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HomeMy WebLinkAbout16 LEGISLATIVE REPORTS (AB1457 & SB670) 03-20-07 AGENDA REPORT Agenda Item Reviewed: City Manager 16 ~ Finance Director N/A MEETING DATE: MARCH 20, 2007 TO: WilliAM A. HUSTON, CITY MANAGER FROM: CITY CLERK'S OFFICE SUBJECT: lEGISLATIVE REPORTS SUMMARY: Attached are the following legislative items for discussion by the City Council. . AB1457 (Huffman) State Parks: Roads . SB670 (Correa) Real Property Transfer Fees RECOMMENDATION: Pleasure of the City Council. FISCAL IMPACT: None. ~ dAvC ~ 1fv-!3~ Maria R. Huizar . Chief Deputy City Clerk AGENDA REPORT Agenda Item Reviewed: City Manager 16 H Finance Director N/A MEETING DATE: MARCH 20, 2007 FROM: WILLIAM A. HUSTON, CITY MANAGER LISA WOOLERY, COMMUNICATIONS MANAGER TO: SUBJECT: LEGISLATIVE UPDATES: AB1457 (HUFFMAN) STATE PARKS: ROADS SUMMARY: Mayor Pro Tem Amante requested that this item be placed on the agenda for discussion. AB1457 would prohibit the extension of 241 Toll Road through a state park. RECOMMENDATION: Pleasure of the Council. FISCAL IMPACT: There is no direct fiscal impact to the City. Lisa Woolery Communications Manager CALIFORNIA LEGISLATURE-2007-o8 REGULAR SESSION ASSEMBLY BILL No. 1457 Introduced by Assembly Member ~uffman (Principal coauthor: Assembly Member Feuer) February 23, 2007 An act to add Section 5012.3 to the Public Resources Code, relating to parks and recreation. LEGISLATIVE COUNSEL'S DIGEST AB 1457, as introduced, Huffman. Parks and recreation: state parks: roads. (1) Under existing law, the Department of Parks and Recreation has control of the state park system. Existing law authorizes the department to impose conditions and restrictions on the development of a specified roadway on Mulholland. Scenic Corridor and Topanga State Park or other state-owned parkland, and upon contiguous portions of Mulholland Drive, if the Director of Parks and Recreation finds that geologic or other circumstances exist that cause or may cause substantial damage to state-owned park resources. This bill would prohibit a state or local agency, as defined, from funding the construction of, seeking funding to construct, or authorizing or approving the construction of, a road, as defined, or portion thereof, or making an improvement or extension to an existing road, that will physically encroach upon, traverse, bisect, or impair the recreational value of a state park property, as defined, unless the director determines that specified conditions are met. The bill would authorize the department to recover the costs incurred by the department as a result of making those determinations by imposing a fee for those costs on the proponent of the project for the road. The bill would authorize a 99 AB 1457 -2- person or class of persons to file a civil action to enjoin a person or entity, including a state or local agency, that is alleged to violate the prohibition. To the extent the bill would impose new requirements on a local agency, to determine whether a project falls within the prohibition, the bill would impose a state-mandated local program. (2)The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement. This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to these statutory prOVISIons. Vote: majority. Appropriation: no. Fiscal committee: yes. State-mandated local program: yes. The people of the State of California do enact asfollows: 1 SECTION 1. Section 5012.3 is added to the Public Resources 2 Code, to read: 3 5012.3. (a) Notwithstanding any other provision of law, and 4 except as provided in subdivision (b), a state or local agency shall 5 not fund the construction of, seek funding to construct, or authorize 6 or approve the construction of, a road or portion thereof, or make 7 an improvement or extension to an existing road, that will 8 physically encroach upon, traverse, bisect, or impair the 9 recreational value of a state park property. 1 0 (b) Subdivision ( a) does not apply if the director determines 11 that all of the following conditions are met: 12 (1) The project for the road includes all feasible planning to 13 minimize harm to the state park property. 14 (2) There are no feasible alternatives to the project for the road 15 that would avoid impacting the state park property. 16 (3) One of the following applies: 17 (A) The road is necessary for the operation, maintenance, or 18 use of the state park property for state park purposes. 19 (B) The road is necessary for the prevention or suppression of 20 fires that pose a threat to life and property. 21 (C) The road is necessary for the construction, operation, or 22 maintenance of utilities located on the state park property. 99 -3- AB 1457 1 (c) Costs incurred by the department as a result of making the 2 determinations set forth in subdivision (b) may be recovered by 3 the department by imposing a fee for those costs on the proponent 4 of the project for the road. 5 (d) (1) A person or class of persons may file a civil action to 6 enjoin a person or entity, including a state or local agency, that is 7 alleged to be violating this section. 