Lampron v. Town of Standish

• Court: Superior Court of Maine
• Decided: February 8, 2008
• Docket: CUMap-07-19and21
• Status: Unpublished

Opinion

STATE OF MAINE SUPERIOR COURT CUMBERLAND, ss. CIVIL ACTION Docket Nos. AP-07-19 and AP-07-21 / --r--UW -' '-vJil - ;2!Y;; oo~, ANITA LAMPRON, et a1.,

Plaintiffs,

v. or "-~

TOWN OF STANDISH, et a1., ..... .~, ~_. '»

Defendants,

ORDER

ALAN CONNELL, et al.,

v. DONALD L. GARBRECHT TOWN OF STANDISH, et a1., LAW 11P,0APY

Defendants.

Before the court are consolidated Rule 80B appeals by Anita Lampron et a1. (the

"Westerlea Way Plaintiffs") and by Alan R. Connell et a1. (the "Hearthside Plaintiffs")

from a March 6, 2007 decision by the Standish Zoning Board of Appeals (ZBA)

approving an application by St. Joseph's College for a special exception to allow the

College to construct five residence halls, an environmental field laboratory, and

associated parking areas.

Neither the Westerlea Way Plaintiffs nor the Hearthside Plaintiffs object to the

special exception as it concerns the proposed environmental field laboratory. The

appeals concern the approval of the special exception as it pertains to the cluster of five new residential buildings with three associated parking areas as shown on Tab 24 of the

administrative record (R. Tab 24, Sheet 1).1

As demonstrated by maps and plans m the record, the College's proposal

contemplates residential buildings of two stories each on the south side of Westerlea

Way, with one parking area located between the new residences and the existing

Alfond Center and two other parking areas located on the north side of Westerlea Way,

immediately across from the first new parking area. The area between the proposed

residential halls and associated parking areas and the property of the plaintiffs is

generally wooded, and wooded buffer areas would be retained of at least 180 feet

between the proposed residence halls and the Westerlea Way Plaintiffs and 240 feet

between the proposed parking areas and the Hearthside Plaintiffs.

The College's application was considered at three ZBA meetings - on December

18,2006, January 22,2007, and February 26,2007 - and was ultimately approved during

a fourth meeting on March 6, 2007. The approval was subject to several conditions,

including subsequent Planning Board site plan review and approval, a requirement that

the College maintain a 240' wooded buffer between the parking areas and the

Hearthside neighborhood and a 180' wooded buffer between the proposed residences

and the nearest property of the Westerlea Way plaintiffs, and the construction of a

turnaround (referred to as a cuI de sac) on Westerlea Way. R. Tab 29.

1 The existing campus is depicted on R. Tab 3, Sheet C100. The proposed residences and parking areas would be located immediately west of the existing campus area on Westerlea Way and are shown on R. Tab 3, Sheet 201 and on R. Tab 24, Sheet 1. (R. Tab 24 represents a slight modification of R. Tab 3, Sheet 201 in that a turnaround or cuI de sac has been added). An aerial photograph with an overlay of the proposed residences and parking areas is contained in the record at R. Tab 24, Sheet 2. The Westerlea Way Plaintiffs are the owners of five lakefront cottages at the end of Westerlea Way, with the closest cottage approximately 150­ 200 yards away from the proposed new residential buildings. These cottages are visible on R. Tab 24, Sheet 2. The Hearthside Plaintiffs own property on Hearthside Road, which is a lane to the north of the campus, running roughly parallel to Westerlea Way. Their residences are also visible on R. Tab 24, Sheet 2.

2 The Westerlea Way and Hearthside Plaintiffs contend that the ZBA (1) failed to

require the College to demonstrate that its development plan will promote the

appearance, property, general health or general welfare of the Town, (2) improperly

reconsidered the College's application after an earlier meeting resulted in a tie vote on

the application, (3) failed to make findings in connection with its vote to reconsider, (4)

applied incorrect legal standards, failed to make findings of fact, or otherwise

improperly failed to evaluate certain of the project's effects, particularly as those

applied to lighting and noise.

