TREASURY INSPECTOR GENERAL FOR TAX ADMINISTRATION
Customer Account Data Engine Release 3 Successfully Processes Individual Tax Return and Tax Account Information
October 24, 2008
Reference Number: 2009-20-001
This report has cleared the Treasury Inspector General for Tax Administration disclosure review process and information determined to be restricted from public release has been redacted from this document.
Phone Number |
202-622-6500
Email Address | inquiries@tigta.treas.gov
Web Site |
http://www.tigta.gov
October 24, 2008
MEMORANDUM FOR COMMISSIONER, WAGE AND INVESTMENT DIVISION
FROM: Michael R. Phillips /s/ Michael R. Phillips
Deputy Inspector General for Audit
SUBJECT: Final Audit Report – Customer Account Data Engine Release 3 Successfully Processes Individual Tax Return and Tax Account Information (Audit # 200820009)
This report presents the results of our review to determine whether Customer Account Data Engine (CADE) Release 3[1] accurately processed tax return information. The overall objective of this review was to determine whether CADE Release 3 met user requirements and is performing as expected. This report is the fifth in a series of ongoing reviews of production releases of the CADE. These reviews are meant to determine whether the deployed production versions of the CADE are working as designed. This review was part of the Treasury Inspector General for Tax Administration Fiscal Year 2008 Annual Audit Plan coverage under the major management challenge of Modernization of the Internal Revenue Service (IRS).
Impact on the Taxpayer
The
IRS has developed a strategy for a phased replacement of its computer systems
to better support today’s tax laws, policies, and taxpayer needs. The CADE is an essential project in this
strategy and is considered the centerpiece of the IRS modernization program. The modernized CADE database will allow the
IRS to update taxpayer accounts, support account settlement and maintenance,
and process refunds daily, which will contribute to improved service to
taxpayers. Based on our review, CADE
Release 3 is operating effectively to help the IRS provide these improved
services to taxpayers.
Synopsis
In Calendar Year 2008, the CADE processed more than 30 million tax returns and generated more than $44 billion in refunds.
The CADE is being implemented in a series of bi-annual releases over several years. The first CADE release began posting the simplest individual tax returns in July 2004. The subject of this review, Release 3, began processing tax returns in August 2007. In addition to new tax law changes, several new tax return schedules were added to the CADE, including Earned Income Credit (Schedule EIC), Child and Dependent Care Expenses (Form 2441), Child and Dependent Care Expenses for Form 1040A Filers (Schedule 2), and Direct Deposit of Refund to More Than One Account (Form 8888). Additional improvements include the enhanced ability to process taxpayer address changes, and for the first time, the CADE is now processing two math error notices and an Earned Income Tax Credit informational notice.
The Economic Stimulus Act of 2008,[2] signed by the President on February 13, 2008, was enacted to put money in the hands of American workers and businesses and to provide a boost to a slowing economy. The IRS developed a program to identify taxpayers qualified to receive the economic stimulus payments. This program was deployed to the CADE in a timely manner, and the IRS began sending payments to taxpayers on April 28, 2008.
We sampled tax accounts processed using Release 3 capabilities and found that the CADE successfully incorporated new requirements to accept and process tax return and tax account information. As of July 25, 2008, the CADE had processed more than 30 million tax returns (approximately 21 percent of all individual tax returns filed) and generated more than $44 billion in refunds in Calendar Year 2008. This is a significant increase over the 11.2 million tax returns processed in Calendar Year 2007. In addition, the CADE accurately processed almost 24 million economic stimulus payments totaling more than $18 billion during this same period in Calendar Year 2008.
Recommendations
We made no recommendations in this report.
Response
In an email to us, IRS management
concurred with the contents of an advance copy of the draft report. Because the IRS concurred with the report
contents and the report contained no recommendations, the IRS was not required
to and did not provide a formal response.
Copies of this report are also being sent to the IRS managers affected by the report results. Please contact me at (202) 622-6510 if you have questions or Margaret E. Begg, Assistant Inspector General for Audit (Security and Information Technology Services), at (202) 622-8510.
