State Tax Commission of Missouri
MARY ANN GREZESKOWIAK, )
)
Complainant, )
)
v. ) Appeal No. 09-10566
)
MICHAEL BROOKS, )
ACTING ASSESSOR, )
ST. LOUIS COUNTY, MISSOURI, )
)
Respondent. )
ORDER CORRECTING DECISION NUNC PRO
TUNC
Decision issued July 2, 1010, is corrected nunc pro tunc as follows:
On page 3, Finding of Fact 5, in the first sentence, the words “Missouri State Certified” are stricken. In all other respects the Decision is affirmed as issued.
SO ORDERED August 3, 2010.
STATE TAX COMMISSION OF MISSOURI
W. B. Tichenor
Senior Hearing Officer
DECISION AND ORDER
HOLDING
Decision of the St. Louis County Board of Equalization sustaining the assessment made by the Assessor is AFFIRMED. True value in money for the subject property for tax years 2009 and 2010 is set at $201,100, residential assessed value of $38,210. Complainant appeared pro se. Respondent appeared by Associate County Counselor Paula J. Lemerman.
Case heard and decided by Senior Hearing Officer W. B. Tichenor.
ISSUE
Complainant appeals, on the ground of overvaluation, the decision of the St. Louis County Board of Equalization, which sustained the valuation of the subject property. The Commission takes this appeal to determine the true value in money for the subject property on January 1, 2009. The Hearing Officer, having considered all of the competent evidence upon the whole record, enters the following Decision and Order.
FINDINGS OF FACT
1. Jurisdiction. Jurisdiction over this appeal is proper. Complainant timely appealed to the State Tax
Commission from the decision of the St. Louis County Board of Equalization. Evidentiary hearing was held on June 21,
2010, at the
2. Assessment. The Assessor appraised the property at $201,100, residential assessment of $38,210. The Board of Equalization sustained the assessment.
3. Subject Property. The subject property is located at
4. Complainant’s Evidence. Ms. Grezeskowiak testified in her own behalf. She opined a fair market value for her property as of January 1, 2009 of $190,000. This value was based on the existence of a two vacant houses behind the subject and a vacant lot across the street from the subject. Complainant felt that the existence of dead trees, weeds, brush and a sink hole on neighboring properties detracted from the value of the property under appeal. A series of 19 photographs showing the condition of the neighboring properties were received into evidence as Exhibit A.[2] Complainant’s evidence was not substantial and persuasive to rebut the presumption of correct assessment by the Board and establish the true value in money as of January 1, 2009, to be $190,000, as proposed. There was no evidence of new construction and improvement during 2009. Therefore the assessment for 2009 remains the assessment for 2010.[3]
5. Respondent’s Evidence. Respondent presented the appraisal report[4] and testimony of Craig Masterson, Missouri State Certified Residential Real Estate Appraiser. Mr. Masterson concluded a value as of January 1, 2009, for the Complainant’s property of $233,000 by developing the sales comparison approach. The properties relied upon by Respondent’s appraiser were comparable to the subject property. The four properties were located within .35 of a mile to 1 mile and six-tenths of the subject.[5] Each sale property sold at a time relevant to the tax date of January 1, 2009. The sale properties were similar to the subject in style, quality of construction, age, condition, room, bedroom and bathroom count, living area, location, site size and other amenities of comparability. The appraiser appropriately adjusted for variances in relevant factors and amenities between the subject and each comparable.
Respondent’s evidence met the standard of substantial and persuasive to establish the value of the subject, as of January 1, 2009, to be $233,000. However, Respondent’s appraisal was accepted only to sustain the original assessment made by the Assessor and sustained by the Board and not for the purpose of raising the assessment above that value. Respondent meet the standard of clear, convincing and cogent evidence in this appeal to sustain the original valuation of $201,100.
CONCLUSIONS
OF LAW AND DECISION
Jurisdiction
The Commission has jurisdiction to hear this appeal and correct any assessment which is shown to be unlawful, unfair, arbitrary or capricious. The hearing officer shall issue a decision and order affirming, modifying or reversing the determination of the board of equalization, and correcting any assessment which is unlawful, unfair, improper, arbitrary, or capricious.[6]
Presumptions In Appeals
There is a
presumption of validity, good faith and correctness of assessment by the
Standard for Valuation
Section 137.115, RSMo, requires that property be assessed based upon its true value in money which is defined as the price a property would bring when offered for sale by one willing or desirous to sell and bought by one who is willing or desirous to purchase but who is not compelled to do so.[9] It is the fair market value of the subject property on the valuation date.[10] Market value is the most probable price in terms of money which a property should bring in competitive and open market under all conditions requisite to a fair sale, the buyer and seller, each acting prudently, knowledgeable and assuming the price is not affected by undue stimulus.
