IN THE COURT OF APPEALS OF IOWA
No. 16-1080 Filed June 7, 2017
CITY OF DES MOINES, IOWA, Plaintiff-Appellee,
vs.
MARK OGDEN, Defendant-Appellant. ________________________________________________________________
Appeal from the Iowa District Court for Polk County, Robert B. Hanson,
Judge.
Mark Ogden, a property owner, appeals from the district court’s findings
that use of his property as a mobile home park is a danger to the safety of life
and property, the park has exceeded its previous nonconforming use, and the
court’s injunction and order to cease use of the property as a mobile home park.
Because the record supports the findings of the district court and because Ogden
has made no effort to mitigate the violations documented by the City, we affirm.
AFFIRMED.
James E. Nervig of Brick Gentry P.C., West Des Moines, for appellant.
Luke DeSmet, Assistant City Attorney, Des Moines, for appellee.
Jessica J. Taylor and Laura Jontz, Iowa Legal Aid, for amici curiae.
Heard by Danilson, C.J., and Potterfield and Bower, JJ. 2
POTTERFIELD, Judge.
Mark Ogden appeals the district court’s order enjoining the continued
nonconforming use of Ogden’s property as a mobile home park. He claims the
district court erred in determining the land use expanded beyond its previously
authorized nonconforming use and revocation of the use is necessary for the
safety of life or property. He also claims the district court erred in determining
equitable estoppel does not bar the injunction. Finally, he claims the district court
abused its discretion in excluding Gloria Lang’s testimony. We affirm.
I. Background Facts and Proceedings.
Ogden owns a tract of land situated on the south side of Des Moines
where he operates a mobile home park (the “property”). Ogden purchased the
property in 2013, but he has been involved in the maintenance and upkeep of the
park since his uncle purchased the property around 1975, and he started actively
managing the park in 1999 due to his uncle’s declining health. The property sits
on the northwest corner of Indianola Avenue and Park Avenue and contains
approximately thirty-nine mobile home pads that are leased to park residents.
Approximately half of the pads and homes are situated on the outside perimeter
of the property. A narrow, u-shaped access road circles the inside of the
property and separates the interior homes from the perimeter homes.
The record does not reveal the entire historical use of the property.
Testimony and photographs depict the property was used as a tourist camp in
1947. Sometime shortly thereafter, the use of the property changed to a mobile
home park. In 1955, the City of Des Moines issued a certificate of occupancy
allowing the operation of a trailer court on the property contrary to the 1953 Des 3
Moines zoning ordinances, which prohibited the use of mobile home parks. A
1963 aerial photograph of the property depicts permanent homes that are in
close proximity to each other with additional structures attached to the homes.
Nothing else in the record describes the condition of the property in 1963.
More recent pictures of the property depict a congested, dilapidated, and
hazardous jumble of structures. Many of the mobile homes are within feet of
each other based on the addition of porches, decks, and living space. Residents
park cars throughout the property narrowing portions of the already inadequate
access road. Bulk trash items—such as tires, boats, and storage bins—are
littered throughout the property. Grills, fences, gardens, and children’s toys also
crowd the property.
The record does not indicate the city took any action against the property
after the certificate of occupancy was issued in 1955 until 2003. In 2003, Richard
Clark—then owner of the park—was allegedly operating portions of the property
as an auto dealership. The City of Des Moines issued a letter informing the
owner the 1955 certificate of occupancy legitimized the use of the land as a
mobile home park but did not authorize the park’s use as an auto dealership.
The city did not issue any additional warnings or citations regarding the mobile
home use until 2014.
