Joan A. Tober, vs. Civano 1 Neighborhood 1 Homeowners Association

Note: A Rehearing was requested for this case. The dashboard statistics reflect the final outcome of the rehearing process.

Case Summary

Case ID 19F-H1918042-REL
Agency ADRE
Tribunal OAH
Decision Date 2020-01-15
Administrative Law Judge Kay A. Abramsohn
Outcome The Administrative Law Judge concluded, both in the original decision and the rehearing, that the HOA was the prevailing party. The final decision affirmed that the HOA acted in compliance with A.R.S. § 33-1805(A) and (B), specifically ruling that privileged documents are exempt from disclosure timelines and that the Petitioner's request for 'all background information' was unreasonably broad and unclarified.
Filing Fees Refunded $0.00
Civil Penalties $0.00

Parties & Counsel

Petitioner Joan A. Tober Counsel
Respondent Civano 1 Neighborhood 1 Homeowners Association Counsel Diana J. Elston

Alleged Violations

A.R.S. § 33-1805

Outcome Summary

The Administrative Law Judge concluded, both in the original decision and the rehearing, that the HOA was the prevailing party. The final decision affirmed that the HOA acted in compliance with A.R.S. § 33-1805(A) and (B), specifically ruling that privileged documents are exempt from disclosure timelines and that the Petitioner's request for 'all background information' was unreasonably broad and unclarified.

Why this result: Petitioner lost because she failed to meet the burden of proof that the HOA violated A.R.S. § 33-1805(A). The primary record sought was protected by attorney-client privilege, and her vague request for 'any and all documentation' made it impossible for the HOA to reasonably comply within the 10-day period.

Key Issues & Findings

HOA violation of requirement to provide association records within ten business days.

Petitioner alleged the HOA violated A.R.S. § 33-1805(A) by failing to provide access to requested documents, including a privileged attorney letter and 'all background information', within the required 10-business day period. The rehearing focused specifically on the timeliness aspect.

Orders: The HOA was deemed the prevailing party in the rehearing, and Petitioner’s appeal was dismissed. The ALJ concluded the HOA acted in compliance with A.R.S. § 33-1805(A) and (B).

Filing fee: $0.00, Fee refunded: No

Disposition: respondent_win

Cited:

  • A.R.S. § 33-1805(A)
  • A.R.S. § 33-1805(B)
  • A.R.S. § 32-2102
  • A.R.S. § 32-2199
  • A.R.S. § 32-2199.05
  • A.R.S. § 32-2199(2)
  • A.R.S. § 32-2199.01(D)
  • A.R.S. § 32-2199.02
  • A.R.S. § 41-1092
  • A.R.S. § 41-2198.01
  • A.R.S. § 41-1092.07(G)(2)
  • A.R.S. § 41-1092.08(H)
  • A.R.S. § 12-904(A)
  • ARIZ. ADMIN. CODE R2-19-119
  • Tierra Ranchos Homeowners Ass'n v. Kitchukov, 216 Ariz. 195, 165 P.3d 173 (App. 2007)
  • Vazanno v. Superior Court, 74 Ariz. 369, 372, 249 P.2d 837 (1952)

Analytics Highlights

Topics: Records Request, Attorney-Client Privilege, A.R.S. 33-1805, Planned Community, Rehearing, Unreasonably Broad Request, Timeliness of Disclosure
Additional Citations:

  • A.R.S. § 33-1805(A)
  • A.R.S. § 33-1805(B)
  • A.R.S. § 32-2102
  • A.R.S. § 32-2199
  • A.R.S. § 32-2199.05
  • A.R.S. § 32-2199(2)
  • A.R.S. § 32-2199.01(D)
  • A.R.S. § 32-2199.02
  • A.R.S. § 41-1092
  • A.R.S. § 41-2198.01
  • A.R.S. § 41-1092.07(G)(2)
  • A.R.S. § 41-1092.08(H)
  • A.R.S. § 12-904(A)
  • ARIZ. ADMIN. CODE R2-19-119
  • Tierra Ranchos Homeowners Ass'n v. Kitchukov, 216 Ariz. 195, 165 P.3d 173 (App. 2007)
  • Vazanno v. Superior Court, 74 Ariz. 369, 372, 249 P.2d 837 (1952)

Video Overview

Audio Overview

Decision Documents

19F-H1918042-REL-RHG Decision – 764197.pdf

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19F-H1918042-REL-RHG Decision – ../19F-H1918042-REL/714863.pdf

Uploaded 2026-01-23T17:28:32 (51.7 KB)

19F-H1918042-REL-RHG Decision – ../19F-H1918042-REL/725808.pdf

Uploaded 2026-01-23T17:28:37 (89.7 KB)

Briefing Document: Tober v. Civano 1 Homeowners Association

Executive Summary

This document synthesizes the legal proceedings and outcomes of the case Joan A. Tober v. Civano 1 Neighborhood 1 Homeowners Association (No. 19F-H1918042-REL), adjudicated by the Arizona Office of Administrative Hearings. The core of the dispute was Petitioner Joan A. Tober’s demand for records from her Homeowners Association (HOA), specifically a legal opinion letter concerning the “North Ridge wall.”

The Petitioner argued that the HOA violated Arizona statute A.R.S. § 33-1805 by failing to provide this letter and other “background information.” She contended the HOA waived attorney-client privilege by discussing the letter in an open board meeting and, in a subsequent rehearing, failed to provide records within the statutorily required 10-day timeframe.

The HOA maintained that the letter was a privileged communication with its attorney and therefore exempt from disclosure under A.R.S. § 33-1805(B). The HOA also argued that the Petitioner’s broader request for “any and all documentation” was overly vague and that she failed to clarify the request when asked.

