City of Essexville v. Carrollton Concrete Mix, Inc

673 N.W.2d 815, 259 Mich. App. 257
CourtMichigan Court of Appeals
DecidedJanuary 22, 2004
DocketDocket 239807
StatusPublished
Cited by13 cases

This text of 673 N.W.2d 815 (City of Essexville v. Carrollton Concrete Mix, Inc) is published on Counsel Stack Legal Research, covering Michigan Court of Appeals primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
City of Essexville v. Carrollton Concrete Mix, Inc, 673 N.W.2d 815, 259 Mich. App. 257 (Mich. Ct. App. 2004).

Opinion

Murray, J.

Plaintiff, the city of Essexville, appeals as of right from the final order entered by the trial court in favor of defendant, Carrollton Concrete Mix, Inc. 1 The final order embodied the trial court’s con *259 elusion that the city had engaged in illegal “spot zoning” when, in 1983, it rezoned Carrollton’s property along the Saginaw River from M-l, industrial, to D-l, development district. The city argues on appeal that it had a reasonable basis for the rezoning, that the zoning decision was made pursuant to its master plan, and that its decision was not arbitrary. We agree, in part, and we reverse the trial court’s order ruling that the city engaged in spot zoning, and remand for further proceedings consistent with this opinion. On remand, the trial court shall determine whether the purpose of the rezoning was to lower the market price of Carrollton’s property in anticipation of the city making an offer to purchase the property.

I. MATERIAL facts

At the heart of this zoning dispute is Carrollton’s 4.37 acres of Saginaw River waterfront property. In 1955, this property was zoned as commercial. In 1966, a zoning amendment changed the property’s use to M-l industrial. 2 Since at least the 1970s, the property has been primarily available for use as a “lightering dock,” which permits ships moving upstream to lighten their loads by depositing some of their cargo onto the property, which allows the “lightened” ships to more safely traverse lower river depths.

The property is bordered to the east by Main Street, while to the west it is bordered by a railroad, and to the south by Smith Park, a public park. The northern border of the property consists of approxi *260 mately eight hundred feet of river frontage. The northeasterly, adjacent property is a cement plant, and to the northeast of the cement plant, there are two separate vacant parcels bordering the river, which are owned by the cement company. The land lying southwest and adjacent to Carrollton’s property encompasses Smith Park and a city sewage disposal plant. Farther southwest of those properties is Wirt Stone Dock.

In March 1982, a comprehensive development plan was completed by the city. The development plan was based on an engineering proposal prepared for the city. The plan contained a detailed analysis of public opinion, an examination of the city’s demographics at that time and historically, and recommendations to meet the current needs and demands of the community. In particular, the plan centered on the fact that the city had evolved over time, from once being its own economic base to being a residential suburb of the Bay City metropolitan area. In accordance with the residential character of the city, public opinion focused on improving the community’s character through commercial beautification and development of residential and recreational properties along the river. With respect to riverfront development and usage, the plan recommended that certain property along the river, including Carrollton’s property, be rezoned to promote the eventual development of recreational and residential uses:

Industrial market potential, however, is considerably greater than the citizens’ apparent desires. The City of Essexville has an attractive blend of river port frontage and rail access to serve a considerable amount of industrial development. Public opinion would result in the utilization *261 of this river front property for parks with waterborne activities and for intensive residential development that could utilize access to the Saginaw River. Park development would provide the municipal boat launches, with a fee for non-residents. Associated commercial activities could result in — in the vicinity of the park to promote recreational marine activities. The Park and recreational development, in conjunction with downtown beautification, could promote an improved image for the City of Essexville that could be utilized to promote some office business activities along Woodside Avenue as well.

The plan listed a number of deficiencies in recreational opportunities within the city and suggested that Smith Park be expanded to correct the deficiencies. The plan suggested that Carrollton’s property, which is “adjacent to and east of Smith Park, would provide an excellent location to improve water-oriented recreation for Essexville residents.” The plan explained the need to expand Smith Park by purchasing the property in dispute:

As identified more specifically in greater detail in the coastal zone management plan, special consideration of river access and water front recreation are highly desirable objectives. Purchasing the site northeast of Smith Park will provide the opportunity for the City to realize this objective.

The plan made clear that, “It is the intent, in fact, for the City to acquire, by acquisition or private agreement, access and recreation sites along the Saginaw River.” In the city of Essexville’s long-range land use map, which was a part of the plan, Carrollton’s property was identified as land suitable for parks and recreation.

*262 On May 24, 1983, the Essexville Zoning Ordinance was amended, changing the zoning of Carrollton’s property from industrial to a development district, pursuant to the plan. Also rezoned from industrial to development district were the two vacant lots to the northeast of (and owned by) the cement plant. Permitted uses in the development district generally consisted of public and recreational facilities. 3 In particular, the zoning ordinance allowed the following activity within a development district:

A. General farming and forestry including field crop and fruit farming, truck gardening, horticulture, tree nurseries and similar agricultural activities.
B. Public and private conservation areas and structures for the conservation of water, soil, open space, forest or wildlife resources.
C. Public and private parks and recreational facilities that utilize environmental or natural resource conditions as a basis for recreation.

Additionally, under the ordinance, several other types of uses were permitted by special land use permit, including planned unit developments, mobile home parks, townhouses, apartments and condominiums, wholesale and distribution facilities, and certain storage and distribution facilities. 4

*263 At the time of trial, the property was being used for a dredging operation in the Saginaw River. The dredging operation began in the fall of 1999, and in January 2000, there were two piles of bulk material approximately thirty feet high being stored in disregard of the zoning ordinance. The city sent Carrollton two letters requesting that it discontinue what the city considered to be an illegal nonconforming use. These letters did not result in the removal of the bulk material.

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Bluebook (online)
673 N.W.2d 815, 259 Mich. App. 257, Counsel Stack Legal Research, https://law.counselstack.com/opinion/city-of-essexville-v-carrollton-concrete-mix-inc-michctapp-2004.