL is not eligible to be carried back
to any portion of the extended carryback period (that is, any taxable
year prior to Year 5). See paragraph (b)(3)(ii)(C)(1)(ix) of this
section. As a result, the X Group absorbs $200 of T's $600 loss in Year
5, and the remaining $400 ($600-$200) is carried to taxable years of
the P Group. See Sec. 1.1502-21(b)(1).
(iii) For further guidance, see Sec. 1.1502-21(b)(3)(iii).
(c) For further guidance, see Sec. 1.1502-21(c) through (h)(8).
(d) through (j) [Reserved]
(h)(1) through (8) [Reserved]
(9) Amended carryback rules--(i) Applicability date. Paragraphs
(b)(3)(ii)(C) and (D) of this section apply to any CNOLs arising in a
taxable year ending after July 2, 2020. However, taxpayers may apply
paragraphs (b)(3)(ii)(C) and (D) of this section to any CNOLs arising
in a taxable year beginning after December 31, 2017.
(ii) Expiration date. The applicability of paragraphs (b)(3)(ii)(C)
and (D) of this section will expire on July 3, 2023.
PART 602--OMB CONTROL NUMBERS UNDER THE PAPERWORK REDUCTION ACT
0
Par. 3. The authority citation for part 602 continues to read as
follows:
Authority: 26 U.S.C. 7805.
0
Par. 4. In Sec. 602.101, paragraph (b), the entry for Sec. 1.1502-21T
is revised to read as follows:
Sec. 602.101 OMB Control Numbers.
* * * * *
(b) * * *
------------------------------------------------------------------------
Current OMB
CFR part or section where identified and described control No.
------------------------------------------------------------------------
* * * * * * *
1.1502.21T.............................................. 1545-0123
* * * * * * *
------------------------------------------------------------------------
[[Page 40899]]
Douglas W. O'Donnell,
Acting Deputy Commissioner for Services and Enforcement.
Approved: June 23, 2020.
David J. Kautter,
Assistant Secretary of the Treasury (Tax Policy).
[FR Doc. 2020-14426 Filed 7-2-20; 4:15 pm]
BILLING CODE 4830-01-P