Administrative Law Judge Kay Abramsohn ultimately ruled in favor of the HOA in both the initial hearing and a subsequent rehearing. The final decision affirmed that the legal letter was privileged and could be withheld. Crucially, the judge concluded the HOA did not violate the 10-day provision because the Petitioner’s request was “unreasonably broad” and she failed to respond to the HOA’s request for clarification, thereby preventing the HOA from being able to “reasonably make records available.” The HOA was declared the prevailing party in both instances.

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Case Overview

This matter involves a formal dispute between a homeowner and her homeowners’ association, brought before the Arizona Department of Real Estate and heard by the Office of Administrative Hearings (OAH).

Case Name

Joan A. Tober, Petitioner, vs. Civano 1 Neighborhood 1 Homeowners Association, Respondent.

Case Number

19F-H1918042-REL

Adjudicating Body

Office of Administrative Hearings (OAH)

Administrative Law Judge

Kay A. Abramsohn

Core Issue

Alleged violation of A.R.S. § 33-1805, which governs member access to association records.

Initial Hearing Date

June 5, 2019

Initial Decision Date

July 29, 2019

Rehearing Date

December 11, 2019

Final Decision Date

January 15, 2020

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Key Parties and Individuals

Petitioner: Joan A. Tober

◦ A homeowner in the Civano 1 Neighborhood since 2001.

◦ Previously worked for the company that developed the land/homes in the association area.

◦ Has served as a past Board member for the HOA.

◦ Served as an alternate member on the Finance Committee in 2018.

◦ Exhibits a high level of engagement with HOA affairs, having taped and often transcribed every meeting since 2008.

Respondent: Civano 1 Neighborhood 1 Homeowners Association (HOA)

◦ The governing body for the planned community.

◦ Represented by Diana J. Elston, Esq., of Jones, Skelton & Hochuli, P.L.C.

Adjudicator: Kay Abramsohn

◦ The Administrative Law Judge for the Office of Administrative Hearings who presided over both the initial hearing and the rehearing.

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Chronology of the Dispute

Nov 20, 2018

At an HOA Board meeting, the Board President mentions receiving a letter (“the Letter”) from its attorney regarding the North Ridge wall, states it concerns the HOA’s legal responsibility, and suggests it can be sent out to residents.

Nov 26, 2018

Petitioner sends her first email request for a copy of the Letter.

Nov 27, 2018

Petitioner sends a second request. The HOA replies that it is waiting for clarification from its attorney.

Nov 29, 2018

At 4:58 a.m., Petitioner sends a third, formal request citing A.R.S. § 33-1805, demanding “any and all documentation to include the letter… regarding the structural integrity and the Association members’ responsibility for same and all background information.”

Nov 29, 2018

At 9:44 a.m., the HOA responds, stating the President misspoke and the Letter is a privileged legal opinion. The HOA asks if Petitioner needs a copy of “the original engineer report.” The judge later finds no evidence that Petitioner responded to this clarification query.

Dec 13, 2018

Petitioner writes to the Board, stating she will use “all means… to obtain the requested materials, to include a formal complaint.”

Dec 26, 2018

Petitioner files her single-issue petition with the Arizona Department of Real Estate.

Jan 15-16, 2019

The HOA forwards to Petitioner the “Civano historical erosion reports” (2013 and 2014) and an invoice related to the 2014 study.

June 5, 2019

The initial administrative hearing is held.

July 29, 2019

Initial Decision Issued: The Administrative Law Judge (ALJ) finds the Letter is privileged and the HOA is the prevailing party.

Aug 5, 2019

Petitioner files a request for rehearing, arguing the initial decision “did not address the timeliness aspect of the law.”

Aug 23, 2019

The Commissioner of the Arizona Department of Real Estate grants the rehearing request.

Dec 11, 2019

The rehearing is conducted.

Jan 15, 2020

Final Decision Issued: The ALJ again finds for the HOA, concluding it did not violate the statute because Petitioner’s request was overly broad and she failed to clarify it. The appeal is dismissed.

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Core Dispute and Arguments

Petitioner’s Position (Joan A. Tober)

1. Waiver of Privilege: The Petitioner’s central argument was that the HOA intentionally waived attorney-client privilege regarding the Letter when the Board President mentioned it in an open meeting and offered to distribute it, with the other Board members not objecting, thereby showing “unanimous consent to waive confidentiality.”

2. Right to “Background Information”: Petitioner argued that because the North Ridge wall issue had been ongoing since 2013, her request for “any and all documents” and “background information” was justified, and that more than just two prior engineering reports must exist.

3. Untimely Response (Rehearing Argument): In her request for rehearing, Petitioner’s primary argument shifted to timeliness, asserting that even if the HOA “eventually” provided some records, it failed to do so within the 10-business-day period mandated by A.R.S. § 33-1805(A).

Respondent’s Position (Civano 1 HOA)

1. Attorney-Client Privilege: The HOA’s primary defense was that the Letter constituted “privileged communication between an attorney for the association and the association,” which may be withheld from members under A.R.S. § 33-1805(B).

2. No Waiver: The HOA contended that the “mere mention” of the Letter by the Board President at a meeting did not constitute a legal waiver of the attorney-client privilege.

3. Vague and Overly Broad Request: The HOA argued that the Petitioner’s request for “any and all” documents was too broad to know what she wanted.

4. Prior Possession of Documents: The HOA indicated that it could be determined from the Petitioner’s own exhibits that she had already received or possessed copies of key requested documents, such as the 2013 and 2014 erosion reports.

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Key Findings of Fact and Evidence

The Administrative Law Judge made several critical findings of fact based on the evidence presented across both hearings.

The Nature of the “Letter”: The document at the center of the dispute was confirmed to be a legal opinion from the HOA’s attorney. It had been discussed by the Board in an executive session prior to the November 20, 2018 meeting. The letter advised that the HOA was responsible for the land below the wall and recommended hiring a “licensed bonded engineer.”