1. Standard of Review

In reviewing the decision by the ZBA in this case, the role of the court is to

determine whether the ZBA erred as a matter of law, abused its discretion, or made

factual findings not supported by substantial evidence. Marton v. Town of Ogunquit,

2000 ME 166

is reviewed de novo as a matter of law. Isis Development LLC v. Town of Wells, 2003 ME

149

reviewed under an abuse of discretion standard. Forbes v. Town of Southwest Harbor,

2001 ME 9

upheld if there is any competent evidence in the record to support those findings. York

v. Town of Ogunquit, 2001 ME 53

2. General Welfare

St. Joseph's College IS located within Standish's Rural Residential District.

Colleges are allowed uses within the Rural Residential District subject to ZBA special

3 exception approval. Ordinance § 184-4(D)(2).2 To obtain special exception approval, an

applicant must meet a two-pronged test:

1. Effect not adverse. That the use requested will not have an unreasonably adverse effect on the health, safety or general welfare of the residents of the area or the general public. In making this determination, the Board shall take into consideration the potential effect of the development on the environment from air, water or soil pollution; noise; traffic congestion; soil erosion; the burden on the sewage disposal or water supply systems or other municipal facilities, services or public ways; and any other relevant factors.

2. Value maintained. That the use requested will not significantly devaluate abutting property or property across a public or private way. In making its determination, the Board shall take into consideration the type of structure proposed; the topography of the area; the market value of surrounding real estate; the availability of utilities and transportation; the availability of schools and hospitals; traffic conditions; and any other relevant factors.

Ordinance § 181-64(A)(2)(a).

The Westerlea Way Plaintiffs contend, based on the definition of "special

exception" in Ordinance § 181-3 that an applicant must also demonstrate that its

proposed project would promote the "public health, safety, order, comfort,

convenience, appearance, prosperity, or general welfare.,,3 Interpreting the ordinance

as a matter of law, the court concludes from the structure and language of the ordinance

that the only two criteria that must be met are the "no adverse effect" and "maintain

value" standards set forth in § 181-64(A)(2)(a). After reciting the general welfare

language relied upon by plaintiffs, the definition of special exception specifically

provides that uses promoting the general welfare "may be permitted if special

2 Colleges are not permitted in any other district. 3 It is unclear to the court whether this issue was raised before the ZBA.

4 provision for such special exception is made in this Pflrt 1." § 181-3. In the immediately

following section of the ordinance, colleges are expressly included within the category

of permitted special exceptions in Rural Residential Districts. § 181-4(D)(2).

Moreover, the first prong of the special exception standards quoted above in §

181-64(A)(2)(a)[1] requires the applicant to demonstrate that the proposed use will not

have "an unreasonably adverse effect on the health, safety, or general welfare of the

residents of the area or the general public". The general welfare criterion is thus

subsumed within § 181-64(A)(2)(a)[1] and does not need to be independently

considered.

Finally, the Law Court has held that while ordinances frequently contain general

statements of purpose such as those in the first sentence of the special exception

definition, applicants are not required to show that their projects qualify under those

general statements of purpose. Stewart v. Town of Sedgwick, 2002 ME 81

27, 31.

3. Reconsideration

Plaintiffs contend that after initially deadlocking 2-2 on the project at a January

22, 2007 meeting (thereby denying approval), the ZBA improperly voted to reconsider

its action at its February 26, 2007 meeting. Thereafter, it reopened the public hearing

and, at its final meeting on March 6, 2007, voted to approve the special exception.

The January 22, 2007 was a somewhat unruly and confused affair. 4 As counsel

for the College notes in its brief, various motions were made, not all were voted on, and

not all were seconded. In the wake of that meeting, moreover, the College sought

4 For example, after the public hearing portion of the meeting had closed, see R. Tab 15 at 63, members of the public continued to interject comments and questions. See, e.g., id. at 75-76, 80­ 82, 95-97, 98-99.

