Case Summary
| Case ID | 20F-H2020055-REL |
|---|---|
| Agency | ADRE |
| Tribunal | OAH |
| Decision Date | 2020-07-17 |
| Administrative Law Judge | Sondra J. Vanella |
| Outcome | The Administrative Law Judge dismissed the petition, finding that the Petitioner failed to meet the burden of proof that the Condominium Association violated its governing documents or state statute regarding record inspection, specifically because the Association did not possess and was not required to create a Membership Register containing unit owners' email addresses. |
| Filing Fees Refunded | $0.00 |
| Civil Penalties | $0.00 |
Parties & Counsel
| Petitioner | Robert Tomisak | Counsel | — |
|---|---|---|---|
| Respondent | Arrowhead Lakes Condominium Association | Counsel | — |
Alleged Violations
A.R.S. § 33-1258; CC&Rs Article 11, Section 4.8; Bylaws, Article 10.3
Outcome Summary
The Administrative Law Judge dismissed the petition, finding that the Petitioner failed to meet the burden of proof that the Condominium Association violated its governing documents or state statute regarding record inspection, specifically because the Association did not possess and was not required to create a Membership Register containing unit owners' email addresses.
Why this result: Petitioner failed to establish by a preponderance of the evidence that Respondent violated the provisions of CC&Rs Section 11.4.8, Bylaws Section 10.3, or A.R.S. § 33-1158 (or § 33-1258) because the requested record (a Membership Register containing email addresses) did not exist, and the Association was not obligated to create it.
Key Issues & Findings
Refusal to provide access to the membership register (Owner Roster with emails)
Petitioner alleged the Respondent violated governing documents and statute by refusing access to the membership register containing email addresses. Respondent argued email addresses were protected 'personal records' under A.R.S. § 33-1258(B)(4). The ALJ found the Petitioner failed to prove a violation because the requested document (a Membership Register containing emails) did not exist, and Respondent had no obligation to create it.
Orders: The petition is dismissed and no action is required of Respondent.
Filing fee: $0.00, Fee refunded: No
Disposition: respondent_win
- A.R.S. § 33-1258
- CC&Rs 11.4.8
- Bylaws 10.3
Analytics Highlights
- A.R.S. § 32-2199.01
- A.R.S. § 33-1258
- A.R.S. § 33-1258(B)(4)
- A.R.S. § 33-1158
- CC&Rs 11.4.8
- Bylaws 10.3
- A.A.C. R2-19-119(A)
- A.A.C. R2-19-119(B)(1)
- A.R.S. §32-2199.02(B)
- A.R.S. § 41-1092.09
Video Overview
Audio Overview
Decision Documents
20F-H2020055-REL Decision – 807817.pdf
Administrative Hearing Briefing: Tomisak v. Arrowhead Lakes Condominium Association
Executive Summary
This briefing document outlines the findings and decision in the case of Robert Tomisak versus the Arrowhead Lakes Condominium Association (Case No. 20F-H2020055-REL), heard in the Office of Administrative Hearings. The petitioner, Mr. Tomisak, alleged that the Association violated its governing documents and Arizona state law by refusing his request for an owner roster that included member email addresses. The Association countered that email addresses constitute protected personal information and, more critically, that a membership register containing such information no longer exists.
The Administrative Law Judge ultimately dismissed the petition. The decision did not hinge on whether email addresses are “personal records” under the law. Instead, the ruling was based on the factual determination that the Association cannot be compelled to produce a document that it does not maintain. Since the Association had ceased including email addresses in its Membership Register in 2018, the judge concluded that the petitioner had no right to a non-existent record and had failed to meet the burden of proof required to show a violation.