Petitioner’s Pre-existing Knowledge: The Petitioner was well-informed on the North Ridge wall issue. She acknowledged at the rehearing that at the time of her November 29, 2018 request, she already possessed copies of the 2013 and 2014 engineering reports, which she had obtained from the city in 2014.

Petitioner’s Request and Failure to Clarify:

◦ The Petitioner’s initial requests on November 26 and 27 were solely for the attorney’s Letter.

◦ Her formal request on November 29 expanded to “any and all documentation… and all background information.”

◦ On the same day, the HOA asked for clarification, specifically inquiring if she “still need[ed] a copy of the original engineer report.”

◦ The ALJ found “no document supporting” the Petitioner’s claim that she responded to this email. During the rehearing, the Petitioner was unable to produce such a response. This failure to clarify was a key factor in the final ruling.

Lack of Other Documents: The hearing record contained no evidence of any other erosion reports besides the 2013 and 2014 reports. The HOA President, Mr. Mastrosimone, testified that “there were no documents other than the Letter that would have been responsive” to the request.

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Legal Rulings and Conclusions of Law

Initial Decision (July 29, 2019)

Jurisdiction: The OAH confirmed its authority to hear the dispute under Arizona statutes.

Privilege: The ALJ concluded that under A.R.S. § 33-1805(B), “privileged communication between an attorney for the association and the association” may be withheld. Therefore, the HOA was “not statutorily required to provide access or a copy of the Letter to Petitioner.”

Outcome: The ALJ concluded that the HOA provided records in compliance with the statute and was deemed the prevailing party.

Final Decision on Rehearing (January 15, 2020)

Issue for Rehearing: The sole issue on rehearing was whether the HOA violated A.R.S. § 33-1805 by failing to provide access to records within 10 business days.

Privileged Communication: The ALJ reaffirmed that the Letter was privileged communication and the HOA was not required to provide it “within any time period.”

Unreasonably Broad Request: The ALJ concluded that the Petitioner’s formal request was “unreasonably broad and remained unclarified.”

Failure to Clarify: The ruling explicitly states: “Petitioner failed to respond to the HOA request for clarification of her unreasonably broad request, preventing the HOA from being able to reasonably make records available. An association is not required to guess what records are being requested.”

No Violation of Timeliness: Because the request was unclarified, the ALJ found the HOA did not violate the 10-day rule in A.R.S. § 33-1805(A). The decision notes that the initial ruling “inartfully stated” that the HOA had provided records in compliance, and that it “should have simply stated that the HOA acted in compliance with A.R.S. § 33-1805.”

Final Outcome: The ALJ concluded that the HOA acted in compliance with both subsections (A) and (B) of the statute. The HOA was again declared the prevailing party, and the Petitioner’s appeal was dismissed. The decision was declared binding on the parties, subject to judicial review in superior court.

Study Guide: Tober v. Civano 1 Neighborhood 1 Homeowners Association

This study guide provides a comprehensive review of the administrative case No. 19F-H1918042-REL, involving Petitioner Joan A. Tober and Respondent Civano 1 Neighborhood 1 Homeowners Association. It includes a short-answer quiz, an answer key, suggested essay questions, and a glossary of key terms to facilitate a thorough understanding of the case’s facts, legal arguments, and procedural history.

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Short Answer Quiz

Instructions: Answer the following questions in 2-3 sentences, using only information provided in the source documents.

1. What specific event prompted Joan Tober to first request documents from the HOA in November 2018?

2. What was the HOA’s primary legal justification for refusing to provide a copy of “the Letter” to the Petitioner?

3. According to Arizona statute A.R.S. § 33-1805(A), what is the required timeframe for an HOA to make records available to a member after a written request?

4. What was the Petitioner’s core argument for why the HOA had forfeited its right to keep “the Letter” confidential?

5. On what grounds did the Petitioner file her request for a rehearing after the initial decision on July 29, 2019?

6. How did the Petitioner’s document request evolve between her first communication on November 26, 2018, and her third request on November 29, 2018?

7. What crucial step did the Administrative Law Judge conclude the Petitioner failed to take after the HOA’s email on November 29, 2018?

8. Besides “the Letter,” what other key documents related to the North Ridge wall did the Petitioner already possess when she filed her formal request?

9. Describe the Petitioner’s long-standing involvement and activities within the Civano 1 HOA community.

10. What was the final ruling in the Administrative Law Judge Decision on Rehearing, issued January 15, 2020?

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Answer Key

1. The request was prompted by the HOA Board meeting on November 20, 2018. At this meeting, the Board President mentioned receiving a letter from the HOA’s attorney regarding the North Ridge wall, stated its legal conclusion, and indicated, “I believe we can … send it out … so people can have it.”

2. The HOA’s primary justification was that the document was a privileged attorney-client communication. The HOA argued that the letter contained legal analysis and advice to the Board and was therefore exempt from disclosure under Arizona statute A.R.S. § 33-1805(B).

3. A.R.S. § 33-1805(A) states that a homeowners association has “ten business days” to fulfill a written request for examination of its financial and other records.

4. The Petitioner argued that the HOA had intentionally waived confidentiality. She contended that because the Board President mentioned the letter in an open meeting and the other Board members did not object, they showed unanimous consent to waive the attorney-client privilege.

5. The Petitioner requested a rehearing on the grounds that the initial Administrative Law Judge ruling “did not address the timeliness aspect of the law.” She argued that while the HOA eventually provided access to some records, it had not done so within the required 10-business day period.

6. The Petitioner’s request evolved from a specific ask for a copy of “the Letter” on November 26 and 27 to a much broader request on November 29. Her third request asked for “any and all documentation to include the letter… regarding the structural integrity and the Association members’ responsibility for same and all background information.”

