HomeMy WebLinkAbout06/07/1994, COMM.2 - MOBILE HOME PARK RENT STABILIZATION AUTOMATIC ADJUSTMENTS PURSUANT TO 5.44.060(E) MEE18. t^ENDA
DATE 6•?-9 , I Cm #
MEMORANDUM
FROM THE OFFICE OF THE CITY ATTORNEY
May 18, 1994
TO: City Council
FROM: Jeff Jorgensen, .City Attorney
SUBJECT: Mobile Home Park Rent Stabilization
Automatic Adjustments Pursuant to 5.44. 060 (E)
At the April 19, 1994 City Council meeting, the attached
communication item from Leola Rubottom was referred to staff for an
analysis and response. Leola has requested the deletion of
Section 5.44. 060(E) of the Mobile Home Park Rent Stabilization
Ordinance, which allows for automatic adjustments of rent based on
"increases in expenses for common area utilities, new government-
mandated services, garbage service and cable television. . . . " The
apparent reason given for this request is that the owner of
Creekside Mobile Home Park has offered long .term leases which do
not include automatic adjustments as set forth in 5.44 . 060(E) . The
inference is this constitutes a "discriminatory practice. "
A previous inquiry, which asserted that the automatic rent
adjustments allowed by 5.44.060(E) are in conflict with the Mobile
Home Residency Law (Civil Code § 798. 31) was submitted in December,
1993 . (Attached for your information is the analysis of that
previous correspondence. )
CONCLUSION
The City Council has the authority to delete Municipal Code
§ 5.44 .060 (E) provided an adequate mechanism remains in the Rent
Stabilization Ordinance to ensure a "fair return on investment. "
The fact that a park owner offers long-term leases with provisions
different from the provisions of the Rent Stabilization Ordinance
is not a "discriminatory practice. " Therefore, should the Council
wish to consider deletion of § 5.44. 060(E) , it should do so on some
basis other than an alleged discrimination.
ANALYSIS
1. Does the City Council have authority to delete the automatic
adjustment provisions of § 5.44.060 (E) ?
The Mobile Home Park Rent. Stabilization Ordinance was adopted by
voter approval as an initiative measure in 1988. However, the City
Council specifically retained the authority to amend the ordinance
��iflol •/
by majority vote (§ 5.44. 141) . Therefore, the City Council clearly
has the authority to delete § 5.44. 060(E) should it choose to do
so. However, it should also be noted that the validity of a rent
control ordinance will rest upon whether the ordinance permits the
landlord to earn a "just and reasonable return. " A long line of
court decisions support this fundamental requirement. Birkenfeld
v. City of Berkeley, 17 Cal.3d 129 (1976) ; Carson Mobile Home Park
Owners Assoc. v. City of Carson, 35 Cal.3d 1841983
( ) ; Palos Verde
Shores Mobile Estates. Ltd v City of Los Angeles, 142 Cal.App. 3d
362 (1983) ; Fisher v. City of Berkeley, 37 Cal. 3d 644 (1984) ; West
Hollywood Concerned Citizens v City of West Hollywood, . 232
Cal.App.3d 486 (1991) . While no case has concretely defined the
term "just and reasonable return, " one court has described it as
one which ". . . is high enough to encourage good management, reward
efficiency and discourage the flight of capital and is commensurate
with returns on comparable investments, but not so high as to
defeat the purpose of preventing excessive rents. " San Marcos
Mobile Home Park Assoc v Citv of San Marcos, 192 Cal.App.3d 1492
(1987) . Conversely, a denial of a just and reasonable return
constitutes an unconstitutional taking of property which requires
compensation. Birkenfeld v. City of Berkeley, 17 Cal.3d 129
(1976) . The City's rent stabilization ordinance recognizes the
need for balance by including in the Purpose and Intent section,
the following provision:
"Because of the high cost and impracticability
of moving mobile homes, the potential for
damage resulting therefrom, the requirements
relating to the installation of mobile homes,
including permits, landscaping and site
preparation, the lack of alternative home
sites for mobile home residents, and the
substantial investment of mobile home owners
in such homes, this Council finds and declares
it necessary to protect the owners and
occupiers of mobile homes from unreasonable
rent increases while at the same time
recognizing the need of park owners to receive
a suitable profit on their property with
rental income sufficient to cover increases in
costs of repair, maintenance, insurance,
utilities, employee services, additional
amenities, and other costs of operation, and
to receive a fair return on their investment."
