ATTORNEYS FOR PETITIONER: ATTORNEY FOR RESPONDENT:

MARILYN S. MEIGHEN PAUL M. JONES, JR.

ATTORNEY AT LAW PAUL JONES LAW, LLC

Carmel, IN Indianapolis, IN

BRIAN A. CUSIMANO

ATTORNEY AT LAW

Indianapolis, IN 

_____________________________________________________________________

IN THE

INDIANA TAX COURT

_____________________________________________________________________

HOWARD COUNTY ASSESSOR, )

)

Petitioner, )

)

v. ) Cause No. 49T10-1502-TA-00004 

)

KOHL’S INDIANA LP, )

)

Respondent. )

______________________________________________________________________

ON APPEAL FROM A FINAL DETERMINATION OF 

THE INDIANA BOARD OF TAX REVIEW

FOR PUBLICATION

September 7, 2016

WENTWORTH, J. 

On December 31, 2014, the Indiana Board of Tax Review issued a final 

determination valuing the Kohl’s store in Kokomo, Indiana for purposes of the 2010, 

2011, and 2012 assessments. The Howard County Assessor has challenged that final 

determination, but the Court affirms. 

RELEVANT FACTS AND PROCEDURAL HISTORY

Kohl’s Indiana LP owns and occupies an 88,242 square foot retail store on 10.65 
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acres of land at the Boulevard Crossing shopping center in Kokomo, Indiana (the 

subject property). Kohl’s constructed the subject property in 2003. 

For the 2010, 2011, and 2012 assessments, the Assessor valued the subject 

property at $5,984,000, $5,685,300, and $5,906,300 respectively. Believing those 

values to be too high, Kohl’s filed appeals with the Howard County Property Tax 

Assessment Board of Appeals (PTABOA). The PTABOA affirmed the assessments and 

Kohl’s subsequently filed appeals with the Indiana Board. After consolidating the three 

appeals, the Indiana Board conducted an administrative hearing on the matter in 

January of 2014. 

During the hearing, both Kohl’s and the Assessor presented, among other things, 

Summary Appraisal Reports, completed by certified appraisers in conformance with the 

Uniform Standards of Professional Appraisal Practice (USPAP), that valued the subject 

property for each of the assessment years at issue. The Kohl’s appraisal, which 

employed the sales comparison, the income, and the cost approaches to value, 

estimated the subject property’s market value-in-use to be $3,690,000 for the 2010 

assessment; $3,820,000 for the 2011 assessment; and $3,680,000 for the 2012
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assessment.1 The Assessor’s appraisal, on the other hand, employed the sales 

comparison and the cost approaches to value and estimated the subject property’s 

market value-in-use to be $4,920,000 for the 2010 assessment, $4,770,000 for the 2011 

assessment, and $4,810,000 for the 2012 assessment. 

 On December 31, 2014, the Indiana Board issued a final determination in the 

matter, stating that the two parties “fundamentally disagreed” about how the subject 

property should be appraised due to their differing interpretations of Indiana’s market 

value-in-use standard. (See Cert. Admin. R. at 55 ¶ 1.) Their disagreement, the 

Indiana Board explained, was demonstrated through their selection of different 

comparable properties used in each of their appraisals. For instance, in valuing the 

subject property, the Kohl’s appraisal relied on data from the fee simple sales of nine 

midwestern “big box” retail stores.

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 (See Cert. Admin. R. at 63 ¶¶ 24, 26.) The 

appraiser for Kohl’s believed these properties were appropriate comparables to use in 

 

1 Three generally accepted appraisal techniques may be used to calculate a property’s market 

value-in-use: 

The first approach, known as the cost approach, estimates the value of the land as 

if vacant and then adds the depreciated cost new of the improvements to arrive at 

a total estimate of value. The second approach, known as the sales comparison 

approach, estimates the total value of the property directly by comparing it to 

similar, or comparable, properties that have sold in the market. The third 

approach, known as the income approach, is used for income producing properties 

that are typically rented. It converts an estimate of income, or rent, the property is 

expected to produce into value through a mathematical process known as 

capitalization.