I. Case Overview
Case Name
Robert Tomisak v. Arrowhead Lakes Condominium Association
Case Number
20F-H2020055-REL
Office of Administrative Hearings
Administrative Law Judge
Sondra J. Vanella
Petitioner
Robert Tomisak, Owner of Unit 1902 (Appeared on his own behalf)
Respondent
Arrowhead Lakes Condominium Association (Represented by Property Manager Terri Troy)
Hearing Date
July 9, 2020
Decision Date
July 17, 2020
II. Petitioner’s Allegations
On April 15, 2020, Robert Tomisak filed a single-issue petition alleging that the Arrowhead Lakes Condominium Association had violated its own governing documents and Arizona state law. The core of the complaint was the Association’s refusal to fulfill his March 11, 2020, email request “to provide access to the membership register” containing owner email addresses.
Mr. Tomisak specifically cited violations of the following provisions:
• Covenants, Conditions, and Restrictions (CC&Rs): Article 11, Section 4.8
• Bylaws: Article 10.3
• Arizona Revised Statutes (A.R.S.): § 33-1258
III. Respondent’s Position and Defense
The Association, through its property management company AS&A Property Management, Inc., and represented by Property Manager Terri Troy, denied all allegations. The defense rested on two key arguments:
1. Privacy Exemption: The Association contended that members’ email addresses are “personal records” and therefore exempt from disclosure under A.R.S. § 33-1258(B)(4), which protects the “personal, health or financial records of an individual member.”
2. Non-Existence of the Record: Ms. Troy testified that while the Association would readily provide the official Membership Register (containing names and addresses), this document no longer includes email addresses. This practice of excluding emails from the register began in 2018.
IV. Key Evidence and Testimony
The March 11, 2020 Email Exchange
The dispute originated with a direct email exchange between the petitioner and the property manager.
• Petitioner’s Request (7:33 a.m.): Mr. Tomisak sent an email with the subject line “Owner Roster” stating:
• Respondent’s Denial (8:23 a.m.): Ms. Troy responded with a direct refusal, citing the statutory exemption for personal information:
Hearing Testimony
During the July 9, 2020 hearing, both parties presented their arguments:
• Robert Tomisak (Petitioner): Acknowledged that he already had access to member mailing addresses but specifically required their email addresses. He argued that email addresses are not “personal information” and cited “the internet” and “California case law” as authority for this position.
• Terri Troy (Respondent): Reiterated the Association’s willingness to provide the existing Membership Register, which contains names, addresses, and unit numbers. She explained that email addresses had been removed from this register starting in 2018 and that her refusal was based on the belief that emails are protected “personal records” under A.R.S. § 33-1258(B)(4).
The Administrative Law Judge noted that neither party cited “any relevant or persuasive legal authority” to formally define “personal records” as used in the statute.
V. Legal Framework and Governing Documents
The case centered on the interpretation of three key provisions granting members access to Association records.
Document
Section
Key Provision
11.4.8
“The Association shall make available to Owners… current copies of the Declaration, Articles, Bylaws, rules of the Association and the books, records, and financial statements of the Association.”
Bylaws
“The membership register… shall be made available for inspection and copying by Members of the Association… for a purpose reasonably related to their interests as Members…”
A.R.S.
§ 33-1258(A)
“all financial and other records of the association shall be made reasonably available for examination by any member…”
A.R.S.
§ 33-1258(B)(4)
“Books and records… may be withheld from disclosure to the extent that the portion withheld relates to… Personal, health or financial records of an individual member of the association…”
VI. Administrative Law Judge’s Findings and Order
Burden of Proof
The judge established that the petitioner, Mr. Tomisak, bore the burden of proof to demonstrate by a “preponderance of the evidence” that the Association had committed the alleged violations. A preponderance of evidence is defined as that which is sufficient to “incline a fair and impartial mind to one side of the issue rather than the other.”
Central Conclusion
The judge’s ruling was not based on the privacy argument regarding whether email addresses are “personal records.” Instead, the decision was grounded in a more fundamental point of fact regarding the existence of the requested document. The judge’s decisive conclusion of law stated:
While Petitioner has the right to enforce the requirements of the above provisions, Petitioner does not have the right to a record that does not exist, i.e., a Membership Register containing email addresses. Further, there is no requirement in the above provisions that Respondent has an obligation to create such a document.