On August 5, 2014, SuAnn Donovan, neighborhood inspection zoning
administrator for the city, notified Ogden by letter explaining the “park has
numerous violations of municipal zoning codes that were in place at the time the
land was converted to a mobile home park.” The city alleged the following
violations of the 1955 Des Moines Municipal Code: (1) failure to provide a thirty- 4
five-foot set-back from Park Avenue; (2) failure to provide a twelve-foot set-back
from Indianola Road; (3) failure to provide a forty-foot setback along the lot line
running north from Park Avenue; (4) failure to provide a fifteen-foot set-back
along the lot line running west from Indianola Road; (5) failure to supply 1,200
square feet of lot area per mobile home (6) failure to maintain a twenty-foot
unobstructed driveway accessible to the public street, properly maintained with
an all-weather surface, marked, and lighted; (7) failure to maintain twelve-foot
clearance between trailers; (8) failure to provide a two-foot walk way between
trailers to the public street; (9) failure to provide fire extinguishers in good
working order for every twenty-five trailer spaces located not further than two
hundred feet from each trailer space; and (10) additions to the trailers other than
porches or entry ways were prohibited from reducing the clearance between
trailers or other additions below eleven feet. The letter further warned the
violations pose a threat to the health and safety of the occupants and the
violations must be brought into compliance with the applicable code to prevent
further legal action. Ogden did not take any action to remedy the violations.
In October 2014, the city filed a petition seeking an injunction against the
property owner for the above listed violations. At trial, the Des Moines Fire
Marshall, Jonathan Lund, testified for the city. He stated the “construction of a
mobile home is inherently a little bit more dangerous in the sense that they
typically use smaller dimensional lumber,” which “can lead to rapid progression of
fire.” He also testified that the close proximity of the mobile homes creates an
exposure hazard, “which leads to more fires.” Lund testified the ten-foot access
road would make it difficult for firefighters to respond to a fire. He explained: 5
[W]e require 20-foot-wide fire access roads. That facilitates us positioning a fire apparatus in front of the building and still being able to maneuver another fire apparatus around that engine or truck. . . . Anytime in fighting a fire access is paramount. We have to be able to get there, deploy hose lines within a reasonable distance of the structure to do our job effectively.
Ogden testified about the history and layout of the property and various
interactions he had with city employees regarding ordinance violations.1 Gloria
Lang, park resident, also testified, contingent on the court’s ruling on the city’s
objections. Lang stated she did not interact with the city regarding her mobile
home and that she would have difficulty relocating should the property cease use
as a mobile home park. The city objected to the testimony on the grounds
Ogden did not disclose Lang as a witness until the morning of trial and the
testimony is irrelevant to the zoning issue at hand.
The court issued its ruling on the evidentiary issues presented at trial in its
final order. Regarding Lang’s testimony, the court held, “[B]ecause Ms. Lang
was not disclosed as a witness until the morning of the trial and her testimony
was irrelevant to zoning issues, the objection is sustained and her testimony is
excluded.” Regarding the use requirements, the court held:
[T]he 1955 Certificate of Occupancy validly established a vested right in a nonconforming use as a trailer court because: (1) the Certificate acknowledges the use as at least partially nonconforming; and (2) the occupancy permit statute required an application and proof that the nonconforming use did not violate the required City ordinances; and (3) the City would not have issued the certificate had compliance in some capacity not been present. Thus, beginning in 1955, Ogden had a vested right to operate Oak Hill as a mobile home park subject to: (1) the language of section 1 The city objected to this testimony, as Ogden failed during discovery to disclose his previous interactions with the city. In its order, the court held, “[B]ecause the City inquired of any statements made by City employees during discovery and Ogden did not identify any of these statements at that time, the objection is sustained and the testimony is excluded. This evidentiary ruling is not part of Ogden’s appeal.” 6
2A-49, which allows “a discontinuance . . . necessary for the safety of life or property;” and (2) the boundaries of the nature and character of the legal nonconforming use as it existed in 1955 (which is best represented by the 1963 aerial photographs). Second, the Court holds that a discontinuance of the nonconforming use under the 1955 Certificate of Occupancy is necessary for the safety of life or property. The 1963 aerial photographs demonstrate that Oak Hill was in violation of many of the contemporaneous zoning ordinances, but Oak Hill of 1963 is far less congested than Oak Hill of 2015. As detailed in the Court’s Findings of Fact, conditions at Oak Hill deteriorated markedly between 1963 and 2006 (when the City began photographing Oak Hill at ground level). Now, much of the open space visible in the 1963 photos is filled with the detritus of life: vehicles, outdoor recreational equipment, garbage bins, makeshift gardens, fencing, and crudely constructed additions to the mobile homes. The U- shaped road that runs through Oak Hill is in poor repair, absent markings or well-defined borders. There is no evidence of adequate fire prevention or fighting equipment. The City stated in its original letter regarding this action that the zoning regulations in 1955 were aimed at preserving the health and safety of Oak Hill and its occupants. The occupancy permit statute states that discontinuance of the permit is allowed if the safety of life or property is threatened. Oak Hill is so congested and cluttered as to impede the ability of first responders to adequately address common urban dangers, such as fires and situations requiring police involvement.
