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Professionally Responsible Artificial Intelligence, Essays (university) of Artificial Intelligence

The article discusses the use of artificial intelligence (AI) in professional settings and how to determine when its use is professionally responsible. It proposes a solution for encouraging the use of AI to augment expertise while discouraging substitution that undermines it, using tax professionals as a case study. The proposal involves public-private cooperation in regulating the use of AI by professionals in ex ante tax planning. The article suggests that this proposal could be applied to other professions as well.

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Professionally Responsible Artificial
Intelligence
Michael Hatfield*
ABSTRACT
As artificial intelligence (AI) developers produce more applications for
professional use, how will we determine when the use is professionally
responsible? One way to answer the question is to determine whether the AI
augments the professional’s intelligence or whether it is used as a substitute
for it. To augment the professional’s intelligence would be to make it greater,
that is, to increase and improve the professional’s expertise. But a
professional who substitutes artificial intelligence for his or her own puts
both the professional role and the client at risk. The problem is developing
guidance that encourages professionals to use AI when it can reliably
improve expertise but discourages substitution that undermines expertise.
This Article proposes a solution, using tax professionals as a case study.
There are several reasons tax professionals provide a good case study,
including that tax practice has a long history of computerization and that AI
is already being developed for tax professionals. Tax professionals, including
not only lawyers but certified public accountants, are directly regulated by
the Internal Revenue Service (IRS), in addition to their regulation by
professional bodies.
This Article proposes a public-private cooperation in regulating the use
of AI by professionals in ex ante tax planning. On the private side would be
panels of experts testing new AI applications for reliability by running
experiments. The panels would certify AI products determined to be
substantively sound and designed to educate and engage the professional. On
the public side, the IRS would provide a presumptive defense to professional
responsibility-related penalties against professionals who used the certified
AI. This should motivate tax planners to prefer purchasing certified tax
* Dean Emeritus Roland L. Hjorth Professor of Law, University of Washington School of
Law. For their extraordinary research assistance, I would like to thank Mary Whisner, Maya
Swanes, and Crystal Alberthal of the University of Washington Gallagher Law Library and my
student research assistants Allexia Arnold and Mark Noel. I also would like to thank Shannon
McCormack and the participants in the 28th Annual United Kingdom Tax Research Conference
at the University of Central Lancashire, Preston, England.
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Download Professionally Responsible Artificial Intelligence and more Essays (university) Artificial Intelligence in PDF only on Docsity!

Professionally Responsible Artificial

Intelligence

Michael Hatfield*

ABSTRACT

As artificial intelligence (AI) developers produce more applications for

professional use, how will we determine when the use is professionally

responsible? One way to answer the question is to determine whether the AI

augments the professional’s intelligence or whether it is used as a substitute

for it. To augment the professional’s intelligence would be to make it greater,

that is, to increase and improve the professional’s expertise. But a

professional who substitutes artificial intelligence for his or her own puts

both the professional role and the client at risk. The problem is developing

guidance that encourages professionals to use AI when it can reliably

improve expertise but discourages substitution that undermines expertise.

This Article proposes a solution, using tax professionals as a case study.

There are several reasons tax professionals provide a good case study,

including that tax practice has a long history of computerization and that AI

is already being developed for tax professionals. Tax professionals, including

not only lawyers but certified public accountants, are directly regulated by

the Internal Revenue Service (IRS), in addition to their regulation by

professional bodies.

This Article proposes a public-private cooperation in regulating the use

of AI by professionals in ex ante tax planning. On the private side would be

panels of experts testing new AI applications for reliability by running

experiments. The panels would certify AI products determined to be

substantively sound and designed to educate and engage the professional. On

the public side, the IRS would provide a presumptive defense to professional

responsibility-related penalties against professionals who used the certified

AI. This should motivate tax planners to prefer purchasing certified tax

  • Dean Emeritus Roland L. Hjorth Professor of Law, University of Washington School of Law. For their extraordinary research assistance, I would like to thank Mary Whisner, Maya Swanes, and Crystal Alberthal of the University of Washington Gallagher Law Library and my student research assistants Allexia Arnold and Mark Noel. I also would like to thank Shannon McCormack and the participants in the 28th Annual United Kingdom Tax Research Conference at the University of Central Lancashire, Preston, England.

1058 ARIZONA STATE LAW JOURNAL [Ariz. St. L.J.

planning AI applications, and thereby motivate tax AI application developers

to seek certification.

Though this Article’s proposal is specific for the use of AI by tax

professionals, it illuminates a way forward for regulating AI use by other

professions. The way would be for third parties such as government agencies,

professional associations, or malpractice insurers to stimulate demand for

certified AI products to be used by professionals. In general, these

certifications should be provided to AI that augments the professional’s

intelligence, increasing his or her professional competence. By keeping

professionals involved in the certification process, space is opened to shape

the transformation AI is bringing to the professions, and by stimulating

product demand for certified products, the odds of successfully shaping that

transformation are improved.