Implicit in this definition are the consummation of a sale as of a specific date and the passing of title from seller to buyer under conditions whereby:
1. Buyer and seller are typically motivated.
2. Both parties are well informed and well advised, and both acting in what they consider their own best interests.
3. A reasonable time is allowed for exposure in the open market.
4. Payment is made in cash or its equivalent.
5. Financing, if any, is on terms generally available in the Community at the specified date and typical for the property type in its locale.
6. The price represents a normal consideration for the property sold unaffected by special financing amounts and/or terms, services, fees, costs, or credits incurred in the transaction.[11]
Respondent’s appraiser developed his opinion
of value under the Standard for Valuation.[12]
Methods
of Valuation
Proper
methods of valuation and assessment of property are delegated to the
Commission. It is within the purview of
the Hearing Officer to determine the method of valuation to be adopted in a
given case.[13]
Complainant’s Burden of Proof
In order to prevail, Complainant must present an opinion of market value and substantial and persuasive evidence that the proposed value is indicative of the market value of the subject property on January 1, 2009.[15] There is no presumption that the taxpayer’s opinion is correct. The taxpayer in a Commission appeal still bears the burden of proof. The taxpayer is the moving party seeking affirmative relief. Therefore, the Complainant bears the burden of proving the vital elements of the case, i.e., the assessment was “unlawful, unfair, improper, arbitrary or capricious.”[16]
Substantial evidence can be defined as such relevant evidence as a reasonable mind might accept as adequate to support a conclusion.[17] Persuasive evidence is that evidence which has sufficient weight and probative value to convince the trier of fact. The persuasiveness of evidence does not depend on the quantity or amount thereof but on its effect in inducing belief.[18]
Owner’s Opinion of Value
The owner of property is generally held competent to testify to its reasonable market value.[19] The owner’s opinion is without probative value however, where it is shown to have been based upon improper elements or an improper foundation.[20] The opinion of value testified to by Ms. Grzeskowiak was not supported by any market documentation showing what comparable homes to the subject had sold for in a time frame relevant to January 1, 2009. The entirety of the evidence related to what the taxpayer feels are conditions on neighboring properties that detract from the value of her property. The critical problem is that absent a comparison of sales of properties burdened by such detracting factors and other properties not subject to such factors the Hearing Officer has no quantitative basis to account for the neighboring properties influence on the value of the subject.
The evidence on the record from Exhibit 1 establishes a value for the subject property of $233,000. Complainant asserts a value of only $190,000. The Hearing Officer has no evidence upon which he can rationally apply a negative adjustment of $43,000 to the Masterson conclusion of value to arrive at the value tendered by the taxpayer. It would be mere speculation and conjecture to do so. A taxpayer does not meet the burden of proof if evidence on any essential element of his case leaves the Commission “in the nebulous twilight of speculation, conjecture and surmise.”[21]
The essential element of Ms. Grzeskowiak’s case is that the various factors, depicted in Exhibit A and testified to, are a detriment to the value of her property. The more critical matter however, is, assuming without finding, that all of the matters presented detract from the subject’s value, what is the monetary extent of such negative factors? The testimony and photographs provide no basis to conclude a dollar value for any such negative influence.
The Hearing
Officer is not persuaded that the mere existence of vacant properties reduces
the value of neighboring properties.
There is no evidence to support that claim. As to the matter of neighboring yards that
have overgrown weeds, brush, dead trees, a sink hole and mounds of dirt to fill
the sink hole, the monetary extent to which such factors detract from the value
of the property across the street, next door or backing to such properties was
not demonstrated in this appeal.
Accordingly, the Hearing Officer has no basis upon which a finding of
value as proposed by the taxpayer can be supported. In conclusion, the opinion of value of
$190,000 was not shown to have been based upon proper elements or a proper
foundation. Therefore, the owner’s
opinion has no probative weight in this appeal.