2002 REAL PROPERTY ASSESSMENT MANUAL (2004 Reprint) (“2002 Manual”) (incorporated by 

reference at 50 IND. ADMIN. CODE 2.3-1-2 (2002 Supp.)) at 3 (emphases omitted); 2011 REAL 

PROPERTY ASSESSMENT MANUAL (“2011 Manual”) (incorporated by reference at 50 IND. ADMIN.

CODE 2.4-1-2 (2011) (see http://www.in.gov/legislative/iac/)) at 2 (emphases omitted).

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“A ‘big box property’ is any free standing building in excess of 50,000 square feet with minimal 

interior divisions that is used for retail purposes.” Meijer Stores Ltd. P’ship v. Smith, 926 N.E.2d 

1134, 1137 n.6 (Ind. Tax Ct. 2010). 
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valuing the subject property because: 1) they were vacant at the time of the sale and 

thus their sales prices reflected the value of the real property alone (as opposed to 

intangible values, such as tenant quality, that are often included in the sale of leased 

fees); 2) they all sold for a continued retail use; and 3) similar big box properties were 

regularly sold in the market. (See Cert. Admin. R. at 63-64 ¶¶ 24-28, 75 ¶ 67.) 

In contrast, the Indiana Board noted that the Assessor’s appraiser believed that 

the use of the “dark boxes” by Kohl’s was not appropriate to value the subject property 

for the following reasons: 1) dark boxes do not have any utility to either the original 

owner or another owner/user “in the same retail tier” and 2) the subject property was a 

special purpose property because Kohl’s built it to its own specifications. (See, e.g., 

Cert. Admin. R. at 70-71 ¶¶ 50, 53, 73 ¶ 59, 82-83 ¶¶ 89, 92-93.) Accordingly, by using 

the dark boxes as comparables, the Assessor’s appraiser claimed that Kohl’s had 

determined the subject property’s market value rather than its market value-in-use.3 

(See Cert. Admin. R. at 82 ¶ 89, 88-89 ¶ 110.) The Assessor’s appraisal relied instead 

on data from sales of big boxes with leases to either Kohl’s or another “first generation” 

user that were in place at the time of the sale (i.e., leased fee sales). (See, e.g., Cert. 

Admin. R. at 82 ¶ 89, 84 ¶ 95, 87-89 ¶¶ 107, 110 (contending that because the subject 

property is an operating Kohl’s store, the value of its utility could best be determined in 

relation to other operating Kohl’s stores).) 

After weighing the competing appraisals, the Indiana Board found the one 

submitted by Kohl’s more probative than the one submitted by the Assessor because it 

 

3 For instance, the Assessor asserted that a retailer that purchases a dark box – i.e., a 

secondary or “second-generation” user – needs to invest a significant amount of money beyond 

the purchase price to adapt the building to its own business model and thus create utility. (See

Cert. Admin. R. at 73-74 ¶ 60, 82-83 ¶ 91, 87-88 ¶ 107.) 
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better reflected the meaning of market value-in-use as stated in Indiana’s assessment 

manual and as consistently interpreted in Tax Court jurisprudence. (See Cert. Admin. 

R. at 55-56 ¶ 1, 91-92 ¶¶ 117-19, 107 ¶ 160.) Indeed, the Indiana Board explained that 

pursuant to Tax Court case law, “where a non-special purpose property is put to its 

highest and best use and is of a type that regularly exchanges for the same general

use, the property’s [market value-in-use] will equal its market value.” (Cert. Admin. R. at 

94 ¶ 124 (citing Meijer Stores Ltd. P’ship v. Smith, 926 N.E.2d 1134 (Ind. Tax Ct. 2010);

Stinson v. Trimas Fasteners, Inc., 923 N.E.2d 496 (Ind. Tax Ct. 2010); Millennium Real 

Estate Inv., LLC v. Assessor, Benton Cnty., 979 N.E.2d 192 (Ind. Tax Ct. 2012), review 

denied).) After reviewing the evidence presented, the Indiana Board found that 

because the Assessor 1) acknowledged that properties like the subject property 

frequently trade in the market for a general retail use, 2) indicated that the subject 

property’s current use was its highest and best use, and 3) failed to demonstrate that 

the subject property was in fact a special purpose property, the Kohl’s appraisal better

reflected the subject property’s market value-in-use. (See Cert. Admin. R. at 83 ¶ 93, 

94-97 ¶¶ 124, 126-31.) (See also Cert. Admin. R. at 97 ¶ 132 (explaining that the 

Assessor’s appraisal measured the value of a property that was better than, and not 

similar to, the subject property because it included the costs to adapt the dark box to 

meet the specific business model of Kohl’s).) Accordingly, the Indiana Board reduced 

the subject property’s 2010 assessment to $3,690,000; the 2011 assessment to 

$3,820,000; and 2012 assessment to $3,680,000. 