(§ 5.44.010(C) . Emphasis added. )
Most rent control ordinances allow an annual increase based on the
percentage change on the consumer .price index or a portion thereof
(in the case of San Luis Obispo, 100% of the CPI up to 5% and 75%
of the CPI in excess of 5%) . However, even with an annual increase
provision, a procedure must be provided by which an owner can seek
an increase on the grounds the annual increase is not sufficient to
2
provide a just and reasonable return. Thus, the San Luis Obispo
ordinance also provides for an application for rent adjustment over
and above the CPI increase, and any automatic adjustments, when
appropriate to assure a fair and reasonable return on investment.
(§ 5A4.070. )
Some cities provide for automatic adjustments in their rent control
ordinances. Others do not. The potential advantage of automatic
adjustments is the ease of administration which may result. The
disadvantage is that the adjustments may result in slightly higher
rents than a more complex and staff intensive hearing procedure.
The difficulty with simply eliminating the automatic adjustment
Provisions of Section 5.44. 060 (E) is that while it may provide for
a modest reduction in rent increases in the short term, it may also
simply result in shifting requests for rent increases to the formal
application process set forth in Section 5.44 . 070. I am unaware
of any formal rent adjustment.hearings having been held by the City
since the rent stabilization ordinance was adopted in 1988. Given
the extremely contentious, time consuming, and litigious hearings
held in many other cities, this may be an enviable record. In
light of this, the Council may wish to determine whether there are
significant reasons for changing the current balance in the
ordinance prior to taking any action on this matter.
2. Does the fact that a park owner offers long-term leases with
provisions different from the provisions of the Rent Stabilization
Ordinance constitute a ('discriminatory practice"?
Whether a park owner decides to offer a long term lease, and
whether a tenant decides to accept such a lease, is a purely
private, voluntary decision between the parties which has nothin
to do with discrimination and. is largely beyond the ability of the
City to regulate. A park owner is not obligated to offer a long
term lease, but has a right to, and if such a lease otherwise
complies with the provisions of Civil Code § 798. 17 (G) the owner
". . . shall be exempt from any ordinance, rule, regulation, or
initiative measure adopted by any local government entity
(Civil Code § 798. 17 (A) . ) The owner's decision may be motivated by
a number of reasons (such as stability and predictability) , but
generally will be based upon the perceived economic benefit of a
lease as opposed to the Rent Stabilization Ordinance. On the other
hand, a tenant is not required to enter into a long term lease, and
may opt for the protection of the Rent Stabilization Ordinance if
the tenant perceives a greater economic benefit in doing so. It
depends upon the relative value of benefits offered in the lease.
In both instances, it is a matter of choice based upon the terms
and conditions of the entire agreement. To call such a process of
negotiation a "discriminatory practice" does not seem to be a
supportable premise. Further, to single out one provision of a
long term lease as a reason for amending the Rent Stabilization
Ordinance to delete automatic adjustments would essentially
3
�Au►�-3
Penalize owners for offering long term leases that do not exactly
mirror the ordinance, and may take away incentives to offer such
leases at all.
RECOMMENDATION
Based upon the above analysis, it is respectfully recommended that
§ 544. 060(E) not be deleted based upon an unsupported notion of
"discriminatory practice. " Issues which might properly support
such a deletion would include whether the automatic adjustments
have resulted in excessive rent increases or have been abused. I
am unaware of any such instances having been brought to the
attention of the City.
JGJ/sw
cc: John Dunn
Deb Hossli
Attachments:
1. Leola Rubottom Letter, dated April 18, 1994
2. Jeff Jorgensen Memo, dated December 22, 1993
3 . California Civil Code § 798. 15, et sev.