ABSTRACT................................................................................................. 1057

I. INTRODUCTION ................................................................................... 1060

II. ARTIFICIAL INTELLIGENCE, PROFESSIONAL RESPONSIBILITY, AND

TAX ..................................................................................................... 1064

A. AI and the Legal Profession ......................................................... 1064

B. Tax: Money, Government, and Computer Science ...................... 1071

III. AI AND TAX PROFESSIONALS .............................................................. 1079

A. Planning, Compliance, Audit, and Litigation .............................. 1079

B. AI in Tax Planning ....................................................................... 1086

IV. PROFESSIONALISM, AI, AND TAX PLANNING ...................................... 1092

A. Professional Responsibility Concerns .......................................... 1092

B. Professional Responsibility Standards ......................................... 1096

1. Federal Standards: Taxpayer Penalties .................................. 1096

2. Federal Standards: Tax Return Preparer Penalties ................. 1098

3. Federal Standards: Circular 230 ............................................. 1100

4. Professional Association Standards: ABA and AICPA ......... 1103

5. Professional Association Standards: The AICPA .................. 1104

6. Malpractice Standards ............................................................ 1106

C. The Professional Standard for Using AI in Tax Planning ........... 1106

V. PROPOSAL FOR RESPONSIBLE USE OF AI IN TAX PLANNING ............... 1109

A. Three Problems ............................................................................ 1109

B. Who Should Solve? ...................................................................... 1110

1060 ARIZONA STATE LAW JOURNAL [Ariz. St. L.J.

Our goal is augmenting intelligence. It is man and machine. This

is all about extending your expertise. A teacher. A doctor. A

lawyer. It doesn’t matter what you do. We will extend it.

IBM President and Chief Executive Officer Ginni Rometty

speaking about IBM’s Watson^1

I. INTRODUCTION

A young mother visited her obstetrician, hoping for help losing weight.

Her doctor turned to a computer program to determine what should be

prescribed. The prescription killed the mother. Is this a case of professional

irresponsibility? Or is it a case of product liability? Who is at fault: the doctor

or the program developers? The New Jersey courts are deciding.^2

Life-and-death situations magnify the risks of computer use so that we

easily take interest. But the rewards of doctors using computers should be

magnified as well so that we can see the bigger picture. Artificial intelligence

(AI) helps doctors diagnose and treat diseases; indeed, AI is so good at

detecting facts not noted by human professionals that it can successfully

predict the occurrence of disease in patients–remarkably, including diseases

that human professionals cannot predict and do not understand how AI

predicts.^3 The quality of AI judgments in these situations exceeds that of the

professionals.

Judgment is the heart of professionalism. The professional has great

expertise, uncommon experience, and high duties of care to use that

intelligence in balancing risks and rewards when counseling patients or

clients. The professional knows more and is obligated to help the patient or

  1. IBM Think Ahead: Soon Watson AI Will Be Behind Every Decision , CYBER SECURITY INTELLIGENCE (Nov. 7, 2016), https://www.cybersecurityintelligence.com/blog/ibm-think-ahead- soon-watson-ai-will-be-behind-every-decision-1830.html [https://perma.cc/4ZHN-NJ52].
  2. Skounakis v. Sotillo, No. A- 2403 - 15T2, 2018 WL 1370216, at *2 (N.J. Super. Ct. App. Div. Mar. 19, 2018). See Charles A. Weiss, Malpractice by a Computerized Decision-Support Tool? , HOLLAND & KNIGHT HEALTHCARE BLOG (April 2, 2018), https://www.hklaw.com/healthblog/malpractice-by-a-computerized-decision-support-tool- 04 - 02 - 2018 / [https://perma.cc/4EFH-KJ6A].
  3. For example, a program called “Deep Patient” uses a massive amount of data to discern patterns in order to predict when patients were likely to suffer from a variety of conditions. Will Knight, The Dark Secret at the Heart of AI , MIT TECH. REV. (Apr. 11, 2017), https://www.technologyreview.com/s/604087/the-dark-secret-at-the-heart-of-ai/ [https://perma. cc/E94Q-8SDB]. Neural networks are being used to interpret X-rays. Curtis E.A. Karnow, The Opinion of Machines , 19 COLUM. SCI. & TECH. L. REV 136, 147 (2017). Deep learning has also proven better at detecting diabetic retinopathy better than their human ophthalmologist counterparts. Sara Chodosh, Google Is Using Its Deep Learning Tech To Diagnose Disease , POPULAR SCI. (Nov. 29, 2016), https://www.popsci.com/google-applied-technology-they-use-to- sort-photos-to-diagnose-diabetic-eye-problems [https://perma.cc/8SA7-LJAN].

51: 1057 ] ARTIFICIAL INTELLIGENCE 1061

client learn more about the problem and the variety of (usually imperfect)

solutions.

The ethical issue for a professional relying on a powerful computer

application is whether it is being used to augment the professional’s

intelligence, as IBM President and Chief Executive Officer Ginni Rometty

said about her corporation’s AI programs, or it is being used as a substitute

for the professional’s intelligence. To augment the professional’s intelligence

would be to make it greater, that is, to increase and improve the professional’s

expertise. But a professional who over-relies on AI, who always defers and

does not second-guess, substitutes artificial intelligence for his or her own.

The problem is how to develop guidance that encourages professionals to

use AI when it can reliably improve their expertise but discourages over-

reliance that risks their role as a professional and puts others at even more

serious risks. This Article proposes a solution.

