IRS denies exemption to a fee-based credit-repair organization

Plain-English summary

The IRS issued a final adverse determination denying an organization's application for recognition under IRC § 501(c)(3). The organization planned to repair clients' credit reports, charged setup and monthly service fees, and outsourced core work to a for-profit entity. The IRS found that the organization lacked a substantive educational or charitable program, operated with a substantial commercial purpose, and did not show that its compensation and related-party arrangements avoided inurement or private benefit. It also failed the public-governance and fee-policy requirements in § 501(q). Contributions were not deductible under § 170, and the organization was required to file federal income tax returns.

Ruling snapshot

• Question: Does the organization qualify for exemption under IRC § 501(c)(3) and the credit-counseling rules in § 501(q)?
• Outcome: Denied, the IRS issued a final adverse determination.
• Key authorities: IRC §§ 170, 501(c)(3), 501(q), 6104(c), 6110, and 7428(b)(2); Treas. Reg. §§ 1.501(a)-1(c) and 1.501(c)(3)-1

Full text (IRS public release)

DEPARTMENT OF THE TREASURY
INTERNAL REVENUE SERVICE
WASHINGTON, D.C. 20224

TAX EXEMPT AND
GOVERNMENT ENTITIES

DIVISION
Release Number: 201305011 Contact Person:
Release Date: 2/1/2013
Date: November 8, 2012 Identification Number:
UIL Code: 501.32-00
501.32-01 Contact Number:
501.33-00
Employer Identification Number:
Form Required To Be Filed:
Tax Years:
Dear

This is our final determination that you do not qualify for exemption from federal income
tax as an organization described in Internal Revenue Code section 501(c)(3). Recently,
we sent you a letter in response to your application that proposed an adverse
determination. The letter explained the facts, law and rationale, and gave you 30 days
to file a protest. Since we did not receive a protest within the requisite 30 days, the
proposed adverse determination is now final.

Since you do not qualify for exemption as an organization described in Code section
501(c)(3), donors may not deduct contributions to you under Code section 170. You
must file federal income tax returns on the form and for the years listed above within 30
days of this letter, unless you request an extension of time to file.

We will make this letter and our proposed adverse determination letter available for
public inspection under Code section 6110, after deleting certain identifying information.
Please read the enclosed Notice 437, Notice of Intention to Disclose, and review the
two attached letters that show our proposed deletions. If you disagree with our
proposed deletions, you should follow the instructions in Notice 437. If you agree with
our deletions, you do not need to take any further action.

Letter 4038(CG) (11-2005)
Catalog Number 47632S

2

In accordance with Code section 6104(c), we will notify the appropriate State officials of
our determination by sending them a copy of this final letter and the proposed adverse
letter. You should contact your State officials if you have any questions about how this
determination may affect your State responsibilities and requirements.

If you have any questions about this letter, please contact the person whose name and
telephone number are shown in the heading of this letter. If you have any questions
about your federal income tax status and responsibilities, please contact IRS Customer
Service at 1-800-829-1040 or the IRS Customer Service number for businesses, 1-800-
829-4933. The IRS Customer Service number for people with hearing impairments is 1-
800-829-4059.

Sincerely,

Holly O. Paz
Director, Exempt Organizations
Rulings and Agreements

Enclosure
Notice 437
Redacted Proposed Adverse Determination Letter
Redacted Final Adverse Determination Letter

Letter 4038 (CG) (11-2005)
Catalog Number 4763258

DEPARTMENT OF THE TREASURY
INTERNAL REVENUE SERVICE
WASHINGTON, D.C. 20224

TAX EXEMPT AND
GOVERNMENT ENTITIES

DIVISION
Date: September 19, 2012 Contact Person:
Identification Number:
Contact Number:
FAX Number:
Employer Identification Number:
LEGEND: UIL:
B= date 501.32-00
= state 501-32-01
= individual 501.33-00
= individual
= individual
= organization
= business
= business

q = dollar amount
r= dollar amount

Dear

We have considered your application for recognition of exemption from federal income
tax under Internal Revenue Code section 501(a). Based on the information provided,
we have concluded that you do not qualify for exemption under Code section 501(c)(3).
The basis for our conclusion is set forth below.

Issues
Do you meet the operational test under section 501(c)(3) of the Code? No, for the
reasons described below.

Do you meet the requirements under section 501(q) of the Code? No, for the reasons
described below.

Facts

You were incorporated on B under E law. Your Articles of Incorporation indicate you are
organized for 501(c)(3) charitable and educational purposes. Your Bylaws do not state
any specific purpose.