7. The Judge concluded that the Petitioner failed to respond to the HOA’s request for clarification in its November 29 email. The HOA had asked if she needed a copy of the “original engineer report,” and the Judge found no evidence in the hearing records that the Petitioner ever answered this question, thus preventing the HOA from being able to reasonably make records available.

8. The Petitioner already possessed the 2013 Engineering report and the 2014 report concerning erosion issues with the North Ridge wall. She acknowledged at the rehearing that she had obtained these from the city in 2014.

9. The Petitioner worked for the company that developed the land, purchased her home in 2001, and has been a past Board member. At the time of the dispute, she was an alternate member of the Finance Committee and had been taping and often transcribing every HOA meeting since 2008.

10. The final ruling was that the HOA was the prevailing party and had not violated A.R.S. § 33-1805. The Judge concluded the HOA was not required to provide the privileged letter and that its failure to provide other documents within 10 days was excused because the Petitioner’s request was “unreasonably broad” and she failed to clarify it. The Petitioner’s appeal was dismissed.

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Essay Questions

Instructions: The following questions are designed for a longer, essay-format response. No answers are provided.

1. Analyze the concept of “waiver” of attorney-client privilege as it was argued in this case. Discuss the Petitioner’s claim that the President’s public comments constituted a waiver and contrast this with the Administrative Law Judge’s implicit and explicit findings on the matter.

2. Trace the procedural history of this case, beginning with the initial petition filing on December 26, 2018, and concluding with the final notice of appeal rights in the January 15, 2020 order. Identify the key legal proceedings, decisions, and dates that marked the progression of the dispute.

3. Discuss the legal standard of “preponderance of the evidence” as defined in the court documents. Explain how the Administrative Law Judge applied this standard to the evidence presented by the Petitioner and why the Petitioner ultimately failed to meet her burden of proof in both the initial hearing and the rehearing.

4. Examine the role and interpretation of Arizona statute A.R.S. § 33-1805 in this dispute. How did the two key subsections, (A) and (B), create the central legal conflict between the Petitioner’s right to access records and the HOA’s right to withhold privileged information?

5. Evaluate the Administrative Law Judge’s reasoning that the Petitioner’s November 29, 2018 request was “unreasonably broad.” How did this determination, combined with the Petitioner’s alleged failure to clarify her request, become the deciding factor in the rehearing?

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Glossary of Key Terms

Definition

Administrative Law Judge (ALJ)

The official, in this case Kay Abramsohn, who presides over hearings at the Office of Administrative Hearings and issues legal decisions and orders.

Arizona Department of Real Estate (“the Department”)

The state agency authorized by statute to receive and decide Petitions for Hearings from members of homeowners’ associations in Arizona.

A.R.S. § 33-1805

The Arizona Revised Statute governing access to homeowners’ association records. Subsection (A) requires records be made “reasonably available” within ten business days, while subsection (B) allows for withholding of privileged attorney-client communications.

Attorney-Client Privilege

A legal concept that allows for certain communications between an attorney and their client (in this case, the HOA) to be kept confidential. The HOA cited this privilege as the reason for withholding “the Letter.”

Burden of Proof

The obligation of a party in a legal proceeding to prove their allegations. In this case, the Petitioner bore the burden of proving by a preponderance of the evidence that the HOA violated statutes or community documents.

Executive Session

A private meeting of a board of directors. “The Letter” had been discussed by the HOA Board in an executive session prior to the public meeting where it was mentioned.

An acronym for Homeowners Association. In this case, the Respondent is the Civano 1 Neighborhood 1 Homeowners Association.

Office of Administrative Hearings (OAH)

The office with the legal authority to hear and decide contested cases involving disputes between homeowners and planned community associations in Arizona.

Petition

The formal, single-issue complaint filed by the Petitioner with the Department of Real Estate on December 26, 2018, which initiated the legal proceedings.

Petitioner

The party who files a petition initiating a legal action. In this case, the Petitioner is Joan A. Tober.

Preponderance of the Evidence

The standard of proof required in this proceeding. It is defined as “such proof as convinces the trier of fact that the contention is more probably true than not,” and “the greater weight of the evidence.”

Rehearing

A second hearing granted to re-examine a legal case after an initial decision has been made. A rehearing was granted in this case to address the Petitioner’s claim that the initial ruling did not consider the “timeliness aspect of the law.”

Respondent

The party against whom a petition is filed. In this case, the Respondent is the Civano 1 Neighborhood 1 Homeowners Association.

The Letter

The specific document at the heart of the dispute: a privileged legal opinion letter from the HOA’s attorneys to the Board regarding the North Ridge wall, which was “disclosed and discussed” at the November 20, 2018, Board meeting.

She Recorded Every HOA Meeting for a Decade and Still Lost. Here’s What Every Homeowner Can Learn.

Introduction: The Fight for Information

Many homeowners have felt the frustration of seeking information from their Homeowners Association (HOA), only to feel that the board is being less than transparent. It’s a common story that often ends in resignation. But for one Arizona homeowner, it ended in a formal administrative hearing.

This is the story of Joan A. Tober, a remarkably dedicated resident who filed a petition against her HOA with the Arizona Department of Real Estate over access to documents related to a retaining wall. She was a former board member, sat on the finance committee, and, most astoundingly, had personally recorded and often transcribed every single HOA meeting for over a decade. Yet, despite her exhaustive personal record-keeping, her petition was denied. The surprising and counter-intuitive lessons from her story offer a masterclass for any homeowner navigating a dispute with their association.

1. Takeaway #1: The “Attorney-Client Privilege” Shield is Stronger Than You Think.

The central conflict revolved around a single document: a letter from the HOA’s attorney. During an open board meeting, the Board President mentioned the letter, which concerned the association’s responsibility for a retaining wall, and created an expectation of transparency, stating: “I believe we can … send it out … so people can have it.”

