yee city escondido argued january decided april fifth amendment takings clause generally requires compensation government authorizes physical occupation property government merely regulates property use compensation required considerations regulation purpose extent deprives owner property economic use suggests regulation unfairly singled property owner bear burden borne public whole petitioners mobile home park owners respondent escondido california rent pads land mobile home owners homes sold new owners generally continue rent pads california mobilehome residency law bases upon park owner may terminate mobile home owner tenancy limited inter alia nonpayment rent park owner desire change use land park owner may require removal mobile home sold may neither charge transfer fee sale disapprove purchaser able pay rent state law limit rent park owner may charge escondido rent control ordinance setting mobile home rents back levels prohibiting rent increases without city council approval superior dismissed lawsuits filed petitioners others challenging ordinance rejecting argument ordinance effected physical taking depriving park owners use occupancy property granting tenants tenants successors right physically permanently occupy use property appeal affirmed held rent control ordinance authorize unwanted physical occupation petitioners property thus amount per se taking petitioners argument rent control ordinance authorizes physical taking coupled state law restrictions increases mobile home value giving homeowner right occupy pad indefinitely rent unpersuasive government effects physical taking requires landowner submit physical occupation land petitioners voluntarily rented land mobile home owners required continue either city state face laws issue merely regulate petitioners use land regulating relationship landlord tenant transfer wealth park owners incumbent mobile home owners form submarket rent convert regulation physical invasion additional contentions made petitioners ordinance benefits current mobile home owners future owners must purchase homes premiums resulting homes increased value ordinance deprives petitioners ability choose incoming tenants might bearing whether ordinance causes regulatory taking nothing whether causes physical taking moreover loretto teleprompter manhattan catv physical taking claim defeated argument landlord avoid statute restrictions ceasing rent property ability rent may conditioned forfeiting right compensation physical occupation relevance physical taking since petitioners made attempt change land used case also presents occasion consider whether statute applied prevents making change pp petitioners claim ordinance constitutes denial substantive due process properly raised addressed state courts question whether customary refusal consider claims raised addressed jurisdictional prudential rule need resolved even rule prudential adhered case pp also improperly petitioners claim ordinance constitutes regulatory taking regulatory taking claim ripe review fact raised mean properly raised since petitioners properly raised taking claim formulated argument liked support claim nonetheless claim considered rule questions set forth fairly included petition certiorari considered rule prudential disregarded reasons urgency economy suggest need address unpresented question case consideration rule provides respondent notice grounds certiorari sought thus relieving expense unnecessary litigation merits burden opposing certiorari unpresented questions also assists selecting cases certiorari granted forcing parties focus questions views particularly important rule enables use resources efficiently petitioners question presented whether lower erred finding physical taking regulatory taking claim related fairly included question thus petitioners must overcome heavy presumption consideration regulatory taking claim done claim important lower courts reached conflicting results claim physical taking claim prudence also dictates awaiting case issue fully litigated benefit developed arguments lower opinions squarely addressing question thus regulatory taking issue left california courts address first instance pp delivered opinion rehnquist white stevens scalia kennedy thomas joined blackmun post souter post filed opinions concurring judgment robert jagiello argued cause petitioners briefs robert bork carter phillips argued cause respondent brief rex lee donald lincoln linda reich david chapman jeffrey epp briefs amici curiae urging reversal filed aciton santa monica brenda powers barnes apartment association greater los angeles stephen jones california association realtors et al john mueller marguerite mary leoni laurence janik william pfeiffer florida manufactured housing association jack skelding institute real estate management national association realtors jonathan howe terrence hutton henry schaffer manufactured housing educational trusts los angeles county california et al jerrold fadem george kimball charles treat kim richards manufactured housing educational trust santa clara county robert best pacific legal foundation ronald zumbrun edward connor timothy bittle rent stabilization association new york city et al erwin griswold stephen goodman washington legal foundation et al daniel popeo paul kamenar jonathan van patten western mobilehome association michael willemsen david spangenberg briefs amici curiae urging affirmance filed city san jose et al joan gallo george rios manuela albuquerque stanley hatch glenn watson william camil lynn mcdougal scott howard david hirsch steven nord marc hynes john cook daniel hentschke gary gilling jean leonard harris david schricker michael dean james penman peter bulens john witt louise renne