Appendices
Appendix
I – Detailed Objective, Scope, and Methodology
Appendix
II – Major Contributors to This Report
Appendix
III – Report Distribution List
Appendix
IV – Customer Account Data Engine Release Capabilities
Appendix V
– Glossary of Terms
Abbreviations
|
CADE |
Customer Account Data Engine |
|
IRS |
Internal Revenue Service |
The CADE is
a critical building block in the IRS’ modernization program that will enable
the development of subsequent modernized systems to improve customer service and compliance.
The Customer Account Data Engine (CADE) is
the centerpiece of the Internal Revenue Services’ (IRS) modernization program. The CADE consists
of current and planned databases and related applications that will eventually
replace the IRS Master File[3] system as the official
repository of taxpayer account information.
When fully operational, the CADE will house tax information for more
than 200 million individual and business taxpayers.
Both paper and electronic tax
returns are received by the IRS at various Submission Processing sites across
the country. At these sites, the tax
return information is input to the IRS return processing computer system, which
validates certain taxpayer identifying information and checks the tax returns
for math errors. After the tax return
information has been validated and errors have been corrected, the sites send
the information to the IRS Computing Centers for posting to the taxpayers’
accounts. In the past, this account
information was posted to the Master File.
The age and complexity of the
Master File cause inaccuracies and delays in providing service to
taxpayers. Updates to taxpayers’ account
information on the Master File (e.g., posting
return information and payments)
occur weekly, and
some updates require multiple weeks to complete. Because current data are not available to IRS
employees, taxpayers requesting help with their accounts might be given
outdated information. In contrast, the
CADE is designed to post information to taxpayers’ accounts daily rather than
weekly. Taxpayers should receive refunds
faster, and IRS employees should be able to provide improved service to
taxpayers because the employees will have up-to-date, accurate account
information available.
The first phase of the CADE,
which is for individual taxpayer accounts, is being implemented in a series of
releases over several years. The
simplest taxpayer accounts were moved to the CADE first, and each successive
release adds a more complex segment of taxpayer accounts. The first CADE release began posting the
simplest individual tax returns,
the Income Tax Return for Single and Joint Filers With No
Dependents (Form 1040EZ), in July 2004. Subsequent
releases have added new capabilities and tax forms. The subject of this review, CADE Release 3,
began posting returns in August 2007 and contained significant additions over
the prior releases.
This review was performed in the Wage and Investment Division CADE Project Office in New Carrollton, Maryland, during the period February 2008 through August 2008. We conducted this performance audit in accordance with generally accepted government auditing standards. Those standards require that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objective. We believe that the evidence obtained provides a reasonable basis for our finding and conclusions based on our audit objective. This review was part of the Treasury Inspector General for Tax Administration Fiscal Year 2008 Annual Audit Plan coverage under the major management challenge of Modernization of the IRS. Detailed information on our audit objective, scope, and methodology is presented in Appendix I. Major contributors to the report are listed in Appendix II.
The Customer Account Data Engine Release 3 Accurately Processes and Records Tax Return and Tax Account Information
The IRS completed CADE
Release 3.1 in October 2007 and Release 3.2 in February 2008. In addition to new tax law changes, several
new tax return schedules were added to the CADE, including Earned Income Credit
(Schedule EIC), Child and Dependent Care Expenses (Form 2441), Child and
Dependent Care Expenses for Form 1040A Filers (Schedule 2), and Direct Deposit
of Refund to More Than One Account (Form 8888).
Additional improvements include the enhanced ability to process taxpayer
address changes using the Enterprise
Application Integration Broker, and
for the first time, the CADE is now processing two math error notices and an
Earned Income Tax Credit informational notice.
Appendix IV provides an overview of the capabilities delivered in each
of the CADE releases.
In Calendar
Year 2008, the CADE processed more than 30 million tax returns and generated
more than $44 billion in refunds.
As of July 25, 2008, the CADE had processed more than 30 million tax returns (approximately 21 percent of all individual tax returns filed) and generated more than $44 billion in refunds in Calendar Year 2008. This is a significant increase over the 11.2 million tax returns processed in Calendar Year 2007. In addition, the CADE accurately processed almost 24 million Economic Stimulus Act of 2008[4] payments totaling more than $18 billion during this same period in Calendar Year 2008.