Final Ruling
Based on this central finding, the judge held that Mr. Tomisak failed to meet his burden of proof and did not establish that the Association had violated its CC&Rs, its Bylaws, or A.R.S. § 33-1158.
IT IS ORDERED that no action is required of Respondent in this matter and that the petition is dismissed. The order is binding unless a rehearing is requested within 30 days of its service.
Study Guide: Tomisak v. Arrowhead Lakes Condominium Association
This study guide provides a review of the administrative hearing decision in case number 20F-H2020055-REL, involving Petitioner Robert Tomisak and Respondent Arrowhead Lakes Condominium Association. It includes a short-answer quiz, an answer key, suggested essay questions, and a glossary of key terms to test and deepen understanding of the case.
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Short-Answer Quiz
Instructions: Answer the following ten questions in 2-3 complete sentences, based entirely on the information provided in the case document.
1. Who were the petitioner and the respondent in this case, and what was their established relationship?
2. What specific document and data did the petitioner request from the respondent in his email dated March 11, 2020?
3. On what legal grounds did the respondent deny the petitioner’s request? Cite the specific statutory provision they referenced.
4. Identify the three governing documents or statutes that the petitioner alleged the respondent had violated.
5. What information was the respondent, through its property manager Terri Troy, willing to provide to the petitioner?
6. What was the central reason cited by the Administrative Law Judge in the “Conclusions of Law” for dismissing the petition?
7. Define the “preponderance of the evidence” standard and identify which party had the burden of meeting this standard.
8. What authority did the petitioner cite during the hearing to support his argument that email addresses do not constitute “personal information”?
9. According to Property Manager Terri Troy’s testimony, when and why did the content of the Membership Register change?
10. What was the final order issued by the Administrative Law Judge on July 17, 2020?
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Answer Key
1. The petitioner was Robert Tomisak, who owns condominium unit 1902 in the Arrowhead Lakes development. The respondent was the Arrowhead Lakes Condominium Association, of which the petitioner is a member.
2. The petitioner requested an electronic copy of the “Owner’s Roster with emails.” He specifically wanted a membership list that included the email addresses of the other condominium owners.
3. The respondent denied the request based on A.R.S. § 33-1258(B)(4). They argued that this provision allows an association to withhold the “personal records of an individual member,” and they considered email addresses to fall under this category.
4. The petitioner alleged the respondent violated its Covenants, Conditions, and Restrictions (CC&Rs) Article 11, Section 4.8; its Bylaws, Article 10.3; and Arizona Revised Statute (A.R.S.) § 33-1258.
5. The respondent was willing to provide the Membership Register, which included the names, unit numbers, and mailing addresses of the members. However, this register did not contain email addresses.
6. The judge dismissed the petition because the petitioner did not have the right to a record that does not exist—namely, a Membership Register containing email addresses. The judge concluded there was no requirement in the governing provisions for the respondent to create such a document.
7. A “preponderance of the evidence” is the standard of proof requiring the trier of fact to be convinced that a contention is more probably true than not. The petitioner, Robert Tomisak, bore the burden of establishing his claim by this standard.
8. During the hearing, the petitioner cited “the internet” and “California case law” as his authority for the proposition that email addresses were not considered personal information.
9. Terri Troy testified that the Membership Register previously contained email addresses but that this practice was stopped beginning in 2018. The change was made based on the association’s belief that email addresses were the “personal records” of the owners.
10. The final order stated that no action was required of the respondent and that the petition was dismissed.
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Essay Questions
Instructions: The following questions are designed for a longer, essay-style response. Use the case document to formulate a detailed and well-supported argument.