Ms. Tober argued that by openly discussing the letter and offering to distribute it, the board had waived its confidentiality, and she was therefore entitled to a copy. It seems like a logical assumption. However, the Administrative Law Judge (ALJ) disagreed, pointing directly to the law. Under Arizona law (A.R.S. § 33-1805(B)), “privileged communication between an attorney for the association and the association” can be legally withheld from members.

The tribunal found that the mere mention of the letter in a public meeting—even with the president’s comment—did not break that legal privilege. This is a critical point for homeowners to understand. The law protects the board’s ability to seek and receive candid legal advice to govern the association effectively. While it may feel like a lack of transparency, this shield is a fundamental and legally protected aspect of HOA operations.

2. Takeaway #2: Asking for “Everything” Can Get You Nothing.

Beyond the privileged letter, the evolution and wording of Ms. Tober’s request became a major factor in the denial of her petition. The timeline shows how a homeowner’s frustration can lead to a fatal strategic error. On November 26 and 27, 2018, she made two specific requests for the attorney’s letter. The HOA responded that it was seeking clarification from its attorney.

After this delay, Ms. Tober’s third request, dated November 29, escalated significantly. She now asked for: “any and all documentation to include the letter that was disclosed and discussed… and all background information.”

In response, the HOA asked for clarification, but according to the hearing record, Ms. Tober could not provide evidence that she ever replied to narrow her request. This failure proved fatal. The Administrative Law Judge found the request to be “unreasonably broad.” The judge’s decision on the matter was blunt and serves as a powerful warning:

An association is not required to guess what records are being requested.

The ultimate reason for the denial synthesized both issues: “Petitioner failed to respond to the HOA request for clarification of her unreasonably broad request, preventing the HOA from being able to reasonably make records available.” This demonstrates that the legal burden falls squarely on the homeowner to articulate a request the association can reasonably fulfill. As the ALJ noted, an association is not required to be a mind reader.

3. Takeaway #3: Diligence Alone Doesn’t Guarantee a Win.

What makes this story so compelling is the extraordinary diligence of the petitioner. Joan Tober was not a casual observer. The hearing records establish her deep involvement in the community: she was a former Board member, a member of the Finance Committee, and had even worked for the company that originally developed the community.

But one fact, noted in the ALJ’s decision, highlights her stunning level of dedication:

Since 2008, Petitioner has taped every meeting and she often creates a transcript of the meetings.

Despite this decade of meticulous personal record-keeping and her clear passion for the issue, her petition was denied—not just once, but twice, on the initial hearing and again on the rehearing. This presents a sobering reality for all homeowners. While passion, engagement, and even a mountain of personal documentation are valuable, they cannot overcome fundamental legal principles. The outcome of a formal hearing is determined by the strength of the legal argument, not the volume of personal effort expended.

Conclusion: Strategy Over Sheer Effort

The petition of Joan A. Tober is a powerful reminder that when dealing with an HOA, effectiveness is not always measured by effort. Her story provides three critical takeaways for every homeowner: attorney-client privilege provides HOAs with a strong legal shield, record requests must be specific and targeted to be enforceable, and meticulous personal diligence must be paired with a sound legal strategy to succeed in a formal dispute.

This case leaves every homeowner with a critical question: when you have a dispute, are you channeling your energy into the most effective strategy, or simply into the most effort?

Case Participants

Petitioner Side

  • Joan A. Tober (petitioner)
    Former Board member; current Finance Committee member

Respondent Side

  • Diana J. Elston (HOA attorney)
    Jones, Skelton & Hochuli, P.L.C.
  • Mr. Mastrosimone (Board President)
    Civano 1 Neighborhood 1 Homeowners Association
    Testified at rehearing

Neutral Parties

  • Kay A. Abramsohn (ALJ)
  • Judy Lowe (Commissioner)
    Arizona Department of Real Estate
  • c. serrano (Clerk)
  • Felicia Del Sol (Clerk)
  • LDettorre (ADRE staff)
    Arizona Department of Real Estate
    Addressed in transmittal
  • AHansen (ADRE staff)
    Arizona Department of Real Estate
    Addressed in transmittal
  • djones (ADRE staff)
    Arizona Department of Real Estate
    Addressed in transmittal
  • DGardner (ADRE staff)
    Arizona Department of Real Estate
    Addressed in transmittal
  • ncano (ADRE staff)
    Arizona Department of Real Estate
    Addressed in transmittal

Brown, William vs. Terravita Community Association, Inc.

Case Summary

Case ID 12F-H1212014-BFS
Agency Department of Fire, Building and Life Safety
Tribunal OAH
Decision Date 2012-10-04
Administrative Law Judge Brian Brendan Tully
Outcome The Administrative Law Judge granted the Respondent's Motion for Summary Judgment for Mootness. The ALJ concluded the Petitioner was not entitled to view the requested records because they were either non-existent, privileged attorney-client communications, or confidential executive session minutes.
Filing Fees Refunded $500.00
Civil Penalties $0.00

Parties & Counsel

Petitioner William M. Brown Counsel
Respondent Terravita Community Association, Inc. Counsel Curtis S. Ekmark, Esq.; Jason F. Wood, Esq.

Alleged Violations

A.R.S. § 33-1805(A)

Outcome Summary

The Administrative Law Judge granted the Respondent's Motion for Summary Judgment for Mootness. The ALJ concluded the Petitioner was not entitled to view the requested records because they were either non-existent, privileged attorney-client communications, or confidential executive session minutes.

Why this result: The requested records were legally protected from disclosure by attorney-client privilege and statutes governing executive session confidentiality.

Key Issues & Findings

Failure to provide requested records (engagement letter and executive session minutes)

Petitioner requested an engagement letter between the Association and its counsel, and minutes from two executive session meetings. Respondent argued the engagement letter did not exist or was privileged, and executive session minutes are protected from disclosure.