8 (2) A civil action brought pursuant to paragraph (1) may be 9 brought in the superior court in the county in which the violation 10 occurs. 11 (3) Injunctive relief provided pursuant to this subdivision shall 12 not restrict any other right that a person or class of persons may 13 have under a statute or common law, including the right to seek 14 other legal remedies against the state or a local agency. 15 (e) As used in this section, the following terms have the 16 following meanings: 17 (1) "Local agency" means a county, general law or charter city, 18 town, school district, municipal corporation, district, joint powers 19 authority, political subdivision of the state, or a board, commission, 20 or agency thereof, or other local or regional public agency. 21 (2) "Road" means a highway, as defined in Section 360 of the 22 Vehicle Code, street, as defined in Section 590 of the Vehicle 23 Code, toll road or toll highway, as defined in Section 611 of the 24 Vehicle Code, or major thoroughfare. 25 (3) "State agency" includes a state department, division, bureau, 26 board, commission, or any other office within a state agency. 27 (4) "State park property" includes real property or an interest 28 in real property, that is owned, leased, or held under a conservation 29 easement by the department or otherwise under the jurisdiction or 30 control of the department. 31 SEC. 2. If the Commission on State Mandates determines that 32 this act contains costs mandated by the state, reimbursement to 33 local agencies and school districts for those costs shall be made 34 pursuant to Part 7 (commencing with Section 17500) of Division 35 4 of Title 2 of the Government Code. o 99 Analysis of AB 1457 (Huffman) Arguments in Opposition D R A F T Summary of AB 1457: AB 1457 fundamentally alters state law to prohibit virtually all road or near improvements in any part of the state park, recreational area or monument – including parks, recreation areas and monuments leased by the state where the lessor reserved the right to build roads in the leased area. The only road improvements allowed by the bill are those “necessary” for (1) the use of the park, (2) prevention of fires, or (3) construction and maintenance of utilities. Thus, AB 1457 will block all road improvements to be funded by the recently enacted transportation bonds if the roads are near any unit of the state park system. Dozens of transportation projects across the state are potentially impacted by the bill. AB 1457 Invalidates Contracts Between State Agencies and Landowners: AB 1457 applies to areas that are part of a state park unit where a landowner leased or granted a conservation easement to the state. In many cases, the leases and easements reserved the right of the landowner to approve roads. AB 1457 ignores these contractual agreements and prohibits road improvements even where the land was included in the state park unit by an agreement with the landowner that allows construction of roads. AB 1457 Targets the Completion of a Regional Transportation System in Orange and San Diego Counties – Even Though the State Entered Into A Lease With the Marine Corps With the Explicit Understanding that Roads Could Be Permitted: AB 1457 seeks to block the last 17-mile segment of the 68-mile toll road system in Orange County. The last four miles of State Route 241 is proposed by local, state and federal agencies to leased be located on a portion of the U.S. Marine Corps Base at Camp Pendleton in an area by 2021 the U.S. Department of Navy to State Parks. The lease expires in . The U.S. Navy lease always reserved to the Navy the right to approve a road through the leased land. “This Lease is subject to . . . the right of the [Federal] government, after consultation with Lessee [Dept. of Parks and Recreation], to grant such additional easements and rights of way over, across, in and upon the Lease Property [San Onofre State Park] as it shall determine to be in the public interest; Provided, that any such additional easement or right of way shall be located so as not to unreasonably interfere with the use of the Lessee’s improvements erected on the Leased Property.” 1- - 3/19/2007 OC\991120019 State Law Already Protects Parks and Recreation Areas: CEQA already prohibits construction of roads that have significant environmental impacts where there are feasible alternatives. AB 1457 would effectively block any new road improvements in or near any state or park, recreational area or monument that “encroaches upon” “impairs the recreational value” of the unit. The only road improvements allowed are those necessary for park purposes, to prevent fires, or to maintain utilities. AB 1457 Would Take the Transportation Planning Process Out of the Hands of Regional Transportation Agencies and Local Government: AB 1457 would conflict with existing state law which places regional transportation planning decisions in the hand of local government and regional transportation planning agencies. 