2

You have three directors, F, G and H. F and G are related. All three directors are
business professionals with sales and marketing experience. F also has over 20 years
experience in the legal and credit field.

H will be paid no more than $ annually to attend meetings and F will be paid at
least $ per month to service clients. F’s actual rate will be based on the number of
clients served and is projected in your budgets to be up to $ per year.

You will help repair credit ratings for your clients by correcting existing errors in credit
reporting, removing unverifiable items and fraudulent entries on a client's credit report.
You will work within the guidelines of the Fair Credit Reporting Act and are a member of
N. You will begin by receiving forwarded copies of a client’s credit report from all three
of the major credit bureaus, and then examine each report.

You use a referral based system to attract clients. You will target families with children
in school, church congregants, military families, veterans and home buyers. You will
use real estate agents and mortgage brokers to find the home buyer clients. You
expect that most of your referrals will come from non-profit agencies.

One of your credit repair specialists will contact your client within 24 hours of receiving
their report. You will go over the reports in detail deciding which items to dispute. Your
client will be able to access a detailed status of your progress 24 hours a day, seven
days a week, at a password protected customer service web site.

Next you will work the case. This entails analyzing the client's credit history to identify
disputable items and challenging negative items directly with the credit bureaus. This
step may be repeated for each subsequent cycle.

You will draft letters to dispute negative items on the client’s behalf, and encourage
clients to dispute their own credit if they have the time and knowledge. However, your
letters are expertly designed such that credit bureaus will accept the dispute and
conduct an investigation.

Disputed items are investigated by the credit bureau. At the conclusion of the
investigation, a new copy of the client’s credit report is sent to them. Your client then
forwards this new report to you and the cycle repeats itself. You estimate it typically
takes six to twelve months for a client to improve their credit scores.

You provided a copy of your client service contract. You will charge a non-refundable
set-up fee and a monthly service fee of q dollars per person; r dollars for two people. At
the end of your verification program, and upon a client's request, you will reconcile your
file against your verification performance. You will total the number of accounts deleted
or corrected and multiply that times a set account value per client. If that amount is less
than the total amount of monthly verification service fees paid the client is entitled to a
refund.

3

You will offer an undisclosed discount to veterans, the unemployed or those with
unforeseen financial difficulty. You will offer a sliding scale to low-income clients.
However, you do not anticipate many of your clients will be low-income stating “typically
persons with low income do not have a past credit history with the three major credit
bureaus” and “would not be a candidate for (your) services.” You will refer most of
potential low-income clients to credit counseling organizations. And while you indicated
you could waive fees from time to time, and offer discounted or reduced services, you
did not fully explain how you would determine who qualified for these rates, the amount
that would be waived, and if this applied to all your service fees.

You will not refuse services to anyone who needs assistance with credit restoration due
to inability to pay. However, you also stated that you are “under a contractual obligation
to pay O, an unrelated for-profit entity, a monthly fee” to handle your clients and “if the
hard cost is not at least covered, (you) would have to discontinue (your) services...”

You submitted a copy of your contract with O. During the credit repair process, the
investigation of the three credit reporting agencies will be performed by O. You will pay
O a fee per client to administer their file, estimating this to be over $ annually per
client, and in a year, you estimate you will have between 200 and 300 clients.

O will provide your client's services, a customer direct 800 number and a direct fax
number for customer support. O has assisted you in building a quality support system
for your clients. You do not have any employees, counselor or staff members. You will
out-source your clients to O. As you grow, you may hire staff members.

Currently, you do not have a website to promote your services. You will give each client
a username and password to a back office portal so the client can keep track of their
account. The back office portal is maintained by O on their website as part of your
contracted services.

You do not attempt to educate your clients. You encourage “all clients to educate
themselves on maintaining good credit scores” citing the many educational courses
available on the web. If necessary, you will refer clients to credit counseling
organizations or bankruptcy attorneys. You have an informal agreement with P, a law
firm, regarding referring clients with possible bankruptcies. Your director, F, is currently
discussing possible future free workshops regarding good credit habits with other non-
profits and professionals. However, there are no set plans or written materials at this
time.

You have projected almost % of your income will come from gross receipts from
client service charges and fees. Of your projected expenses, over half will pay for
compensation, salaries and professional fees, with another % budgeted for cost of
sales. Cost of sales will consist mostly of third party companies that will help you
perform parts of the investigation of the credit agencies and the repair of the individual's
credit.

Law

Section 501(c)(3) of the Code provides that corporations may be exempted from tax if
they are organized and operated exclusively for charitable or educational purposes and
no part of their net earnings inures to the benefit of any private shareholder or

individual.

