Senate
Bill 1556
Condominium
Termination
Introduction
On
June 7, 2006, Governor Bush vetoed Senate Bill 1556 which
substantially amended Florida
law pertaining to the termination of condominiums. Currently,
Chapter 718, Florida Statutes,
requires consent of all unit owners and lien holders
to terminate a condominium, unless the condominium declaration
provides otherwise. It also grants a
unit owner the right to petition the court for equitable
relief, including termination, if all or a substantial part of
the condominium property is
destroyed or substantially damaged. Senate Bill 1556 (Appendix
A) would have significantly changed current law by reducing the
required vote for termination not
related to natural disasters or change in land use
regulations to 80 percent of the unit owners. The bill also
addressed termination due to
economic waste and change in land use regulations, allowing
such terminations to occur by a
simple majority vote of the unit owners.
While
expressing approval of the bill’s treatment of termination in
the context of natural
disasters and change in land use regulations, Governor Bush
enumerated several concerns in his
veto message:
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The
bill allowed optional termination if 80 percent of unit
owners vote to approve
or, failing 80 percent approval, if fewer than 20 percent of
unit owners vote to
disapprove, thus permitting termination by a small fraction
of total voting interests.
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The
lowered approval requirement made it possible for a
developer to terminate a
condominium, with the goal of redevelopment, by purchasing
80 percent of the units.
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The
bill provided only minimal procedural safeguards for
objecting unit owners.
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The
majority voters could be prejudiced by a court-determined
termination plan and
apportionment of proceeds without the ability to retract
their votes.
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Service
of process by publication for absentee owners who live
outside Florida did not
provide sufficient notice of termination-related litigation.
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Requiring
objecting unit owners to shoulder the costs of contesting
apportionment would have been
unduly burdensome for the many residents
on fixed incomes living in older condominiums likely to be
terminated under the new law.
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The
bill would have diminished owners’ existing rights because
it retroactively applied
to all condominiums already in existence.
Governor
Bush directed the Department of Business and Professional
Regulation’s (DBPR) Division of
Land Sales, Condominiums and Mobile Homes to
conduct a series of meetings to obtain public input regarding
the issue of condominium
termination. The Governor further directed the department to
provide its findings to the
Condominium Ombudsman, Danille Carroll, for review and
comment, and to include her comments, along with proposals to
improve the bill, in a report
the Governor, the President of the Senate and the Speaker of the
House by October 1, 2006.
The
department conducted eight town hall meetings in
condominium-populated areas
across the state. The meetings were publicized in a variety of
ways, including press
releases, newspaper articles and radio announcements, and
through the department’s web site.
An email address was also created so that citizens
could easily submit their comments via the internet.
The
department received a total of 86 comments from the public
between July 2, 2006, and
September 15, 2006. This includes 51 comments received by email.
Further,
35 citizens offered testimony at the town hall meetings. The
written comments from the
public are attached to this report (Appendix C), as are the
minutes of the town hall meetings
(Appendix D) and a summary of citizen comments
(Appendix E).
Optional
Termination
Senate
Bill 1556, amended section 718.117(3), Florida Statutes, to
provide for optional
termination not related to changes in land use regulation or
substantial damage to the
condominium. Under these provisions, 80 percent of the unit
owners could choose to terminate the
condominium for any reason. Additionally, in
changes to section 718.117(4)(a), Florida Statutes, even if 80
percent approval is not
obtained for a plan of termination, the plan may be approved
unless more than 20 percent
of the unit owners vote against it.
This
provision would, as indicated in the Governor’s veto message,
permit a developer to enter a
condominium, purchase 80 percent of the units, and terminate
the condominium, thereby forcing the non-consenting 20 percent
of the residents to vacate
their homes.
In
general, public input was not favorable regarding this
provision. Many individuals
opposed optional termination with a vote of less than 100
percent of the owners, and
others suggested that the percentage needed for optional termination
should be somewhere in between 80 percent and a 100 percent of
the total voting interests. Much of
the input also acknowledged the difficulty of obtaining
100 percent approval of the unit owners. Questions were also
raised as to whether any
optional termination provision could be applied to rights under
existing declarations that typically
require 100 percent approval for termination.
Public
input regarding the part of the bill that allowed for optional
termination as long as less
than 20 percent of the voting interest were opposed to the
termination was mixed, and not all
fully understood this portion of the bill language.
Some citizens acknowledged the Governor’s concern that the
optional termination
provision could allow a small minority of the unit owners to
control the fate of the
condominium.
Recommendation
The
department recommends that Legislature not permit optional
termination under either of
the terms provided in SB 1556: when 80 percent of the voting
interests approve the termination or
when less than 20 percent of the total voting interests
vote against it.