james botz mark sellers robert ewing angil morris james rourke thomas haas american association retired persons steven zalesnick joan wise city santa monica et al robert myers joseph lawrence martin tachiki barry rosenbaum david pettit karl manheim shane stark golden state mobilhome owners league et al fran layton joseph sax bruce stanton international management association et al richard ruda andrew schultz edward ricco charles purcell james bieg national trust historic preservation et al lloyd cutler louis cohen david johnson jerold kayden elizabeth merritt new jersey department public advocate david briefs amici curiae filed arizona mobile housing association michael parham california mobile home parkowners alliance michael berger joel hirsch escondido mobilhome owners positive action committee richard singer elvi olesen manufactured housing association new jersey christopher hanlon henry portner justice delivered opinion takings clause fifth amendment provides shall private property taken public use without compensation cases interpreting clause fall within two distinct classes government authorizes physical occupation property actually takes title takings clause generally requires compensation see loretto teleprompter manhattan catv government merely regulates use property compensation required considerations purpose regulation extent deprives owner economic use property suggest regulation unfairly singled property owner bear burden borne public whole see penn central transportation new york city first category cases requires courts apply clear rule second necessarily entails complex factual assessments purposes economic effects government actions petitioners mobile home parks escondido california contend local rent control ordinance viewed backdrop california mobilehome residency law amounts physical occupation property entitling compensation first category cases discussed term mobile home somewhat misleading mobile homes largely immobile practical matter cost moving one often significant fraction value mobile home generally placed permanently parks place every mobile homes ever moved hirsch hirsch analysis rent controls mobile home context placement values vacancy decontrol ucla mobile home owner typically rents plot land called pad owner mobile home park park owner provides private roads within park common facilities washing machines swimming pool often utilities mobile home owner often invests improvements driveway steps walkways porches landscaping mobile home owner wishes move mobile home usually sold place purchaser continues rent pad mobile home located california enacted mobilehome residency law ann et seq west supp legislature found high cost moving mobilehomes potential damage resulting therefrom requirements relating installation mobilehomes cost landscaping lot preparation necessary owners mobilehomes occupied within mobilehome parks provided unique protection actual constructive eviction afforded provisions chapter mobilehome residency law limits bases upon park owner may terminate mobile home owner tenancy include nonpayment rent mobile home owner violation law park rules park owner desire change use land rental agreement effect however park owner generally may require removal mobile home sold park owner may neither charge transfer fee sale disapprove purchaser provided purchaser ability pay rent mobilehome residency law contains number detailed provisions none limit rent park owner may charge wake mobilehome residency law various communities california adopted mobile home rent control ordinances see hirsch hirsch supra voters escondido approving proposition rent control ordinance challenged ordinance sets rents back levels prohibits rent increases without approval city council park owners may apply council rent increases time council must approve increases determines fair reasonable considering following nonexclusive list factors changes consumer price index rent charged comparable mobile home pads escondido length time since last rent increase cost capital improvements related pad pads issue changes property taxes changes rent paid park owner land changes utility charges changes operating maintenance expenses need repairs ordinary wear tear amount quality services provided affected tenant lawful existing lease ordinance app petitioners john irene yee friendly hills sunset terrace mobile home parks located city escondido months adoption escondido rent control ordinance filed suit san diego county superior according complaint rent control law effect depriving plaintiffs use occupancy real property granting tenants mobilehomes presently park well successors interest tenants right physically permanently occupy use real property plaintiff yees requested damages million dollars declaration rent control ordinance unconstitutional injunction barring ordinance enforcement opposition city demurrer yees relied almost entirely hall santa barbara cert denied held similar mobile home rent control ordinance effected physical taking loretto teleprompter manhattan catv yees candidly admitted fact hall decision used guide drafting present complaint tr points authorities opposition demurrer superior nevertheless sustained city demurrer dismissed yees complaint app pet cert yees alone eleven park owners filed similar suits city shortly afterwards dismissed stipulation cases consolidated appeal parties agreed submitted decision california appeal briefs oral argument yee case appeal affirmed opinion primarily devoted expressing disagreement reasoning hall concluded loretto way suggests escondido ordinance authorizes permanent physical occupation landlord property therefore constitutes per se taking california denied review app pet cert eight twelve