The case study of this Article is tax law. There are several reasons the

practice of tax law makes a good case study. First, it involves a clear public

good: the funding of government. Tax professionals’ duties run both to the

client and to the public.^4

Second, tax practice has a long history of computerization, and

considerable parts of the practice are already wholly computerized.^5

Researchers continue to pursue greater applications, and with the amount of

money at stake in taxation, it is reasonable to predict the resources and

incentives will help deliver advanced AI to tax professionals sooner rather

than later.^6

Third, the practice of federal tax law is interdisciplinary. No single

profession monopolizes it.^7 Several professions share the expertise and

privileges of practice at all levels.^8 Each profession has its own greater

  1. This is usually described as a duty to “the system” and to the client. See, e.g. , BERNARD WOLFMAN, JAMES P. HOLDEN & KENNETH L. HARRIS, STANDARDS OF TAX PRACTICE § 101.2 at 3 (5th ed. 1999); LINDA GALLER & MICHAEL B. LANG, REGULATION OF TAX PRACTICE 1 (2nd ed. 2016). Professor Deborah Schenk claims the self-reporting nature of the tax system means that the tax system cannot permit the “absolute adversarial” relationship that lawyers might have in other situations. Deborah H. Schenk, Tax Ethics , 95 Harv. L. Rev. 1995, 200 5 (1982) (reviewing BERNARD WOLFMAN & JAMES P. HOLDEN, ETHICAL PROBLEMS IN FEDERAL TAX PRACTICE (1981)).
  2. See infra text accompanying notes 55 – 81.
  3. See infra text accompanying notes 88 – 93.
  4. Attorneys, certified public accountants (CPAs), enrolled agents, enrolled actuaries, and enrolled retirement plan agents may all represent clients in some capacity in front of the Internal Revenue Service (IRS). 31 C.F.R. § 10.3 (2019). As discussed below, this includes providing written tax advice but, surprisingly to some, does not include preparing tax returns. See infra text accompanying notes 94 – 100.
  5. Non-attorneys (such as CPAs) who pass an examination will be admitted to practice before the Tax Court. TAX CT R. 200(a)(3) (2012).

51: 1057 ] ARTIFICIAL INTELLIGENCE 1063

and the work resolving controversies with the government. The ex post

reporting (i.e., completing and filing forms) has long been computerized (e.g.,

TurboTax), as the tax controversy resolution work has long been practically

dependent on computerized assistance (e.g., Westlaw and LexisNexis).

Highly customized tax planning as such, however, is the field with the highest

harvest potential for computerization.

In tax planning, the events have yet to occur, and the professional’s advice

is both creative and predictive. It creates the blueprint for events. It is

predictive as to the client’s prevailing if a controversy arises after the events

are completed and reported to the government. The potential is AI gathering

detailed facts on the client’s operations and goals, and perhaps even to

continuously gather operating facts in real time, and then detecting patterns

that are legally relevant and patterns that provide planning opportunities,

even though those patterns may not have been spotted by the professional.

This would mimic the human advisor’s role in tax planning: detecting the

relevant facts and laws, making appropriate assumptions and estimations,

applying the law, inferring opportunities, and assessing the risks. The product

in aim would be a well-tailored, legally sustainable tax plan with risks and

rewards well explained. What this Article considers is the professional

responsibility of tax professionals using what is, in some sense, their

technological substitute and that, in some cases, might perform not only as

well as but better.

This Article divides its discussion of the professional ethics of AI use by

tax professionals as follows. The first Part introduces the public importance

of tax and brings the reader up to date on AI in the practice of law generally

and the history of computer use in tax law specifically. The second Part

explains who tax professionals are and what they do and then describes the

potential use of AI for ex ante business tax planning. Part three explores the

professional responsibility concerns for professionals using tax planning AI

and then relates how specific professional responsibility standards illuminate

the way forward for encouraging professionally appropriate AI use. The

fourth Part proposes a public–private cooperation to encourage tax

professionals to use AI that can reliably improve their understanding but

discourage substituting AI for their own. This involves the Internal Revenue

Service (IRS) providing defenses to penalties and professional sanctions for

professionals that use certified AI (but make mistakes), thereby creating

product demand for the certification. It is proposed that the IRS would

authorize panels of private experts to certify tax planning AI, including

certifying that the AI functions so as to improve the professional’s

understanding. The Article concludes with a reflection on how this specific

solution can illuminate the way for other professions to encourage the

1064 ARIZONA STATE LAW JOURNAL [Ariz. St. L.J.

development and use of AI that improves professional intelligence rather than

undermining the profession with substitutions for intelligence.

II. ARTIFICIAL INTELLIGENCE, PROFESSIONAL RESPONSIBILITY, AND

TAX

A. AI and the Legal Profession

Defining AI is difficult.^16 And, unlike Justice Potter Stewart’s view of

illegal obscenity, we probably do not know it when we see it.^17 We so quickly

adapt to technological innovations that we quickly forget how marvelous an

innovation first seemed and keep looking for something more marvelous to

come. Our twentieth-century ancestors would marvel at machines that

  1. Merriam-Webster defines AI as “the capability of a machine to imitate intelligent human behavior.” Artificial Intelligence , MERRIAM-WEBSTER, https://www.merriam- webster.com/dictionary/artificial%20intelligence [https://perma.cc/UE7A-UJZB] (last visited Oct. 20, 2019). Dictionary.com defines it as “the capacity of a computer to perform operations analogous to learning and decision making in humans.” Artificial Intelligence , DICTIONARY.ᴄᴏᴍ, https://www.dictionary.com/browse/artificial-intelligence?s=t [https://perma.cc/REQ4-SESS] (last visited Oct. 20, 2019). Similarly, the Oxford Dictionary defines AI as “[t]he theory and development of computer systems able to perform tasks normally requiring human intelligence.” Artificial Intelligence , OXFORD DICTIONARY, https://en.oxforddictionaries.com/ definition/artificial_intelligence [https://perma.cc/33T2-G52T] (last visited Oct. 20 , 2019). Amazon, Inc. has propounded their own definition of AI as “the field of computer science dedicated to solving cognitive problems commonly associated with human intelligence, such as learning, problem solving, and pattern recognition.” What is Artificial Intelligence? , AMAZON WEB SERVICES, https://aws.amazon.com/machine-learning/what-is-ai/ [https://perma.cc/3326- 92WC] (last visited Oct. 20, 2019). According to one scholar: “AI is best understood as a set of techniques aimed at approximating some aspect of human or animal cognition using machines.” Calo, supra note 15 , at 403. According to another scholar: AI “refers to machines that are capable of performing tasks that, if performed by a human, would be said to require intelligence.” Matthew U. Scherer, Regulating Artificial Intelligence Systems: Risks, Challenges, Competencies, And Strategies , 29 HARV. J.L. & Tᴇᴄʜ. 353, 362 (2016).
  2. See Jacobellis v. Ohio, 378 U.S. 184, 197 (1964) (Stewart, J., concurring) (“I have reached the conclusion, which I think is confirmed at least by negative implication in the Court's decisions since Roth and Alberts, that, under the First and Fourteenth Amendments criminal laws in this area are constitutionally limited to hard-core pornography. I shall not today attempt further to define the kinds of material I understand to be embraced within that shorthand description; and perhaps I could never succeed in intelligibly doing so. But I know it when I see it, and the motion picture involved in this case is not that.”).