Plan
of Termination
When
unit owners object to a plan of termination, the bill provided
minimal procedural safeguards
and restricted the owners’ right to contest the plan to the
distribution of proceeds of the
sale. The bill provided that unless otherwise stated
in the declaration, the association must first allocate the
proceeds between the
aggregate value of the units and the value of the common
elements, based on their
respective fair market values immediately before the
termination. It also provided
that the portion of the proceeds allocated to the units is “deemed”
fair and reasonable if it is
determined by the unit owners approving the plan of termination
and based on any of the following methods:
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The
respective values of the units based on the fair market
values of the units
immediately before the termination, as determined by one or
more independent appraisers
selected by the association or termination
trustee.
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The
respective values of the units based on the most recent
market value of the units
before the termination, as provided in the county property
appraiser’s records.
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The
respective interests of the units in the common elements
specified in the
declaration immediately before the termination.
Finally,
the bill provided that a unit owner contesting the plan had the
burden of
proving
the plan was not fair and reasonable.
The
bill attempts to provide the courts with a set of conditions by
which the distribution of
proceeds is “deemed” reasonable. However, there may be
circumstances in which one or more
of the three methods provided is not fair and reasonable.
For example, if one person owns a substantial number of units as
might be the case with a developer
takeover, that person would likely control the process
and select the method that best suited their interests while
also selecting the appraiser.
If the law provides that the method is “deemed” fair and
reasonable, it would be more
difficult for the contesting owners to overcome the presumption.
DBPR
did not receive any direct public input on this issue.
Recommendation
The
department recommends that the presumption of reasonableness be
removed from proposed legislation,
but the three factors mentioned above remain
as required criteria for the court to consider in determining
the reasonableness of the
termination plan. These factors should not be “deemed”
reasonable as a matter of law
because it removes the court’s discretion and presents
a difficult legal hurdle for a contesting unit owner to
overcome.
Additional
criteria might include the submission of expert testimony or a
determination as to whether the plan
works a manifest injustice on any of the parties.
The
department also recommends that the unit owners should be given
the right to contest any
aspect of the plan, including distribution of proceeds, which
affect their substantial
interests without having to meet an additional burden of proof
that the plan was not fair and
reasonable.
Judicial
Modification of the Plan of Termination
As
discussed above, the bill would have allowed a judge to modify a
plan of termination and to
apportion the proceeds in a manner that he or she deemed fair
and reasonable. This provision could prejudice the rights of a
majority of the owners by
permitting the court to apportion a greater amount of the
proceeds to the holdouts. The
court is also authorized to modify or void the plan if it is
found to not be fair and
reasonable.
The
department received no direct public input on this issue. While
the bill does require the
plan of termination to conform to certain objective criteria, in
the final analysis it is the
judge who is given ultimate authority to approve, reject or
modify the plan.
Recommendation
The
department does not have further recommendations regarding this
issue. By allowing unit
owners to contest all aspects of the plan and removing the
presumption of reasonableness burden
as stated in recommendation three, the department
believes the interests of all persons can be adequately
addressed by the court.
Notification
to Unit Owners
Under
changes in the bill to section 718.117(4)(b), Florida Statutes,
where a plan of termination
is disputed by an owner or owners, the association or any unit
owner may file a petition in court
seeking approval of the plan of termination.
The
lawsuit must name all non-consenting owners, and the bill
provides that service of
process on the unit owners may be by publication.
Public
input received on this issue rejected service of process by
publication in newspaper, and favored requiring personal service
of process (by sheriff or process
server) on the unit owners. The use of certified mail was also
favored as an additional
option due to the fact that many unit owners are part-time
residents who live abroad or
in other states where personal service of process may be difficult,
expensive, or perhaps impossible for the association to obtain.
In the latter case, service
by certified mail – return receipt requested at the last known
address of record provided by the
unit owner should be available as an option.
Recommendation
Service
of process by publication allows a notice to the unit owners
regarding the plan of
termination to be placed in a local newspaper. This is the type
of notice that is least
likely to get to the unit owners. Due to the substantial
interests at stake with
respect to unit owners, the department recommends that service
of process by publication be
removed from future legislation. Personal service or service
via certified mail to the last known address or emergency
contact address provided by
the unit owners should be included.
Burden
of Costs, Prevailing Party Fees
Under
proposed changes to section 718.117(17), Florida Statutes, the
unit owner who contests the
plan has the burden of proving that apportionment of the proceeds
from the sale is not fair and reasonable. This burden of proof
may have to be met by hiring
economists, certified public accountants, appraisers, and
other expert witnesses to testify in the court action.