Section 501(q) of the Code provides that organizations which provide “credit counseling
services” as a substantial purpose shall not be exempt from taxation under section
501(a) unless they are described in sections 501(c)(3) or 501(c)(4) and they are
organized and operated in accordance with the following requirements:

(A)

(B)

The organization--

(i) provides credit counseling services tailored to the specific needs and
circumstances of consumers,

(i) makes no loans to debtors (other than loans with no fees or interest)
and does not negotiate the making of loans on behalf of debtors,

(iii) provides services for the purpose of improving a consumer's credit
record, credit history, or credit rating only to the extent that such services
are incidental to providing credit counseling services, and

(iv) does not charge any separately stated fee for services for the purpose
of improving any consumer's credit record, credit history, or credit rating.

The organization does not refuse to provide credit counseling services to a
consumer due to the inability of the consumer to pay, the ineligibility of the
consumer for debt management plan enrollment, or the unwillingness of
the consumer to enroll in a debt management plan.

The organization establishes and implements a fee policy which--

(i) requires that any fees charged to a consumer for services are
reasonable,

(ii) allows for the waiver of fees if the consumer is unable to pay, and

(iii) except to the extent allowed by State law, prohibits charging any fee
based in whole or in part on a percentage of the consumer's debt, the
consumer's payments to be made pursuant to a debt management plan,
or the projected or actual savings to the consumer resulting from enrolling
in a debt management plan.

At all times the organization has a board of directors or other governing
body--

(i) which is controlled by persons who represent the broad interests of the
public, such as public officials acting in their capacities as such, persons
having special knowledge or expertise in credit or financial education, and
community leaders,

(ii) not more than 20 percent of the voting power of which is vested in
persons who are employed by the organization or who will benefit

5

financially, directly or indirectly, from the organization's activities (other
than through the receipt of reasonable directors' fees or the repayment of
consumer debt to creditors other than the credit counseling organization or
its affiliates), and

(iii) not more than 49 percent of the voting power of which is vested in
persons who are employed by the organization or who will benefit
financially, directly or indirectly, from the organization's activities (other
than through the receipt of reasonable directors’ fees).

(F) The organization receives no amount for providing referrals to others for
debt management plan services, and pays no amount to others for
obtaining referrals of consumers.

Section 501(q)(4)(A) defines, for purposes of section 501(q), the term “credit counseling
services” to mean (i) the providing of educational information to the general public on
budgeting, personal finance, financial literacy, saving and spending practices, and the
sound use of consumer credit: (ii) the assisting of individuals and families with financial
problems by providing them with counseling; or (iii) a combination of the activities
described above.

Section 1.501(c)(3)-1(a)(1) of the Income Tax Regulations (“regulations”) provides that,
in order to be exempt as an organization described in section 501(c)(3) of the Code, an
organization must be both organized and operated exclusively for one or more of the
purposes specified in such section. If an organization fails to meet either the
organizational test or the operational test, it is not exempt.

Section 1.501(c)(3)-1(c)(1) of the regulations provides that an organization will be
regarded as “operated exclusively” for one or more exempt purposes only if it engages
primarily in activities that accomplish one or more of such exempt purposes specified in
section 501(c)(3) of the Code. An organization will not be so regarded if more than an
insubstantial part of its activities is not in furtherance of an exempt purpose.

Section 1.501(c)(3)-1(c)(2) of the regulations provides that an organization is not
operated exclusively for one or more exempt purposes if its net earnings inure in whole
or in part to the benefit of private shareholders or individuals. Section 1.501(a)-1(c) of
the regulations defines the words “private shareholder or individual” in section 501 of
the Code to refer to persons having a personal and private interest in the activities of
the organization.

Section 1.501(c)(3)-1(d)(1)(ii) of the regulations provides that an applicant organization
is not organized or operated exclusively for one or more of the purposes specified in
subdivision (i) of this subparagraph unless it serves a public rather than a private
interest. Thus, to meet the requirement of this subdivision, it is necessary for an
organization to establish that it is not organized or operated for the benefit of private

6

interests such as designated individuals, the creator or his family, shareholders of the
organization, or persons controlled, directly or indirectly, by such private interests.

Rev. Proc. 86-43, 1986-2 C.B. 729, describes the methodology test the Internal
Revenue Service uses to determine when the advocacy of a particular viewpoint or
position is educational under sections 501(c)(3) of the Code and 1.501(c)(3)-1(d)(3) of
the regulations. The revenue procedure states that the focus of section 1.501(c)(3)-
1(d)(3) is on the method the organization uses to communicate to others, not the
content of its communication. The method of communication is not educational "if it fails
to provide a development from the relevant facts that would materially aid a listener or
reader in a learning process." One factor indicating the method is not educational is as
follows: "[t]he approach used in the organization's presentations is not aimed at
developing an understanding on the part of the intended audience or readership
because it does not consider their background or training in the subject matter." The
remaining factors relate specifically to advocacy organizations and the "full and fair
exposition” part of the regulation.