1066 ARIZONA STATE LAW JOURNAL [Ariz. St. L.J.

be,^26 and not only answer most of our daily questions but tell us which

question we are asking and correct our spelling when it does so.^27 But this all

strikes us now as routine and unremarkable.

As with AI outside of professional lives, professionals become so quickly

accustomed to relying on technological innovations, we cease noticing.

Consider how habituated lawyers are to computer applications sorting

through thousands of case decisions and identifying the ones most relevant.

Imagine how impressed Justice Potter Stewart would be with today’s

Westlaw or LexisNexis.^28 Consider how law firm associates from two

decades ago would react to the extent to which law firms today can use AI

rather than associates to review documents.^29 Lawyers today can use AI for

  1. GPS technology has the power to guide us where we want to go but also creates issues for those who would rather remain undetected. See Tim Kolesk, At the Intersection of Fourth and Sixth: GPS Evidence and the Constitutional Rights of Criminal Defendants , 90 S. Cal. L. Rev. 1299 , 1324– 26 (2017).
  2. Apple’s integration of autocorrect and suggestive words into its iPhones uses trained pattern recognitions to correct our mistakes or save valuable moments in typing. Calo, supra note 15 , at 407. The Google search bar has mastered the art of spell check and exemplifies the benefit of machine intelligence: by cataloguing each instance that users search for phrases and words, the system can now single out and predict commonly misspelled words. Katz, supra note 23 , at 923–
  3. Lexis was designed to fulfill the Ohio Bar Association’s desire to create an electronic database for searching through opinions. See John O. McGinnis & Russell G. Pearce, The Great Disruption: How Machine Intelligence Will Transform the Role of Lawyers in the Delivery of Legal Services , 82 FORDHAM L. REV. 3041, 3048 (2014). Westlaw followed soon after. Id. Though both of these platforms were initially hamstrung by a lack of available opinions and a lack of the ability to search the full text of opinions, these issues were addressed over time and both are now virtually indispensable to modern legal research. Id.
  4. With the rapid expansion of electronically stored information in the 1990s, a need for computerized search led to early attempts at navigating the huge volume of information. Remus & Levy, supra note 10 , at 515. Initially the keyword focused search methods were far too over or under inclusive to solve the issue because often content and specific meanings did not correlate with the search terms. Id. It was not until predictive coding methods were used that the practice gained widespread acceptance. Id. at 515–16. “Predictive coding” initially entailed a supervising lawyer reviewing a sample set of documents and then classifying them as responsive or not. Id. They would then have the software review the training sample in order to estimate a learning model. It would then apply this model to the rest of the documents for relevancy. Id. After a federal court approved of predictive coding as a method of dealing with discovery, the practice expanded and more variations came into use. Id. at 516. Currently the most effective protocol sees a supervising attorney starting with a keyword search to identify possibly relevant documents. Id. They then rank these documents in order of relevancy. Id. This subset is then used to create a statistical model to predict responsiveness. Id. This sophisticated method has been shown to often be more accurate and timely than human lawyers. Id. The end result is that the demand for human lawyers in document review is on the decline. Id. See also Harry Surden, Machine Learning and Law , 89 WASH. L. REV. 87 , 88–91 (2014).

51: 1057 ] ARTIFICIAL INTELLIGENCE 1067

contract review,^30 predicting what judges or opposing counsel will do,^31 and

even identifying which lateral applicants should be hired.^32 A few decades

from now, there may be few lawyers who remember what it was like to

review contracts, ponder opposing counsel’s next move, or even review

resumes, much like today there are few lawyers who know how to research

the law using books. Still, no doubt, those lawyers of the future will be

anticipating the technological innovations that will lighten their professional

load.