2 - - DRAFT [Date] The Honorable Jared Huffman State Capitol P.O. Box 942849 Sacramento, CA 94249-0006 Subject: AB 1457 Dear Assemblymember Huffman: As a member of the Foothill/Eastern Transportation Corridor Agency (F/ETCA) and/or the San Joaquin Hills Transportation Corridor Agency (SJHTCA), the city of [Insert Name] is writing to oppose AB 1457. Since the early 1970s the City of [Insert Name] in cooperation with several other Orange County cities, the County of Orange and the F/ETCA have jointly planned and constructed infrastructure improvements to benefit the Orange County circulation system and compliment the land uses within our communities. The San Joaquin Hills and Foothill/Eastern Toll Roads are products of this balanced planning effort and have proven to be highly beneficial in alleviating traffic congestion in Orange County. In 1985, the F/ETCA began studying alignments for the last segment of the toll road system, Foothill Transportation Corridor-South (FTC-S). Since the mid-1990s, the F/ETCA, in collaboration with the U.S. Fish and Wildlife Service, the Army Corps of Engineers, the U.S. Federal Highway Administration, the Environmental Protection Agency, the United States Marine Corps and the California Department of Transportation studied numerous alignment options. They worked together throughout the environmental planning process to determine and recommend the Least Environmentally Damaging Practicable Alternative (LEDPA) for the FTC-S. In February 2006, the F/ETCA board of directors approved the recommended 16-mile alignment and certified the project’s final Environmental Impact Report (EIR). The City of [Insert Name] opposes AB 1457 for the following reasons: 1.It fundamentally alters state law to prohibit virtually all road improvements in or near any part of a state park, recreational area or monument, including parks, recreation areas and monuments leased by the state where the lessor reserved the right to build roads in the leased area. The only road improvements allowed by the bill are those “necessary” for (1) the use of the park, (2) prevention of fires, or (3) construction and maintenance of utilities. Thus, AB 1457 will block all road improvements to be funded by the recently enacted transportation bonds if the roads are near any unit of the state park system. Dozens of transportation projects across the state are potentially impacted by the bill. AB 1457 Invalidates Contracts Between State Agencies and Landowners: 2. AB 1457 applies to areas that are part of a state park unit where a landowner leased or granted a conservation easement to the state. In many cases, the leases and easements reserved the right of the landowner to approve roads. AB 1457 ignores these contractual agreements and prohibits road improvements even where the land was included in the state park unit by an agreement with the landowner that allows construction of roads. AB 1457 Targets the Completion of a Regional Transportation System in 3. Orange and San Diego Counties – even though the state entered into a lease with the Marine Corps with the explicit understanding that roads could be permitted: AB 1457 seeks to block the last 16-mile segment of the 67-mile toll road system in Orange County. The last four miles of State Route 241 is proposed by local, state and federal agencies to be located on a portion of the U. S. Marine Corps Base at Camp Pendleton in an area leased by the U.S. Department of the Navy to State Parks. The lease expires in 2021. The U.S. Navy lease always reserved to the Navy the right to approve a road through the leased land. i.“This Lease is subject to . . . the right of the [Federal] government, after consultation with Lessee [Dept. of Parks and Recreation], to grant such additional easements and rights of way over, across, in and upon the Lease Property [San Onofre State Park] as it shall determine to be in the public interest; Provided, that any such additional easement or right of way shall be located so as not to unreasonably interfere with the use of the Lessee’s improvements erected on the Leased Property.” State Law Already Protects Parks and Recreation Areas: 4.CEQA already prohibits construction of roads that have significant environmental impacts where there are feasible alternatives. AB 1457 would effectively block any new road improvements in or near any state park, recreational area or monument that or “encroaches upon” “impairs the recreational value” of the unit. The only road improvements allowed are those necessary for park purposes, to prevent fires, or to maintain utilities. AB 1457 Takes the Transportation Planning Process Out of the Hands of 5. Regional Transportation Agencies and Local Government: AB 1457 would conflict with existing state law which places regional transportation planning decisions in the hands of local government and regional transportation planning agencies. Sincerely, [Name] [Title] cc: The Honorable Arnold Schwarzenegger Assembly Water, Parks & Wildlife Committee Assembly Transportation Committee