In Rev. Rul. 61-170, 1961-2 C.B. 112, an association composed of professional private
duty nurses supported and operated a nurses' registry to help make the nurses' services
more readily available to the general public. The association’s bylaws stated that its
specific purposes were to provide employment for its members as well as to organize an
adequate and available nursing placement service for the community. Its membership was
open to both registered and practical nurses who met specified requirements. The
organization maintained a registry of its members showing their respective qualifications
and the types of services they perform. Reference and placement from the register were
made on a rotating basis upon request for nursing services. The association was operated
primarily to afford greater employment opportunities for its members, and only incidentally
for the benefit of the general public. This was evidenced by the fact that it drew its support
primarily from members and was controlled by a board of trustees composed of
professional nurses, without public participation of any kind. Thus, the association was not
organized or operated exclusively for exempt purposes as described in section 501(c)(3) of
the Code.

In Rev. Rul. 69-441, 1969-2 C.B. 115, the Service found that a nonprofit organization
formed to help reduce personal bankruptcy by informing the public on personal money
management and aiding low-income individuals and families with financial problems
was exempt under section 501(c)(3) of the Code. Its board of directors was comprised
of representatives from religious organizations, civic groups, labor unions, business
groups, and educational institutions. The organization provided information to the public
on budgeting, buying practices, and the sound use of consumer credit through the use
of films, speakers, and publications. It aided low-income individuals and families who
have financial problems by providing them with individual counseling, and if necessary,
by establishing budget plans. Under the budget plan, the debtor voluntarily made fixed
payments to the organization, holding the funds in a trust account and disbursing the
funds on a partial payment basis to the creditors. The organization did not charge fees

7

for counseling services or proration services. The debtor received full credit against his
debts for all amounts paid. The organization did not make loans to debtors or negotiate
loans on their behalf. Finally, the organization relied upon contributions, primarily from
the creditors participating in the organization's budget plans, for its support. The Service
found that, by aiding low-income individuals and families who have financial problems
and by providing, without charge, counseling and a means for the orderly discharge of
indebtedness, the organization was relieving the poor and distressed. Moreover, by
providing the public with information on budgeting, buying practices, and the sound use
of consumer credit, the organization was instructing the public on subjects useful to the
individual and beneficial to the community. Thus, the organization was exempt from
federal income tax under section 501(c)(3) of the Code.

Outside the context of credit counseling, individual counseling has, in a number of
instances, been held to be a tax exempt charitable activity. Rev. Rul. 78-99, 1978-1
C.B. 152 (free individual and group counseling of widows); Rev. Rul. 76-205, 1976-1
C.B. 154 (free counseling and English instruction for immigrants); Rev. Rul. 73-569,
1973-2 C.B. 178 (free counseling to pregnant women); Rev. Rul. 70-590, 1970-2 C.B.
116 (clinic to help users of mind-altering drugs); Rev. Rul. 70-640, 1970-2 C.B. 117
(free marriage counseling); Rev. Rul. 68-71, 1968-1 C.B.249 (career planning education
through free vocational counseling and publications sold at a nominal charge).
Overwhelmingly, the counseling activities described in these rulings were provided free,
and the organizations were supported by contributions from the public.

In Better Business Bureau of Washington, D.C. v. U.S., 326 U.S. 279, 283, 66 S. Ct.
112, 90 L. Ed. 67 (1945), the Supreme Court held that the “presence of a single .. .
[nonexempt] purpose, if substantial in nature, will destroy the exemption regardless of
the number or importance of truly . . . exempt] purposes.”

Operating for the benefit of private parties constitutes a substantial nonexempt purpose.
Old Dominion Box Co. v. United States, 477 F. 2d 340 (4th Cir. 1973), cert. denied 413
U.S. 910 (1973).

In B.S.W. Group, Inc. v. Commissioner, 70 T.C. 352 (1978), the court found that a
corporation formed to provide consulting services did not satisfy the operational test
under section 501(c)(3) of the Code because its activities constituted the conduct of a
trade or business that is ordinarily carried on by commercial ventures organized for
profit. Its primary purpose was not charitable, educational, or scientific, but rather
commercial. In addition, the court found that the organization's financing did not
resemble that of the typical section 501(c)(3) organizations. It had not solicited, nor had
it received, voluntary contributions from the public. Its only source of income was from
fees from services, and those fees were set high enough to recoup all projected costs
and to produce a profit. Moreover, it did not appear that the corporation ever planned to
charge a fee less than “cost.” And finally, the corporation did not limit its clientele to
organizations that were section 501(c)(3) exempt organizations.