There is significant literature about AI and the law written by scholars,

lawyers, and journalists. One strand of this literature is focused on predicting

the impact of AI on the legal profession itself. How will it affect employment

  1. “Machine learning” has been integral to the uptick in performance in AI. “Machine learning refers to a subfield of computer science concerned with computer programs that are able to learn from experience and thus improve their performance over time.” Surden, supra note 29 , at 89. This improvement in performance and recognition may be colloquially referred to as “learning.” Id. at 95. Diligen uses machine learning and automated intelligence to sort and summarize contracts while flagging important provisions. Diligen , NAT’L L.J., Feb. 2018, at 47 (special supplement). Apttus uses machine learning to build pattern recognition on the fly, which enables real-time decision-making when reviewing contracts. Apttus , NAT’L L.J., Feb. 2018, at 35 (special supplement). The AI builds its library to provide alternative provisions that are the most likely to be used. Id. LawGeex provides a contract review framework where the program uses a “playbook” set up as a firm would give an attorney. Lawgeex , NAT’L L.J., Feb. 2018, at 53 (special supplement). The playbook is set up so that the program knows items they always want to see, some they will not accept, and others which are largely irrelevant to their concerns. Id. The AI then uses this playbook to test contracts and if it should be approved based on the criteria they set forth; an email will be generated which tells them they can approve the contract. Id.
  2. Docket Alarm “create[s] a statistical model of the ways that judges and courts decide cases” by discerning patterns and developing predictive analytics from millions of court and agency documents. Docket Alarm , NAT’L L.J., Feb. 2018, at 47 (special supplement). Gavelytics uses natural language and guided machine learning to evaluate state court documents and provide metrics about trial court judge behavior, including judicial speed, by providing a “gavel score.” Gavelytics , NAT’L L.J., Feb. 2018, at 49 (special supplement).
  3. Alphaserve gives law firms a brief introductory workshop to demonstrate the potential of AI in a variety of in-house uses. Alphaserve , NAT’L L.J., Feb. 2018, at 36 (special supplement). For example, Alphaserve can provide systematic resume review to help firms decide which lateral associates they should hire in the place of summer and first-year associates. Id.

51: 1057 ] ARTIFICIAL INTELLIGENCE 1069

justice.^36 A third type of writings addresses how substantive areas of the law,

such as evidence, need to be adapted to accommodate the use of AI.^37 A fourth

collection of scholarship directly addresses legal ethics issues. The duty to be

familiar with emerging technologies^38 and whether the developers of such

  1. AI has the potential to help clients with unmet legal needs. For example, LegalZoom, Rocket Lawyer, and other for-profit ventures are developing automated web-based processes in straightforward areas of the law to offer customized legal documents for less. Rostain, supra note 33 , at 570. Other programs offer a range of legal help including a game that helps pro se litigants prepare for a court appearance and apps that deliver information on legal rights in different contexts. Remus & Levy, supra note 10 , at 552 n. 206; John Biggs, HelpSelf Uses Simple AI To Help Those in Legal Trouble , TECHCRUNCH (Apr. 12, 2018, 7:10 AM) https://techcrunch.com/2018/04/12/helpself-uses-simple-ai-to-help-those-in-legal-trouble/ [https://perma.cc/UPJ6-5TCM] (last visited Feb. 15, 2019).
  2. For example, AI could assign different degrees of certainty and uncertainty to various inputs and then churn out a result with a corresponding level of certainty. Karnow, supra note 3 , at 163 – 65. This process would also produce decision trees which would show the importance of factors on the various decisions made. Id. Experts would then provide to the judge, to determine admissibility, and the jury, to determine weight, a step-by-step analysis of how the program works, state the assumptions and underlying scientific theories, and explain the logic used to arrive at the results. Id. Karnow also recognizes that there must be a different standard for the use of AI in generating admissible evidence than there is for AI’s use in society at large. Id. at 177. Karnow draws a red line in the use of unvalidated software which, while used all the time in the world, “has no place in court.” Id.
  3. In 2012, the American Bar Association (ABA) modified Comment 8 to Rule 1.1 to say that a lawyer should stay abreast of changes in relevant technology. MODEL RULES OF PROF’L CONDUCT r. 1.1 cmt. 8 (AM. BAR ASS’N 2012). The ABA has thus pointed out the importance of technology in the field. Though very vague in its direction, this was by design in order to ensure that the lawyer’s skill changes with each new iteration of technology. Further, it is not possible to know what advances will come in the future that would challenge a more specific set of duties. See Andrew Perlman, The Twenty-First Century Lawyer’s Evolving Ethical Duty of Competence , 22 PROF. LAW., 24, 25 (2014). Despite the vague instructions, the majority of state bars to date have adopted the commentary. Robert Ambrogi, Tech Competence , LAWSITES https://www.lawsitesblog.com/tech-competence [https://perma.cc/6KWC-ZWKV] (last visited Oct. 20, 2019). Thus far, the duty has mainly been applied to storage of electronic data, social media, discovery, and the cloud. Jamie J. Baker, Beyond the Information Age: The Duty of Technology Competence in the Algorithmic Society , 69 S.C. L. REV. 557, 557–58 (2018). Algorithms have been noticeably absent. Id.

1070 ARIZONA STATE LAW JOURNAL [Ariz. St. L.J.

may be engaged in the unauthorized practice of law (UPL)^39 are the two most

commonly discussed issues.^40

What has yet to be addressed is the extent to which it is (or will be)

professionally appropriate for a lawyer to rely on AI. To return to the initial

story above, in what circumstances would it have been appropriate for the

obstetrician to rely on the computer program when prescribing medications?^41

Though it may not occur to us at first, we might also ask, in what

circumstances would it have been appropriate to rely on Internet searches

rather than personal knowledge or physically published drug manuals rather

than personal knowledge to prescribe?