4
8PAW,14
san Luio 06opo,
Apau 18, 1994
Horwnabte Mayon PinnaAd and 64.by Counc.U Aembe u o�
San Luio Obro w, &I
Re: Thethnouyho berry added to ,the bane nerd in
neehoide AW leiome ja,,A
r9ccoeoA to a 'Sixty-Gary Notice o4 a Rent r✓�waame dated Oct. 23, 1993,
Cn Antero .that have not eiryned Zeaoeo wilt have the 1993 parvo
thnouyho ti6ted eepanateby on the neat otatement and w t be .included
to the bane hent.
The papa t nougha that ince ti ted and egert;ve Janua�u� 1, 1994 mere
booed on the coot 4 cam wn area utUi.tieo, new yovevwwnt mandated
aenueceo, yanbaye 6envice, etc. to .the park amne4.
Tlce. new 1994 bane neat conoloted o4 the cuiucerit neat in 1993 p&4
the C./ .9. ir=eaoe o� Z6 and the awtent 1993 paw thxouyhe.
The 1995 C i'.9., An thooe nut on Zeaoea, wi& be booed on the new
nerd fEgme P&4 ,any new paea thiwu .
We neopecA4d4 ne$ueot the deletion oA (6.) oecti.un oA 5.44.060 o4
the Illobilehome Rent StabZUgation Ordinance pa San Lui.e 0644PO that
attow Ax thio di "v"natoruy practice.
Sinceaely;
Leala Rubottom
3960 South &gve-w, Space, 21
San Luigi Obiepo, Cil 93401
6nctooed: Ssxty Day Notice o4 Rent 9ncnea6e PA #home not on -teaoeo.
Sixty Day (Yotice oA Rent 9ncnea4e �xx thcme on teaoeo.
ATTACHMENT 1
'KX'..V_ MJnILE�OriE COMNUr. Space: M
:TY •;�
oS`'i11a�s/� c�Ji 4e
. cc'
SIXTY DAY NOTICE OF RENT INCREASE
Dear Ra=.ident:
City of San Luis Obispo Mobile Home Park Rent Stabilization Ordinance, Chapter5. 44 alio;vs for rents to be adjusteJ annually. This letter is notice of such
adjustment. From August, 195a to August, 199"' the Consumer Price Index moved from
D 434, 1 to 44c. B wrli:i; is a c. 07.. increase. Therefore, Your- current rent will be
�p 4� increased by ;4.91 which is the increase in the CGI.
h' SI +tie 139,3pas_� .
ihr•u of 16. 99 curreni.tly listed Separately on your rent statement
will be included in your new base rent.
In addition I �Ectlon 5, 44. 2601 Paragraph E. allows "Space rent may be
automatically adjusted based on increases in expenses for common area utilities, new
governlmtnt mandated services, garbage ser vice. . , ,,. In. addition, Section 5. 414.060,
Paragraph E. further states, "The space rent may be adjusted by dividing the total
increase in any such expenses incurred during a twelve—month period by twelve, less
the percentage in the CGI index for the twelve—month period. The quotient shall be
allocated to tie sFace rent for each space in the park based on the amount the space
rent relates to total space rent for the park. " The additional park costs under this
section are as follG;ti;:
Park cost for electricity increased by ;901J. 90.
`.t Er ii1LYEa aeLiCiv. 7i.
nit Nark Cost Fc- Oump fees ln•creasec by i^
`'�:.' p!'�I.o:'v:� : iharE of ;;his inCt•aase effect ,
.ve jai,,
tie au ve ..^.crea_e ref:e vs act,.al Plat' ( cost increases an:: uv25 SOT 1nC_tr_2 1�iil:le5•
v 7: .Lt• 7� _ �..'L•_L .r �- .L{. 1'�. a E. 1L r.0 cl. ..- E_ L!• .
rl'^
':;:t• Notice ar .:E, :G i.ii :`c•:i,.' r1 L;s ;1
.�� lb�_Ct t0 t:le rlr`Ovail. v�r;l. - ..
- .+; _•'i;.ISaI'1�:, •i v... I'i r. , •-
•:•� --y•' -115
_ a';'i GC':t +'2!:L, Mi1i•:I•i _pr�Si D�._ .