AGENDA REPORT Agenda Item Reviewed: City Manager 16 !1I/L Finance Director N/A MEETING DATE: MARCH 20,2007 FROM: WILLIAM A. HUSTON, CITY MANAGER LISA WOOLERY, COMMUNICATIONS MANAGER LEGISLATIVE UPDATES: SB 670 (CORREA) REAL PROPERTY TRANSFER FEES TO: SUBJECT: SUMMARY: SB 670 will end transfer fees charged by developers when properties are sold. RECOMMENDATION: Pleasure of the Council. FISCAL IMPACT: There is no direct fiscal impact to the City. Fiscal impact would directly impact homeowners at the time they sell their property. BACKGROUND: The Legislative Counsel's Digest is as follows: SB 670, as introduced, Correa. Real property: transfer fees. Existing law permits various fees to be included in the price of a residential real estate transfer. Existing law requires specified disclosures to be made upon a transfer of residential real property and provides a form for this purpose. Existing law provides that conditions restraining transfer of property, also referred to as alienation, when repugnant to the interest created in the property, are void. This bill would provide that any a covenant, restriction, or condition contained in any deed, contract, security instrument, or other instrument affecting the transfer or sale of real property that contains a requirement that any transferee pay a fee upon transfer of the real property is a condition restraining alienation that is repugnant to the interest created and void. The bill would except from this definition taxes and fees imposed by governmental entities, mechanics' liens, fees imposed by lenders, and homeowner association processing fees, among others. The bill would also make a related statement of legislative findings. Page 2 STATUS: A hearing is on this bill is scheduled on April 17 for the Senate Transportation and Housing Committee. BILL NUMBER: SB 670 INTRODUCED BILL TEXT INTRODUCED BY Senator Correa FEBRUARY 23, 2007 An act to amend Section 711 of the Civil Code, relating to real property. LEGISLATIVE COUNSEL'S DIGEST SB 670, as introduced, Correa. Real property: transfer fees. Existing law permits various fees to be included in the price of a residential real estate transfer. Existing law requires specified disclosures to be made upon a transfer of residential real property and provides a form for this purpose. Existing law provides that conditions restraining transfer of property, also referred to as alienation, when repugnant to the interest created in the property, are void. This bill would provide that any a covenant, restriction, or condition contained in any deed, contract, security instrument, or other instrument affecting the transfer or sale of real property that contains a requirement that any transferee pay a fee upon transfer of the real property is a condition restraining alienation that is repugnant to the interest created and void. The bill would except from this definition taxes and fees imposed by governmental entities, mechanics' liens, fees imposed by lenders, and homeowner association processing fees, among others. The bill would also make a related statement of legislative findings. Vote: majority. Appropriation: no. Fiscal committee: no. State-mandated local program: no. THE PEOPLE OF THE STATE OF CALIFORNIA DO ENACT AS FOLLOWS: SECTION 1. The Legislature finds and declares the following: (a) Transfer fees based on a percentage of the sales price of a home are increasingly being imposed by developers on home buyers. Often, the imposition of these fees is used to settle disputes between builders and parties who are opposed to a development or, in the alternative, by builders to avoid proactively a lawsuit by these opponents or to smooth development negotiations with the local government. Typically, in return for an agreement by the opponents to the development to not pursue a lawsuit based on one of the state's environmental protection acts, the builder agrees to the imposition of one or more fees through a covenant that remains in effect through each sale of a home. (b) Fees totaling 1.75 percent of a home's sales price have been seen; however, there is no upper limit on the percentage of a home's sales price at which a transfer fee can be established. .(c) Purchasing a home is increasingly beyond the reach of many Californians and these fees make housing even less affordable. Today, less than a quarter of all first-time home buyers can afford a median priced home in California. (d) These transfer fees can be imposed for an unlimited period. Generally, the duration of these transfer fees ranges from 20 to 25 years, however many fees are imposed in perpetuity. Consequently, future generations will be saddled with paying fees established decades earlier by developers. (e) The funds generated by these transfer fees can be used to pay for projects that do not directly benefit the development or the immediately surrounding community. As a result, the homeowners that pay these fees do not receive any benefit whatsoever in return. (f) The number of transfer fees that can be imposed is unlimited. Multiple