How deeply should technological innovations be scrutinized to determine

their reliability for professional use? Lawyers have long relied on commercial

publishers of statutes and cases with little anxiety that the texts might

incorporate publishers’ mistakes.^42 And despite the well-documented

different search results yielded in different databases by the same research

query, no one has alleged it is professionally inappropriate to rely on only

  1. It has been suggested that the current approach to UPL rules is not very useful in policing this area. Remus & Levy, supra note 10 , at 542. For starters, judges have to make normative judgments about whether a given program is closer to a legal services provider or a scrivener because the rules are applied to people in the same way as they are programs which does not reflect the true state of affairs. Id. There are also tasks which AI may be better suited at in a particular context but which may not extend to every other context. Id. at 543. Therefore, treating them the same as a person may not be the most efficient approach in determining whether there was a UPL violation. Id. Nevertheless, regulation is necessary to avoid unintended consequences which would likely largely fall on the poorest users of such legal technologies. Id. at 544–45.
  2. Of course, legal ethics scholars have considered other digital technology issues, such as the duty to provide cybersecurity for client information. See Eli Wald, Legal Ethics’ Next Frontier: Lawyers and Cybersecurity , 19 CHAP. L. REV. 501 (2016); Natasha Babazadeh, Legal Ethics and Cybersecurity: Managing Client Confidentiality in the Digital Age , 7 J.L. & CYBER WARFARE 85 (2018). The issue of being paid in cryptocurrency is also a topic increasing in relevancy. See Lisa Miller, Getting Paid in Bitcoin: Attorneys Accepting Cryptocurrency as Payment Should Be Sensitive to the Fact That the Regulatory Landscape Is Likely To Change in the Near Future , L.A. LAW., Dec. 2018, at 19. The lack of regulatory specificity in its application to algorithms has been noted as a particular blindspot. Baker, supra note 38 , at 558.
  3. Skounakis v. Sotillo, No. A- 2403 - 15T2, 2018 WL 1370216, at *2 (N.J. Super. Ct. App. Div. Mar. 19, 2018).
  4. Perhaps some anxiety is warranted. See, e.g. , Robert Ambrogi, Thomson Reuters Says Glitch Left Out Text From 600 Cases Since 2014 , LAWSITES (Apr. 16, 2016) https://www.lawsitesblog.com/2016/04/thomson-reuters-says-left-text- 600 - cases-since- 2014.html [https://perma.cc/3UC4-RN3T] (discussing the fact that Thompson Reuters Westlaw had to send out an email to its clients informing them that over 600 cases had text missing due to a conversion error). See generally Paul Hellyer, Evaluating Shepard’s, KeyCite, and BCite for Case Validation Accuracy , 110 L. LIBR. J. 449 (2018) (discussing issues with the citators used by Lexis, Westlaw, and Bloomberg Law in identifying when cases have received negative treatment).

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bloody, history of disputes over these terms.^45 The American War for

Independence was rooted in the claim that that it was “the undoubted rights

of Englishmen, that no taxes should be imposed on them” without their

consent or representation.^46 This type of dispute between the taxing and the

taxed is not an Anglo-American peculiarity, of course: across time and

around the globe, citizens have violently demanded government respect

limits on compelling contributions.^47 And in countless more commonplace

and less dramatic incidents the would-be taxed and the taxing authorities

conflict and resolve their conflicts on the amounts to be taken.^48 In tax law,

the political relationship between government and citizen becomes most

practical. On the one hand, as Oliver Wendell Holmes explained it, taxpayers

should accept that taxes “are what we pay for civilized society.”^49 But, on the

  1. Arthur J. Cockfield & Jonah Mayles, The Influence of Historical Tax Law Developments on Anglo-American Laws and Politics , 5 COLUM. J. TAX. L. 41, 57 (2013).
  2. The English Bill of Rights of 1689 recognized the authority of Parliament (exclusive of the Monarch) to levy taxes. Cockfield & Mayles, supra note 45, at 57. It was their claim of the right to no taxation without representation that led to the First Congress of the American Colonies, also known as the Stamp Act Congress, to make several resolutions. Id. at 58– 59. The three key resolutions were the third: “That it is inseparably essential to the Freedom of a People, and the undoubted Right of Englishmen, that no Tax be imposed upon them, but with their own Consent, given personally, or by their Representatives.” Resolutions of the Stamp Act Congress, October 19, 1765, reprinted in DAVID F. BURG, THE AMERICAN REVOLUTION 373 (2d ed. 2007). The fourth: “That the People of these Colonies are not, and from their local Circumstances, cannot be represented in the House of Commons in Great-Britain.” Id. And finally, the fifth: “That the only Representatives of the People of these Colonies, are the Persons chosen therein by themselves; and that no Taxes ever have been, or can be, constitutionally imposed on them but by their respective Legislatures.” Id.
  3. Several hundred tax rebellions from ancient times to the twenty-first century and in places across the globe hundreds of tax protests, uprisings, rebellions, and revolutions are well documented. See DAVID F. BURG, A WORLD HISTORY OF TAX REBELLIONS: AN ENCYCLOPEDIA OF TAX REBELS, REVOLTS, AND RIOTS FROM ANTIQUITY TO THE PRESENT, at vi (2004).
  4. In fiscal year 2017, IRS Chief Counsel received 70,632 cases and closed 73,632 cases, including some received in prior years. INTERNAL REVENUE SERV., 2017 DATA BOOK 59 (2018), https://www.irs.gov/statistics/soi-tax-stats-individual-income-tax-returns-publication- 1304 - complete-report [https://perma.cc/K6KH-84CL]. There is a significant difference between what the IRS considers audits in its reports and what may be deemed “unreal” audits which take into account other forms of action that require taxpayers to give the IRS information, but which do not technically constitute audits under the IRS definition in 26 U.S.C. § 7602(a)(1) (West 2019). Compare id. at 21, with 26 U.S.C. § 7602(a)(1) (West 2019). Therefore, the National Taxpayer Advocate’s position is that there are 9.1 million audits when combining “real” and “unreal” audits. Ashlea Ebeling, IRS Official Audit Rate Down but the “Real” Audit Rate Is the Problem , FORBES (Mar. 29, 2018), https://www.forbes.com/sites/ashleaebeling/2018/03/29/irs-official-audit-rate- down-but-the-real-audit-rate-is-the-problem/#7701047c1f92 [https://perma.cc/KN3C-W6J4].
  5. Compania General de Tabacos de Filipinas v. Collector of Internal Revenue, 275 U.S. 87, 100 (1927) (Holmes, O., dissenting) (rejecting the Court’s holding that a state may not impose a tax on contracts, or the money used to secure them, which are made and performed outside of the state).