The Assessor initiated this original tax appeal on February 13, 2015. The Court 

heard the parties’ oral arguments on January 15, 2016. Additional facts will be supplied
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as necessary. 

STANDARD OF REVIEW

The party seeking to overturn an Indiana Board final determination bears the 

burden of demonstrating its invalidity. Osolo Twp. Assessor v. Elkhart Maple Lane 

Assocs., 789 N.E.2d 109, 111 (Ind. Tax Ct. 2003). Accordingly, the Assessor must 

demonstrate to the Court that the Indiana Board’s final determination in this matter is 

arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law;

contrary to constitutional right, power, privilege, or immunity; in excess of or short of 

statutory jurisdiction, authority, or limitations; without observance of procedure required 

by law; or unsupported by substantial or reliable evidence. See IND. CODE § 33-26-6-

6(e)(1)-(5) (2016).

LAW

Indiana’s Constitution does not require a system of property assessment and 

taxation based exclusively on market value. Boehm v. Town of St. John, 675 N.E.2d 

318, 328 (Ind. 1996). And, while the Legislature has provided that Indiana assesses

and taxes property on the basis of its “true tax value” and that “true tax value does not 

mean fair market value[,]” it has left it to the Department of Local Government Finance 

(DLGF) to determine what “true tax value” should mean. See IND. CODE § 6-1.1-31-6(c) 

(2016). 

The DLGF has promulgated regulations stating that a property’s true tax value is 

its “market value-in-use.” 2002 REAL PROPERTY ASSESSMENT MANUAL (2004 Reprint) 

(“2002 Manual”) (incorporated by reference at 50 IND. ADMIN. CODE 2.3-1-2 (2002 

Supp.)) at 2; 2011 REAL PROPERTY ASSESSMENT MANUAL (“2011 Manual”) (incorporated 
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by reference at 50 IND. ADMIN. CODE 2.4-1-2 (2011) (see 

http://www.in.gov/legislative/iac/)) at 2. Market value-in-use, in turn, is defined as the 

value “of a property for its current use, as reflected by the utility received by the owner 

or a similar user, from the property.” 2002 Manual at 2. Accord 2011 Manual at 2. 

Because Indiana’s property tax system taxes the value of real property – and not 

business value, investment value, or the value of contractual rights – this Court has 

explained that “market value-in-use, as determined by objectively verifiable market data, 

is the value of a property for its use, not the value of its use.” Trimas Fasteners, 923 

N.E.2d at 501 (citation omitted). See also IND. CODE § 6-1.1-1-15 (2016) (stating what

constitutes “real property” for purposes of assessment).

Most of the time, a property’s market value-in-use will be equivalent to its market 

value; nonetheless, there are certain instances where a property’s market value-in-use 

will not be equal to its market value.4 See 2002 Manual at 2-4; 2011 Manual at 2. More 

specifically, “when a property’s current use is consistent with its highest and best use[] 

and there are regular exchanges within its market so that ask and offer prices converge, 

a property’s market value-in-use will equal its market value because the sales price fully 

captures the property’s utility.” Millennium, 979 N.E.2d at 196 (citing 2002 Manual at 2). 

See also 2011 Manual at 2. “[W]hen[, however,] a property’s current use is inconsistent 

 

4 For purposes of assessment, Indiana defines “market value” as

The most probable price (in terms of money) which a property should bring in a 

competitive and open market under all conditions requisite to a fair sale, the 

buyer and seller each acting prudently and knowledgeably, and assuming the 

price is not affected by undue stimulus. Implicit in this definition is the 

consummation of a sale as of a specified date and the passing of title from seller 

to buyer under [certain] conditions[.]

