BILL ANALYSIS Ó AB 2372 Page A Date of Hearing: May 13, 2014 ASSEMBLY COMMITTEE ON REVENUE AND TAXATION Raul Bocanegra, Chair AB 2372 (Ammiano) - As Amended: April 1, 2014 2/3 vote. Tax levy. Fiscal committee. SUBJECT : Property taxation: change in ownership. SUMMARY : Revises the circumstances under which a "change in ownership" of real property owned by a legal entity is deemed to have occurred. Specifically, this bill : 1)Contains legislative findings and declarations regarding the existing system for determining a "change in ownership" for the purpose of commercial property assessment. 2)Provides that, when 100% of ownership interests in a legal entity are sold or transferred in a single transaction, the purchase or transfer of those interests is considered to be a "change of ownership" of the real property owned by the entity, thus, triggering a reassessment of the property for tax purposes. 3)Specifies that a "purchase or transfer" of ownership interests in a legal entity means a merger, acquisition, private equity buyout, transfer of partnership shares, or any other means by which a legal entity acquires the ownership interests of another legal entity, including the subsidiaries or affiliates of the legal entity and the property owned by those subsidiaries and affiliates. 4)States that a purchase or transfer of 100% of ownership interests in a legal entity is considered to be a "change of ownership" of the real property owned by that entity, whether or not any one legal entity that is a party to the transaction acquires more than 50% of the ownership interests. 5)Requires the State Board of Equalization (BOE) to notify assessors when such a change in ownership has occurred. AB 2372 Page B 6)Defines the phrase "single transaction" as a transaction in which 100% of the ownership interests are sold or transferred in either one calendar year or within a three-year period beginning on the date of the original transaction when any percentage of ownership interests are sold or transferred. 7)Defines the term "legal entity" as a corporation, a partnership, a limited liability company, or other legal entity. 8)Defines the phrase "ownership interests" as corporate voting stock, partnership capital and profits interests, limited liability company membership interests, and other ownership interests in legal entities. 9)Requires persons acquiring ownership interests in a legal entity to record a deed with the county recorder and report the acquisition to the BOE. 10)Requires legal entities to report original co-owners interest changes to the assessor. 11)Requires the BOE to prescribe regulations that may be necessary to carry out the purposes of this bill. 12)Increases the penalty for failure to file a change in ownership statement with the BOE from 10% to 20%. 13)Takes effect immediately as a tax levy. EXISTING LAW : 1)Provides that all property is taxable, unless otherwise provided by the California Constitution or federal laws. (Section 1(a), Article XIII, California Constitution.) Limits ad valorem taxes on real property to 1% of the full cash value of that property (Proposition 13). 2)Requires real property to be reassessed to its current fair market value whenever a "change in ownership" occurs. (California Constitution, Article XIII A, Section 2; Revenue and Taxation Code (R&TC) Sections 60 - 69.5.) 3)Provides that "change in ownership" includes a transfer of any interest in real property between a corporation, partnership, AB 2372 Page C or other legal entity and a shareholder, partner or any other person. (R&TC Section 61(j).) 4)Specifies in RT&C Sections 60 through 69.5 what constitutes "a change in ownership." Sets forth the general rule that, when real property is owned by a legal entity, the purchase or transfer of ownership interests in that entity does not trigger a change in ownership of the property, unless a) there is a "change in control" of the legal entity, or b) a cumulative transfer of more than 50% by the "original co-owners." (R&TC Section 64.) Thus, when any person or entity obtains control, through direct or indirect ownership or control, of more than 50% of the voting stock of a corporation, or a majority ownership interest in any other type of legal entity, a reassessment of real property owned by the acquired legal entity (or any of its subsidiaries) is triggered. (R&TC Section 64(c)(1)(A).) Furthermore, when voting stock or other ownership interests representing cumulatively more than 50% of the total interest in a legal entity is transferred by any of the "original co-owners" in one or more transactions, the real property that was previously excluded from reappraisal will be reassessed. [R&TC Section 64(d)]. 5)Requires legal entities to file a change in ownership statement (LEOP COS) with the BOE within 90 days of a change in control or change in ownership under R&TC Section 64(c) or (d). In the case of a change in control under R&TC Section 64(c), the person or legal entity that acquired control is responsible for filing the LEOP COS. 6)Imposes a 10% tax penalty, applicable to the new base year value reflecting a change in ownership, on legal entities that fail to file a change in ownership statement with the BOE. 7)States that, generally, when real property is owned by a homeowner, the purchase or transfer or ownership interests in that entity triggers a change in ownership of the property. However, specific exemptions from reassessment are provided for intra-family transfers, replacement residences of senior citizens and disabled persons, and specific types of home improvements. 