The court also held that Ogden’s “use of [the] property has intensified beyond
acceptable limitations” because the conditions “pose a real threat in the event of
an emergency.”
Ogden did not file a rule 1.904(2) motion to enlarge or amend the district
court findings. Ogden appealed the district court’s ruling. Our supreme court
granted permission for the filing of amicus curiae brief by eight residents of Oak
Hill Mobile Home Park.2
2 Amici curiae argue any injunction against the property’s use as a mobile home park will lead to its residents’ homelessness and the evidence in the record was insufficient to establish safety and health concerns to its residents and the surrounding community. We address the insufficiency of evidence argument in the discussion of Ogden’s appeal. 7
II. Standard of Review.
We base our standard of review of an appeal on the manner in which it
was tried at the district court. Ernst v. Johnson Cty., 522 N.W.2d 599, 602 (Iowa
1994). “Where there is uncertainty about the nature of a case, a litmus test we
use in making this determination is whether the trial court ruled on evidentiary
objections.” Id. Although the underlying action seeks an injunction, the district
court made multiple evidentiary rulings. Thus, we review for correction of errors
at law.
We review discovery sanctions and evidentiary rulings for an abuse of
discretion. Whitley v. C.R. Pharmacy Serv., Inc., 816 N.W.2d 378, 385 (Iowa
2012) (explaining standard of review for discovery sanctions); Williams v.
Hedican, 561 N.W.2d 817, 822 (Iowa 1997) (explaining standard of review for
evidentiary rulings).
III. Discussion.
Ogden argues the district court erred by concluding (1) a discontinuance
of the nonconforming use is necessary for the safety of life or property and (2)
any changes to the property are unlawful expansions of the existing
nonconforming use.3 Ogden also argues equitable estoppel prevents the city
3 We also note that during oral arguments, appellant urged us to consider City of Monroe v. Nicol in support of his argument that the district court’s order should be reversed. 16- 1155, 2017 WL 1735875 (Iowa Ct. App. May 3, 2017). In Nicol, the city assumed title to an abandoned property pursuant to Iowa Code section 657A.10A(5) (2016). Id. at *1. The appellant property-owner specifically challenged the constitutionality of the statute authorizing the city to assume title, arguing it was an unconstitutional taking contrary to the Iowa and United States Constitutions. Id. A panel of our court affirmed the district court’s order transferring title to the city. Id. at 2. We are uncertain how this case supports the appellant’s argument. Unlike the facts presented in Nicol, here Ogden retains title to his property, and no action was taken by the city under section 657A.10A(5). Nor did Ogden challenge the constitutionality of the regulation used by the 8
from obtaining an injunction. The city argues Ogden is not entitled to continuing
nonconforming use occupancy because the property now has deteriorated so
that it is in violation of multiple ordinances since the certificate of occupancy was
issued. The city also argues the nonconforming use can be revoked based on
health and safety concerns.
A. Error Preservation—Unconstitutional Taking.
The city argues Ogden failed to preserve error on the issue of an
unconstitutional taking because it was not presented to the district court. Ogden
argues the issue was raised in his proposed ruling submitted to the district court.