Evidence of Increase in Value
In any case in St. Louis County where the assessor presents evidence which indicates a valuation higher than the value finally determined by the assessor or the value determined by the board of equalization, whichever is higher, for that assessment period, such evidence will only be received for the purpose of sustaining the assessor’s or board’s valuation, and not for increasing the valuation of the property under appeal.[22] The evidence presented by the Respondent was substantial and persuasive to rebut the presumption of correct assessment by the Board and establish the fair market value of the property under appeal, as of January 1, 2009, to be $233,000. However, under the Commission rule just cited and Supreme Court decision[23] the assessed value cannot be increased above $38,210 in this particular appeal.
Respondent’s Burden of Proof
The Respondent has imposed upon him by the provisions of Section 137.115.1, RSMo, the burden of proof to present clear, convincing and cogent evidence to sustain a valuation on residential property which is made by a computer, computer-assisted method or a computer program. There is a presumption in this appeal that the original valuation, which was sustained by the Board of Equalization, was made by a computer, computer-assisted method or a computer program. There was no evidence to rebut the presumption, therefore, in order to sustain the valuation of the subject property at $201,100, appraised value, Respondent’s evidence must come within the guidelines established by the legislature and must clearly and convincingly persuade the Hearing Officer as to the value sought to be sustained.
The statutory guidelines for evidence to meet the standard of clear, convincing and cogent include the following:
(1) The findings of the assessor based on an appraisal of the property by generally accepted appraisal techniques; and
(2) The purchase prices from sales of at least three comparable properties and the address or location thereof. As used in this paragraph, the word comparable means that:
(a) Such sale was closed at a date relevant to the property valuation; and
(b) Such properties are not more than one mile from the site of the disputed property, except where no similar properties exist within one mile of the disputed property, the nearest comparable property shall be used. Such property shall be within five hundred square feet in size of the disputed property, and resemble the disputed property in age, floor plan, number of rooms, and other relevant characteristics.[24]
Clear, cogent
and convincing evidence is that evidence which clearly convinces the trier of
fact of the affirmative proposition to be proved. It does not mean that there may not be
contrary evidence.[25] The quality of proof, to be clear and
convincing must be more than a mere preponderance but does not require beyond a
reasonable doubt.[26] “For evidence to be clear and convincing, it
must instantly tilt the scales in the affirmative when weighed against the
evidence in opposition and the fact finder’s mind is left with an abiding
conviction that the evidence is true.”[27] The appraisal performed by Mr. Masterson
constitutes clear, cogent and convincing evidence that the true value of the
property under appeal as of January 1, 2009 was at least $201,100 as set by the
Assessor and sustained by the Board of Equalization. Accordingly, that value must be affirmed by
the Hearing Officer.
ORDER
The assessed
valuation for the subject property as determined by the Assessor and sustained
by the Board of Equalization for
The assessed value for the subject property for tax years 2009 and 2010 is set at $38,210.
Application
for Review
A party may file
with the Commission an application for review of this decision within thirty days
of the mailing date set forth in the Certificate of Service. The application shall contain specific
grounds upon which it is claimed the decision is erroneous. Said application must be in writing addressed
to the State Tax Commission of Missouri,
Failure to state specific facts or law upon which the appeal is based will result in summary denial. [28]
Disputed
Taxes
The Collector of St. Louis County, as well as the collectors of all affected political subdivisions therein, shall continue to hold the disputed taxes pending a filing of an Application for Review, unless said taxes have been disbursed pursuant to a court order under the provisions of Section 139.031.8, RSMo.
Any Finding of Fact which is a Conclusion of Law or Decision shall be so deemed. Any Decision which is a Finding of Fact or Conclusion of Law shall be so deemed.
SO ORDERED July 2, 2010.
STATE TAX COMMISSION OF
W. B. Tichenor
Senior Hearing Officer
[1] Exhibit 1: Sales Grid, page 1 of 3
[2] After the hearing was closed, Complainant inquired as to whether the photographs which had been presented to the assessor’s appraiser in the prehearing conference would be part of the record. Without objection from Respondent’s Counsel, the photographs were received into evidence.