8

In Consumer Credit Counseling Service of Alabama, Inc. v. United States, 78-2
U.S.T.C. 9660 (D.D.C. 1978), the court held that an organization that provided free
information on budgeting, buying practices, and the sound use of consumer credit
qualified for exemption from income tax because its activities were charitable and
educational. The Consumer Credit Counseling Service of Alabama is an umbrella
organization made up of numerous credit counseling service agencies. These agencies
provided information to the general public through the use of speakers, films, and
publications on the subjects of budgeting, buying practices, and the sound use of
consumer credit. They also provided counseling on budgeting and the appropriate use
of consumer credit to debt-distressed individuals and families. They did not limit these
services to low-income individuals and families, but they did provide such services free
of charge. As an adjunct to the counseling function, they offered a debt management
plan. Approximately 12 percent of a professional counselor's time was applied to the
debt management plan as opposed to education. The agencies charged a nominal fee
of up to $10 per month for the debt management plan. This fee was waived in instances
when payment of the fee would work a financial hardship. The professional counselors
employed by the organizations spent about 88 percent of their time in activities such as
information dissemination and counseling assistance rather than those connected with
the debt management programs. The primary sources of revenue for these
organizations were provided by government and private foundation grants,
contributions, and assistance from labor agencies and United Way. An incidental
amount of their revenue was from service fees. Thus, the court concluded that “each of
the plaintiff consumer credit counseling agencies was an organization described in
section 501(c)(3) as a charitable and educational organization.” See also, Credit
Counseling Centers of Oklahoma, Inc, v. United States, 79-2 U.S. Tax Case. 9468
(D.D.C. 1979), in which the facts were virtually identical and the law was identical to
those in Consumer Credit Counseling Service of Alabama, Inc. v. United States,
discussed immediately above.

In Bethel Conservative Mennonite Church v. Commissioner, 746 F. 2d 388, 391 (7th Cir.
1984) the court considered how a medical plan conducted by a church affected its
exempt status. In analyzing the facts of the case the court stated that "The facts in each
case must be explored to ascertain the predominant or primary purpose for which the
organization was formed, and also the manner of its operation."

In Church by Mail, 765 F. 2d 1387 (9th Cir. 1985), affg. TCM 1984-349, Tax Court
concluded that the extent of the integration between the operations of a non-profit entity
and related for-profit entities controlled by the non-profit directors precluded exemption.
Furthermore, the Tax Court found it unnecessary to consider the reasonableness of
payments made by the applicant to a business owned by its officers. The 9th Circuit
Court of Appeals, in affirming the Tax Court's decision, stated that “the critical inquiry is
not whether particular contractual payments to a related for-profit organization are
reasonable or excessive, but instead whether the entire enterprise is carried on in such
a manner that the for-profit organization benefits substantially from the operation of the
Church”.

9

In Easter House v. U.S., 12 Cl. Ct. 476, 486 (1987), aff'd, 846 F. 2d 78 (Fed. Cir.) cert.
denied, 488 U.S. 907, 109 S. Ct. 257, 102 L. Ed. 2d 246 (1988), the court found an
organization that operated an adoption agency was not exempt under section 501(c)(3)
of the Code because a substantial purpose of the agency was a nonexempt commercial
purpose. The court concluded that the organization did not qualify for exemption under
section 501(c)(3) because its primary activity was placing children for adoption in a
manner indistinguishable from that of a commercial adoption agency. The court rejected
the organization's argument that the adoption services merely complemented the health
related services to unwed mothers and their children. Rather, the court found that the
health-related services were merely incident to the organization's operation of an
adoption service, which, in and of itself, did not serve an exempt purpose. The
organization's sole source of support was the fees it charged adoptive parents, rather
than contributions from the public. The court also found that the organization competed
with for-profit adoption agencies, engaged in substantial advertising, and accumulated
substantial profits. Accordingly, the court found that the "business purpose, and not the
advancement of educational and charitable activities purpose, of plaintiff's adoption
service is its primary goal" and held that the organization was not operated exclusively
for purposes described in section 501(c)(3). Easter House, 12 Cl. Ct. at 485-486.

In Living Faith, Inc. v. Commissioner, 950 F.2d 365 (1991), the Court of Appeals upheld
a Tax Court decision that an organization operating restaurants and health food stores
in a manner consistent with the doctrines of the Seventh Day Adventist Church did not
qualify for exemption under section 501(c)(3) of the Code because the organization was
operated for a substantial nonexempt commercial purpose. The court found that the
organization's activities were "presumptively commercial" because the organization was
in competition with other restaurants, engaged in marketing, and generally operated in a
manner similar to commercial businesses.