1. Analyze the central legal conflict in this case. Discuss the petitioner’s interpretation of a member’s right to access records under the CC&Rs, Bylaws, and A.R.S. § 33-1258 versus the respondent’s interpretation, focusing on the exemption for “personal records.”
2. Evaluate the evidence presented by both the petitioner and the respondent during the July 9, 2020 hearing. Explain why the judge ultimately found that the petitioner failed to meet the “preponderance of the evidence” standard.
3. The judge’s decision rested heavily on the finding that the respondent was not obligated to create a document that did not exist. Discuss the significance of this finding. How might the case outcome have differed if the Membership Register still actively contained member email addresses at the time of the request?
4. Discuss the concept of “burden of proof” as it applies to this administrative hearing. Explain why this burden fell upon the petitioner and how the failure to meet this evidentiary standard was a determinative factor in the dismissal of the petition.
5. Examine the roles and interaction of the governing documents (CC&Rs, Bylaws) and state law (A.R.S. § 33-1258) in this dispute. Which provisions offered the petitioner the right to inspect records, and which specific clause provided the strongest defense for the respondent?
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Glossary of Key Terms
Definition
Administrative Law Judge (ALJ)
The official who presides over the evidentiary hearing at the Office of Administrative Hearings and issues a decision. In this case, Sondra J. Vanella.
A.R.S. § 33-1258
The Arizona Revised Statute that mandates associations make financial and other records “reasonably available” to members, while also providing exceptions for withholding certain information, such as “personal, health or financial records of an individual member.”
Association
The Arrowhead Lakes Condominium Association, a condominium unit owners’ association responsible for managing the Arrowhead Lakes development.
Bylaws
The rules governing the internal operations of the association. Section 10.3 is referenced, which grants members the right to inspect the “membership register” and other books and records.
Covenants, Conditions, and Restrictions. These are the primary governing legal documents for the condominium development. Section 11.4.8 is referenced, which requires the association to make its books and records available to owners.
Membership Register
A formal list of the members of the association. The respondent’s register included names and addresses with unit numbers but, as of 2018, no longer included email addresses.
Petitioner
The party who files a petition to initiate a legal proceeding. In this case, Robert Tomisak, a condominium owner and member of the association.
Preponderance of the Evidence
The standard of proof required in this administrative hearing. It is met when the evidence presented is sufficient to “incline a fair and impartial mind to one side of the issue rather than the other,” making a contention more probably true than not.
Respondent
The party against whom a petition is filed. In this case, the Arrowhead Lakes Condominium Association.
He Sued His Condo Association for an Email List. The Judge’s Reason for Saying No Will Surprise You.
If you live in a condominium or a community governed by a homeowners’ association, you’ve likely wondered what official records you’re entitled to see. From financial statements to meeting minutes, these documents are the backbone of a transparent community. But what happens when the information you want isn’t in a format the association readily provides?
This was the central conflict for Robert Tomisak, a condominium owner in Glendale, Arizona. At 7:33 a.m. on March 11, 2020, he sent an email to his association requesting an electronic copy of the “Owner’s Roster with emails.” Less than an hour later, at 8:23 a.m., the property manager refused. Believing he was legally entitled to the list, Mr. Tomisak sued. When the case went before an administrative law judge, the final decision hinged on a simple but powerful distinction that most people would never see coming. This case reveals some surprising truths about our rights to information and how they are applied in the real world.
1. Takeaway #1: Your right is to inspectexistingrecords, not to have new ones created for you.
The core of the judge’s decision came down to a simple, factual matter. While Mr. Tomisak had a legal right to inspect association records, the specific document he requested—a Membership Register that included email addresses—did not actually exist.
According to testimony from property manager Terri Troy, the association was perfectly willing to provide the official Membership Register, which contained owner names and mailing addresses. However, she clarified that the association had stopped including email addresses in that specific record back in 2018. The judge found this fact to be decisive. While the petitioner had the right to access existing records, the association had no legal duty to create a new one for him. The judge’s “Conclusions of Law” put it in unambiguous terms:
Petitioner does not have the right to a record that does not exist, i.e., a Membership Register containing email addresses. Further, there is no requirement in the above provisions that Respondent has an obligation to create such a document.