2002 Manual at 10. See also 2011 Manual at 5-6.
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with its highest and best use, then market value-in-use will not equal market value 

because the sales price will not reflect the property’s utility.” Millennium, 979 N.E.2d at 

196 (citing 2002 Manual at 2). See also 2011 Manual at 2. The DLGF has explained 

that the latter occurs with respect to 1) properties “where owners are motivated by nonmarket factors such as the maintenance of a farming lifestyle even in the face of a 

higher use value for some other purpose” or 2) special purpose properties.

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 2002 

Manual at 2-4; 2011 Manual at 2.

In reviewing evidence relating to the price at which a buyer would purchase real 

property in order to continue its current use, the Court has frequently been called upon 

to decide what properties, under the market value-in-use standard, are appropriate 

comparables for purposes of valuing a particular parcel of property. In answering that 

call, the Court has repeatedly interpreted the meaning of “current use” broadly, rejecting 

the contention that with respect to commercial and industrial properties, properties that 

have been sold to “secondary users” cannot be considered comparable. See, e.g.,

Marion Cnty. Assessor v. Washington Square Mall, LLC, 46 N.E.3d 1, 9-10 (Ind. Tax Ct. 

2015) (explaining that for purposes of market value-in-use, a regional mall and a 

discount mall are similar uses); Shelby Cnty. Assessor v. CVS Pharmacy, Inc. # 6637-

02, 994 N.E.2d 350, 354 (Ind. Tax Ct. 2013) (observing that it was proper to measure a 

 

5 A special-purpose property is “[a] limited-market property with unique physical design, special 

construction materials, or a layout that restricts its utility to the use for which it was built.” 2002

REAL PROPERTY ASSESSMENT GUIDELINES FOR 2002 – VERSION A (2004 Reprint) (“2002 

Guidelines”) (incorporated by reference at 50 I.A.C. 2.3-1-2), Bk. 2, App. F at 17 (emphasis 

omitted). See also 2002 Manual at 4 (defining a special use/purpose property as one that is “so 

uniquely designed and adapted for the business conducted upon it or the use made of it and 

which cannot be converted to other uses without the expenditure of significant sums of money”). 

Examples of special purpose properties are steel mills, theaters, auditoriums, and churches. 

2002 Guidelines, Bk. 2, Glossary at 19; 2011 REAL PROPERTY ASSESSMENT GUIDELINES

(incorporated by reference at 50 I.A.C. 2.4-1-2), Glossary at 21.
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CVS store’s market value-in-use in relation to participants within the commercial/retail 

market generally, and not solely against other CVS stores); Grant Cnty. Assessor v. 

Kerasotes Showplace Theatres, LLC, 955 N.E.2d 876, 881 n.10 (Ind. Tax Ct. 2011)

(rejecting the claim that in relying on an appraisal that did not use theatre properties that 

sold in sale-leaseback transactions as comparable properties, the Indiana Board 

adopted “a value ‘more representative of a market value for a second generation user, 

not a value[-in-]use’” (citation omitted)); Meijer, 926 N.E.2d at 1137 (explaining that 

pursuant to the sales comparison approach, the market value-in-use of a retail property 

should be measured against properties with a comparable use as opposed to properties 

with identical users). Likewise, the Court has also disavowed the contention that vacant 

properties cannot be comparable to occupied properties. See Trimas Fasteners, 923 

N.E.2d at 501 (rejecting the argument that while the market value-in-use of a vacant 

building “is just the value of [its] ‘sticks and bricks,’” the market value-in-use of an 

occupied building “should be ‘over and above’ that”). 

ANALYSIS

On appeal, the Assessor asserts that the Indiana Board’s final determination 

must be reversed. In advancing that assertion, the Assessor has not argued that the 

Indiana Board erred when it determined that 1) properties like the subject property 

frequently trade in the market for a general retail use, 2) the subject property’s current 

use was its highest and best use, or 3) she had not demonstrated that the subject 

property was a special purpose property. Rather, the Assessor argues that the Indiana 

Board’s final determination must be reversed because the Meijer, Trimas Fasteners, 

and Millenium cases upon which it relied were wrongly decided. Indeed, the Assessor 
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believes that, contrary to the Tax Court’s holdings in those cases, the sales of 

properties to secondary users cannot be the type of comparables contemplated under 

Indiana’s market value-in-use standard because they simply do not provide evidence of 

utility, and thus value, for the “first generation” user.