In Airlie Foundation v. Commissioner, 283 F. Supp. 2d 58 (D.D.C., 2003), the court
relied on the “commerciality” doctrine in applying the operational test. Because of the
commercial manner in which this organization conducted its activities, the court found
that it was operated for a non-exempt commercial purpose, rather than for a tax exempt
purpose. As the court stated:

Among the major factors courts have considered in assessing commerciality are
competition with for profit commercial entities; extent and degree of below cost
services provided; pricing policies; and reasonableness of financial reserves.
Additional factors include, inter alia, whether the organization uses commercial
promotional methods (e.g. advertising) and the extent to which the organization
receives charitable donations.

In Solution Plus, Inc. v. Commissioner, T.C. Memo. 2008-21, the Tax Court held that a
credit counseling organization was not exempt under section 501(c)(3) because it was
not organized and operated exclusively for educational or charitable purposes and
impermissibly served private interests. The organization was formed by an individual

10

with experience selling debt management plans. The founder and his spouse were the
only member's of the organization's board of directors. The organization did not have
any meaningful educational program or materials for providing to people who contacted
the organization, and its financial education seminars for students constituted an
insignificant part of the organization’s overall activities. The Court held that the
organization's purposes were not educational because its "activities are primarily
structured to market, determine eligibility for, and enroll individuals in DMPs."_ Its
purposes are not to inform consumers "about understanding the cause of, and devising
personal solutions to, consumers' financial problems," or "to consider the particular
knowledge of individual callers about managing their personal finances." The Tax Court
also held that the organization's purposes were not charitable because "its potential
customers are not members of a [charitable] class that are benefited in a 'non-select
manner * * * because they will be turned away unless they meet the criteria of the
participating creditors." The Tax Court further held the organization would operate for
the private interests of its founder because the founder and spouse were the only
directors, the founder was the only officer and employee, and his compensation was
based in part on the organization’s DMP sales activity levels. The organization was “a
family-controlled business that he personally would run for financial gain, using his past
professional experience marketing DMPs and managing a DMP call center.” The Court
further held that the organization's principal activity of providing DMP services, which
were only provided if approved by a caller's creditors, furthered the benefit of private
interests. Finally, the Tax Court held that the facts in Credit Counseling Services of
Alabama v. United States, 78-2 U.S.T.C. 9660 (D.D.C. 1978) “stand in stark contrast”
because “the sale of DMPs is the primary reason for [Solution Plus's] existence, and its
charitable and educational purposes are, at best, minimal.”

Application of Tax Law

Section 501(c)(3) of the Code sets forth two main tests for an organization to be
recognized as exempt. An organization must be both organized and operated
exclusively for purposes described in section 501(c)(3). Section 1.501(c)(3)-1(a)(1) of
the regulations. Based on the information you provided in your application and
supporting documentation, you fail the operational test.

Operational Test

To satisfy the 501(c)(3) operational test, an organization must establish that it is
operated exclusively for one or more exempt purposes. Section 1.501(c)(3)-1(c)(1) of
the regulations. You failed to establish that you are operated exclusively for one or more
exempt purposes.

Your Activities Are Not Educational

You do not operate a substantive on-going educational program. You do not attempt to
educate your current clients. You encourage your clients to educate themselves using
the internet. Like the organization in Solution Plus, supra, you do not help clients
develop an understanding of the cause of their financial problems.

11

You are distinguishable from the organizations in Consumer Credit Counseling Service
of Alabama, supra, and Rev. Rul. 69-441 by the methodology you use to conduct your
counseling activities. You do not offer counseling sessions that are structured primarily
to improve your clients’ understanding of their financial problems or their skills in solving
them. Instead, your operational focus is on generating client fees. Like the organizations
described in Better Business Bureau, supra, Easter House, supra, and Solution Plus,
supra, your activities have an underlying commercial motive that distinguishes your
activities from those carried out by an educational organization.

Rev. Proc. 86-43, supra, states a method of communication is not educational "if it fails
to provide a development from the relevant facts that would materially aid a listener or
reader in a learning process." You failed to prove that your method of communication
to your clients meets the standards of Rev. Proc. 86-43, supra.

Thus, you failed to establish that your activities are educational within the meaning of
section 501(c)(3) of the Code.