Ogden failed to develop his argument regarding a takings claim at the district
level.4 While Ogden did mention “takings” in his proposed rulings as what
appears to be background material for land-use law, the trial court did not rule on
any takings claims. Ogden also failed to file a rule 1.904(2) motion to enlarge the
trial court’s findings in order to address the takings issue. To the extent Ogden
raises an unconstitutional takings claim in his appellate brief, he has not
preserved error. See Homan v. Branstad, 887 N.W.2d 153, 161 (Iowa 2016)
(“[W]hen a party has presented an issue, claim, or legal theory and the district
city to revoke Ogden’s nonconforming use. The analysis and legal issues in Nicol are unrelated to the issue presented here: whether Ogden exceeded the nonconforming use of his property. 4 Ogden appears to argue the actions of the city amounted to a regulatory taking. The Supreme Court explained land-use regulations “do not effect a taking requiring compensation if it substantially advances a legitimate state interest.” Lucas v. S.C. Coastal Council, 505 U.S. 1003, 1023–24 (1992); see also Iowa Coal Min. Co. v. Monroe Cty., 555 N.W.2d 418, 431 (Iowa 1996) (discussing Lucas). The Court recognized two exceptions: “When the regulation (1) involves a permanent physical invasion of property or (2) denies the owner all economically beneficial or productive use of the land, the State must pay just compensation.” Lucas, 505 U.S. at 1028–29. We note Ogden failed to develop these rules—or any argument supporting them—at the district court level. 9
court has failed to rule on it, a rule 1.904(2) motion is proper means by which to
preserve error and request a ruling from the district court.”).
B. Nonconforming Use.
Generally, “[a] nonconforming use of property is one that lawfully existed
prior to the time a zoning ordinance was enacted or changed, and continues after
the enactment of the ordinance even though the use fails to comply with the
restrictions of the ordinance.” City of Okoboji v. Okoboji Barz, Inc., 746 N.W.2d
56, 60 (Iowa 2008). While a nonconforming use may continue until legally
abandoned, “the nonconforming use cannot be enlarged or extended.” Id. The
purpose of a prohibition against expansion of a nonconforming use is to protect
against the growth of “a pre-existing aggravation” that “survives as a matter of
grace.”5 Stan Moore Motors, Inc. v. Polk Cty. Bd. of Adjustment, 209 N.W .2d 50,
53 (Iowa 1973). The Des Moines Municipal Code reflects this principle. It states,
“Nothing in this division shall prevent the continuance of a nonconforming use as
authorized, unless a discontinuance is necessary for the safety of life or
5 Other jurisdictions generally disfavor the “establishment, continuance, and expansion” of nonconforming uses because of the conflict “with the objectives of comprehensive zoning.” See Patricia E. Salkin, American Zoning Law § 12:7 (5th ed. 2017) (citing Billups v. City of Birmingham, 367 So. 2d 518 (Ala. Crim. App. 1978) (“The spirit and intention of the zoning laws is to restrict any increase of any nonconforming use.”); Hartley v. City of Colorado Springs, 764 P.2d 1216 (Colo. 1988) (“Nonconforming uses are disfavored because they reduce the effectiveness of zoning ordinances, depress property values, and contribute to the growth of urban blight. Because of their undesirable effect on the community, nonconforming uses should be eliminated as speedily as possible. Accordingly, zoning provisions allowing nonconforming uses to continue should be strictly construed, and zoning provisions restricting nonconforming uses should be liberally construed.”); Cracker Barrel Old Country Store, Inc. v. Town of Plainfield ex rel. Plainfield Plan Com'n, 848 N.E.2d 285 (Ind. Ct. App. 2006) (“[T]he policy of zoning ordinances is to secure the gradual or eventual elimination of nonconforming uses and to restrict or diminish, rather than increase, such uses. Such policy embodied in a zoning ordinance is important to the trial court in determining the extent and character of changes that will not destroy the character of a nonconforming use.”)). 10
property.” Des Moines, Iowa, Zoning Ordinance, div. 5 § 134-155(a) (2014)
(emphasis added).6
Still, an intensification of nonconforming use does not automatically
revoke the owner’s ability to continue the nonconforming use, and “[l]andowners
are given some latitude . . . and may change the original nonconforming use ‘if
the changes are not substantial and do not impact adversely on the
neighborhood.’” Okoboji, 746 N.W.2d at 60 (alteration in original) (quoting
Perkins v. Madison Cty., 613 N.W.2d 264, 270 (Iowa 2000)). For example, the
nonconforming use of a care facility for disabled persons did not cease when the
patient’s disabilities changed “from impaired mental functions through aging
processes to those caused by mental illness,” which violated another ordinance
under the applicable zoning regulation prohibiting property use for “persons
suffering from a mental sickness, disease, disorder or ailment.” City of Jewell
Junction v. Cunningham, 439 N.W.2d 183, 184–85, 187 (Iowa 1989). Similarly, a
restaurant operating under a legal nonconforming use did not lose its
nonconforming status when it decided to sell alcohol on the premises. See
Okoboji, 746 N.W.2d at 63–64.