[3] Section 137.115, RSMo
[4] Exhibit 1
[5] Two of the comps were outside the preferred one mile standard due to the lack of similar sales in the immediate neighborhood. Exhibit 1, page 2 of 3
[6] Article
X, section 14, Mo. Const. of 1945; Sections 138.430, 138.431, 138.431.4, RSMo.
[7] Hermel,
Inc. v. STC, 564 S.W.2d 888, 895 (
[8] Hermel,
supra; Cupples-Hesse
Corporation v. State Tax Commission, 329 S.W.2d 696, 702 (
[9] St.
Joe Minerals Corp. v. State Tax Commission, 854 S.W.2d 526, 529 (Mo.
App. E.D. 1993);
[10] Hermel, supra.
[11] Real
Estate Appraisal Terminology, Society of Real Estate Appraisers, Revised
Edition, 1984; See also, Real Estate Valuation in Litigation,
J. D. Eaton, M.A.I., American Institute of Real Estate Appraisers, 1982, pp.
4-5; Property Appraisal and Assessment
Administration, International Association of Assessing Officers, 1990,
pp. 79-80; Uniform Standards of
Professional Appraisal Practice, Glossary.
[12] Exhibit 1 – Certification Page
[13] See, Nance
v. STC, 18 S.W.3d 611, at 615 (
[14] St.
Joe Minerals Corp. v. STC, 854 S.W.2d 526, 529 (App. E.D. 1993); Aspenhof Corp. v. STC, 789 S.W.2d
867, 869 (App. E.D. 1990); Quincy Soybean Company, Inc., v. Lowe, 773
S.W.2d 503, 504 (App. E.D. 1989), citing
Del-Mar Redevelopment Corp v. Associated Garages, Inc., 726 S.W.2d 866,
869 (App. E.D. 1987); and State ex
rel. State Highway Comm’n v. Southern Dev. Co., 509 S.W.2d 18, 27 (Mo.
Div. 2 1974).
[15] Hermel,
supra.
[16] See,
Westwood Partnership v. Gogarty,
103 S.W.3d 152 (
[17] See, Cupples-Hesse, supra.
[18] Brooks
v. General Motors Assembly Division, 527 S.W.2d 50, 53 (
[19] Rigali v.
[20] Cohen v. Bushmeyer, 251
S.W.3d 345, (Mo.
App. E.D., March 25, 2008); Carmel Energy, Inc. v.
Fritter, 827 S.W.2d 780, 783 (Mo. App. W.D. 1992); State, ex rel. Missouri Hwy
& Transp. Com’n v. Pracht, 801 S.W.2d 90, 94 (Mo. App. E.D. 1990); Shelby County R-4 School District v.
Hermann, 392 S.W.2d 609, 613 (Sup. 1965).
[21] See, Rossman v. G.G.C. Corp. Of
[22] Section
138.060, RSMo; 12 CSR 30-3.075.
[23]
The Supreme Court of Missouri
has interpreted Section 138.060. The
Court stated:
“Section 138.060 prohibits an assessor from advocating
for or presenting evidence advocating for a higher ‘valuation’ than the ‘value’
finally determined by the assessor.
... . Because the legislature uses the singular terms ‘valuation’ and ‘value’
in the statute, however, it clearly was not referring to both true market value
and assessed value. While the assessor
establishes both true market value and assessed value, which are necessary
components of a taxpayer’s assessment, as noted previously, the assessed value is
the figure that is multiplied against the actual tax rate to determine the
amount of tax a property owner is required to pay. The assessed value is the ‘value that is
finally determined’ by the assessor for the assessment period and is the value
that limits the assessor’s advocacy and evidence. Section
138.060. By restricting the assessor
from advocating for a higher assessed valuation than that finally determined by
the assessor for the relevant assessment period, the legislature prevents an
assessor from putting a taxpayer at risk of being penalized with a higher
assessment for challenging an assessor’s prior determination of the value of
the taxpayer’s property.” State ex
rel. Ashby Road Partners, LLC et al v. STC and Muehlheausler, 297 SW3d 80,
87-88 (Mo 8/4/09)
[24] Section 137.115.1(1) & (2).
[25] Grissum
v. Reesman, 505 S.W.2d 81, 85, 86 (Mo. Div. 2, 1974).
[26] 30 AmJur2d.
345-346, Evidence section 1167.
[27] Matter
of O’Brien, 600 S.W.2d 695, 697 (
[28] Section
138.432, RSMo.