Your Activities Are Not Charitable

You outsource most of your services. Therefore, most of your time and resources are
devoted to marketing and supporting the services of a for-profit entity. This does not
further charitable purposes as you do not limit your services to low-income individuals,
thereby relieving the poor and distressed. You will not refuse services based on inability
to pay. However, you admitted that most low-income individuals would not need your
services and would be referred to other credit counseling agencies. While you plan to
offer some free services sometime in the future, no specific details were provided and
you will rely primarily on fees to produce revenue. Accordingly, you are unlike the
organizations described in Consumer Credit Counseling Service of Alabama, supra and
Rev. Rul. 69-441, supra, which aided low-income individuals and families who have
financial problems, thereby relieving the poor and distressed.

Unlike the organizations in Consumer Credit Counseling Service of Alabama; supra,
and Rev. Rul. 69-441, supra, you charge fees for most of your services. “[P]rimarily
providing services for a fee ordinarily does not further charitable purposes.” Solution
Plus, supra.

Thus, you failed to establish that your activities are charitable within the meaning of
section 501(c)(3) of the Code.

You Have a Substantial Nonexempt Commercial Purpose

A nonexempt purpose may be evidenced by activities that are conducted in a
commercial manner or for a commercial purpose. In discerning whether an organization
has a substantial nonexempt commercial purpose, courts focus on a number of factors
related to the purpose and nature of the activities of how an organization conducts its
business. See e.g., Bethel Conservative Mennonite Church, Airlie Foundation, B.S.W.
Group, Living Faith, supra. An examination of your activities, pricing policies, funding

12

sources and competition with for-profit entities clearly indicate a substantial commercial
purpose.

Your activities consist primarily of providing fee based credit repair. Although an
organization is not disqualified from tax-exempt status solely because its primary activity
constitutes a business, when it conducts a business with an apparently commercial
character as its primary activity, "that fact weighs heavily against exemption.” B.S.W.

Group, supra.

You will outsource most of your activity to a for-profit entity, O. In teaming with a for-
profit entity, you become competitors with other for profits offering similar services.
"Competition with commercial firms is strong evidence of the predominance of non-
exempt commercial purposes." B.S.W. Group, supra, You will also refer possible
bankruptcy clients to an existing for-profit law firm, P. Like the organization described
in Old Dominion Box Co, supra, your operation for the benefit of private parties
constitutes a substantial nonexempt purpose.

Thus, more than an insubstantial part of your activities are in furtherance of a
nonexempt purpose, in contravention of section 1.501(c)(3)-1(c)(1) of the regulations.

Inurement

An organization is not operated exclusively for one or more exempt purposes if its net
earnings inure in whole or in part to the benefit of private shareholders or individuals.
Section 501(c)(3) of the Code; Section 1.501(c)(3)-1(c)(2) of the regulations.

Your net earnings inure to the benefit of your director, F. You intend to pay F
commissions on clients fees, which is non-fixed compensation based on business
results. There is no upper limit on the amount of your directors’ compensation.
Compensation based on a percentage of revenues with no limit has been held to be
inurement. People of God Community, supra.

Therefore, you have not established that your operations will not result in inurement to
insiders.

Private Benefit

An organization is not organized or operated exclusively for exempt purposes unless it
serves a public, rather than a private interest. See section 1.501(c)(3)-1(d)(1)(ii) of the
regulations. It is unnecessary for us to determine that the payments to the for-profit
entity O are unreasonable. Church by Mail ,supra. Your entire enterprise is carried on
in such a manner as to substantially benefit O.

You are controlled by a board of directors composed primarily of business
professionals, without public participation of any kind. This indicates that you are
operated for the benefit of your directors rather than the public, as in Rev. Rul. 61-170,
supra. Your board of directors is composed entirely of persons who stand to gain

13

financially from your activities, unlike the organization in Rev. Rul. 69-441, supra, whose
board of directors was comprised of representatives from religious organizations, civic
groups, labor unions, business groups, and educational institutions.

Therefore, you have not demonstrated that your operations serve a public rather than a
private interest as required by section 1.501(c)(3)-1(d)(1)(ii).

Section 501(q) of the Code

An organization that provides educational information on financial topics or financial
counseling to homeowners who are at risk of foreclosure is providing “credit counseling
services” within the meaning of section 501(q)(4)(A) of the Code. Thus, even if you had
established that you engage in such activities as a substantial purpose, to be exempt
from taxation you must, in addition to complying with the requirements of section
501(c)(3), comply with the provisions of section 501(q).

You do not comply with certain provisions of section 501(q) of the Code. An exempt
credit counseling organization must establish and implement a fee policy which requires
that any fees charged to a consumer for services are reasonable and allows for the
waiver of fees if the consumer is unable to pay. Section 501(q)(1)(C). You failed to
establish that your fees are reasonable, and did not fully substantiate a fee waiver

policy.