51: 1057 ] ARTIFICIAL INTELLIGENCE 1073

other hand, as Learned Hand explained, the government must accept that any

taxpayer has the right to “so arrange his affairs that his taxes shall be as low

as possible.”^50 The professional duties of the tax professional inhere in

articulating both the government’s right to compel contribution and the

taxpayer’s right to contribute no more than necessary.^51

There is also good reason to anticipate that tax law will be a field in which

substantial AI advances emerge sooner rather than later. Tax is, of course, the

place the money is: with 3.4 trillion dollars passing from private hands to

U.S. government coffers each year,^52 both the government and taxpayers have

not only the financial interest but the financial resources to develop AI. The

demand for AI advances also can be measured in the number of taxpayers

and not just their dollars: more than two hundred million individuals file

income tax returns each year, and nearly eleven million business entities.^53

Filing and processing these returns is one of the greatest undertakings of data

management on the planet each year. Tax compliance and administration, and

even ex ante tax planning, are, ultimately, tasks of collecting and analyzing

data.^54 The tax field is tailored for help from AI advances, which is one reason

to anticipate its development.

  1. Bullen v. Wisconsin, 240 U.S. 625, 630 (1916) (holding that in order to receive the benefit of the law, a taxpayer must still conform to the purpose of the tax law which means more than simply meeting statutory definitions contained within the law) (“We agree with the Board and the taxpayer that a transaction, otherwise within an exception of the tax law, does not lose its immunity, because it is actuated by a desire to avoid, or, if one choose, to evade, taxation. Any one may so arrange his affairs that his taxes shall be as low as possible; he is not bound to choose that pattern which will best pay the Treasury; there is not even a patriotic duty to increase one’s taxes.”); Helvering v. Gregory, 69 F.2d. 809, 810 (2nd Cir. 1934) (citing U.S. v. Isham, 84 U.S. 496, 505 (1873)).
  2. In tax parlance, a taxpayer arranging “his affairs that his taxes shall be as low as possible” is known as tax avoidance and is legitimate. See INTERNAL REVENUE SERV., THE DIFFERENCE BETWEEN TAX AVOIDANCE AND TAX EVASION https://apps.irs.gov/app/understandingTaxes/whys/thm01/les03/media/ws_ans_thm01_les03.pdf [https://perma.cc/9M6P-4EKC]. What is illegitimate is not paying the tax rightly due; this is known as tax evasion. Id.
  3. INTERNAL REVENUE SERV., supra note 48 , at 11.
  4. 204,405,851 for individuals (doubling the amount for married filing jointly and surviving spouses), INTERNAL REVENUE SERV., PUBLICATION 1304 at 48 (2018); 10,939, business entities in 2017, INTERNAL REVENUE SERV., supra note 48 , at 4.
  5. Former IRS Commissioner Doug Shulman said that what “really matters” to the IRS is “the organization of data and ultimately the knowledge and intelligence we extract from the information.” Press Release, Internal Revenue Serv., Prepared Remarks of IRS Commissioner Doug Shulman to the Leaders & Legends Series, Johns Hopkins Carey Business School, Baltimore (May 18, 2011) (https://www.irs.gov/pub/irs-news/ir- 11 - 055.pdf) [https://perma.cc/J8D2-EZ69]. Though the use of data analytics in the tax realm has been primarily concerned with hindsight, there is a push to drive the applications further for predictive and prescriptive uses to enable organizations to have a better understanding of likely tax burdens