fees have been imposed by developers on each home in a development with each fee funding a different purported benefit. Future homeowners will be required to pay these fees without any say as to whether the recipients of the funds should continue to benefit from this revenue source. (g) The requirements for disclosing the existence of a transfer fee are limited. In addition, the requirement for payment of the fee. can be masked by it not applying to the first buyer but only to subsequent buyers. Consequently, many home buyers may be surprised to learn of the additional thousands of dollars that they will be required to pay upon the close of escrow. (h) The organizations or developers that receive the transfer fee funds are not required to account to any independent oversight entity. Therefore, the public has no assurances that these organizations will work to achieve the goals with which they have been entrusted. (i) The transfer fees threaten a number of established public policies, namely: (1) The prohibition on the restraint of alienation. The fees will make it more difficult for homeowners to sell their homes because home buyers will likely balk at paying the fees. Page 3 Page 4 (2) The taxing and spending authority reserved to local governments. The imposition of these fees by developers arguably usurps functions that properly belong exclusively to local government. Moreover, no public vote is required to impose or extend the fee. U) Based on the foregoing, The Legislature finds that the imposition of transfer fees shall be prohibited. SEC. 2. Section 711 of the Civil Code is amended to read: 711. (a) Conditions restraining alienation, when repugnant to the interest created, are void. (b) Except as provided in subdivision (c), a condition restraining alienation that is repugnant to the interest created includes, but is not limited to, a covenant, restriction, or condition contained in any deed, contract, security instrument, or other instrument affecting the transfer or sale of, or any interest in, real property that contains a requirement that any transferee pay a fee upon transfer of the real property. (c) Subdivision (b) does not apply to any of the following: (1) Fees or taxes imposed by a governmental entity. (2) Mechanics' liens. (3) Court ordered transfers, payments, or judgments. (4) Property agreements in connection with a dissolution of marriage. (5) Fees, charges, or payments imposed by lenders or purchasers of loans, as these entities are described in subdivision (c) of Section 1 0232 of the Business and Professions Code. (6) Homeowner association processing fees as provided in Section 1368. Orange County Register Steven Greenhunt Commentary March 12, 2007 FREEDOM AT ISSUE A stealth tax on homeowners Right now, if you buy a house in California's inflated real estate market, you might find a shocking surprise at closing, beyond the normal amount of cash you have to come up with to get into that $800,000 fixerupper. You can be hit with a private transfer "tax" that can amount to thousands of dollars. There's nothing you can do about it that late in the game, other than pony up a few more grand to get into the house. Page 5 We're all used to the government dinging us at every opportunity, especially on the purchase of any major item. Buyers already pay government fees when they buy or sell a house, and then there's ,the ongoing expense of paying those real estate taxes. Somebody, after all, has to pay for all those ill-functioning bureaucracies. What's odd about the transfer tax - ranging from 0.05 percent to 1.75 percent of the purchase price of the house, with the most typical rate being 1 percent - is that this time the government isn't doing it. The homebuilder is playing Tax Man here, and the homebuilder often reaps the rewards while sticking it to the homebuyer in a sneaky way. "We look upon it that, if you're fortunate enough to buy a home, it's an opportunity to help someone less fortunate," a Lennar Corp. official told the San Diego Union-Tribune in a 2005 article about a tax Lennar imposes on buyers to fund a homeless charity. The tone of the article was positive: Look at the good deeds Lennar is doing! But the buyer, not only Lennar, is the one paying the charity. Here Lennar is acting the way the government acts. The government takes the money from you to fund some worthy- sounding program, and the government takes the credit for being so "caring." Then the government lectures the public on the importance of helping the poor. A Lennar official told me Lennar fully discloses the fee upfront, that it's a tiny percentage of the sales price, the company gets no benefit and that there are tight restrictions on how the money is used. That may be so with this one Lennar tax, but it isn't true for every builder's transfer tax. This type of tax is tied to the deed, and generally lasts forever. There are no disclosure rules, so no one has to tell the buyer about the added costs at sales time. There's no oversight of this continuing revenue stream