On the other hand, expanding a marina that sold beer for off-premises
consumption to a bar that hosts activities such as karaoke, live music, hog
roasting, and on-site parties unlawfully expanded the nature and character of the
nonconforming use. See City of Okoboji, Iowa v. Okoboji Barz, Inc., 717 N.W.2d
6 The relevant Des Moines code section at the time the certificate of occupancy was issued also provides for an exception to continuing nonconforming use when “discontinuance is necessary for the safety of life or property.” Des Moines, Iowa, Zoning Ordinance, part XX § 2A-49 (1953). 11
310, 316 (Iowa 2006). Adverse effects on the neighborhood can also exceed the
scope of nonconforming use, such as an impact on public services or increased
traffic. See Jewell Junction, 439 N.W.2d at 187. Our supreme court has not
addressed whether the addition of structures or expansion of homes in a mobile
home park constitutes an unlawful expansion of a non-conforming use.
Other jurisdictions, however, determined replacing existing mobile homes
with larger mobile homes in violation of setback requirements is an unlawful
expansion of the property’s nonconforming use. See Kosciusko Cty. Bd. of
Zoning App. v. Smith, 724 N.E.2d 279, 281 (Ind. Ct. App. 2000) (holding zoning
ordinance that prohibits expansion of nonconforming uses requires owner to
conform to zoning ordinance or request a variance); Wiltzius v. Zoning Bd. of
App. of Town of New Milford, 940 A.2d 892, 910 (Conn. App. Ct. 2008). These
jurisdictions relied on the municipal code language similar to the language
expressed in the Des Moines municipal code to support the city’s intent to curtail
nonconforming uses.
In order to resolve a zoning violation when a nonconforming use is
asserted by the property owner, our courts engage in the following burden-
shifting analysis: (1) the city has the burden of proving a violation of the
ordinance; (2) Ogden “has the burden [to] establish the lawful and continued
existence of the use”; and (3) “once the preexisting use has been established by
a preponderance of the evidence, the burden is on the city to prove a violation of
the ordinance by exceeding the established nonconforming use.” Jewell, 439
N.W.2d at 186. The parties do not dispute that Ogden is in violation of multiple
zoning ordinances. Nor do the parties dispute the 1955 certificate of occupancy 12
establishes lawful and continued existence of use. Thus, the remaining issue is
whether the City has shown Ogden exceeded the nonconforming use established
in 1955.
Although this mobile home park has not changed in size or use, the record
demonstrates it has grown within its borders in the numbers and location of
structures attached to the mobile homes resulting in a narrowing of open space
on the roadways and between the homes. After reviewing the record, we hold
the district court did not err in finding these changes over a half century have
enhanced and intensified the non-conforming use to the point where it is a
danger to life and property. First, the record depicts the layout on the property
creates a dangerous fire hazard. Lund testified the positioning of the structures
within the setback limitations “creates an exposure hazard for us, which leads to
more fires.” Lund explained the fire hazard is especially present in mobile homes
because they are “inherently a little bit more dangerous in the sense that they
typically use smaller dimensional lumber. . . . [I]t can lead to [a] rapid
progression of fire.” Lund also testified the crowded conditions and the narrow,
ten-foot access road would inhibit the ability of the fire department to respond
effectively:
[W]e require 20-foot-wide fire access roads. That facilitates us positioning a fire apparatus in front of the building and still being able to maneuver another fire apparatus around that engine or truck. . . . Anytime in fighting a fire access is paramount. We have to be able to get there, deploy hose lines within a reasonable distance of the structure to do our job effectively.