&M L
:;tC:1Gl '. •. .. . . . �.�y•..:rl::t
9'e•U :
uii
will re main sot;: •JLeS . a-Ulay 13941 andrough•
December "'1, 1994.
:ncerEly, i
=a Fieain5i
Mar- -
II
CREEKSIDE MOBILEHOME COMMUNITY Space. 4W
39b0 S. HIGUERA STREET
SAN LUIS OBISPO, CA 93401
October 31, 199W
SIXTY DAY NOTICE OF RENT INCREASE
Dear Resident:
The Lease provides for rents to be adjusted annually on January 1st. This letter
is notice of sr;eh adjustment. From August, 1992 to August, 19933 the Consumer- Price
Index applicable to the Lease moved from 434. 1 to 442.8 which is a 2. 0% increase.
Therefore, Your' r:nt will be increased by 15. 47 to $278. 79.
The Lease further provides for pass thr•trs of costs related directly to the park
costs as further adjusted for inflation. These costs include utilities, government
services and fees, which this year affects electricity, gas, water, trash and
government fees. All increases and decreases listed have been adjusted for the CPI.
Park use of electricity has risen slightly and the commodity -cost has again
risen, resulting in an overall increase. Therefore, last year' s pass thru of $1.86
will increase by S.35 to $2.21.
While the cost of gas has increased this year, the park' s consumption of gas to
heat the recreation building, swimming pool and spa has again decreaseJ. Your prorata
share of this decrease is a S 1.24 per, month reduction for a new pass thru of $2.27.
This year both .rater consumption and the commodity cost have increased
dramatically. Your prorata share of this increase is $4.35 per month for a total
water pass thru of $5.66.
The cost for dump fees will increase an additional $1. 10 for a total pass thru of
$2.06. The permit• to operate fee this year- remained the same. Adjusting last year' s
cost for CPI results in a prorata decrease of S . 01 for a total Government fees pass 0-1
thru of $.32. The property tax assessments will remain at 11.02. D)4
Ste'
Your pass thrcayh, a"—ctive January 1; 1994 will be $11. 54 and will be listed 1 .
separately on your ren', statexent and will nut 'be subject to CPI increases. Al ', of
the above pass thrus reflect actual cast increases and do NOT include utilities and
other charge; bii:ad d:rectly to you. Documentation for- the pass thrum is available
at the park office.
This notice applies to all residents under the G fir provisions of the San
Luis Obispo Rent Control Ordinance. The Base Rent becomes effective for January 1,
1994 and will remain ;o through December 31, 1994.
Sincerely,
Pat Fleming,
Manager
MEMORANDUM
FROM THE OFFICE OF THE CITY ATTORNEY
December 22, 1993
TO: City Council
FROM: Jeff Jorgensen
SUBJECT: Mobile Home Ren Stabilization
I have reviewed the attached letter dated December 7, 1993 from
Leola Rubottom, which asserts that the automatic rent adjustments
allowed by Municipal Code Section 5.44. 60 (E) [5.44 .060 (E) ] are in
conflict with the Mobile Home Residency Law, and therefore invalid.
CONCLUSION
Municipal Code Section 5.44. 060 (E) is not in conflict with the
Mobile Home Residency Law and is a valid subject of municipal
regulation.
ANALYSIS
It is correct that the Mobile Home Residency" Law, Civil Code
Section 798. 31, requires that, "a homeowner shall not be charged a
fee for other than rent, utilities and incidental reasonable
charges for services actually rendered. " However, what constitutes
rent, particularly under a rent control ordinance, is not preempted
by state legislation and is left to the broad discretion of the
local agency. Gregory v. City of San Juan Capistrano, 142 CA3d 72,
191 Cal.Rptr. 47 (1983) . In addition, in the absence of a rent
control ordinance, rent can be established at whatever level the
park owner determines, subject only to market forces.
The only case addressing the issue raised by Leola's letter is
Karrin v. Ocean-Aire Mobile Home Estates, 1 Cal.App.4th 1066, 2
Cal.Rptr.2d 581 (1991) . The Karrin case invalidated a rent control
ordinance of the City of Oxnard which permitted a mobile home park
owner to add a monthly capital improvement assessment to the
monthly bill in addition to regular rent. The rent control
ordinance specifically provides that such assessments should not be
considered rent. The Court invalidated this provision because it
directly conflicted with Civil Code Section 798 . 31. However, the
Court was careful to point out that had the increase been added to
rent rather than billed separately as an assessment, it would have
been valid.