to make sure it really goes to the promised use. The transfer tax technically is pri- vate, but it functions, in some ways, even worse than a government tax in that there are no requirements for a vote of the people, as required under Proposition 218 for traditional government taxes. Builders simply tack on whatever costs they choose to homebuyers, now and in the future, in the form of an add-on at closing. State Sen. Lou Correa, D-Anaheim, has introduced Senate Bill 670 to outlaw the practice. Republicans, who hate tax increases, and Democrats, who often complain about corporate profiteering and a lack of affordable housing, ought to quickly make this tax disappear. The builders insist that they should have the right to negotiate with buyers over the terms and conditions of a property's sale. If a buyer agrees to pay a transfer fee, then that is a private transaction. But the builders impose this fee without any disclosure until the final closing documents are produced. How is that a free negotiation? It's doubtful that a buyer could even opt out of the sale once he learns about the tax. By that point, he already has signed a binding sales contract and has placed a good bit of cash down. Page 6 The builders now say they will support legislation mandating full disclosure of the tax if Correa backs away from his bill. But such taxes still are questionable given that they encumber the property in the future. New buyers - who knew nothing about it - are stuck paying the price. "Twenty to 30 years from now, if this thing is allowed to proliferate, all properties will have such taxes," said Alex Creel, chief lobbyist for the California Association of Realtors, which is backing the Correa bill. "Why would you not impose all your front-end costs on the buyer?" Builders say this is a private transaction, he explained, and buyers have a choice not to enter into it. But what's your choice at that point? He envisions multiple layers of taxes and encumbrances years down the road. This relatively new tax (no one is sure who started it) is a bit similar to Mello-Roos fees, which are paid monthly by homeowners in special districts to fund neighborhood infrastructure. Such districts were designed to get around restrictions on government taxation. They impose far higher fees than transfer taxes, but they are governed by a clear-cut set of rules and restrictions, which no doubt explains why the builders prefer the stealth method. Readers of my column know that I zealously support the rights of homebuilders. I defend them against the attacks by NIMBYs who don't want anything built near them, government planners who prefer taxgenerating big-box stores rather than new neighborhoods, public school and public safety officials who view every new neighborhood as a chance to fund their budgets well beyond any impact the new neighborhood has on these services, and environmentalists who demand that builders build fewer houses and set aside more open space. I've been to planning commission and city council meetings where approvals for new home developments fit H.L. Mencken's description of an election: an advance auction of stolen goods. Everyone demands a piece of what the government will take from the developer in exchange for granting an approval to build something on the site. Typically, though, developers have every incentive to fight these demands because they will have to pay for them. With private transfer taxes, though, builders can agree to every sort of demand, no matter how dubious, and pass the costs on to consumers at the closing table. Builders are using the taxes to pay for their "affordable housing" mandates, to build hiking trails and even to fund a foundation to promote "family farming and ranching." The building industry's anti-SB670 fact sheet admits that these taxes transfer development costs to buyers: "It's a private sector solution to meet the conditions often placed on local development approvals." The builders argue that the Correa bill would result in "a MASSIVE NEW COST INCREASE onto new homebuyers." This is a stretch. Builders charge the most they possibly can get for a house. There's nothing wrong with that. If a house can fetch $1 million on the open market, that's what a builder will Page 7 charge, regardless of whether it cost him $900,000 to build or $200,000 to build. He can't suddenly charge more than the market will bear because he agreed to fund an American Indian monument at the behest of a local tribe. Which is what this is all about. Builders want more money to pay for things they are coerced to include in their projects. It's easier to buy off the opposition than to fight it. They know they can't always hike the price to reflect these costs, so they want to quietly offload the costs onto present and future buyers through a clever type of tax. It's time to nip this one in the bud. CONTACT THE WRITER: sg ree n h ut@ocreg iste r. co m or 714 796-7823 STEVEN GREENHUT SENIOR EDITORIAL WRITER AND COLUMNIST FOR THE REGISTER Lisa Woolery Communications Manager