The story begins in 2017. Summarizing what I wrote in
“Creative” Attempt to Boost Tax Revenue Fails Court Test, a dispute arose between school districts and owners of land on which billboards were located. The dispute centered on a Pennsylvania state law that, thanks to lobbyists, prohibits localities and school districts from subjecting billboards, wind turbines, amusement park rides, and silos used to store animal feed to the real property tax.
As reported in this Philadelphia Inquirer story, the school districts’ attorney took a “creative” approach by arguing that the value of the taxable land was increased by the existence of the billboards. The owners of the billboard companies objected, and after the Board of Assessment and Appeals agreed with them, the school districts appealed to the Court of Common Pleas. They lost.
The attorney for the school districts explained, “If I own a piece of ground and I’m renting it to a billboard company for $2,000 a month, why shouldn’t I have to pay tax on the ground as if I can rent it for $2,000 a month?” I pointed out two flaws in this rhetorical question. First, in addition to income, replacement cost and comparable sales are factors in determining the value of property. Second, the presence of the billboard increases the value of the property, but that doesn’t mean that it increases the value of the land. For example, assume that the small plot of land is worth $10,000. Assume that a billboard is constructed and that it has a value of $40,000. The property is now worth $50,000. The school district’s “creative” argument is that the land is now worth more than $10,000. But because the property continues to be worth $50,000, assigning a value of, for example, $30,000, to the land means that the billboard is being treated as worth $20,000. If the billboard is removed, the land continues to be the same $10,000 piece of land that it was before the billboard was installed (assuming that the land was not otherwise damaged or improved, which is most likely the case). In other words, the issue is a matter of determining how much of the property value to allocate to the land. The land’s value does not change when an improvement is made. What changes is the value of the property. Those are two different things. I then pointed out the flaw in treating billboards, wind turbines, amusement park rides, and animal feed silos differently from, for example, cell towers.
The School districts appealed to Pennsylvania Commonwealth Court. I discussed in the court’s decision in If It’s Real Property, It Should Be Subject to the Real Property Tax. According to this Philadelphia Inquirer article, the court concluded that the land on which billboards are placed is subject to the real property tax even though the billboards themselves are not exempt from the tax under the statute. In other words, the court rejected the taxpayers’ argument that because the billboards are exempt, the land on which they sit is exempt. The court’s conclusion makes sense because otherwise putting property that is not real property and thus not subject to the real property tax, such as vehicles, tables, chairs, tools, or equipment, on land would make the land exempt. The court also rejected the taxpayers’ argument that the legislature intended to exempt the land, for the simple reason that the statutory language does not exempt the land but only the billboard. The court reversed the decision of the Court of Common Pleas and held that the assessment of the taxed land on which the billboard sits could reflect the increase in the value of the land due to the existence of the billboard.
The taxpayers appealed to the Pennsylvania Supreme Court. Last week, the Court issued its decision. The Court framed the question as follows: “Where a real estate owner leases real estate or grants an easement to a billboard owner to situate a billboard upon the real estate, is a taxing district prohibited by the statutory exclusion for “signs and sign structures” contained in [the statute] from considering the rents and other payments from the billboard owner to the parcel owner when valuing the real estate for the purposes of real estate tax assessment.”
The Supreme Court began by pointing out that the assessment of taxable real property must reflect its fair market value, defined as “the price a purchaser, willing but not obliged to buy, would pay an owner, willing but not obliged to sell, considering all uses to which the property is adapted and might reasonably be applied.” Because the landowners receive rent or easement payments from the billboard companies, the Court concluded that so long as purchasers of the land would continue to receive those payments, those payments would enhance the fair market value of the land using the income approach to real estate valuation. The Court rejected the taxpayers’ argument that taking into account the rent income from the billboard would put part of the billboard’s exempt value into the value of the tax-exempt land, reasoning that although the value of the billboard reflects the income it generates from advertisers, its actual value must also take into account the expenses of operating it. The Court treated the premise of the taxpayers’ argument as conflating income from the advertisers to the billboard owner with the income the landowners received from the billboard owner. In other words, the Court disagreed with the taxpayers’ description of the “billboard’s value” as the value before the lease payments are taken into account whereas the Court considered those payments not to be a part of the billboard’s value. The Court concluded that the capitalized value of the lease payments, not being part of the billboard’s value, can be considered as part of the value of the land without shifting any value of the exempt billboard into the value of the tax-exempt land. And, the Court continued, this conclusion does not violate the exempt status of the billboard because it does not include the value of the billboard, net of lease payments, in the value of the land. Accordingly, the Court affirmed the decision of the Commonwealth Court.
How does the Court’s analysis change the analysis I shared in the example I provided several years ago. In that example, I posited a small plot of land worth $10,000, and the construction of a billboard on the land with a value of $40,000, making the value of the property $50,000. I argued that the approach taken by the school district, and approved by the Court, shifts some of the value of the billboard to the land. In other words to treat the land as worth $20,000 would require treating the billboard as worth $30,000. What the Court appears to be saying is that the existence of the billboard creates additional value, such that the billboard continues to be worth $40,000, while the land increases in value to, say, $20,000, making the property in its entirety worth $60,000. There is some sense to this conclusion, which can be demonstrated as follows. When the land was empty, it had a value of $10,000. With a billboard on it that generates an income stream to the landowner, the land has more value. A third party would be willing to pay more than $10,000 for the land if it came with an income stream. But is the purchaser buying the land for more than $10,000, or is the purchaser paying $10,000 for the land and, say, another $10,000 for the income stream? Put another way, should the income stream be treated as part of the land because the land generates that income stream? According to the Court, the answer is yes. The flaw In the reasoning is that the land is not generating the income stream. The billboard is generating the income stream. Without the billboard, the income stream does not exist. To use another example, suppose someone owns land, parks vehicles on the land, and rents those vehicles to individuals needing cars under year-long leases. The value of the vehicles has nothing to do with the value of the land. If the landowner sells the land, along with the vehicles and existing leases, the fact that the purchaser would pay more for the package than for just the land does not change the value of the land. Put another way, the capitalized value of the lease payments from renting out the cars does not increase the value of the land on which the cars are parked. The fact that the owner of the land is the owner of the car should not make a difference.
All of this is attributable to a deeper flaw. What generated this litigation is the statutory exemption for billboards, an exemption that also applies to wind turbines, amusement park rides, and animal feed silos, but not, for example, cell towers. If the legislature would treat all structures on land as real property, the dispute over the valuation of the land and the structure would be unnecessary. The law would be less complicated, an outcome that is desirable when the complication is necessary only because of special interest lobbying.
Interestingly, the Philadelphia Inquirer article that alerted me to the Pennsylvania Supreme Court’s decision characterized the court as having “overturned a long-accepted property tax exemption for billboards.” Technically, it did not overturn the exemption. The outcome of the case does not cause the entire value of the billboard to be included in the value of the taxed land on which it sits. Some commentators suggest that school districts and other taxing authorities might try to increase the assessments on land occupied by wind turbines, amusement park rides, and animal feed silos. The attorney for the school districts noted that the revenue to the school districts generated by the Court’s decision will continue “at least until lobbyists get to the legislators again and change the law.” My guess is not that the legislature will remove the special treatment of billboards, wind turbines, amusement park rides, and animal feed silos, but will add cell towers and who-knows-what-else to the list of exempt items. Unfortunately, it is unlikely that people’s residences would be added in their entirety to such a list of exempt items.