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PUBLIC LAW RESEARCH INSTITUTE
REPORT:
PLRI WORKING PAPERS SERIES, Fall 1996-03 This report was prepared by the Public Law Research Institute at Hastings College of the Law. It does not represent the views or policies of Hastings College of the Law, its Board of Directors or its faculty. COMMON INTEREST DEVELOPMENTS INTRODUCTION The California courts bear witness to the rapid growth of common interest developments in the state. Since 1968 the courts have adjudicated over 64 cases6 involving CIDs and HOAs.7 Thirty-seven cases (58%) have come to trial in the last ten years, following the enactment of the Davis-Stirling Common Interest Development Act in 1985.8 Most cases deal with disputes over the covenants, conditions and restrictions ("CC&Rs") governing the CID. Other cases deal with the role of the HOA and its board of directors in issues involving negligence or fiduciary duty. The purpose of this paper is to provide an overview of the history of California CID case law in selected areas. The paper first examines the recent CC&Rs enforcement case, Nahrstedt v. Lakeside Village Condominium Ass'n, its precursors and progeny, and then discusses the major cases in the areas of HOA negligence, fiduciary duty and restricting public access to CIDs. Finally, cases involving construction defects and procedural issues, among other issues, are briefly described in a chart provided in Appendix B. ENFORCEMENT OF COVENANTS, CONDITIONS AND RESTRICTIONS
I. The
Reasonableness Test. A. Criticism of Nahrstedt.
Arabian offers model legislation,18 which, if adopted, would prevent CC&Rs from restricting, without reasonable justification, activities that are "guaranteed by the Federal or State Constitution or by any federal, state, county or local statute, ordinance or regulation."19 Another author has criticized Nahrstedt for being "unnecessarily harsh and a sacrifice of access to judicial review for the sake of judicial efficiency."20 In addition, this critic of the Nahrstedt decision believes the court's new standard has "unnecessarily blocked CID owners from the reasonable enjoyment of their unit by preventing courts from examining any particular facts and instead limiting judicial review to an examination of the restriction on its face."21 B. Cases preceding Nahrstedt. In Bernardo Villas, the Bernardo Villas HOA sued to prevent the defendant from parking a new pickup truck in the condominium carport, in violation of the CC&Rs which prohibited the parking of any "truck, camper, [or] trailer."24 The trial court found for the defendant.25 The appellate court upheld the trial court's judgment, finding that the restriction was unreasonable because the homeowner's actions did not interfere with the other residents "use and enjoyment of their property."26 The court concluded by stating that "[o]ne person's Bronco II is another's Rolls-Royce."27 Similarly, in Portola Hills, the Portola Hills Community Association sued to force the defendant to remove a satellite dish that he had installed in his backyard.28 Given that the defendant's dish was not visible to other residents or the public, the appellate court questioned whether the restriction "promoted[d] any legitimate goal of the association."29The court also noted that "[w]hether an amendment is reasonable depends on the circumstances of a particular case."30 The court found the restriction was unreasonable and promoted no legitimate goal.31 It further questioned whether even an invisible satellite dish would comply with the restriction.32 Portola Hills and Bernardo Villas, thus, represent "the proposition that a restriction is unreasonable if the particular violation of that restriction does not interfere with the other homeowners' use and enjoyment of their property."33 C. Nahrstedt's
Progeny. In Liebler v. Point Loma Tennis Club, the appellate court ruled that Point Loma's policy of restricting use of tennis courts to current residents did not fall into one of the three Nahrstedt unreasonable categories. Thus, the policy was presumed reasonable and enforceable.36 D. Judicial Treatment of CC&Rs
