Based on what you have said, it appears that you are missing a code-1 Form 1099-R. You should have two Forms 1099-R, one with code 2 that reports a Roth conversion of $28,800 (which you have mentioned having) and a separate Form 1099-R that has $11,200 in boxes 1 and 2a, box 2b taxable amount not determined marked, code 1 in box 7 and the IRA/SEP/SIMPLE box marked. This $11,200 that was withheld for taxes is includible in taxable income and is subject to a 10% early-distribution penalty unless you substituted $11,200 of other funds to complete a rollover or conversion of this portion of your distribution from the traditional IRA.
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