This is a counter-intuitive but crucial distinction. Many people assume that if an organization possesses individual pieces of data (like names in one file and emails in another), they are obligated to compile that data into the format you request. This ruling clarifies that the legal obligation is to provide access to records as they are currently maintained, not to perform data-compilation tasks on demand. For association boards, this is a critical clarification of their duties; for homeowners, it’s a lesson in the power of a precise request.
2. Takeaway #2: The legal definition of “personal records” can be surprisingly ambiguous.
The central argument between the two parties revolved around privacy. Mr. Tomisak requested the email list citing an Arizona statute (A.R.S. § 33-1258) that grants members access to association records. In response, Ms. Troy denied the request by citing a specific exemption in that same law—A.R.S. § 33-1258(B)(4)—which allows an association to withhold “personal… records of an individual member.” Ms. Troy believed email addresses fell under this category; Mr. Tomisak argued they did not.
Crucially, Mr. Tomisak acknowledged during the hearing that he already had access to the mailing addresses for all units. His demand was not about the fundamental ability to communicate with his neighbors, but about the specific method. This reframes the dispute away from pure access-to-information and toward convenience and the definition of privacy.
However, when it came time to define “personal records,” both sides faltered. The petitioner cited “the internet” and “California case law” as his authority—a common mistake litigants make, as vague or non-binding sources hold little weight with a judge focused on specific state statutes. The judge noted that “Neither party cited to any relevant or persuasive legal authority to establish the definition of ‘personal records’ as referenced in the relevant statute.” This failure by both parties essentially forced the judge’s hand, allowing her to bypass the murky privacy debate and settle the case on the much clearer, indisputable fact that the requested record did not exist.
3. Takeaway #3: Even with clear rules, the burden of proof is always on the person making the claim.
On paper, the rules seemed to be in the petitioner’s favor. Section 11.4.8 of the community’s CC&Rs, Section 10.3 of its Bylaws, and the state statute A.R.S. § 33-1258 all grant members the right to inspect association records. So why did he lose?
The answer lies in the legal concept of the “burden of proof.” According to the hearing decision, the petitioner “bears the burden of proof to establish that Respondent violated applicable statutes, CC&Rs, and/or Bylaws by a preponderance of the evidence.”
“Preponderance of the evidence” simply means evidence that is more convincing and more likely true than not. In this case, because the petitioner could not prove that the specific document he wanted—a Membership Register containing emails—actually existed, he failed to meet this burden. He could not convince the judge that the association had violated its duties because the duty he claimed they violated (providing a non-existent record) was not one they actually had. This serves as a practical lesson for any homeowner: having a right on paper is not enough; you must be able to prove that the specific right was violated with convincing evidence.
Conclusion: A Lesson in Specificity
The case of Tomisak vs. Arrowhead Lakes Condominium Association is a masterclass in how legal rights and obligations are often more specific and literal than we assume. The final decision wasn’t based on broad principles of privacy versus access, but on the simple, verifiable fact that a non-existent document cannot be produced.
The judge’s final order was to dismiss the petition, requiring no action from the condo association. This case forces every resident and board member to ask a crucial question: Are you fighting over a principle, or are you making a specific request for a real, existing document? In the eyes of the law, only one of those will win you the day.
Case Participants
Petitioner Side
- Robert Tomisak (petitioner)
Appeared on his own behalf; also testified
Respondent Side
- Terri Troy (property manager)
Arrowhead Lakes Condominium Association / AS&A Property Management, Inc.
Appeared and testified on behalf of Respondent
Neutral Parties
- Sondra J. Vanella (ALJ)
Office of Administrative Hearings - Judy Lowe (Commissioner)
Arizona Department of Real Estate