Orders: Respondent's Motion for Summary Judgment for Mootness granted.

Filing fee: $500.00, Fee refunded: No

Disposition: respondent_win

Cited:

  • A.R.S. § 33-1805(A)
  • A.R.S. § 33-1805(B)
  • A.R.S. § 33-1804(A)
  • A.R.S. § 33-1805(B)(3)

Video Overview

Audio Overview

Decision Documents

12F-H1212014-BFS Decision – 309140.pdf

Uploaded 2026-04-24T10:42:55 (89.1 KB)

12F-H1212014-BFS Decision – 313671.pdf

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12F-H1212014-BFS Decision – 309140.pdf

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Administrative Law Judge Decision and Certification: William M. Brown v. Terravita Community Association, Inc.

Executive Summary

On October 4, 2012, Administrative Law Judge (ALJ) Brian Brendan Tully issued a decision in the matter of William M. Brown v. Terravita Community Association, Inc. (No. 12F-H1212014-BFS). The Petitioner, William M. Brown, alleged that the Respondent, Terravita Community Association, Inc., violated A.R.S. § 33-1805(A) by failing to provide specific records requested on May 25, 2012.

The ALJ granted the Respondent’s Motion for Summary Judgment for Mootness, concluding that the Petitioner was not legally entitled to the records requested—specifically legal engagement letters and executive session meeting minutes—regardless of their existence. This decision was officially certified as the final administrative action on November 13, 2012, after the Department of Fire, Building and Life Safety declined to modify or reject the ruling.


Detailed Analysis of Key Themes

1. Limits of Homeowner Records Requests (A.R.S. § 33-1805)

The primary conflict centered on the interpretation of A.R.S. § 33-1805, which governs the production of association records to members. The Petitioner argued that the association failed to fulfill a request for professional service contracts and executive session minutes. The Respondent successfully argued that these specific categories of documents are protected from disclosure under the "plain language" of the statute.

2. Attorney-Client Privilege and Professional Service Contracts

The Petitioner requested the engagement letter and fee schedule between the Association and its legal counsel, Ekmark & Ekmark, L.L.C. The ruling established two defensive pillars for the Association:

  • Non-Existence: The Respondent stated no such engagement letter existed.
  • Legal Privilege: The ALJ ruled that even if such a document existed, it would be protected by attorney-client privilege under A.R.S. § 33-1805(B). Disclosure to a third party (the Petitioner) would require an express waiver of privilege by the Association.
3. Confidentiality of Executive Session Minutes

The Petitioner sought minutes from executive session meetings held on March 27, 2012, and April 24, 2012. The ALJ's analysis focused on the distinction between open meetings and executive sessions:

  • A.R.S. § 33-1804(A): Establishes that executive sessions are not open to the public or non-Board members.
  • A.R.S. § 33-1805(B)(3): Explicitly protects executive session minutes from being treated as public records available to members.

The ALJ noted that since the Petitioner would have been legally excluded from the meeting itself, he remains excluded from the minutes documenting those meetings.

4. Procedural Finality and Agency Oversight

The case highlights the procedural path of administrative hearings in Arizona:

  • The Office of Administrative Hearings (OAH) conducts the evidentiary review.
  • The resulting ALJ decision is transmitted to the relevant department (in this case, the Department of Fire, Building and Life Safety).
  • The Department has a statutory window to accept, reject, or modify the decision. If no action is taken within the timeframe (by November 8, 2012, in this matter), the ALJ’s decision becomes the final agency action by default.

Important Quotes and Context

Quote Context
"Petitioner is not entitled to receive or view the requested records, whether they exist or not." The ALJ’s ultimate conclusion, clarifying that the legal nature of the documents (privileged/confidential) supersedes the question of their physical existence.
"Even if an engagement letter did exist, the engagement letter would be protected by attorney/client privilege that could not be disclosed to any third party…" Legal justification regarding the protection of records related to legal services under A.R.S. § 33-1805(B).
"The minutes of Respondent’s Board’s executive session meeting… are not public minutes available to Petitioner or any other non-Board member, pursuant to A.R.S. § 33-1805(B)(3)." Interpretation of the law regarding the confidentiality of board executive sessions.
"Respondent’s understanding [of] the ‘plain language’ of A.R.S. § 33-1805(B)(3) is as mistaken as Respondent’s affirmation [of compliance]." The Petitioner's argument against the Association, which the ALJ ultimately rejected due to a lack of legal authority provided by the Petitioner.

Actionable Insights

For Community Associations
  • Statutory Protections: Associations can rely on A.R.S. § 33-1805(B) to protect sensitive documents, such as legal fee schedules and executive session minutes, from general member requests.
  • Documentation Existence: If a requested record does not exist, the Association should explicitly state this in its response, which can serve as grounds for a motion of mootness.
  • Privilege Maintenance: Associations should be cautious not to waive attorney-client privilege, as doing so could potentially open those records to member inspection.
For Petitioners/Homeowners
  • Legal Authority Requirement: Merely filing a petition is insufficient; the Petitioner must provide specific legal authority to support the right to view restricted documents. In this case, the Petitioner's failure to provide legal authority was noted by the ALJ.
  • Understanding Statutory Limits: Homeowners should recognize that the right to examine association records is not absolute and does not extend to executive sessions or privileged legal communications.
Procedural Rights
  • Rehearing and Appeals: Once a decision is certified as final, parties have the right to request a rehearing from the Department (A.R.S. § 41-1092.09(A)) or appeal to the Superior Court (A.R.S. § 41-1092.08(H)). These actions must be taken in a "timely manner" to avoid the loss of rights.

Legal Analysis and Study Guide: Brown v. Terravita Community Association, Inc.

