Cardin v. City of Worcester

2 Mass. L. Rptr. 553
CourtMassachusetts Superior Court
DecidedSeptember 14, 1994
DocketNo. 92-1781
StatusPublished

This text of 2 Mass. L. Rptr. 553 (Cardin v. City of Worcester) is published on Counsel Stack Legal Research, covering Massachusetts Superior Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Cardin v. City of Worcester, 2 Mass. L. Rptr. 553 (Mass. Ct. App. 1994).

Opinion

Fremont-Smith, J.

The plaintiff, Jayne Cardin, whose residence abuts the subject property on its easterly side and other residents of the neighborhood have vigorously opposed the development of this property as a five-unit townhouse from the time they learned of it in 1988. Their opposition has not been limited to contesting the development before the Zoning Board of Appeals and this Court. They have also voiced their objections (which the Court finds to have been well-founded) before the Worcester City Council, resulting in a criminal investigation of several employees of the Code Enforcement Department and an investigation by the Massachusetts Ethics Commission which resulted in findings of violations of c. 268A (the “Conflict of Interest Law”) in connection with those employees’ issuance of permits for the development.

Based upon the Court’s view of the premises and upon all of the credible evidence presented at the trial, the Court finds and concludes as follows:

[554]*554FINDINGS OF FACT AND RULINGS OF LAW

The plaintiff Jayne Cardin resides at 20 Fales Street, Worcester, Massachusetts, and is an abutter to the subject premises situated at 16A, 16B, 16C, 16D, 16E and 16F Fales Street (hereinafter “16 Fales Street”) Worcester, Massachusetts, and is an aggrieved party within the meaning ofM.G.L.c. 40A, Section 17. She has complied with all time limits and procedural requirements, so the matter is properly before this Court.

Edward J. Kooyomjian (hereinafter “Kooyomjian” or “the developer”) purchased the subject premises on December 24, 1986. At that time, the only structures on the lot were a single-family house numbered 142 Leeds Street and a garage which serviced that house. Kooyomjian purchased the property to construct a six-unit townhouse thereon with financing from the Intervenor, Commerce Bank & Trust Company (hereinafter “Commerce”). Commerce is the mortgagee in possession of the premises following a foreclosure sale.

Building permits issued on May 22, 1987 for the construction of the townhouse. The permits, however, violated, inter alia, the following provisions of the City of Worcester Zoning Ordinance as they apply to the RG5 zone, in which it is located:

a) Article IV, Section 3, in that, at the time of the application for building permits and their issuance, a single-family dwelling already existed on the same lot;
b) Article VI, Section 1, in that the building permits were issued without the required prior parking lot approval of the City of Worcester License Board;
c) Article V, Section 2, in that, if the developer chose to designate Fales Street as the front lot line pursuant to Article X, Section 3(h),3 the premises violated Article V, Section 2, because the southerly side of the structure and the decks thereof were located within the 15-foot required rear yard setback, whereas, if the developer designated Leeds Street as the front lot line (as he in fact did), then the southerly side of the structure and the decks are located within the required 8-foot side yard setback.

Not only were the building permits as issued invalid because they violated at least the above provisions of the Zoning Ordinance,4 but the building, as actually constructed, did not conform with the submitted plans and violated the Zoning and Building Ordinances in a number of additional, significant respects. For instance, the townhouse structure as built is 14.37 feet from the lot line at Fales Street (rather than the required 15-foot setback if Fales Street is the front lot line) and the townhouse structure, decks and stairs are 4.7 feet from the southerly property line (rather than the required 8 feet or 15 feet, depending on whether Fales Street or Leeds Street is the front lot).

On the same day that Use and Occupancy Permits were issued to the developer (July 11, 1988), three enforcement employees were provided with a free junket to an Atlantic City gambling casino by the developer.

After some of the circumstances surrounding the issuance of the Occupancy and Use Permits were called to the attention of the City Council by the plaintiff, the permits were revoked by order of the Code Commissioner dated October 25, 1988, citing “Deviations from dimensional requirements of the Worcester Zoning Ordinance, deviations of actual site dimensions from those submitted with permit applications, deviations in parking arrangements from that of the submitted site plan, etc.”

Approximately three months prior, the Code Commissioner had determined that it was impossible to comply with the City of Worcester parking requirements if the premises were to be considered six single-family attached dwelling units (as the original building permits contemplated) and that, if considered to be a townhouse, submission of a Parking Plan for License Board Approval should have been required prior to the issuance of the building permits. As a result, the developer, on the recommendation of the Code Commissioner, sought a variance. The Board of Appeals denied the variance, stating, inter alia, “Desirable relief may not be granted without nullifying or substantially derogating from the intent or purpose of the City of Worcester zoning ordinance. Encroachment into the sideyard setback overcrowds the land by reducing the separation between petitioner’s building and the abutting structures. Arrangement of the driveway access in violation of the ordinance increases traffic congestion on Fales Street and creates a safety hazard.”

Following the Board of Appeals’ denial of the variance and the Code Commissioner’s revocation of the Occupancy and Use Permits, Kooyomjian endeavored to bring the townhouse into compliance with the Zoning Ordinance by doing the following:

a) He sawed off approximately 2 feet of the decks and stairs situated on the south side of the property.

b) On September 22, 1988, he secured the endorsement of the Planning Board to a plan incorporating into the townhouse lot an additional 57 square feet of area. A deed of that land, however, was never recorded in the Registry of Deeds.

c) On or about March 17, 1989, the structure which is 28.4 feet wide and 102.3 feet long, was lifted off its foundation and moved 1.36 feet in a northerly direction and .78 feet in an easterly direction.

d) Pursuant to Kooyomjian’s application, the City of Worcester License Board, on September 21, 1989, approved a parking plan for ten cars upon specific conditions and issued its Open Air Parking Space License incorporating those conditions. The license [555]*555issued by its terms was not transferable and expired by its terms on July 31, 1990. It was not renewed on July 31, 1990, because Kooyomjian had failed to meet the conditions imposed by the license.

e) On or about March 2, 1990, Kooyomjian attempted to convert units A and B into a single unit in order to reduce the number of units in an effort to meet parking ordinance requirements. In doing so, a walkway was cut through the wall between the two units, and one kitchen stove, dishwasher, sink, and a refrigerator were removed, resulting in one unit twice as large as the remaining four units, containing four bathrooms and two kitchens.

Thereafter, Kooyomjian abandoned all construction efforts.

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2 Mass. L. Rptr. 553, Counsel Stack Legal Research, https://law.counselstack.com/opinion/cardin-v-city-of-worcester-masssuperct-1994.