5 reconsideration pursuant to 30-A NLR.S. § 2691(3)(F), pointing out that considerable

new material had been submitted by the project opponents during the January 22, 2007

meeting that the College had never had an opportunity to review and evaluate. After

reviewing the record, the court concludes that the Board's February 26, 2007 decision to

reconsider was not arbitrary or capricious or an abuse of discretion. See Forbes, 2001 ME

9

Plaintiffs advance two other arguments with respect to the reconsideration

decision. First, they argue that because the College submitted a minor modification of

its plan at the February 26, 2007 meeting, it was submitting a "new plan" not permitted

on a motion to reconsider. The only difference apparent to the court, however, is that

the new maps presented by the College depicted a circular turnaround at the site of the

new residence halls to divert traffic from Westerlea Way. Previously no turnaround

had been provided. Compare R. Tab 24, Sheets 1 and 2 with R. Tab 3, Sheet 201. The

court is not aware of any authority for the proposition that such a modification would

constitute a "new plan"; the College simply proposed a minor modification to alleviate

traffic concerns that had been raised by the Westerlea Way Plaintiffs.

Plaintiffs also contend that the ZBA's vote to reconsider cannot be sustained

because the ZBA did not issue separate findings with respect to its reconsideration vote.

However, the court concludes that while findings of fact are statutorily required for any

board "decisions," 30-A M.R.S. § 2691(3)(E), the statute draws a distinction between a

"decision" - a determination on the merits of an application - and a "vote to

reconsider." See 30-A M.R.S. § 269l(3)(F). Findings of fact are not statutorily required

on a vote to reconsider - whether that vote is for or against reconsideration. The court

has also reviewed the case law cited by plaintiffs and cannot find any requirement that

discretionary procedural decisions - as opposed to decisions on the merits of an

6 application that are subject to the substantial evidence standard - must be accompanied

by findings of fact.

4. The Board's Express Findings

In its final written decision (R. Tab 29), the ZBA expressly considered the

potential adverse effects of the project with respect to (1) water, soil, and air pollution,

(2) noise, (3) traffic congestion, (4) soil erosion, and (5) septic issues. It found that the

project would not have an unreasonably adverse effect on the health, safety, or general

welfare of the residents of the area or the general public. R. Tab 29 at 3-4. Similarly,

under the second prong of § 181-64(A)(2)(a) - requiring that the proposed use "not

significantly devaluate [sic] abutting property or property across a public or private

way" - the Board also made an express finding that there would be no significant

devaluation and also found that the opponents of the project had not submitted any

credible evidence to the contrary. R. Tab 29 at 4-5. As to all of these issues,

notwithstanding plaintiffs' various arguments, the ZBA's findings are more than

adequate, there is substantial evidence to support the ZBA decision, and the court is not

permitted to independently review the record and substitute its own judgment even if it

were to disagree with the manner in which the ZBA weighed the evidence. s

5 The Westerlea Way plaintiffs argue in passing that the Chair of the Board improperly relied upon evidence not in the record. It is permissible for board members to draw on their general knowledge and experience. See Adelman v. Town of Baldwin, 2000 ME 91

7 5. Lighting

No express findings were made by the ZBA on the issue of lighting. Plaintiffs

argue that this was a "relevant factor" under Ordinance § 181-64(A)(2)(a)[1]6 and

therefore that the Board's failure to consider lighting (or its failure to make findings as

to lighting) was error.

The court has reviewed the record and, as far as it can tell, finds that the issue of

lighting arose only twice during the four Board meetings on the College's application?

First, after public comments closed on January 22, 2007, an unidentified member of the

audience interjected "don't forget lighting" and the same or another person asked,

"Isn't [lighting] a relevant factor though?" R. Tab 15 at 75. This led to some further

discussion of lighting, id. at 75-77, during which the Chair stated on several occasions

that he believed lighting was a subject for the planning board, not the ZBA proceeding.

Id.

Subsequently, at the February 26, 2007 reconsideration meeting, and apparently

responding to this colloquy, an architect for the College explained how lighting effects

could be minimized. R. Tab 22 at 93-95. At that point a resident of Hearthside

responded that the lighting concepts just referred to "would be exactly what we would

be looking for in the new design," but went on to complain that it was not yet included

in the design as far as he could see and that the College had previously promised to

conceal lighting in connection with other dormitories and had not done so. Id. at 95-96.