park owners including yees joined petition certiorari granted certiorari resolve conflict decision two federal courts appeals hall supra pinewood estates michigan barnegat township leveling board ii petitioners claim ordinary rent control statutes regulating housing throughout country violate takings clause brief petitioners cf pennell san jose loretto supra instead argument predicated unusual economic relationship park owners mobile home owners park owners may longer set rents decide tenants result according petitioners reduction rent mobile home pad causes corresponding increase value mobile home mobile home owner owns addition mobile home right occupy pad rent value set free market cf hirsch hirsch ucla california mobilehome residency law park owner evict mobile home owner easily convert property uses argument goes mobile home owner effectively perpetual tenant park increase mobile home value thus represents right occupy pad rent indefinitely mobilehome residency law permits mobile home owner sell mobile home place mobile home owner receive premium purchaser corresponding increase value amount premium limited mobilehome residency law escondido ordinance result petitioners conclude rent control ordinance transferred discrete interest land right occupy land indefinitely submarket rent park owner mobile home owner petitioners contend transferred park owner mobile home owner less right physical occupation park owner land argument perhaps within scope regulatory taking cases squared easily cases physical takings government effects physical taking requires landowner submit physical occupation land element required acquiescence heart concept occupation fcc florida power thus whether government floods landowner property pumpelly green bay wall require landowner suffer installation cable loretto supra takings clause requires compensation government authorizes compelled physical invasion property escondido rent control ordinance even considered conjunction california mobilehome residency law authorizes thing petitioners voluntarily rented land mobile home owners least face regulatory scheme neither city state compels petitioners rented property tenants continue contrary mobilehome residency law provides park owner wishes change use land may evict tenants albeit months notice ann put bluntly government required physical invasion petitioners property petitioners tenants invited petitioners forced upon government see florida power supra right exclude doubtless petitioners assert one essential sticks bundle rights commonly characterized property kaiser aetna find right taken petitioners mere face escondido ordinance petitioners suggest statutory procedure changing use mobile home park practice kind gauntlet fact free change use land reply brief petitioners petitioners claim run gauntlet however case provides occasion consider procedure applied petitioners property accordingly confine face statute see keystone bituminous coal assn debenedictis different case presented statute face applied compel landowner objection rent property refrain perpetuity terminating tenancy see florida power supra see also nollan california coastal fresh pond shopping center callahan rehnquist dissenting face state local laws issue merely regulate petitioners use land regulating relationship landlord tenant consistently affirmed broad power regulate housing conditions general relationship particular without paying compensation economic injuries regulation entails loretto see also florida power supra statutes regulating economic relations landlords tenants per se takings landowner decides rent land tenants government may place ceilings rents landowner charge see pennell supra require landowner accept tenants like see heart atlanta motel without automatically pay compensation see also pruneyard shopping center robins forms regulation analyzed engaging essentially ad hoc factual inquiries necessary determine whether regulatory taking occurred kaiser aetna supra words justice holmes property may regulated certain extent regulation goes far recognized taking pennsylvania coal mahon petitioners emphasize ordinance transfers wealth park owners incumbent mobile home owners forms land use regulation however also said transfer wealth one regulated another ordinary rent control often transfers wealth landlords tenants reducing landlords income tenants monthly payments although cause transfer value occurs mobile homes traditional zoning regulations transfer wealth whose activities prohibited neighbors property owner barred mining coal land example value property may decline value neighbor property may rise mobile home owner ability sell mobile home premium may make wealth transfer visible ordinary case see epstein rent control theory efficient regulation brooklyn existence transfer convert regulation physical invasion petitioners also rely heavily allegation ordinance benefits incumbent mobile home owners without benefiting future mobile home owners forced purchase mobile homes premiums mobile homes like motor vehicles ordinarily decline value age effect rent control ordinance coupled restrictions park owner freedom reject new tenants increase significantly value mobile home increased value normally benefits tenant possession time rent control imposed see hirsch hirsch ucla petitioners correct citing existence premium difference alleged effect escondido ordinance ordinary apartment rent control statute apartment tenants sell anything successors often prohibited charging key money typical rent control statute transfer wealth landlord incumbent tenant future tenants contrast petitioners contend escondido ordinance transfers wealth incumbent mobile home owner effect might bearing whether