Outside of California. A 1975 Florida case, Hidden Harbour Estates, Inc. v. Norman,38 appears to provide the earliest influence of a reasonableness test for CC&Rs. In Norman, the Florida appellate court stated that "if a rule is reasonable the association can adopt it; i[f] not, it cannot. It is not necessary that conduct be so offensive as to constitute a nuisance in order to justify regulation of it."39 The Norman reasonableness test was further defined six years later in Hidden Harbour Estates, Inc. v. Basso,40 which was also cited by the Nahrstedt court.41 The Basso decision stands for the premise that the restrictions are presumed valid, absent a showing that they are "wholly arbitrary . . . in violation of public policy, or . . . abrogate some fundamental constitutional right."42 In finding that the prohibition of pets by a HOA was not unreasonable, the Nahrstedt court cited several out-of-state cases in addition to the Norman and Hidden Harbor cases. In both Dulaney Towers Maintenance Corporation v. O'Brey43 and Noble v. Murphy,44 each respective state court dealt with the issue of an HOA prohibiting pets; each court ruled that prohibiting pets from a CID was reasonable. In explaining the basis for its reasoning, the O'Brey court stated that "communal living requires that fair consideration must be given to the rights and privileges of all owners and occupants of the condominium as to provide a harmonious residential atmosphere. [T]he rationale for . . . barring pets . . . is based on potentially offensive odors, noise, possible health hazards, clean-up, and maintenance problems, and the fact that pets can and do de-file hallways, elevators and other common areas."45 The California Supreme Court echoed the O'Brey court's comments when it stated that the Lakeside Village pet prohibition policy was "rationally related to health, sanitation and noise concerns . . . [at] Lakeside Village."46 II. Property Owners Notice of CC&Rs: In Anderson, a group of neighbors sued the Andersons for keeping llamas, growing grapes and operating a winery on their property, claiming the CC&R's prohibited such activities.49 The Andersons argued that the CC&R's were not enforceable because they were "not mentioned in any deed to their property."50 After a lengthy discussion of both the history of covenants and equitable servitudes and the current confusing state of the law, the Anderson court issued a new rule for determining when restrictions that do not appear on a deed may be enforced.51 The rule asserts that where a declaration establishing a common plan is (1) recorded before execution of the sale contract, (2) describes the property, and (3) states that it is to bind all purchasers and successors, then subsequent purchasers have notice of and are bound by the common plan.52 Citizens for Covenant Compliance prevailed in the case because the original declaration describing the Anderson's property contained restrictions against farming, operating a business, and keeping animals other than household pets. III. Required Practices For HOA Litigation: After examining the applicable land use law, the appellate court ruled that an individual owner does not have to "be a defendant in any lawsuit brought by a (HOA) to discharge its own duty to enforce the CC&Rs simply because that owner complains about a neighbor's proposed construction.58 The court further commented that the HOA's duty to enforce the CC&Rs "exists independently of what any given group of owners . . . might think or assert."59 Finally, the court concluded that California civil procedure60 "requires that judgments brought in litigation under statute be res judicata61 and binding on the individual owners, including those who do not participate in the litigation."62 Thus, Duffey stands for the premise that members of an HOA who request that their association enforce the CC&R's cannot be compelled to participate in the litigation, but they must abide by the court's decision. HOMEOWNERS ASSOCIATIONS AND NEGLIGENCE In Frances T. v. Village Green Owners Ass'n, the plaintiff sued her homeowners association and the individual directors of the association for negligence, among other things.65 The plaintiff sustained injuries when attacked by an unknown person who entered her condominium unit.66 At the time the plaintiff was attacked, her unit was without exterior lighting.67 The plaintiff had previously installed security lights after her condo had been burglarized.68 However, due to the associations' enforcement of the CC&R's, which prohibited unapproved lighting, she was ordered to disconnect her security lights; doing so effectively extinguished all her exterior lighting.69 The plaintiff's injuries occurred the same night after she was forced to disconnect her lights.70 In its decision, the California Supreme Court noted that the issue of condominium association and association directors owing a duty of care to association members was a question of first impression before the court.71 Thus, it conducted a lengthy review of the law of negligence and corporate fiduciary duty, analogizing the responsibilities of landlords and directors of corporations to those of homeowner associations and association directors.72 The court concluded that Frances T. could bring suit against both the homeowners association and the directors for failing to take action to avoid harm and contributing to the risk of injury to residents.73 The case was remanded to the lower court for further proceedings under the court's the newly established law.74 HOMEOWNERS ASSOCIATIONS AND FIDUCIARY