Release 3.1 capabilities enable the CADE to accurately
record more tax return account information
The major
capabilities added to CADE Release 3.1 included the Disaster Area Designation,
the ability to accept address changes from the Enterprise Application
Integration Broker, and the Legacy Account Formatted File Online entity “in-transit”
indicator.
·
The Disaster Area Designation is applied to
taxpayer accounts affected by a disaster (e.g., Hurricane Katrina’s destruction
of
·
The
Enterprise Application Integration Broker enables data communication and
transformation among systems and applications.
Release 3.1 successfully implemented the capability to enable the CADE
to accept taxpayer address changes using the Enterprise Application Integration
Broker.
·
The
Legacy Account Formatted File Online entity “in-transit” indicator
identifies taxpayer accounts that do not qualify for CADE processing and are
returning to the Individual Master File for account control. We determined that tax returns with the Legacy Account Formatted File Online entity indicator
were successfully returned and posted to the Individual Master File.
Release 3.1 also added a tax period balance validation process to the CADE. If the validation process detects an out-of-balance amount, the CADE will trigger an error message requiring resolution of the error before the tax period balance can be updated to the Legacy Account Formatted File Online. We attempted to identify out-of-balance error conditions requiring resolution by the CADE. The IRS reported that it has resolved out-of-balance conditions between the CADE and the Legacy Account Formatted File Online through automated error resolution processes.
Release 3.2 successfully incorporated new
requirements to accept and process tax return information
New requirements for CADE Release 3.2 included the ability to accept tax returns with math errors and to initiate math error notices, to accept claims for child and dependent care credits, and to accept claims for the Earned Income Tax Credit. Release 3.2 also allowed the CADE to interface with the Dependent Database to help verify taxpayer dependent and Earned Income Tax Credit claims and to provide taxpayers with the ability to deposit their electronic tax return refunds into multiple checking, savings, and/or retirement accounts.
The CADE effectively processed economic stimulus payments
The CADE processed
more than $18 billion in economic stimulus payments to almost 24 million
taxpayers.
The Economic Stimulus Act of 2008, signed by the President on February 13, 2008, was enacted to put money in the hands of American workers and businesses and to provide a boost to a slowing economy. The IRS developed a program to identify taxpayers qualified to receive the economic stimulus payments. This program was deployed to the CADE in a timely manner on April 21, 2008, and the IRS began sending payments to taxpayers on April 28, 2008. As of July 25, 2008, the CADE had processed more than $18 billion in payments to almost 24 million taxpayers. We determined that the CADE accurately processed the economic stimulus payments.
Detailed Objective, Scope, and Methodology
The overall objective of this audit was to determine whether CADE Release 3[5] met user requirements and performs as expected. To accomplish our overall objective, we:
I. Determined whether new requirements included in Release 3.1 accurately posted tax return information to the CADE.
II. Determined whether new requirements included in Release 3.2 accurately posted tax return information to the CADE. Specifically, we determined whether the CADE:
A. Accepted accounts with math errors and initiated math error notices.
B. Accepted tax returns that claim a credit for child and dependent care.
C. Accepted tax returns with an Earned Income Tax Credit or initiated notices to appropriate taxpayers of their eligibility to claim this Credit.
D. Interfaced with the Dependent Database to help verify the dependent and Earned Income Tax Credit claims.
E. Provides taxpayers with the ability to deposit their electronic refunds from tax returns into multiple checking, savings, and/or retirement accounts.
III. Determined whether the CADE efficiently and effectively processed economic stimulus payments required with enactment of the Economic Stimulus Act of 2008.[6]
A. Determined whether the CADE processed payments and avoided returning CADE accounts to the Individual Master File to process the payments.
B. Determined whether the payments processed by the CADE were accurate.
C. Determined whether the payments were issued in a timely manner.
Validity and reliability of data from computer-based systems
We obtained individual tax return data processed by the CADE and stored on the Modernized Tax Return Database. We compared these data to information processed and stored in the Individual Master File. We used the tax return identification number as the control to validate the accuracy of the matching of the tax return information stored on the Modernized Tax Return Database and the Individual Master File. The data were sufficiently reliable to perform our audit analyses.