8)Requires business personal property to be reassessed annually at its current market value. Personal property owned by a AB 2372 Page D homeowner is not generally subject to property taxation. FISCAL EFFECT : The BOE estimates that the annual property tax revenue increase associated with the new "change of ownership" rule is approximately $73 million per year. However, BOE acknowledged that estimating the revenue increase with any degree of certainty is difficult. COMMENTS : 1)Arguments in Opposition . Opponents state: Currently, under Proposition 13, commercial property is reassessed only when there is an actual change of ownership in the entity that owns the property. That is, another entity or person has acquired at least 50% of the ownership interest of the entity that owns that property and therefore has a controlling interest in the property. This is the most common-sense interpretation of Proposition 13's requirements. It creates a bright line to determine when property ownership has changed, and it is consistent with the underlying purpose of Proposition 13, which intended to provide property owners certainty and stability about the amount of property taxes due - on sale and thereafter. AB 2372 would drastically alter the definition of "change of ownership" under Proposition 13 by dictating that a "change of ownership" occurs whenever 100% of the ownership interests in the legal entity that owns the commercial property are sold within a three-year period, regardless of whether any person or entity actually obtains control through direct or indirect ownership of at least 50% of the voting stock or ownership interest in the entity owning the property. This new definition, which merely focuses on ownership rather than control, will subject commercial property, especially property held by publicly traded corporations, to continuing reassessment that will at some point result in higher property taxes - the obvious intent of this legislation. However, given that a reassessment could be triggered under this definition on a daily, weekly, or even monthly basis, the anticipated revenue gain by AB 2372 will be obsolete, as the market value of commercial property does not change within such a short time frame. Thereby, AB 2372 will result in becoming a tool for harassing owners of commercial property with AB 2372 Page E constant reassessments, and an overwhelming workload for county assessors. The ultimate effect of increasing property taxes for commercial property will keep detrimental impacts on the general public, including small businesses, apartment residents, employees, and consumers. Any higher taxes imposed on companies who own commercial property will likely be passed on to the tenants of such property through higher rent, including businesses and individuals who rent apartments in which to live. Such increased costs will continue to be passed onto others, including potential reduction of employee benefits, reduction of workforce, or even higher prices for consumers. Moreover, with the proposed definition of "change of ownership" under AB 2372, it will trigger reporting requirements for multiple "owners" of these entities. Despite the percentage of ownership an individual or entity acquires in a company, they will be required to report this change in ownership or face a penalty up to 20% of the assessed fair market value of the commercial property. A penalty for failure to file a statement is imposed even if the county assessor ultimately determines no "change of ownership" has occurred. This duplicative and onerous reporting requirement that AB 2372 seeks to impose creates a potentially unfair monetary trap for a minority owner in a company that is unaware that a 100% change of ownership within the prior three years has even taken place." Opponents also state that, "The idea of a split-roll property tax has been fully vetted and consistently rejected since the passage of Proposition 13 in 1978. While some believe that a split roll would raise revenue, it would, in fact, stifle the state's economic growth in the long term. From what is known about the economic impacts of split roll, it remains an ill-advised idea." Furthermore, the opponents argue that Proposition 13 does not shift the property tax burden to homeowners and, in fact, "Proposition 13 has prevented a property tax shift to homeowners." 2)Background: Proposition 13 and "Change in Ownership" . The property tax applies to all classes of property and is one of the major general revenue sources for local governments in AB 2372 Page F California. It is imposed on the property owners and is based on the value of the property. Much of the law pertaining to taxation of property is prescribed by the California Constitution, Article XIII and Article XIII A. Since the adoption of Proposition 13 in 1978, real property has, generally, been taxed based on its value at the time of its acquisition, with increases for inflation limited to 2% per year. The property is reassessed to its market value when the ownership of property is changed. While the requirement to reassess property upon a change in ownership is contained in the California Constitution, the phrase "change in ownership" is not defined. Shortly after the passage of Proposition 13, this Committee appointed a special Task Force - a broad-based, 35-member panel that included legislative and BOE staff, county assessors, attorneys in the public and private sectors, and trade associations - to recommend the statutory implementation for Proposition 13, including the "change in ownership" provisions. With respect to a transfer of ownership interest in a legal entity that owns real property, the Task Force initially recommended adopting the "separate entity" theory that respects the separate identity of the legal entity. According to this theory, so long as the legal entity owned the property, the property will not be reassessed, even if most or all of the ownership interests in the entity, i.e. stock or partnership interests, had been transferred. The Task Force recommended the "separate entity" approach because of the perceived administrative and enforcements problems with disregarding the separate identity of a legal entity and the unpredictable ripple effects of ignoring the general separate entity laws. However, the "majority-takeover-of-corporate stock" provision was subsequently added "out of a concern that, given the lower turnover rate of corporate property, mergers or other transfer of majority controlling ownership should result in a reappraisal of the corporation's property - an effort to maintain some parity with the increasing relative tax burden of residential property statewide, due to more rapid turnover of homes." (Implementation of Proposition 13, Volume 1, Property Tax Assessment, a report prepared by the Assembly Revenue and Taxation Committee, California State Assembly Publication 748, October 29, 1979). Thus, the law was amended to provide that whenever any person or entity has purchased or AB 2372 Page G otherwise acquired more than 50% ownership of a corporation or other legal entity, any real property owned by the acquired entity must be reappraised to full market value. It should be noted that while the Task Force, in order to mitigate administrative difficulties, recommended the "separate entity" approach for determining when a change in ownership of real property occurs, it was concerned with the fact that commercial and industrial properties change ownership less frequently than residential property and proposed that the Legislature study the idea of a constitutional amendment to appraise commercial and industrial property periodically at current market value. 3)Is There a Problem With the Existing "Change of Ownership" Definition ? The current system provides property owners with several ways to structure "change in ownership" transactions to avoid paying higher property taxes and allows purchasers to avoid reassessment even if 100% of a company changes hands. A business may avoid a reappraisal of the property of an acquired entity by simply structuring the acquisition in a way that prevents any of the separate purchasers from receiving more than 50% ownership in the acquired entity. Thus, if multiple individuals or entities acquire another entity, in a single transaction, but none of the purchasers acquires more than 50% interest in the entity, a reappraisal of the property is not required. The statutory provisions implementing Proposition 13 were intended to ensure that when an entity or person acquires a business entity, a reassessment of the acquired entity's real property is triggered, especially in cases when 100% of ownership has changed. The point of the Task Force, in its role of finding the appropriate rule for a "change in ownership," was to implement a statutory scheme that best represented the public intent when it voted for Proposition 13. The idea of enabling a 100% change in ownership by multiple affiliated purchasers, each of which has acquired less than a 50% ownership interest, to completely avoid a reappraisal of the corporation's underlying property is probably not what the voters were contemplating when they passed Proposition 13. As noted by the Task Force, the initial recommendation for using a "separate entity" approach was due to the perceived administrative and enforcement problems, not necessarily because it best represented the will AB 2372 Page H of the voters. With 35 years of experience, it seems appropriate to look again at the rules for "change of ownership." 4)What is a "Split Roll" ? The phrase "split roll" generally refers to a system of taxation where various types of real property are taxed according to different standards or at different tax rates. The "split" is typically proposed between residential property (or the subset of owner-occupied homes) and all other property types. This phrase is often used to describe any legislation attempting to redefine "change in ownership" as it applies to the purchase or transfer of ownership interests in legal entities (i.e., stock or ownership shares in a corporation or partnership) that own real property in a way that would trigger more frequent reassessments to current market value levels. Although the phrase is used to describe proposed amendments to the "change in ownership" rule, it is not truly a "split roll" as it is more generally understood because commercial property, under the provisions of this measure, will not be taxed according to a different set of standards, i.e., market-value assessment or a different tax rate. A true "split roll" - a different tax rate or value standard - is not possible without a constitutional amendment. 