DUTY In Raven's Cove, the Raven's Cove Townhomes HOA brought suit against the developer and developer's employees, as former directors of the HOA, for breach of fiduciary duty, among other things.78 The HOA contended that the developer had failed to fund a reserve account, which would have covered the costs of repairing latent construction defects.79 After discussing the processes by which the developer, as the initial HOA, should have assessed each unit to build a reserve account, the court commented:
In its decision, the court first reviewed the fiduciary relationship between HOA directors and HOA members, describing it as analogous to the fiduciary relationship between corporate promoter and shareholders.81 The court then ruled that the HOA had breached its basic fiduciary duties of acting in good faith and using good management skills by not establishing a reserve fund for maintenance and repairs. RESTRICTING THE PUBLIC FROM CIDs Currently, the gating plans are all in different stages. The Los Angeles City Council voted in favor of allowing Brentwood Circle to become a gated community with a 24-hour guard and security fences.83 The fate of the El Niguel Heights gates awaits the decision of the Orange County Superior Court, due to a suit filed by a group of Laguna Niguel Heights residents protesting the loss of access to a public park within the common interest development's borders.84 The plan to erect gates in Whitley Heights has reached closure with the Court of Appeal ruling that the homeowners' association could not legally erect gates to restrict use of public streets.85 In Citizens Against Gated Enclaves v. Whitley Heights Civic Association, residents of the neighborhoods surrounding Whitley Heights brought suit against the Whitley Heights homeowners' association to prevent the association from erecting gates on the main streets that serve the neighborhood.86 Those opposed to the gates "regularly use[d] the public streets and sidewalks inside the proposed gated area for such purposes as commuting to work and jogging."87 In its opinion, the Court of Appeal discussed the history of the Whitley Heights area, an historic district listed on the Department of the Interior's National Register of Historic Places, as well as the history of the gating project.88 The court traced the decline of the surrounding areas and the increase of violence, crime and graffiti in the neighborhood.89 It noted that the gating project had a fifteen year history, with residents fully financing the construction of the gates and receiving full approval of the Los Angeles City Council.90 The court with "deep and abiding concern . . . for crime prevention and historic preservation" ruled against the Whitley Heights homeowners' associations and prohibited the construction of the gates.91 The court applied section 21101.6 of the Motor Vehicle Code92 in holding that the city lacked authority to vacate or abandon public streets and the association could not erect gates on public streets.93 The court further commented that it "doubt[ed] the Legislature wants to permit a return to feudal times with each suburb being a fiefdom to which other citizens of the State are denied their fundamental right of access to use public streets within those areas."94 The court's concern that neighborhoods would seek to isolate themselves by erecting gates stemmed from an amicus curie brief, which stated "that as of January 1993, the City had over one hundred pending applications for street closures."95 Neighborhoods seeking to erect gates seem to be learning from the Citizens Against Gated Enclaves decision. For example, "[t]he city of Laguna Niguel has tried to sidestep the [public streets] issue by requiring El Niguel Heights to privatize the streets within their boundaries."96 It has also "drafted guidelines for all communities seeking gates that include not only privatizing the streets but also ensuring public access to any parks or public areas inside their boundaries."97 CONCLUSION Given the large
numbers of Californians that live in CIDs, and their projected
expansion as a popular housing choice, the number of cases heard
by the courts is certain to increase. Future CID case law will
most likely deal with issues of current concern to HOA members,
including "public" versus "private" status of
CIDs, double taxation and creation of a CID in an existing
subdivision. Each issue promises to require the same rigorous
judicial scrutiny found in Nahrstedt, as common interest
developments continue to establish their place in California case
law.