These
costs would be borne initially by the owners seeking to contest
the plan and could be
recouped along with attorney’s fees if the unit owner prevails
in the action. However, many
unit owners in older communities are on a fixed income and
may not be able to bear the initial burden of these expenses. If
they lose the case, they
cannot pay the association’s and other parties’ costs and
fees. This burden could be
substantial, if the litigation involves joining numerous lien
holders and other unit owners as
parties in the lawsuit. No
public comments were received regarding this issue. However, the
economic interest of unit
owners, especially those on fixed incomes, is so important that
a recommendation for judicial
apportionment of costs is included below.
Recommendation
The
department recommends that future legislation be revised to
require the judge to
apportion costs and fees in an equitable manner, taking into
account certain factors
including the merits of the case, the financial status of the
parties in relation to each
other, the outcome of the case, and other factors deemed relevant.
Retroactive
Application of the Amendments
All
proposed amendments to section 718.117, Florida Statutes,
including the optional
termination provisions, would apply to pre-existing
condominiums. Governor Bush
noted that individuals who purchased their units prior to the
effective date of the changes in the
law would have their existing rights under their
current declarations diminished. The Governor’s veto letter
further indicated that
retroactivity should only apply in the case of hurricane damaged
facilities.
The
public input on this issue was varied, but a number offered
comments that optional
termination not involving hurricane damaged properties should be
extended only to new condominiums.
Recommendation
The
department recommends that the Condominium Act be amended to
allow termination-for-cause
based on change in land use regulation or substantial destruction
of the property as provided in the bill. This means that all
condominiums, regardless of when
they were created and whether or not the declaration
requires the consent of 100 percent of the voting interests may
be terminated under the
conditions for cause as provided in the bill.
Optional
termination provisions, if adopted at all, should apply only to
condominiums created after the
effective date of the bill. This would remove constitutional
objections that may arise as a result of a potential impairment
to the vested rights of unit
owners.
Comments
and Recommendations
Office
of the Ombudsman, Danille Carroll
In
Governor Bush’s veto letter for Senate Bill 1556, he directed
the Department of Business
and Professional Regulation, Division of Florida Land Sales,
Condominiums and Mobile Homes (the
department) to conduct a series of town hall
meetings to discuss Senate Bill 1556, the Governor’s concerns
and proposals to improve the
bill. The department was also directed to provide a copy
of its findings to the Condominium Ombudsman for comment.
The
department invited me to attend and participate in the eight
town hall meetings conducted
throughout Florida. I was able to attend all but one of the
town hall meetings, which gave me
the opportunity to hear and ask questions of those
who provided input on Senate Bill 1556 and the Governor’s
comments. As directed, the
department provided me with a copy of its findings.
Although
many condominium unit owners believe that termination of
hurricane damaged properties
should require less than a 100 percent vote of the units in a
condominium; a majority of the
public input was strongly opposed to the idea of allowing
optional termination. Many condominium unit owners feared that
allowing termination for situations
other than a catastrophic event would open the door
for possible abuse by developers. Many of the public also felt
that allowing service of
process by publication for absentee owners was an unacceptable
solution for notifying unit owners
regarding condominium termination.
After
reviewing the department’s findings, I agree with the
recommendations made because
the division appears to adequately address and protect the unit
owners property rights unless or
until such time as a true representative proportion
of condominium unit owners weigh in on this subject.
There
was a concern about the lack of publicity regarding the town
hall meetings and the
requested public input for Senate Bill 1556. Although I know
that the department
publicized the town hall meetings, turnout for the meetings was
sparse and public input was minimal
for the number of condominium unit owners that
live in Florida. Many condominium unit owners appeared to have
not been aware of the
meetings and/or the existence of the bill or knowledgeable
regarding all of the language in the
bill. Most comments focused on the optional termination
portion of the bill. There was also a concern that many of
Florida’s part time
residents did not return to Florida until after Labor Day and
therefore did not have the
opportunity to comment.
Since
the department had an October 1, 2006, deadline to submit its
report, it did not have any
flexibility to allow an extension of time to gather public
input.
However,
I recommend that the department continue gathering public input
through the department’s website
and, at a future date, provide an addendum to this
report. As this bill affects every condominium unit owner in the
State of Florida, it is very
important to ensure that as many people as possible have been
given an opportunity to have a voice
in the process.
Exhibits
Appendix
“A” Bill Text
Appendix
“B” Governor’s Veto Letter
Appendix
“C” Public Comments
Appendix
“D” Meeting Minutes – Town Hall Meetings
Appendix
“E” Summary of Public Input
SEE
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