Analysis of CADE
tax return samples
Tables 1 through 3 present the tax return populations and samples we used to analyze CADE Releases 3.1 and 3.2 capabilities and the processing of payments related to the Economic Stimulus Act of 2008. Our reviews involved analyses of Calendar Years 2006 and 2007 U.S. Individual Income Tax Returns (Forms 1040 and 1040A) and Income Tax Returns for Single and Joint Filers With No Dependents (Form 1040EZ) filed and recorded to the CADE from August 2007 through July 2008. We used random sampling to ensure that each account had an equal chance of being selected, which enabled us to obtain sufficient evidence to support our results.
Table 1: Sample Selection of CADE Release 3.1
Forms 1040, 1040A, and 1040EZ Filed
From August 2007 Through December 2007
|
CADE Release 3.1 Capability Tested |
Population |
Sample Size |
|
Disaster Area Designation |
1,792,321 |
30 |
|
|
1,376 |
10 |
|
Legacy Account Formatted
File Online Entity Account “In Transit” Indicator |
27,957 |
10 |
|
Account Balance Validation and Identification |
None identified |
0 |
Source: Treasury Inspector General for Tax
Administration extract of tax return account data from the CADE and
the Individual Master File for the
period August 2007 through December 2007.
Detailed Sample Parameters:
·
Disaster Area Designation Tax Returns – We selected 30 individual income tax
returns that had posted to the CADE with a Disaster Area Designation between August
2007 and November 2007.
·
·
Legacy Account
Formatted File Online Entity Account “In Transit” Indicator – We selected 10 individual income tax
returns with an “in transit” indicator required to
identify which CADE accounts were sent to the Individual Master File as of
December 31, 2007.
·
Account Balance Validation and Identification – There were no instances of out-of-balance conditions identified.
Table 2: Sample Selection of CADE Release 3.2
Forms 1040, 1040A, and 1040EZ Filed
From January 2008 Through July 2008
|
CADE Release 3.2 Capability Tested |
Form 1040 |
Form 1040A |
Form 1040EZ |
Totals for Forms
1040/1040A/ |
|
Issuance of |
6,953 15 |
3,816 15 |
14,085 15 |
24,854 45 |
|
Child and Dependent Care Expenses (Form 2441)
Credit |
792,845 30 |
33,861 30 |
Not Applicable Not Applicable |
826,706 60 |
|
Earned Income Credit (Schedule
EIC) |
478,069 30 |
388,503 30 |
Not Applicable Not Applicable |
866,572 60 |
|
Earned
Income Tax Credit Notices |
15,256 10 |
10,756 10 |
32,314 20 |
58,326 40 |
|
Dependent Database Interface |
3,769 10 |
2,078 10 |
20 10 |
5,867 30 |
|
|
8,793 10 |
1,585 10 |
1,784 10 |
12,162 30 |
Source: Treasury
Inspector General for Tax Administration extracts of tax return account data
from the CADE
and
the Individual Master File for the period January 2008 through July 2008.
Detailed Sample Parameters:
·
Issuance of Non-Balance-Due Math Error Notices – We selected 45 individual
income tax returns that had posted to the CADE between April and July 2008 and
were issued non-balance-due math error notices.
·
Child and Dependent Care Expenses (Form 2441)
Credit – We selected 60 individual income tax returns that claimed a tax
credit for child and dependent care expenses and had posted to the CADE between
February and May 2008.
·
Earned Income
Credit (Schedule EIC) – We
selected 60 individual income tax returns that claimed the Earned Income Tax
Credit and had posted to the CADE between February and May 2008.
·
Earned Income Tax Credit Notices – We selected 40
individual income tax returns with Earned Income Tax Credit notices generated by
the CADE between April and June 2008.
·
Dependent Database Interface – We
selected 30 individual income tax returns that had posted to the CADE between
January and May 2008 and had been identified by the IRS for review of the
dependents reported on the tax returns.
·
Table 3: Sample Selection of Economic Stimulus Act of
2008
Payment Program Accounts
From April 2008 Through May 2008
|
|
Payments Processed by the
CADE |
CADE Payments Processed
by the |
Total CADE |
|
Economic Stimulus Act
of 2008 Payment Program |
17,040,368 |
1,074,661 |
18,115,029 |
|
Sampled |
50 |
34 |
84 |
Source: Treasury Inspector General for Tax
Administration extracts of tax return account data from the CADE and
the Individual Master File for the period April 2008 through May 2008.
