City of Old Town v. Dimoulas

CourtSuperior Court of Maine
DecidedMarch 30, 2000
DocketPENcv-98-124
StatusUnpublished

This text of City of Old Town v. Dimoulas (City of Old Town v. Dimoulas) is published on Counsel Stack Legal Research, covering Superior Court of Maine primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
City of Old Town v. Dimoulas, (Me. Super. Ct. 2000).

Opinion

DONALD L. GARBRECHT LAW LEGaRY

STATE OF MAINE

PENOBSCOT, ss. MAY 25 2000

CITY OF OLD TOWN, GARY E. KAREM, JR., and MARY C. KAREM,

SUPERIOR COURT CIVIL ACTION DOCKET NO. CV-98-124

DUM - PEN — 3/20/2000

Defendants

Plaintiffs v. DECISION AND ORDER ANTONIOS DIMOULAS and CLAUDIA —_—ne LOWD DIMOULAS, d/b/a MARKET FILED AND ENTBHED CAFE, i; SUPERIAG COYAT MAR Eo 2998

PENMARBOAT ocwiarey | PENOBSCOT SOUMTY |

et yore

This matter is before the court on plaintiffs’ and defendants’ cross-motions for summary judgment on the complaint and plaintiff City of Old Town’s motion for summary judgment on defendants’ counterclaims.

I, Facts and Procedural History!

Defendants Claudia and Antonios Dimoulas (hereinafter referred to jointly as defendants) are the owners and operators of a business known as the Market Cafe which is located at 827 Stillwater Avenue in Old Town, Maine. The entire piece of property is situated within the Low-Density Residence (R-1) zoning district and a portion of the property is also located within the Low-Density Residence Shoreland (R-1S) zoning district. On March 19, 1998, this court, in a related proceeding (AP-97-

77), found that the primary authorized use of the subject property under the City’s

1 These facts have been taken from the entire file. zoning ordinance was as a “neighborhood grocery store” as defined in section 102 of the Old Town Zoning Ordinance.

On March 25, 1998, defendant Claudia Dimoulas filed a petition in accordance with Article III of the Old Town City Charter seeking amendment of the Old Town Zoning Map through the initiative process. The petition sought to change the zoning classification of the subject property from R-1 to C-1, Commercial-Business. A public hearing was held on the proposed amendment on May 22, 1998 and the Old Town Planning Board voted unanimously not to recommend the adoption of the proposed ordinance for the following reasons:

(1) the proposed amendment is not pursuant to and consistent with

the Old Town Comprehensive Plan,

(2) the proposed amendment constitutes illegal spot zoning,

(3) many members of the public were not aware that the zone change

was not limited to a restaurant use, and

(4) even if the zoning classification was changed, a restaurant use at

that location would likely not meet the land use standards of the

zoning ordinance.

Notwithstanding this recommendation, the proposed amendment was approved by a majority of the voters in a special municipal election held on June 10, 1998 in response to Claudia’s petition. On September 14, 1998, the Old Town Planning

Board granted the defendants’ application for site plan review to convert the subject

property into a restaurant. This decision was not appealed. On June 29, 1998, plaintiffs? filed the instant action for declaratory judgment against defendants. Plaintiffs seek a declaration that: (1) the amendment is not pursuant to and consistent with the Old Town Comprehensive Plan, (2) the amendment constitutes illegal spot zoning, and (3) the subject property also lies in the R-15 district and defendants’ proposed use as a restaurant is not authorized within that district pursuant to section 111.0 of the ordinance.

Defendants answered the complaint and brought two counterclaims against the City of Old Town. The first counterclaim is brought pursuant to 42 U.S.C. § 1983 and 5 M.R.S.A. § 4681-4685 and alleges that the City has violated their right to due process by refusing to act on their appeal of the denial of their May, 1998 application for a victualer license. All victualer licenses in the City expire annually on May 31st. Defendants allege that the city clerk denied their 1998 application for renewal on May 27, 1998 based on her unfounded belief that they would operate a restaurant instead of a neighborhood grocery store under the terms of this court’s March, 1998 order. Following this denial, defendants assert that they made several requests for reconsideration or referral of their appeal to the City Council which were not acted upon. On June 17, 1998, defendants were informed that their appeal was forwarded to the City Council which would act on the appeal at a future Council meeting. Defendants allege that as of the date of their answer (July 21, 1998), the City Council

had not acted on their appeal or set the matter for hearing. Defendants’ May, 1998

2 The City of Old Town and Gary and Mary Karem will be referred to jointly as plaintiffs. The Karems are abutters to the property at issue in this case. Charles Heinonen, the Code Enforcement Officer for the City of Old Town, was initially named as a plaintiff in this action but has subsequently been dismissed. application for a victualer’s license was not granted until October 5, 1998, after their application for site plan review was granted.

Defendants’ second counterclaim alleges that the City Manager, Ron Singel, acting within the scope of his employment, made defamatory statements, which he knew or should have known were not true, about the defendants. Specifically, Singel was quoted in the Penobscot Times on June 17, 1998 as saying that “It appears these people may be more devious than we originally thought.” Defendants allege that the City is liable for Singel’s actions on the theory of respondeat superior.

I. Discussion

A. _Cross-motions for Summary Judgment on the Complaint

In count one of the complaint, plaintiffs allege that the zoning amendment adopted by the referendum voters is void and invalid as a matter of law because it is not pursuant to and consistent with the Old Town Comprehensive Plan. Pursuant to 30-A M.R.S.A. § 4352(2) (1996), "[a] zoning ordinance must be pursuant to and consistent with a comprehensive plan adopted by the municipal legislative body.” “The parties challenging the [legislative body’s] action have the burden of showing inconsistency between the rezoning and the comprehensive plan.” LaBonta v. City of Waterville, 528 A.2d 1262, 1265 (Me. 1987). On appeal, this court is to review the record to “determine whether, from the evidence before it, the legislative body of the Town could have determined that the amendments are in basic harmony with

the comprehensive plan... .” Vella v. Town of Camden, 677 A.2d 1051, 1053 (Me. 1996). In doing so, this court cannot substitute its judgment for that of the legislative body. Id.

This case is in a unique posture in that the “legislative body” which adopted the zoning amendment at issue was the referendum voters of the City of Old Town. Although not addressed by the parties in this action, the court was concerned about the implications the adoption of a zoning amendment by referendum might have on the court’s review of that amendment. Specifically, the court has investigated whether the adoption of a zoning amendment by referendum would or could impliedly amend the comprehensive plan so that the two are consistent with one another. In Lesher Communications, Inc. v. City of Walnut Creek, 802 P.2d 317 (Cal. 1990), the California Supreme Court rejected the idea of implied amendment of a comprehensive plan by referendum. That court found:

We cannot at once accept the function of a general plan as a

“constitution,” or perhaps more accurately a charter for future

development, and the proposition that it can be amended without

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Related

Lesher Communications, Inc. v. City of Walnut Creek
802 P.2d 317 (California Supreme Court, 1990)
Vella v. Town of Camden
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676 A.2d 490 (Supreme Judicial Court of Maine, 1996)
Handy Boat Service, Inc. v. Professional Services, Inc.
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Corey v. Norman, Hanson & DeTroy
1999 ME 196 (Supreme Judicial Court of Maine, 1999)
LaBonta v. City of Waterville
528 A.2d 1262 (Supreme Judicial Court of Maine, 1987)
Gerrity Co., Inc. v. Lake Arrowhead Corp.
609 A.2d 293 (Supreme Judicial Court of Maine, 1992)
Bennett v. Tracy
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Doucette v. City of Lewiston
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