This study guide provides a comprehensive overview of the administrative law case William M. Brown v. Terravita Community Association, Inc. (No. 12F-H1212014-BFS). It explores the legal standards governing records requests within community associations, the protections afforded to privileged legal documents, and the confidentiality of executive board sessions under Arizona law.


Case Overview and Key Entities

Entity Role
William M. Brown Petitioner; the individual requesting association records.
Terravita Community Association, Inc. Respondent; the community association denying the records request.
Ekmark & Ekmark, L.L.C. The law firm representing the Respondent.
Office of Administrative Hearings (OAH) The independent agency that conducted the evidentiary review.
Department of Fire, Building and Life Safety The state department overseeing the petition and final agency action.

Core Legal Concepts

1. Records Requests and Statutory Exemptions

Under A.R.S. § 33-1805(A), members of a community association generally have the right to request and examine association records. However, this right is not absolute. A.R.S. § 33-1805(B) outlines specific categories of information that are protected from disclosure.

  • Attorney-Client Privilege: Legal service agreements, engagement letters, and fee schedules are protected by attorney-client privilege. Unless the association explicitly waives this privilege, these documents cannot be disclosed to third parties.
  • Executive Session Records: Minutes from board meetings held in executive session are explicitly protected under A.R.S. § 33-1805(B)(3).
2. Executive Sessions

Pursuant to A.R.S. § 33-1804(A), a Board of Directors may hold executive sessions that are not open to the public or non-Board members. Because the meetings themselves are closed to maintain confidentiality, the minutes resulting from those meetings are not considered public documents and are not available for examination by non-Board members.

3. Summary Judgment for Mootness

A motion for summary judgment for mootness may be granted if the issues in the petition no longer require an evidentiary hearing. In this case, the Administrative Law Judge (ALJ) determined that even if the requested records existed, the Petitioner had no legal right to view them, rendering a hearing unnecessary.

4. Final Agency Action

An ALJ decision is transmitted to the relevant Department (in this case, the Department of Fire, Building and Life Safety). If the Department does not accept, reject, or modify the decision within a specific timeframe (governed by A.R.S. § 41-1092.08), the ALJ’s decision is certified as the final administrative decision.


Short-Answer Practice Questions

1. What two specific categories of records did William M. Brown request from the Terravita Community Association?

Answer: 1) Engagement letters, retainer agreements, or professional service contracts between the association and the law firm Ekmark & Ekmark, L.L.C. 2) Minutes from the board of directors' executive session meetings held on March 27, 2012, and April 24, 2012.

2. On what grounds did the Respondent claim the March 27, 2012, executive session minutes were protected?

Answer: The Respondent argued they were protected under the plain language of A.R.S. § 33-1805(B)(3), which shields executive session minutes from disclosure.

3. Why was the request for the April 24, 2012, minutes denied regardless of the law?

Answer: The Respondent contended that no executive session meeting actually took place on that date, meaning the records did not exist.

4. According to the ALJ, what is required for a third party to view an engagement letter between an association and its counsel?

Answer: The association must explicitly waive its attorney/client privilege.

5. What happened when the Department of Fire, Building and Life Safety failed to act on the ALJ's decision by November 8, 2012?

Answer: Pursuant to A.R.S. § 41-1092.08(D), the ALJ's decision was certified as the final administrative decision of the Department.

6. What are the two primary avenues for a party to challenge a final administrative decision?

Answer: A party may request a rehearing from the Department (A.R.S. § 41-1092.09(A)) or appeal the matter to the Superior Court (A.R.S. § 41-1092.08(H)).


Essay Prompts for Deeper Exploration

  1. Transparency vs. Confidentiality in HOAs: Analyze the tension between a member's right to access association records under A.R.S. § 33-1805(A) and the association’s right to maintain privileged communications under A.R.S. § 33-1805(B). Is the balance struck by the statutes appropriate for maintaining community trust?
  2. The Role of the Administrative Law Judge: Discuss the ALJ's rationale for granting the Motion for Summary Judgment for Mootness. Evaluate whether the determination that "Petitioner is not entitled to receive or view the requested records, whether they exist or not" is an efficient use of judicial resources or an obstacle to discovery.
  3. The Certification Process: Explain the procedural journey of an administrative decision from the Office of Administrative Hearings to "final agency action." Focus on the significance of statutory deadlines and the implications of departmental inaction.

Glossary of Important Terms

  • A.R.S. (Arizona Revised Statutes): The codified laws of the state of Arizona.
  • Administrative Law Judge (ALJ): An official who presides over an administrative hearing and issues a decision based on evidence and law.
  • Attorney-Client Privilege: A legal principle that keeps communications between an attorney and their client confidential and protected from disclosure to third parties.
  • Certification: The process by which an ALJ decision becomes a final, binding administrative order, often due to the passage of time without departmental intervention.
  • Executive Session: A portion of a board meeting that is closed to the general membership, typically used to discuss legal advice, personnel matters, or sensitive litigation.
  • Mootness: A legal status where a matter no longer presents a justiciable controversy, often because the legal relief sought would have no practical effect.
  • Petitioner: The party who initiates a legal action or petition (in this case, William M. Brown).
  • Respondent: The party against whom a legal action or petition is filed (in this case, Terravita Community Association, Inc.).
  • Summary Judgment: A legal determination made by a judge without a full trial or evidentiary hearing, usually because there are no disputed material facts or the law clearly favors one side.

Understanding HOA Record Disclosure: Lessons from the Terravita Case

1. Introduction: The Tension Between Transparency and Privacy

In the realm of Homeowners Association (HOA) governance, a perennial friction exists between a member’s desire for transparency and a Board’s fiduciary duty to protect sensitive information. While Arizona law establishes a broad right for members to examine association records, that right is not unlimited. Navigating these boundaries requires a precise understanding of the statutory exemptions that shield certain documents from disclosure.