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 (See Pet’r Br. at 7, 9-12, 14; Oral 

Arg. Tr. at 11, 23, 31, 44.) (See also Pet’r Br. at 7-8 (explaining that given this 

“conceptual” argument, “the specifics of the various appraisals and appraisal reviews 

[presented to the Indiana Board need] not [be] expanded upon”).) Accordingly, the 

Assessor invites the Court to reconsider – and abandon – its holdings in Meijer, Trimas 

Fasteners, and Millenium. (See, e.g., Oral Arg. Tr. at 4-7, 47-48.) The Court, however, 

finds no infirmities in its decisions and therefore declines the Assessor’s invitation on 

the basis of stare decisis. 

As the U.S. Supreme Court recently stated:

Overruling precedent is never a small matter. Stare decisis – in 

English, the idea that today’s [c]ourt should stand by yesterday’s 

decisions – is “a foundation stone of the rule of law.” Application of 

that doctrine, although “not an inexorable command,” is the 

“preferred course because it promotes the evenhanded, predictable, 

and consistent development of legal principles, fosters reliance on 

judicial decisions, and contributes to the actual and perceived 

integrity of the judicial process.” It also reduces incentives for 

challenging settled precedents, saving parties and courts the 

expense of endless relitigation.

Respecting stare decisis [even] means sticking to some wrong 

decisions. The doctrine rests on the idea . . . that it is usually “more 

important that the applicable rule of law be settled than it be settled 

right.” Indeed, stare decisis has consequence only to the extent it 

 

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In fact, the Assessor claimed that because the Legislature believed the holdings in Meijer, 

Trimas Fasteners, and Millenium were “repugnant” to the intended meaning of market value-inuse, it enacted Indiana Code §§ 6-1.1-4-43 and -44. (See Pet’r Br. at 11.) See also IND. CODE

§§ 6-1.1-4-43, -44 (2015) (repealed 2016). The Legislature’s repeal of those statutes less than 

a year after enacting them provides no clear indication that the Legislature intended to override 

the Court’s decisions in those cases. 

 
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sustains incorrect decisions; correct judgments have no need for that 

principle to prop them up. Accordingly, an argument that [a court] 

got something wrong – even a good argument to that effect – cannot 

by itself justify scrapping settled precedent. . . . To reverse course 

. . . “special justification”[ is required ] – over and above the belief 

“that the precedent was wrongly decided.”

Kimble v. Marvel Entm’t, LLC, 135 S.Ct. 2401, 2409 (2015) (citations omitted). On 

appeal, the Assessor has done nothing more than express her disagreement with the 

Court’s decisions in the Meijer, Trimas Fasteners, and Millenium cases. The Court, 

however, does not believe it “got it wrong” and therefore continues to stand by those 

decisions.7 

CONCLUSION

For the foregoing reasons, the Indiana Board’s final determination in this matter 

is AFFIRMED.

 

7 The attorney for the Assessor in this case made the same argument several years ago while 

representing a different assessor. See Shelby Cnty. Assessor v. CVS Pharmacy, Inc. # 6637-

02, 994 N.E.2d 350, 354 n.5 (Ind. Tax Ct. 2013) (noting that the assessor’s “real” argument on 

appeal in that case was that the holdings in Meijer and Trimas Fasteners were wrong and, that 

in holding as it did, the Court was “impermissibly attempting to convert Indiana’s market valuein-use system into a fair market value system”).) Another attorney who has represented a third 

assessor has also made the same argument. See Marion Cnty. Assessor v. Simon DeBartolo 

Group, LP, 52 N.E.3d 65, 68-69 (Ind. Tax Ct. 2016); Marion Cnty. Assessor v. Washington 

Square Mall, LLC, 46 N.E.3d 1, 9-10 (Ind. Tax Ct. 2015). The Court rejected those arguments

then as it does again today. Simon DeBartolo Group, 52 N.E.3d at 68-69; Washington Square 

Mall, 46 N.E.3d at 9-10; Shelby Cnty. Assessor, 994 N.E.2d at 354 n.5.