Appendix A LEGISLATIVE
COUNSEL'S DIGEST This is an act concerning Condominium and Homeowners Association restrictions for the purpose of prohibiting certain provisions in the recorded covenants and restrictions, declarations, bylaws, and rules of certain condominiums or homeowners associations that restrict the use of maintenance of units or common elements without certain justification or in a manner that denies certain civil rights, and generally relating to the recorded covenants and restrictions, declarations, bylaws, and rules of condominiums, and homeowners associations. This bill would include rules and regulations passed by associations that are not in the common interest development's declarations. These rules cannot restrict activities in one unit or in the common areas if they deny a civil right guaranteed by the Federal or State Constitution or by any federal, state, county, or local statute, ordinance or regulation. The people of the State of California do enact as follows: 1 SECTION 1. BE IT ENACTED BY THE STATE OF 2 CALIFORNIA, that the Laws of California read as follows: 3 ARTICLE - REAL PROPERTY 4 A recorded covenant, condition or restriction, a provision in a 5 declaration or a provision of the bylaws or rules of a common 6 interest development may not restrict the use or maintenance of a 7 unit or the common elements: 8 (1) Without reasonable justification, based on economic, 9 aesthetic, health, or safety considerations; or 10 (2) In a manner that denies a civil right granted or guaranteed 11 under the United States Constitution, The California Constitution, or 12 a federal, state, county, or local statute or regulation. COMMON INTEREST
DEVELOPMENTS:
Footnotes 2. Id. back to text 3. Karen E. Klein, Living on Common Ground Bringing Both Pleasures and Perils, the Homeowners Association is Fast Becoming a Way of Life For Many Series: Living on Common Ground, L.A. Times, Feb. 26, 1995 at Part K, Real Estate Desk. back to text 4. Id. back to text 5. Id. back to text 6. Based on search results on Westlaw, using key terms "common interest developments" and "planned unit developments." CIDs are also referred to as planned-unit developments or PUDs. back to text 7. See Appendix B for Table of Cases. back to text 8. Cal. Civ. Code §§ 1350-1376. back to text 9. Duffey v. Superior Court, 3 Cal. App. 4th 425, 433 (1992). back to text 10. 8 Cal. 4th 361 (1994). back to text 11. Id. at 361. back to text 12. Id. At 370-84. Cal. Civ. Code § 1354(a) provides that "[t]he covenants and restrictions in the declaration shall be enforceable equitable servitudes, unless unreasonable, and shall inure to the benefit of and bind all owners of separate interests in the development." back to text 13. Id. at 386 back to text 14. Id. back to text 15. Id. back to text 16. Armand Arabian, Condos, Cats, and CC&Rs: Invasion of the Castle Common, 23 Pepp.L.Rev. 1 (1995). back to text 17. Id. at 10. back to text 18. See Appendix A for the full text of Justice Arabian's model legislation. back to text 19. Id. at 28. back to text 20. Daniel R. Puterbaugh, Note, The Reasonable Pet: An Examination of the Enforcement of Restrictions in California Common Interest Developments after Nahrstedt v. Lakeside Village Condominium Ass'n, Inc., 36 Santa Clara L. Rev. 793, 804 (1996). back to text 21. Id. at 795. back to text 22. 190 Cal. App. 3d 153 (1987), overruled by Nahrstedt V. Lakeside Village Condominium Ass'n, 8 Cal. 4th 361 (1994). back to text 23. 4 Cal. App. 4th 289 (1992), overruled by Nahrstedt V. Lakeside Village Condominium Ass'n, 8 Cal. 4th 361 (1994). back to text 24.Bernardo Villas Management Corp., 190 Cal. App. 3d at 153-54.back to text 25. Id. at 154.back to text 26. Id. back to text 27. Id. back to text 28. Portola Hills Community Ass'n, 4 Cal. App. 4th at 291-92.back to text 29. Id. back to text 30. Id. at 293, citing Ritchey v. Villa Nueva Condo. Ass'n, 81 Cal. App. 3d 688, 694 (1978).back to text 31. Id. at 583.back to text 32. Id. back to text 33. See Puterbaugh, supra note 20, at 797 n. 56; Portola Hills, 4 Cal. App. 4th 289, 293 (1994). back to text 34. 