5)Market vs. Assessed Value . Since property values increase, on average, at a faster rate than 2% a year, the current assessed value of property in California is presumed to be lower than its market value. However, determining the exact disparity between the assessed and market value of commercial property in California is difficult to accomplish. Cities and counties vary widely in terms of development. An older and more established city may have a large number of commercial properties with the original base year rate of 1975, creating a large disparity between the assessed and market value of property. On the other hand, a newer city with recent development may have a smaller disparity among commercial properties. For example, the median disparity ratio for non-modified properties in Los Angeles County was 4.0 in AB 2372 Page I 2002.<1> [Sexton, Terri A. and Sheffrin, Steven M, The Market Value of Commercial Real Property in Los Angeles County 2002. California Policy Research Center for the Senate Office of Research, (2003).] Additionally, Los Angeles County has an assessed commercial property value of $147 billion and an estimated market value of $231 billion. (Id.) What does this mean? First, it means that there is in fact a disparity between assessed and market value properties and, if closed, could lead to additional property tax revenue. Second, disparity ratios provide a glimpse into the magnitude of market inefficiencies in our acquisition valuation system. As explained later, the acquisition value system creates moving penalties, barriers to entry, and increases the price of purchasing property. However, even if all properties are suddenly assessed at their current market value, these inefficiencies will persist because annual assessments are based on the date of acquisition. 6)Proposition 13: Market Inefficiencies . The acquisition value system causes a number of economic inefficiencies. Specifically, it increases the cost of purchasing property, --------------------------- <1>Professor Terri Sexton has attempted to quantify the disparity between assessed value and market value of commercial properties in Los Angeles County. She provides disparity ratios, which are defined as the ratio of market to assessed value, for non-modified and modified commercial and industrial properties. The median disparity ratio for non-modified properties is 4.0. A disparity ratio of 4.0 means that the actual market value of non-modified properties that have not changed ownership since 1975 is roughly four times higher than their assessed value for tax purposes. Non-modified properties with a 1975 base year have a total assessed value on the 2001-02 roll of $9.37 billion. Applying the disparity ratio of 4.0 to these properties produces a market value of $37.45 billion. All together, the report found that Los Angeles County has an assessed value of $147 billion and an estimated market value of $231 billion. The disparity ratio is not constant and that the number of properties with a 1975 base year rate has declined since the enactment of Proposition 13. The percentage of commercial properties with the 1975 base year value was 36% in 1991, 29% in 1996, and 18% in 2002. Additionally, the report found that 40% of the additional property tax revenue, if all properties were reassessed at market value, would come from 1975 base year properties. AB 2372 Page J imposes moving penalties, and creates barriers to entry. a) Capitalization of Property . To a certain degree, the tax benefits provided by Proposition 13 are capitalized into the market values of property. Capitalization occurs when the costs of acquiring an asset are included into the price of the asset. Proposition 13 has increased the amount that potential buyers are willing to pay for a property. [Sexton, Terri A. and Sheffrin, Steven M, and O'Sullivan, Arthur, Proposition 13: Unintended Effects and Feasible Reform. National Tax Journal, 52.1 (1999).] In general, a decrease in the property tax rate increases the net benefit of owning property. Although the study focuses on residential property, the rule also applies to commercial real estate. Since owning the property for a long period of time maximizes the net benefit of Proposition 13, those that change ownership less frequently will be most likely to pay more for the property. Those that purchase and sell property more frequently may be discouraged or pushed out of the market by higher bidders. As Professor Sexton noted, "the winners will be those with the lowest turnover rates and the losers will be those with the highest turnover rates." (Id.) b) Moving Penalty . In addition to increasing the cost of purchasing property, the acquisition value system penalizes commercial property owners when they move from one location to another. If the market values of the surrounding properties increase at a rate higher than 2% per year, a gap begins to form between the assessed and market values of property. As a result, a property owner faces a significant increase in property taxes when he/she purchases a property in a new location. The moving penalty may make a business less responsive to changes in business and market conditions. (Id.) A business owner may decide to tolerate changes in the market; even if the business is able to keep its customer base, it may become more difficult for the business to remain competitive. c) Barriers to Entry . One of the most significant issues with Proposition 13's acquisition value system is that it creates a barrier to entry for new businesses. If a new business moves next door to an existing competitor and purchases an identical building, the new business will pay higher property taxes because its property will be assessed AB 2372 Page K at the current market value. The difference between what the two businesses pay in property tax will vary, but it will be an additional expense that the new business will have to include in the costs of production.