ordinance causes regulatory taking may shed light whether sufficient nexus effect ordinance objectives supposed advance see nollan california coastal supra nothing whether ordinance causes physical taking whether ordinance benefits current mobile home owners mobile home owners require petitioners submit physical occupation land may said petitioners contention ordinance amounts compelled physical occupation deprives petitioners ability choose incoming tenants effect may relevant regulatory taking argument may one factor reviewing wish consider determining whether ordinance unjustly imposes burden petitioners compensated government rather remain ing disproportionately concentrated persons penn central transporatation new york city convert regulation unwanted physical occupation land voluntarily open property occupation others petitioners assert per se right compensation based inability exclude particular individuals see heart atlanta motel see also appellant right select guests sees fit free governmental regulation pruneyard shopping center robins petitioners final line argument rests loretto rejected contention landlord avoid requirements statute forcing permit cable permanently placed property ceasing rent building tenants found possibility insufficient defeat physical taking claim landlord ability rent property may conditioned forfeiting right compensation physical occupation loretto petitioners argue leave mobile home park business order avoid strictures escondido ordinance ability rent property fact conditioned forfeiture argument fails base however simply compelled physical occupation giving rise right compensation petitioners forfeited city required occupation course petitioners right compensation city might lack power condition petitioners ability run mobile home parks waiver right cf nollan california coastal ordinance effect physical taking first place loretto help petitioners respect physical takings case far removed fcc florida power respondent voluntarily leased space utility poles cable television company installation cables federal government exercising statutory authority regulate pole attachment agreements substantially reduced annual rent rejected respondent claim taking loretto tenant invited lease rent remain regulated rent explained invitation rent makes difference line separates case loretto unambiguous distinction lessee interloper government license distinction equally unambiguous escondido rent control ordinance even considered backdrop california mobilehome residency law authorize unwanted physical occupation petitioners property regulation petitioners use property thus amount per se taking iii petitioners attempt challenge ordinance two additional grounds argue constitutes denial substantive due process regulatory taking neither claims properly us first raised addressed second fairly included question granted certiorari yees include due process claim complaint petitioners raise due process claim appeal petition review california petitioners finally raised substantive due process claim california denied discretionary review denial expresses view merits see people triggs short petitioners raise substantive due process claim state courts state addressed claim reviewing judgments state courts jurisdictional grant rare exceptions refused consider petitioners claims raised addressed illinois gates expressed inconsistent views whether rule jurisdictional prudential cases arising state courts see need resolve question cases arising federal courts rule prudential see carlson green even rule prudential adhere case petitioners raise substantive due process claim state courts address consider preliminary matter must address respondent assertion reguregulatory claim unripe petitioners sought rent increases respondent correct claim ordinance effects regulatory taking applied petitioners property unripe reason see williamson county regional planning hamilton bank johnson city petitioners mount facial challenge ordinance allege ordinance substantially advance legitimate state interest matter applied see nollan california coastal supra agins tiburon allegation depend extent petitioners deprived economic use particular pieces property extent particular petitioners compensated petitioners facial challenge ripe see keystone bituminous coal assn debenedictis agins supra must also reject respondent contention regulatory taking argument properly us made unclear whether petitioners made argument portions complaint briefing read either argue regulatory taking support physical taking argument reason equally ambiguous whether appeal addressed issue yet petitioners regulatory taking argument stands posture different substantive due process claim petitioners unquestionably raised taking claim state courts question whether rent control ordinance took property without compensation violation fifth amendment takings clause thus properly us federal claim properly presented party make argument support claim parties limited precise arguments made bankers life casualty crenshaw gates supra dewey des moines petitioners arguments ordinance constitutes taking two different ways physical occupation regulation separate claims rather separate arguments support single claim ordinance effects unconstitutional taking raised taking claim state courts therefore petitioners formulated argument liked support claim litigant seeking review claim properly raised lower courts thus generally possesses ability frame question decided way chooses without limited manner question framed occasion rephrased question presented petitioner see ankenbrandt richards requested parties address important question law raised petition certiorari see payne tennessee large petitioner controls scope