40 Cal. App. 4th 1600 (1996). back to text 35. These cases include People v. Ray, 42 Cal. App. 4th 1718 (1996); Cutujian v. Benedict Hills Estates Ass'n, 41 Cal. App. 4th 1379 (1996); Watts v. Crawford, 10 Cal. App. 4th 743 (1995); Chantiles v. Lake Forest II Master Homeowners Ass'n, 37 Cal. App. 4th 915 (1995). back to text 36. Liebler v. Point Loma Tennis Club, 40 Cal. App. 4th at 1604-12. back to text 37. Nahrstedt , 8 Cal. 4th at 1281-83. back to text 38. Hidden Harbour Estates, Inc. v. Norman, 309 So. 2d 180 (1975). back to text 39. Norman, 309 So. 2d at 181 (finding that prohibiting the consumption of alcohol from the HOA common areas was not unreasonable). back to text 40. Hidden Harbour Estates, Inc. v. Basso, 393 So. 2d 637 (1981). back to text 41. Nahrstedt, 8 Cal. 4th at 1283. back to text 42. Basso, 393 So. 2d at 639-40 (holding that the HOA could not prohibit a member homeowner from drilling a shallow well). back to text 43. 418 A.2d 1233 (1980). back to text 44. 612 N.E. 2d 266 (1993). back to text 45. O'Brey, 418 A.2d at 1235. back to text 46. Nahrstedt, 8 Cal. 4th at 1290. back to text 47. 12 Cal. 4th 345 (1995). back to text 48. Id. at 348. back to text 49. Id. back to text 50. Id. back to text 51. Id. back to text 52. Id. back to text 53. 3 Cal. App. 4th 425, 427 (1992). back to text 54. Id. back to text 55. Id. at 427-29. back to text 56. Id. back to text 57. Id. at 428. back to text 58. Id. at 431. back to text 59. Id. back to text 60. The Duffey court cited California Code of Civil Procedure §374 (now renumbered to §383 Cal. Civ. Code). Section 383 states: "An association established to manage a common interest development shall have standing to institute . . . litigation . . . in its own name . . . without joining with it the individual owners of the common interest development in matters pertaining to . . . enforcement of the governing documents." Cal. Civ. Code § 383 (a) (West 1996). back to text 61. Doctrine by which a final judgment by a court is conclusive upon the parties in subsequent jurisdiction. Barron's Law Dictionary (3d ed. 1991). back to text 62. 3 Cal.App.4th at 433-434. back to text 63. Frances T. v. Village Green Owners Ass'n, 42 Cal. 3d 490 (1986). back to text 64. Westlaw, Shephard's Case History Service (1996). back to text 65. 42 Cal3d at 495. back to text 66. Id. at 496. back to text 67. Id. back to text 68. Id. at 496-498. back to text 69. Id. back to text 70. Id. at 496. back to text 71. Id. at 499. back to text 72. Id. at 497-511. back to text 73. Id. back to text 74. Id. at 513. back to text 75. Barron's Legal Dictionary (3d ed. 1991). back to text 76. 114 Cal. App. 3d 783 (1981). back to text 77. Westlaw, Shephard's Case History Service (1996). back to text 78. 114 Cal. App. 3d. at 797. back to text 80. Id. at 799, quoting Hyatt and Rhoads, Concepts of Liability in the Development and Administration of Condominium and Homeowners' Associations, 12 Wake Forest L. Rev. 915, 923. back to text 81.Id. at 800. back to text 82. See Len Hall, City Park is Barrier to Community Gates, L.A. Times, Aug. 29, 1995, Part B; Gates: Brentwood Plan has Precedent in Whitley Heights, L.A. Times, June 15, 1995, Part J. back to text 83. Mary Moore, Part of Brentwood Allowed to Become Gated Community, L.A. Times, June 4, 1995, Part J. back to text 84. Hall, supra note 82 at Part B. back to text 85. Citizens Against Gated Enclaves v. Whitley Heights Civic Association, 23 Cal. App. 4th 812 (1994). back to text 86. Id. at 816-17. back to text 87. Id. at 816. back to text 88. Id. at 815. back to text 89. Id. back to text 90. Id. at 815-16. back to text 91. Id. at 823-34 back to text 92. Section 21101.6 of the California Motor Vehicle Code provides that "local authorities may not place gates . . . on any street which deny or restrict the access of certain members of the public to the street, while permitting others unrestricted access to the street." back to text 93. Citizens Against Gated Enclaves, 23 Cal. App. 4th at 818-22. back to text 94. Id. at 824. back to text 95. Id. at n.8. back to text 96. Hall, supra note 82, at Part B. back to text 97. 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