The case of William M. Brown vs. Terravita Community Association, Inc. (Case No. 12F-H1212014-BFS) serves as a definitive case study in this area of administrative law. This ruling clarifies exactly where the line is drawn under Arizona Revised Statutes, reinforcing a Board's ability to maintain confidentiality even when faced with aggressive litigation. The following analysis distills the Administrative Law Judge's (ALJ) decision to clarify which records an HOA is legally permitted—and in some cases, required—to withhold.

2. The Records Request: What Started the Dispute?

The dispute originated from a records request submitted by the Petitioner, William M. Brown, on May 25, 2012. Mr. Brown sought to examine and obtain copies of specific association documents, citing his rights under A.R.S. § 33-1805(A).

The request specifically targeted:

  • Legal Engagement Documentation: The engagement letter, retainer agreement, or professional services contract (including the current fee schedule) between Terravita Community Association, Inc. and the law firm Ekmark & Ekmark, L.L.C.
  • Executive Session Records: Minutes from the Board of Directors' executive session meetings held on March 27, 2012, and April 24, 2012.

When the Association declined to produce these records, the Petitioner filed a grievance alleging a violation of the statutory duty to provide records for examination. Practice Pointer: A critical failure in the Petitioner’s strategy, as noted by the ALJ, was the failure to provide any specific legal authority that would override the statutory protections granted to these specific categories of documents.

3. The Legal Shield: Protecting Attorney-Client Privilege

Regarding the request for legal service agreements and fee schedules, the ALJ upheld a "dual-layered defense" presented by the Association. This defense provides a robust framework for Boards facing similar demands:

  1. Factual Non-existence: The Association asserted that a specific engagement letter as described did not exist.
  2. Statutory Protection: More importantly, the ALJ ruled that even if such a document existed, it would be protected under A.R.S. § 33-1805(B).

In HOA governance, attorney-client privilege is not limited merely to emails or advice; it extends to the very foundation of the legal relationship. The ALJ's decision reinforces that the financial terms, fee schedules, and professional services contracts between an Association and its counsel are privileged. These documents are shielded from disclosure to third parties—including homeowners—unless the Board voluntarily chooses to waive that privilege.

4. Behind Closed Doors: Why Executive Session Minutes are Private

The Petitioner’s demand for executive session minutes was denied based on the fundamental distinction between open meetings and confidential Board business. The ALJ emphasized that because non-Board members are legally excluded from attending executive sessions under A.R.S. § 33-1804(A), they have no derivative right to the records of those sessions.

The following table summarizes the statutory framework that separates general membership rights from executive confidentiality:

Access to Meetings vs. Access to Minutes

Category Statutory Rule (A.R.S. §) Legal Standing for Non-Board Members Consultant’s Note
Executive Session Meetings 33-1804(A) Explicitly excluded; no right to attend. Confidentiality of the meeting is the primary shield.
Executive Session Minutes 33-1805(B)(3) Explicitly excluded from records "open to examination." Statutory protection applies regardless of whether the meeting date is disputed.

This ruling reinforces that the "open to examination" requirement of A.R.S. § 33-1805(A) is strictly qualified by subsection (B)(3), which keeps executive minutes confidential to protect the Board's ability to discuss sensitive legal, health, or personal matters.

5. The Final Verdict: Summary Judgment and Certification

The Association moved for Summary Judgment for Mootness, a motion the ALJ granted in full. The core of this "mootness" ruling is a powerful legal principle: The Threshold of Statutory Entitlement.

The ALJ determined that because the Petitioner was not legally entitled to the records under Arizona law, any factual dispute over whether the documents existed (such as the disputed April 24 meeting minutes) was irrelevant. Consequently, the evidentiary hearing was vacated because there were no triable issues of fact that could change the legal outcome.

The Procedural Timeline:

  • October 4, 2012: The ALJ signed the initial decision granting Summary Judgment.
  • November 8, 2012: The statutory deadline by which the Department of Fire, Building and Life Safety was required to accept, reject, or modify the ALJ decision. The Department took no action.
  • November 13, 2012: Having received no modification from the Department by the Nov. 8 deadline, Cliff J. Vanell, Director of the Office of Administrative Hearings, officially certified the decision as the final administrative action.
6. Conclusion: Key Takeaways for Homeowners and Boards

The Terravita case offers a roadmap for community associations navigating the complexities of A.R.S. § 33-1804 and § 33-1805. The following takeaways are essential for maintaining proper governance:

  1. Privilege Includes Financial Terms: Legal service agreements and current fee schedules are protected by attorney-client privilege. Boards are not required to disclose the financial nuances of their legal counsel's contracts to the membership.
  2. Statutory Exclusion is Absolute: A.R.S. § 33-1805(B)(3) is an explicit carve-out. Executive session minutes are not "association records" for the purposes of member examination.
  3. Existence is Secondary to Entitlement: If a homeowner does not have a legal right to a document, the Association is not required to prove its existence or non-existence in an evidentiary hearing. The law protects the record regardless of its status.

Understanding these statutory protections allows Boards to operate with the necessary confidentiality while ensuring homeowners have realistic expectations regarding their rights to transparency.

Case Participants

Petitioner Side

  • William M. Brown (petitioner)

Respondent Side

  • Curtis S. Ekmark (attorney)
    Ekmark & Ekmark L.L.C.
  • Jason F. Wood (attorney)
    Ekmark & Ekmark L.L.C.

Neutral Parties

  • Brian Brendan Tully (ALJ)
    Office of Administrative Hearings
  • Gene Palma (Agency Director)
    Department of Fire, Building and Life Safety
  • Cliff J. Vanell (OAH Director)
    Office of Administrative Hearings
    Signed Certification of Decision
  • Holly Textor (agency staff)
    Department of Fire, Building and Life Safety
    Listed as c/o for Gene Palma