question presented petitioner generally frame question broadly narrowly sees fit framing question presented significant consequences however rule nly questions set forth petition fairly included therein considered statement question presented deemed comprise every subsidiary question fairly included therein ordinarily consider questions outside presented petition certiorari see berkemer mccarty rule prudential nature disregard exceptional cases stone powell reasons urgency economy suggest need address unpresented question case consideration rule serves two important related purposes first provides respondent notice grounds upon petitioner seeking certiorari enables respondent sharpen arguments certiorari granted routinely consider questions beyond raised petition respondent lack opportunity advance litigation merits argue questions worthy review unusual decision involves issues petitioner seek certiorari respondent face formidable task opposing certiorari every issue might conceivably find present case forcing petitioner choose questions outset rule relieves respondent expense unnecessary litigation merits burden opposing certiorari unpresented questions second rule assists selecting cases certiorari granted last term alone received petitions certiorari capacity decide small fraction cases merits use resources efficiently must grant certiorari cases enable us resolve particularly important questions routinely entertain questions presented petition certiorari much efficiency vanish parties feared inability prevail question presented encouraged fill limited briefing space argument time discussion issues one certiorari granted rule forces parties focus questions viewed particularly important thus enabling us make efficient use resources granted certiorari single question pertaining takings clause two federal courts appeal held transfer premium value departing mobilehome tenant representing value right occupy reduced rate local mobilehome rent control ordinances constitute impermissible taking error state appellate disregard rulings hold taking fifth fourteenth amendments question presented petitioners pet cert asks whether erred disagreeing holdings courts appeals third ninth circuits pinewood estates michigan barnegat township leveling board hall santa barbara cert denied cases turn held mobile home ordinances effected physical takings regulatory takings fairly construed petitioners question presented equivalent question err finding physical taking whether ordinance effects regulatory taking question related one petitioners presented perhaps complementary one petitioners presented fairly included therein consideration whether regulatory taking occurred assist resolving whether physical taking occurred well neither two questions subsidiary might subsidiary question embracing taking exist side side neither encompassing cf american nat bank trust chicago haroco question whether complaint adequately alleges conduct racketeering enterprise fairly included question whether statute requires plaintiff suffer damages defendant conduct enterprise rule accordingly creates heavy presumption consideration petitioners claim ordinance causes regulatory taking petitioners overcome presumption regulatory taking question doubt important institutional perspective important physical taking question lower courts reached conflicting results far know whether similar mobile home rent control ordinances effect regulatory takings reached conflicting results whether ordinances cause physical takings conflict course substantial reason granting certiorari rule moreover conflict two courts whose jurisdiction includes california state largest population one relatively high percentage nation mobile homes thus particular concern see azul pacifico los angeles mobile home park owners may file physical taking suits either state federal prudence also dictates awaiting case issue fully litigated benefit developed arguments sides lower opinions squarely addressing question see lytle household applying analysis facts particular case without benefit full record lower determinations sensible exercise discretion fact address issue apparently first nation determine whether ordinance like one effects regulatory taking accordingly follow rule consider question petitioners raised seeking certiorari leave regulatory taking issue california courts address first instance iv made observation loretto holding today narrow affirm traditional rule permanent physical occupation property taking case property owner entertains historically rooted expectation compensation character invasion qualitatively intrusive perhaps category property regulation however question equally substantial authority upholding state broad power impose appropriate restrictions upon owner use property affirmed strictly speaking escondido rent control ordinance limits rents petitioners inability select incoming tenants product state mobilehome residency law constitutionality never issue case state moreover never party understand petitioners making subtle argument adoption ordinance able influence mobile home owner selection purchaser threatening increase rent prospective purchasers disfavored extent rent control ordinance deprives petitioners type influence petitioners argument one must consider justice blackmun concurring judgment agree escondido ordinance taking analysis loretto teleprompter manhattan catv also conclude substantive due process regulatory taking claims properly raised reason unlike decide whether regulatory taking claim ripe petitioners arguments relevant claim justice souter concurring judgment concur judgment join opinion except references relevance significance petitioners allegations claim regulatory taking