ATTACHMENT 2 /J
C,owtA1 a?-�'
City Council
December 22, 1993
Page Two
The San Luis Obispo Mobile Home Rent Stabilization Ordinance is
significantly different from the Oxnard ordinance which was
invalidated in Karrin. The adjustments permitted under the San
Luis Obispo ordinance are specifically included in space rent and
are not a separate fee, charge, or assessment. Under this
situation, it appears clear that the San Luis Obispo Mobile Home
Rent Stabilization Ordinance is valid under the Karrin decision.
(In addition, the 60 day notice of rent increase provided to the
tenants of Creekside Mobile Home Community appears to meet the
requirements of our ordinance as to form and effect. )
Finally, the reference to Civil Code Section 798.43 (b) does not
appear to be relevant or related to the question raised.
If you have further questions or comments, please feel free to
contact me at your convenience.
JGJ/sw
attach.
cc: Leola Rubottom
Pat Fleming
John Dunn
San Lido Ob.i,opo, CA '.
uecemGe,�E 7, 1993
NonoaabLe Playon PinfW td and City Cotutc.i,l Aembene o�
San Luie Ob.i..apo, CA
2e: The iUepat pace Vmougfu being added to tAe baee Aent in
C"Ah4iL Mbitehome %anh
9t ha4 been &%ought to my attention that Section $.44.60, pawpwph y',
o� the San Lu,ie Obi.epo'e Mobi„tehome 2eeidenuy Lam is in diAect conp-irt
witA the Cati4&vzia ilobitehvme geoid ncy Law.
Pana aaph "C" o� Section 5.44.60 o� the Sart Luti.o PlvbZteAome Residency
Law state%, 'Space rtent may be automatiratty adjusted baoed on inateaoee
<n expense A),i common artea uti litieo, new government mandated eeavi.cea,
garbage 6envim ca v4A4vn wkene opplicab.te."
The CaZiPAn a State Mobitehome. ?eeidencg Law Ao. 798.43 Section (b) etatee
„moven a hvmetxerteA i4 neepvnoibLe arc gas, vR eLectnir utility eertvice,
management ehaLL diActoee to the Aawiownevt be4w4e tenancy, whenever the.
hameo;w a ',6 meteR aLco meaeu,%w gas oR e.tectiU tg 4o,% cammort a,?= Pcauiea,
vn , incGldirrcg Gigltting. Thio can be haru ed ,t��oa,ung a o�te-
oune�t��at pontion c,L the eenvice to the caruavn ansae on diacona ute uo-
ing the metes an the�homeounene site P,% litifitie4 ok the cov%awn artea Pcit-
itieo and equipment.
9n addition to ZUegaL paee thzvughe our paah owzen ti now going
to add theoe paee thnougu to the 6a6e Rent. fhi.o mt.LL allow the u=eaeed
neat Aig te, to be the new base 4oa catcutati.vno o� Rent beginning next yea%.
M-37 o� the State Alobi ehome R"idency. Lau, otatee, 'W homeoanea ohaU not
be changed a i6ee, Am othert than nerd, atiti tiea and uwAdentat rteaoonabLe
cnaageo 4on oeavicxo actuc t iL c aef"LE; d."
The pace thitoughe have beeneine thecA inception accoAding to ou t
govenru:ng State Mobitefume. ?edidency Law.
According to 'Weat'e Annotated CaL44"vats Code Coned tation, r?ztir to 6.
Section 5, "state Lam eupewxdw marticip on city Lam.,,
We ane aehing the flvn. 0layvn and the CvunciL membute °� the f e� San
Lui a Obispo to delete that port oA the.
5.44.60 pact g taph "C' that ee
iLtegal according to cwA State I%lobileltome Residency Lam.
TharJzing you in advance fwt tyoun conw:den@tion.
Sin
Leota Rubottom
�01t1Al�-lD
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ATTACHMENT 3