Detailed Sample Parameters:
·
Economic Stimulus Act of
2008 Payment Program – We selected 84 individual income tax returns
that had posted to the CADE and had been selected by the IRS to receive economic
stimulus payments between April 2008 and May 2008.
Appendix II
Major Contributors to This Report
Margaret E. Begg, Assistant Inspector General for Audit (Security and Information Technology Services)
Scott A. Macfarlane, Director
Edward A. Neuwirth, Audit Manager
James A. Douglas, Senior Auditor
Michael A. Garcia, Senior Auditor
Paul M. Mitchell, Senior Auditor
Wallace C. Sims, Senior Auditor
Robert J. Carpenter, Senior Information Technology Specialist
Arlene Feskanich, Senior Information Technology Specialist
Richard Hillelson, Information Technology Specialist
Martha Stewart, Information Technology Specialist
Appendix III
Commissioner C
Office of the Commissioner – Attn: Chief of Staff C
Deputy
Commissioner for Operations Support OS
Deputy Commissioner for Services and Enforcement SE
Chief Information Officer OS:CIO
Deputy Commissioner, Wage and Investment Division SE:W
Associate Chief Information Officer, Applications Development OS:CIO:AD
Director, Customer Account Services, Wage and Investment Division SE:W:CAS
Director, Strategy and Finance, Wage and Investment Division SE:W:S
Chief, Performance Improvement, Wage and Investment Division SE:W:S:PI
Director, Submission Processing, Wage and Investment Division SE:W:CAS:SP
Chief Counsel CC
National Taxpayer Advocate TA
Director, Office of Legislative Affairs CL:LA
Director,
Office of Program Evaluation and Risk Analysis
RAS:O
Office of
Internal Control OS:CFO:CPIC:IC
Audit Liaisons:
Associate Chief Information Officer, Applications Development OS:CIO:AD
Chief,
GAO/TIGTA/Legislative Implementation Branch
SE:S:CLD:PSP:GTL
Senior Operations Advisor, Wage and Investment Division SE:W:S
Appendix IV
Customer Account Data Engine Release Capabilities
The IRS is implementing the CADE in a series of releases[7] over several years. Table 1 describes the capabilities implemented
in Releases 1 and 2.
Table 1: CADE Release 1 and
Release 2 Capabilities
|
CADE Release |
Start of Processing |
Capabilities Added for Each Release |
|
Release
1.1 |
July
2004 |
Form 1040EZ for single
filers and joint filers with no dependents. Single filing status
only. |
|
Release 1.2 |
January
2005 |
Tax law changes for filing season. |
|
Release
1.3.2 |
January
2006 |
Forms 1040 and 1040A
with no dependents and no attachments or schedules. Address changes on
returns. |
|
Release
2.1 |
September
2006 |
Returns with Head of
Household filing status. Returns with Schedules
A, B, and R. Returns with limited
name changes. United States Postal
Service address change updates. |
|
Release
2.2 |
March
2007 |
Form
1040EZ-T. Returns
with Married Filing Jointly and Married Filing Separately filing statuses. Credit
for Federal Telephone Excise Tax paid. |
Source: The IRS
Applications Development organization.
Form 1040 –
Form 1040A –
Form 1040EZ – Income Tax
Return for Single and Joint Filers With No Dependents
Form 1040EZ-T – Request for
Refund of Federal Telephone Excise Tax
Schedule A (Form 1040) –
Itemized Deductions
Schedule B (Form 1040) –
Interest and Ordinary Dividends
Schedule R (Form 1040) –
Credit for the Elderly or the Disabled
The IRS initially planned to implement 17 requirements for Release 3 and
divided the requirements delivery into 2 sub-releases, Releases 3.1 and
3.2. Table 2 presents the capabilities
for Release 3.1, which was completed in October 2007.