Although Lund’s testimony did not explicitly opine the park is dangerous to life
and property, he clearly stated the congestion in the park would make it difficult 13
to contain a fire or even to position the firefighting equipment effectively. The
congested conditions, large trash items, altered structures, and parked cars all
pose a threat to the fire department’s ability to protect life and property. Law
enforcement and other public officials would face similar obstacles in providing
public services to the property. The district court did not err in enjoining the
nonconforming use to protect the “safety of life or property,” as authorized by the
applicable certificate of occupancy code. The absence of previous notices of
violations from the City or the fire department does not justify the risk of tragedy
to families living in the park in the event of an emergency. Ogden’s failure to
respond to the ten violations listed in the 2014 notice leaves no choice in the face
of the potential for loss of life or property. Although our record does not expand
on complaints by neighboring landowners, the zoning administrator testified,
“[C]itizens have filed complaints.”
For similar reasons, Ogden’s use of the property is not a lawful
intensification of an existing nonconforming use. The present congestion and
crowding between structures and narrowing the roadway changes the nature and
character of the 1955 non-conforming use and presents a danger to residents
and neighbors of the park. See Jewell Junction, 439 N.W.2d at 187.
C. Evidentiary Issues.
Ogden next argues the court abused its discretion in declaring the
testimony of Gloria Lang was inadmissible. He claims the district court
erroneously based its determination on relevancy. The record, however, reflects
an additional reason for the district court’s evidentiary ruling. The district court
excluded Lang’s testimony as a discovery sanction because the witness was not 14
disclosed until the morning of trial and her testimony was irrelevant to zoning
issues. The decision of the trial court to exclude witness testimony as a
discovery sanction is discretionary and will not be reversed unless there has
been an abuse of discretion. Sullivan v. Chicago & N.W. Transp. Co., 326
N.W.2d 320, 324 (Iowa 1982) (holding district court’s sanction of excluding a
witness’s testimony for party’s failure to disclose a witness was appropriate and
did not amount to an abuse of discretion). Failure to disclose a witness is a valid
justification for a discovery sanction. Id. The district court did not abuse its
discretion in excluding Lang’s testimony because Ogden failed to disclose the
witness until the day of trial.
D. Equitable Estoppel.
Ogden next argues equitable estoppel bars the city from enjoining the use
of the mobile home park. “The doctrine of equitable estoppel is a common law
doctrine preventing one party who has made certain representations from taking
unfair advantage of another when the party making the representations changes
its position to the prejudice of the party who relied upon the representations.”
McKee v. Isle of Capri Casinos, Inc., 864 N.W.2d 518, 531 (Iowa 2015). Our
supreme court has “consistently held equitable estoppel will not lie against a
government agency except in exceptional circumstances.” Fennelly v. A-1 Mach.
& Tool Co., 728 N.W.2d 163, 180 (Iowa 2006) (quoting ABC Disposal Sys., Inc.
v. Dep't of Nat. Res., 681 N.W.2d 596, 606 (Iowa 2004)). “The ‘exceptional
circumstances’ under which equitable estoppel will lie against the government
include instances when, ‘in addition to the traditional elements of estoppel, the
party raising the estoppel proves affirmative misconduct or wrongful conduct by 15
the government or a government agent.’” Fennely, 728 N.W.2d at 180 (quoting
28 Am. Jur. 2d Estoppel and Waiver § 140, at 559 (2000) (holding a failure by an
assessor to communicate with a property owner in order to obtain information
regarding a tax assessment is not misconduct by the government)).
Ogden claims the city’s 2003 letter confirming the property’s
nonconforming-use status and the city’s failure to inform him of zoning violations
amount to a representation that justifies estoppel. In order to prove estoppel,
Ogden must demonstrate: “(1) a false representation or concealment of material
fact by the city, (2) a lack of knowledge of the true facts by [Ogden], (3) the city’s
intention the representation be acted upon, and (4) reliance upon the
representations by [Ogden] to their prejudice and injury.” City of Marshalltown v.