<2> 7)The Proposed Solution. As discussed, properties owned by legal entities are taxed under a "separate entity" theory, which means that, as long as the property is owned by the same legal entity, that property would not be reassessed, even if most or all of the ownership interests in the entity (i.e., stock in the corporation, partners in the partnership) had changed ownership. According to the author, this bill is designed to close this obvious and egregious loophole in the law by providing that, when 100% of ownership interests in a legal entity holding real property are sold or transferred in a single transaction, the property must be reassessed, no matter how many purchasers take ownership of the entity and regardless of whether any one legal entity acquires more than 50% of the ownership interest. Under current law, only if a particular transaction results in a change in control of a legal entity (i.e. one legal entity or individual acquires more than half of the ownership interest in the legal entity) would the property owned by that legal entity be subject to reassessment. 8)The Potential Impact of AB 2372 . As noted by the BOE's analysis, it is difficult to estimate the number of transactions that will be subject to reassessment if the provision of AB 2372 were to be enacted. However, it is clear that this bill would likely lead to more frequent assessment of property. The benefits of more frequent assessments are increased property tax revenues and potentially a reduction in the disparity ratio among commercial properties. However, the imposition of a "split roll" may create a number of economic problems. -------------------------- <2> For example, Company A has held the same commercial property since 1975 and pays $10,000 per year in property taxes. If Company B purchases a similar property next door, it will be assessed at the current market value. Assuming that market values have increased an average of more than 2% per year and assuming both properties are identical, if the property is purchased at $3 million (its market value), Company B will be paying $30,000 in property taxes. All else being equal, the cost of doing business will be higher for Company B. AB 2372 Page L According to a 2005 report by Pepperdine University, An Analysis of Split Roll Property Tax Issues and Impacts, a split roll proposal in California would do all of the following: a) increase property taxes by an estimated $6 billion, b) cost the California economy $71.8 billion in lost output and 396,345 jobs, c) result in increased instability for local government finances, and d) would further undermine the attractiveness of the business climate in California. Additionally, a switch to market valuation taxation would create upward pressure on rents.<3> It is true that increasing property taxes on commercial properties will add to the cost of production and may have a serious impact on business decisions, e.g., hiring personnel, expanding operations, creating a new line of products. However, the Pepperdine University report assumes that no measure will be implemented to mitigate the impact of a split roll proposal. Several actions can be taken to mitigate the impact of a split-roll proposal. As noted in this Committee's informational hearing on April 8, 2013, Proposition 13 and Local Taxes, by Professor Terri Sexton, Professor Kirk Stark, and Legislative Analyst's Office's (LAO) Policy Analyst, Chas Alamo, the impact of a split roll proposal can be mitigated by providing tax credits to low-income tenants and small businesses. Additionally, a "split roll" proposal can be made revenue neutral by reducing the tax rate below 1%. 9)"Original transaction ." As noted by BOE staff in its analysis of this bill, identifying the date of the original transaction is necessary when a rolling three-year period must be tracked. The author may wish to amend this bill to define the term "original transaction." 10)Avoiding confusion . The BOE staff also noted that it is unclear whether R&TC Section 64(c)(1)(B) or R&TC Section 64(d) would apply for purposes of determining which property is subject to a reassessment, when a change in occurs under both of those sections. Thus, if a reassessment is made pursuant to R&TC Section 64(d), then only the property owned by the legal entity that was previously excluded under R&TC Section 62(a)(2) is reassessed. If, however, the reassessment is made pursuant to R&TC Section 64(c)(1)(B), then all property owned by that legal entity will be reassessed. The author may wish --------------------------- <3> Proposition 13: Unintended Effects and Feasible Reform. at 110. AB 2372 Page M to amend this bill to clarify the order of priority. 