Table
2: CADE Release 3.1 Capabilities
|
Capability |
Description |
Date Deployed |
|
Disaster
Area Designation |
Adds
the processing necessary to accept Disaster Area transaction. Maintains all information necessary to
determine disaster start and end dates and to change business rules as
necessary based on requirements gathering. |
August 9, 2007 |
|
Add
Indicator to Legacy Account Formatted File Online Entity to Show Account Is
“In Transit” |
Adds
an indicator to the balance section of the entity on the Legacy Account
Formatted File Online showing that an account is “in transit” when it has
been sent to the Individual Master File from the CADE. |
August 9, 2007 |
|
Validate
Module Balance When Updating Tax Modules on Legacy Account Formatted File
Online |
Validates
the CADE account balance and updates the Legacy Account Formatted File Online. |
August 9, 2007 |
|
|
Develops
or provides address change services to support online requests originated
from the IRS Enterprise Application Integration Broker. |
October 1, 2007 |
Source: The IRS Wage and Investment Division and the
Modernization and Information Technology Services Applications Development
organization.
The IRS completed Release 3.2 in February
2008. Table 3 presents the capabilities
for Release 3.2.
Table 3: CADE Release 3.2
Capabilities
|
Capability |
Description |
Date
Deployed |
|
Issuance
of |
Sends
notifications to taxpayers when discrepancies are found during tax return
processing. |
January
14, 2008 |
|
Child
and Dependent Care Expenses (Form
2441) Credit |
Processes
information from taxpayers who have filed Form 1040/Form 2441 or |
February
11, 2008 |
|
Earned
Income Credit (Schedule EIC) |
Processes
Form 1040/1040A with |
February
11, 2008 |
|
Dependent
Database Interface |
Expands
capabilities to allow the CADE to accept all dependents and to process the Earned
Income Tax Credit. |
February
11, 2008 |
|
|
Provides
taxpayers with the ability to deposit their electronic refunds from tax
returns into multiple checking, savings, and/or retirement accounts. |
February
25, 2008 |
Source: The IRS
Wage and Investment Division and the Modernization and Information Technology Services
Applications Development organization.
On February 13, 2008,
the President signed the Economic Stimulus Act of 2008,[8] which provided taxpayers with payments
of up to $600 for individuals and $1,200 for couples. This relief was available to everyone with
adjusted gross income less than $75,000 for singles and $150,000 for married
couples filing jointly. The payments
were phased out for taxpayers above those income thresholds. Everyone
eligible for this relief was also eligible to receive an additional $300 per
child.
The IRS added the ability to issue economic stimulus payments through the
CADE on April 21, 2008. The first
payments through the CADE were issued on April 28, 2008.
Appendix
V
|
Term |
Definition |
|
Computing Centers |
Support
tax processing and information management through a data processing and
telecommunications infrastructure. |
|
Dependent Database |
A screening mechanism to score and
select incoming tax returns based on questionable dependent claims. |
|
|
A commercial, off-the-shelf solution
used to enable communication and data transformations among systems and applications. |
|
Filing Season |
The period from January through mid-April when most
individual income tax returns are filed. |
|
Forms
1040, 1040A, and 1040EZ |
The
series of IRS forms that include individual income tax returns. |
|
Individual Master File |
The IRS database that maintains
transactions or records of individual tax accounts. |
|
Legacy Account Formatted File Online |
A database containing CADE-processed tax information. |
|
Master
File |
The IRS database that stores various types of taxpayer account information. This database includes individual, business, and employee plans and exempt organizations data. |
|
Modernized
Tax Return Database |
The legal repository for original electronically filed returns received by the IRS through the Modernized e-File system. |
|
Notice |
A computer-generated message
resulting from an analysis of the taxpayer’s account. |
|
Release |
A specific edition of software. |
|
Requirement |
A formalization of
a need and statement of a capability or condition that a system, sub-system,
or system component must have or meet to satisfy a contract, standard, or
specification. |
|
Submission
Processing Site |
Sites located at
IRS campuses that process paper and electronic submissions, correct errors,
and forward data to the Computing Centers for analysis and posting to
taxpayer accounts. |
[1] See Appendix V for a glossary of terms.
[2] Pub. L. No. 110-185, 122 Stat. 613.
[3] See Appendix V for a glossary of terms.
[4] Pub. L. No. 110-185, 122 Stat. 613.
[5] See Appendix V for a glossary of terms.
[6] Pub. L. No. 110-185, 122 Stat. 613.
[7] See Appendix V for a glossary of terms.
[8] Pub. L. No. 110-185, 122 Stat. 613.