Credit counseling organizations must be governed by a board controlled by persons
representing the broad interests of the public rather than by persons who benefit from
the organization's activities. Section 501(q)(1)(D). You do not have a board of directors
that is controlled by persons who represent the broad interests of the public as required
by section 501(q)(1)(D)(i).

You also fail to meet the requirements of sections 501(q)(1)(D)(ii) and (iii), which
generally specify the percent of voting power that is allowed to be vested in financially
interested persons.

Therefore, had you established that you otherwise met the requirements of section
501(c)(3), your failure to satisfy the requirements of section 501(q) would prevent you
from being exempt from taxation under section 501(a).

Conclusion

Based on the facts and information provided, you do not meet the operational test
because your activities are not educational or charitable. You are organized and
operated for commercial purposes. Any public purposes for which you may operate are
only incidental to this primary nonexempt purpose. You have not demonstrated that you
do not allow your net earnings to inure to private individuals. You do not serve a public
rather than a private interest. Also, you do not meet qualifications under IRC 501(q).
Therefore, you are not described in section 501(c)(3).

14

Accordingly, you do not qualify for exemption as an organization described in section
501(c)(3) of the Code and you must file federal income tax returns. Contributions to you
are not deductible under section 170.

You have the right to file a protest if you believe this determination is incorrect. To
protest, you must submit a statement of your views and fully explain your reasoning.
You must submit the statement, signed by one of your officers, within 30 days from the
date of this letter. We will consider your statement and decide if the information affects
our determination. If your statement does not provide a basis to reconsider our
determination, we will forward your case to our Appeals Office. You can find more
information about the role of the Appeals Office in Publication 892, Exempt Organization
Appeal Procedures for Unagreed Issues.

Types of information that should be included in your appeal can be found on page 2 of
Publication 892. These items include:

1. The organization’s name, address, and employer identification number;

2. A statement that the organization wants to appeal the determination;

3. The date and symbols on the determination letter;

4. A statement of facts supporting the organization's position in any contested
   factual issue;

5. A statement outlining the law or other authority the organization is relying on; and

6. A statement as to whether a hearing is desired.

The statement of facts (item 4) must be declared true under penalties of perjury. This
may be done by adding to the appeal the following signed declaration:

“Under penalties of perjury, I declare that I have examined the statement of facts
presented in this appeal and in any accompanying schedules and statements and, to
the best of my knowledge and belief, they are true, correct, and complete.”

Your appeal will be considered incomplete without this statement.

If an organization's representative submits the appeal, a substitute declaration must be
included stating that the representative prepared the appeal and accompanying
documents; and whether the representative knows personally that the statements of
facts contained in the appeal and accompanying documents are true and correct.

An attorney, certified public accountant, or an individual enrolled to practice before the
Internal Revenue Service may represent you during the appeal process. If you want
representation during the appeal process, you must file a proper power of attorney,
Form 2848, Power of Attorney and Declaration of Representative, if you have not
already done so. You can find more information about representation in Publication
947, Practice Before the IRS and Power of Attorney. All forms and publications
mentioned in this letter can be found at www.irs.gov, Forms and Publications.

15

If you do not file a protest within 30 days, you will not be able to file a suit for declaratory
judgment in court because the Internal Revenue Service (IRS) will consider the failure
to appeal as a failure to exhaust available administrative remedies. Code section
7428(b)(2) provides, in part, that a declaratory judgment or decree shall not be issued in
any proceeding unless the Tax Court, the United States Court of Federal Claims, or the
District Court of the United States for the District of Columbia determines that the
organization involved has exhausted all of the administrative remedies available to it
within the IRS.

If you do not intend to protest this determination, you do not need to take any further
action. If we do not hear from you within 30 days, we will issue a final adverse
determination letter. That letter will provide information about filing tax returns and other
matters.

Please send your protest statement, Form 2848, and any supporting documents to the
applicable address:

Mail to: Deliver to:
Internal Revenue Service Internal Revenue Service
EO Determinations Quality Assurance EO Determinations Quality Assurance
Room 7-008 550 Main Street, Room 7-008
P.O. Box 2508 Cincinnati, OH 45202

Cincinnati, OH 45201
You may fax your statement using the fax number shown in the heading of this letter. If
you fax your statement, please call the person identified in the heading of this letter to
confirm that he or she received your fax.

lf you have any questions, please contact the person whose name and telephone
number are shown in the heading of this letter.

Sincerely,

Holly O. Paz
Director, Exempt Organizations
Rulings & Agreements

Enclosure, Publication 892