Reyerson, 535 N.W.2d 135, 137 (Iowa Ct. App. 1995) (citing Incorporated City of
Denison v. Clabaugh, 306 N.W.2d 748, 754 (Iowa 1981)). Ogden’s claim fails
under the first element; the record does not support the city’s failure to enforce
the zoning ordinance amounts to a false representation or concealment of
material fact. As indicated by testimony, the city does not notify property owners
every time a zoning infraction occurs. Rather, the city operates on a complaint
basis to trigger enforcement. The district court did not err in holding Ogden’s
equitable estoppel defense fails.
IV. Conclusion.
The district court properly granted the city’s request for an injunction
against Ogden’s use of the property as a mobile home park. The city may
revoke nonconforming use status for the “safety of life or property.” Ogden also
exceeded the valid nonconforming use by expanding the structures and reducing 16
the open space of the mobile home park in a manner that violated multiple city
ordinances. Furthermore, the district court properly excluded Lang’s testimony
because Ogden failed to disclose the witness to the city until the morning of trial.
Ogden also failed to prove misconduct by the city in order to succeed on his
equitable estoppel claim.
Bower, J., concurs; Danilson, C.J., partially dissents. 17
DANILSON, Chief Judge. (concurring in part and dissenting in part)
I concur with the majority’s discussion on all issues except the issue
concerning nonconforming use. In respect to the issue of an unconstitutional
taking, I would only add that Ogden also did not plead a counterclaim or defense
on the basis of a taking. I respectfully dissent in regard to the second issue.
I disagree with the majority affirmation of the district court conclusions that
the mobile home park’s current state exceeds the legal nonconforming use as it
existed in 1955 and poses a threat to the safety of people or property at the
mobile home park. I conclude the City has failed to prove both grounds.
The general principles related to nonconforming use of property were
recited in City of Okoboji v. Okoboji Barz Inc., 746 N.W.2d 56, 60 (Iowa 2008):
A nonconforming use of property is one that lawfully existed prior to the time a zoning ordinance was enacted or changed, and continues after the enactment of the ordinance even though the use fails to comply with the restrictions of the ordinance. Perkins v. Madison Cty., 613 N.W.2d 264, 270 (Iowa 2000). The prior use of the property essentially establishes a vested right to continue the use after the ordinance takes effect. See Quality Refrigerated Servs. v. City of Spencer, 586 N.W.2d 202, 206 (Iowa 1998). The nonconforming use is permitted to continue until legally abandoned. Iowa Coal Mining Co. v. Monroe Cty., 555 N.W.2d 418, 430 (Iowa 1996). However, the nonconforming use cannot be enlarged or extended. Stan Moore Motors, Inc. v. Polk Cty. Bd. of Adjustment, 209 N.W.2d 50, 52 (Iowa 1973). This limiting principle is carved into the city ordinance at issue in this case. The ordinance expresses an intent “to permit . . . nonconformities to continue until they are removed, but not to encourage their survival,” and provides “that nonconformities shall not be enlarged upon, expanded or extended, nor be used as grounds for adding other structures or uses prohibited elsewhere in the same district.” Okoboji Zoning Ordinance art. IV, § 3. Nevertheless, the body of law governing nonconforming uses of property recognizes “[l]andowners are given some latitude . . . and may change the original nonconforming use ‘if the changes are not substantial and do not impact adversely on the neighborhood.’” Perkins, 613 18
N.W.2d at 270 (citing City of Jewell Junction v. Cunningham, 439 N.W.2d 183, 186 (Iowa 1989)).