51: 1057 ] ARTIFICIAL INTELLIGENCE 1075

whether the tax return should be given closer review.^66 How this scoring

works is a closely guarded secret.^67

While the IRS was focused on using algorithms for audit purposes, and

generally improving its processing of hundreds of millions of returns each

year, the emerging focus of tax professionals was using computers for

business tax planning. Beginning in 1971, a recent graduate of Harvard Law

School, L. Thorne McCarty combined his education in mathematics and

philosophy with his legal training as a Law and Computer Fellow at Stanford

Law School.^68 With funding provided by the IBM Corporation and computers

provided by the Stanford Artificial Intelligence Laboratory, McCarty began

experimenting with AI’s ability to assess the tax consequences of corporate

reorganization plans and, thereby, also to address fundamental and

philosophical issues about the nature of law and legal reasoning.^69 His

experiment in the tax field caught the attention of others interested in

computerized legal reasoning.^70 McCarty published his programming

techniques and his reflections on its potential and limitations in the Harvard

Law Review in 1977, predicting that a prototype useful for corporate tax

planning might be developed before the end of the 1980s.^71

  1. See infra note 107.
  2. Michael B. Lang & Jay A. Soled, Disclosing Audit Risk to Taxpayers , 36 VA. TAX REV. 423, 432 – 33 (2017); See INTERNAL REVENUE SERV., INTERNAL REVENUE MANUAL 4.19.11.1.5.1(8)–(9) (Nov. 9, 2007) (explaining that “DIF mathematical formulas are confidential in nature and are distributed to IRS personnel only on a need-to-know basis” and that “DIF formulas are for official use only and will not be discussed with unauthorized personnel”). See 26 U.S.C. § 6103(b)(2) (2019). See also Buckner v. IRS, 25 F. Supp. 2d 893, 898 (N.D. Ind. 1998) (DIF scores are exempt from FOIA).
  3. L. Thorne McCarty, Reflections on Taxman: An Experiment in Artificial Intelligence and Legal Reasoning , 90 HARV. L. REV. 837, 837 n.* (1977).
  4. Id. at 837 n.*, 839, 849.
  5. See, e.g. , PHILIP SLAYTON, RADICAL COMPUTER USE IN LAW 67 – 68 (drft. Report, June 1974); Hélène Bauer-Bernet & Ejan Mackaay, Effect of Information Science on the Formation and Drafting of Law , 14 JURIMETRICS J. 235, 248 n.14 (1974); William E. Boyd, Law in Computers and Computers in Law: A Lawyer’s View of the State of the Art , 14 ARIZ. L. REV. 267, 286 – 87 n.107 (1972); Walter G. Popp & Bernhard Schlink, JUDITH, A Computer Program to Advise Lawyers in Reasoning a Case , 15 JURIMETRICS J. 303, 313–14 (1975); Philip Slayton, Electronic Legal Retrieval , 15 JURIMETRICS J. 108 (1974) (prepared for the Canadian Department of Communications).
  6. McCarty, supra note 68 , at 892. About the time this article was published, the use of computers for word processing was only emerging. See David S. Dunkle, The ERISA: The Attorney and the Computer , 17 LAW OFF. ECON. & MGT. 378 (1976) (touting a plan for ERISA, a computerized document assembly services). The attorney need take no more than one hour to select from the seven pages of options available, and then only another half hour reviewing the final document when it was delivered. Id. at 380. The service had a “[n]ormal turnaround time” of “ten to fifteen days,” though under special “prearranged conditions” the documents could be available within forty-eight hours. Id. at 379. Within that context, McCarty’s prediction was remarkably bold.

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Not long after McCarty published his article, Professor Robert Hellawell

of Columbia Law School published a similar article in the Columbia Law

Review.^72 He considered McCarty’s technical methodology to be too

“ambitious,” and so set out to write a corporate tax planning program that

used a different methodology.^73 The following year, Hellawell published his

efforts to computerize tax planning for U.S. taxpayers investing in foreign

mines.^74 Throughout the 1980s and early 1990s, the potential to computerize

tax planning continued to lure experts into the field.^75 But no prototype useful

for tax planning emerged.^76

But while tax planning was not transformed by computerization in the

1980s, as McCarty had hoped it might be, tax compliance was. Tax form

preparation software began emerging in the early 1980s.^77 In 1982, Jackson

Hewitt Tax Services took a radical step in requiring its form preparers to use

software.^78 By 1987, about 13% of paid preparers used software.^79 The

forerunner of TurboTax was designed in 1983, and by 1990 earned $

million in annual revenue, though well into the 1990s fewer than 10% of

  1. See Robert Hellawell, A Computer Program for Legal Planning and Analysis: Taxation of Stock Redemptions , 80 COLUM. L. REV. 1363 (1980).
  2. Id. at 1365 n.5.
  3. See Robert Hellawell, CHOOSE: A Computer Program for Legal Planning and Analysis , 19 COLUM. J. TRANSNAT’L L. 339 (1981) (for U.S. tax planning of foreign mining investments).
  4. See, e.g. , Dean A. Schlobohm & L. Thorne McCarty, EPS II: Estate Planning with Prototypes , PROC. OF THE 2 D INT’L CONF. ON ARTIFICIAL INTELLIGENCE AND L. 1, 1–10 (1989) (EPS II for U.S. testamentary tax planning); Kathryn E. Sanders, Representing and Reasoning About Open-Textured Predicates , PROC. OF THE 3 D INT’L CONF. ON ARTIFICIAL INTELLIGENCE AND L. 137, 137–44 (1991) (CHIRON system that structures real estate transactions to generate most favorable tax consequences); David B. Skalak & Edwina L. Rissland, Arguments and Cases: An Inevitable Intertwining , 1 ARTIFICIAL INTELLIGENCE & L. 3 (1992) (CABARET system for U.S. home office tax deduction). In the 1980s, interest in computerized tax planning was also gaining ground outside the U.S. See , e.g ., J. R. Mace & P. F. Pope, Tax Planning and Computer Simulation , 1980 BRIT. TAX REV. 45 , 45 (1980).
  5. Sanders, supra note 75.
  6. Rodney P. Mock & Nancy E. Shurtz, The TurboTax Defense , 15 FLA. TAX REV. 443, 455 (2014). There were multiple news articles detailing the rise of such software. See, e.g ., Don Nunes, Computer Programs Aid Tax Return Preparation , WASH. POST (Feb. 14, 1983), https://www.washingtonpost.com/archive/business/1983/02/14/computer-programs-aid-tax- return-preparation/e2f94291-4ef8-40b5-b900-22a0dd34d7c8/?noredirect=on [https://perma.cc/XPF4-U2KH]; Ellen Benoit, The Tax Preparation Revolution , FORBES, Jan. 17, 1983, at 69. See also John W. Hazard, Doing Your Taxes by Computer , U.S. NEWS & WORLD REP., Mar. 19, 1984, at 86; William D. Marbach, Now, the Electronic Tax Man , NEWSWEEK, Mar. 19, 1984, at 106; David E. Sanger, Software for Doing Your Own Return , N.Y. TIMES, Mar. 4, 1984, § 12, at 76.
  7. Mock & Shurtz, supra note 77 , at 45 6.
  8. Jackson Hewitt helped pave the way for the fast growth by requiring all its preparers to use tax software, which helped lead to the 13% figure by 1987. Id.