11)Notification Requirement. As explained by BOE staff, assessors discover changes in ownership of real property via grant deeds or other documents that are recorded with the county recorder. In addition, the county recorder must provide the assessor with a copy of the transfer of ownership document as soon as possible. However, no grant deed or other document is recorded when a change in ownership of a legal entity occurs, even if it triggers reassessment of underlying real property. The BOE monitors changes in ownership and changes in control of legal entities via the Legal Entity Ownership Program (LEOP) and helps assessors discover unreported changes. But, ultimately, assessors depend on legal entities to self-report these types of changes of ownership. Existing law requires a legal entity to file a change in ownership statement with BOE within 90 days of whenever a change in control or a change in ownership of a legal entity occurs. If a legal entity fails to report and the failure is discovered later on, then an escape assessment will be made for every tax year that the entity failed to file the change in ownership statement. There is no statute of limitations that would apply to those escape assessments. The penalty for failure to file a change in ownership statement upon written request by the BOE is 10% of the new base year value resulting from the transfer, or 10% of the current year's taxes on that property if no change in control or change in ownership occurred. The provision in this bill would strengthen reporting requirements by requiring the BOE to notify assessors if a change in ownership occurs. Additionally, persons acquiring an ownership interest in a legal entity must report the acquisition to the BOE and file a deed with the county recorder. Provisions also require a legal entity to report any changes of the original co-owner interest to the assessor. Finally, this bill would increase the penalty for a person or legal entity that does not file a change in ownership statement. Since assessors rely heavily on self-reporting measures, these additional requirements may help the BOE and county assessors discover changes in ownership that may otherwise go unnoticed. The requirement to file a deed with the county recorder will also notify the public of a change in AB 2372 Page N ownership. 12)Similar Legislation . The BOE notes that in recent years numerous bills have been introduced to require annual reassessment of nonresidential property to its current market value via constitutional amendment, increase the tax rate on nonresidential property, or modify the change in ownership definitions for legal entities (which generally own nonresidential property). For a comprehensive list of the previous bills, please refer to the BOE analysis of this bill. REGISTERED SUPPORT / OPPOSITION : Support None on file Opposition Air Conditioning Trade Association Air Logistics Corporation American Coating Association American Resort Development Association Apartment Association Apartment Association of Greater Los Angeles Apartment Association, California Southern Cities Associated General Contractors of California BIOCOM Boston Properties Building Owners and Managers Association of California California Apartment Association California Association of Boutique & Breakfast Inns California Association of Realtors California Attractions and Parks Association California Bankers Association California Beer and Beverage Distributors California Building Industry Association California Business Properties Association California Chamber of Commerce California Grocers Association California Healthcare Institute California Hotel & Lodging Association California Manufacturers & Technology Association California Mortgage Bankers Association AB 2372 Page O California New Car Dealer Association California Railroad Industry California Restaurant Association California Retailers Association California Tank Lines, Inc. California Taxpayers Association California Travel Association Camarillo Chamber of Commerce Chambers of Commerce Alliance, Venture & Santa Barbara Counties Chemical Transfer Company, Inc. Construction Employers' Association Contra Costa Taxpayers Association Council of State Taxation East Bay Rental Housing Association EastGroup Properties, Inc. Family Winemakers Association General Growth Properties Greater San Fernando Valley Chamber of Commerce Howard Jarvis Taxpayers Association International Council of Shopping Centers LTC Properties, Inc. NAIOP of California, the Commercial Real Estate Development Association National Federation of Independent Business NOR CAL Rental Property Association Orange County Business Council Orange County Taxpayers Association Pacific Life Insurance Co. Plumbing-Heating-Cooling Contractors Association of California San Diego County Apartment Association San Francisco Chamber of Commerce San Jose Silicon Valley Chamber of Commerce Santa Barbara Rental Property Association Small Business Action Committee Sunstone Hotel Investors, Inc. Superior Tank Wash Inc. Silicon Valley Leadership Group TechAmerica West Coast Leasing, LLC West Coast Lumber & Building Material Association Western Electrical Contractors Association Western Growers Association Western States Petroleum Association AB 2372 Page P Analysis Prepared by : Oksana Jaffe / REV. & TAX. / (916) 319-2098