In 1955 the City of Des Moines gave its approval to the mobile home
park’s nonconforming use. As observed by the district court, the exact date
when the mobile home park came into existence is unknown. The district court
concluded it was sometime between 1947 and 1955. The City has no evidence
of the condition of the park or the number of mobile homes in the park in 1955
when the certificate of nonconforming use was granted. The best evidence the
City could muster was how the mobile home park existed in 1963. If the mobile
home park had been expanded to, say, twice its size, perhaps reliance on its’
status in 1963 might serve to meet the City’s burden. But here, where the City
admits there is no change in size and its use remains as a mobile home park,
there is a failure of proof that the nonconforming use has been exceeded.
The district court noted the burden of proof lies first with the City to prove
a violation of a zoning ordinance. See Jewell Junction, 439 N.W.2d at 186.
Upon proof of a violation, the burden shifts to the defendant to establish “the
lawful and continued existence of the use.” Id. If the defendant is successful, the
burden shifts back to the City to show the nonconforming use was exceeded.
See id.
The district court concluded the City met its burden by showing violations
of the zoning ordinance existing in 1955. And the majority has outlined ten such
violations urged by the City. The City also contended the mobile home park was
in violation of current zoning ordinances. The City conceded the 1955 certificate
of nonconforming use satisfied the legality of the mobile home park’s 19
nonconforming use.7 I agree, but it might be better to say the use of the property
does not comply with the zoning restrictions—because the noncompliance does
not rise to the level of a violation as its use was legally authorized by the
nonconforming-use certificate. City of Okoboji, 746 N.W.2d at 60.
The City thus had the burden to establish the “use” was exceeded.
Ultimately, the district court concluded “the nature and character of the mobile
home park have substantially changed.” In reaching this conclusion, the district
court relied upon the photos from 1963 compared to today’s photo to find there
was less open space due to congestion “filled with the detritus of life: vehicles,
outdoor recreational equipment, garbage bins, makeshift gardens, fencing, and
crudely constructed additions to the mobile homes.” The district court also stated
the road in the mobile home park was in disrepair, and police and fire would have
difficulties responding to emergencies. According to the district court, such
circumstances have caused an increase in danger and an intensification of the
use beyond acceptable limitations. Notwithstanding the fact that at least thirty
mobile homes are occupied in the mobile home park, the district court enjoined
its operation and ordered the issuance of writs of removal within 180 days.
In respect to the alleged danger, apparently there have been no
complaints levied by neighbors, no prior violations initiated by the City (except
one unrelated to dangerous conditions), and the fire department has not initiated
7 Notwithstanding its concession, the City argues the certificate of nonconforming use was not authorized and should not be given any validity, citing Crow v. Board of Adjustment of Iowa City, 288 N.W.2d 145 (Iowa 1939). However, because there is no evidence of exactly when the mobile home park came into existence and whether it was grandfathered in prior to the implementation of the zoning ordinances, and also the lack of any evidence the certificate was not properly authorized, there is no evidence to conclude the certificate is invalid. 20
any action because of any violations. The fire chief only testified that new
developments are required to have a twenty-foot-wide access and that the space
between mobile homes affects fire safety. The fire chief did not testify the mobile
home park was dangerous.
The increase in vehicles from 1963 to today probably is not unlike any
mobile home park. The mobile home park needs a thorough clean up and some
parking restrictions but the City did not afford Ogden that option. I would
conclude there has not been any substantial change in use or significant
intensification of the use. Changes from the original nonconforming use have
been marginal and the nature and character of the use is substantially
unchanged. See Jewell Junction, 439 N.W.2d at 183 (“[I]ntensification of a
nonconforming use is permissible so long as the nature and character of the use
is unchanged and substantially the same facilities are used.” (citation omitted)).
I would also conclude the City failed to show its need to enjoin the
operation of the mobile home under these circumstances. Before granting an
injunction to enforce a zoning ordinance the City must establish “(1) an invasion
or threatened invasion of a right; (2) that substantial injury or damages will result
unless the request for an injunction is granted; and (3) that there is no adequate
legal remedy available.” City of Okoboji v. Parks, 830 N.W.2d 300, 309 (Iowa
2013) (citations omitted). Without any prior actions taken by the City against
Ogden for prior violations, the record is markedly bare of evidence to show a
substantial injury or damage will occur absent an injunction or that no adequate
remedy at law is available.
I would reverse.