6 That provision states that in making the determination as to whether the proposed use will have an unreasonably adverse effect on health, safety, or general welfare, the Board shall take into consideration five specific issues"and any other relevant factors." Id. 7 The only other mention the court has found with respect to lighting is a statement by a Hearthside resident that her property values would go down "if all of a sudden I'm looking out my front door at a open field and a parking lot full of lights and kids." R. Tab 15 at 56. This remark did not raise lighting as a relevant issue independent of property values.

8 The court is of the view that if lighting is considered a "relevant factor" within

the meaning of § 181-64(A)(2)(a)[1], then the Board should have expressly addressed

lighting in its findings, and the court should remand this issue to the Board solely for

findings on the issue of lighting. On this record, however, the court concludes that

there is no basis for determining that lighting was a relevant factor with respect to the

"health, safety, or general welfare" of the residents of the area or the general public. §

181-64(A)(2)(a)[1].

Specifically, the issue of lighting only arose after public comments had closed at

the January 22, 2007 meeting. The record demonstrates that residents of the area

surrounding the College were unhappy with what they perceived to be the College's

failure to keep its past promises to use concealed lighting around other dormitories but

there was no evidence offered that lighting affected their health or general welfare. It

was also not disputed that concealed lighting could be employed and lighting could be

shielded to avoid unintended light. Finally, according to the only board member who

discussed this issue, lighting issues are considered to fall within the purview of the

planning board during site plan review. A review of the applicable ordinance

provisions substantiates this belief. 8

Unless any issue raised in passing during the course of a special exception

proceeding automatically becomes a relevant factor with respect to health, safety, and

general welfare, the ZBA was entitled on this record to bypass the lighting issue. A

contrary conclusion would eradicate the distinction between the issues to be considered

8 In this connection, the College cites Ordinance § 181-73(E), which is not contained in the record but which the court can take judicial notice of because it appears on the Town's web site. See http://www.standish.org/Home/ -link to Code Book and eventually to http://www.e­ codes.generalcode.com / codebook_frameset.asp?t=tc&p=1289%2D181 %2Ehtm%23Section181 % 2D73%2E&cn=376&n=[1] [144][257][376]

9 by the Planning Board during site plan review and the issues to be considered by the

Board of Appeals on a special exception proceeding.

The entry shall be:

The March 6, 2007 decision of the Standish Board of Appeals is affirmed. The

clerk is directed to incorporate this order in the docket by reference pursuant to Rule

79(a).

DATED: February 6 ,2007

Thomas D. Warren Justice, Superior Court

10 Date Filed 03-20-07 CUMBERLAND Docket No. AP-07-19 County CONSOLIDATED WITH AP07-21 Action ~B~Ao.=P,,-,P,,--,F:=.!"A~.L=,-- _ ALL PLEADINGS TO BE DOCKETED AND FILED IN AP07-19 ANITA LAMPRON TOWN OF STANDISH DANA LAl1PRON TRUSTEES OF ST JOSHEPHS COLLEGE OF ALBERTINA WILSON MAINE CYNTHIA WOOD LOUIS '~OOD JR LOUIS WOOD SR WESTERLEA WAY ASSOCIATION Ys.

Plaintiff's Attorney Defendant's Attorney DAVID J PERKINS ESQ THOMAS DOYLE ESQ PO BOX 449 CATHERINE CONNORS ESQ PORTLAND ME 04112-0449 NICHOLAS LIVESAY, ESQ (207) 871-7159 ONE MONUMENT SQUARE PORTLAND ME 04101

SALLY DAGGETT, ESQ. P.O. BOX 4510 (Town of Standish) PORTLAND, MAINE 04112 Date of 775-7271 F"t r " .. -.- -------­ Date Filed 03-Z0-07 CUMBERLAND Docket No. _A::.=. P-_O:: .-7-'-------'Z: :. c1=-­ _ County CONSOLIDATED WITH AP07-19 ALL FURTHER DOCKETING AND FILINGS

• Action BOB APPEAL TO BE IN AP07-21 ALAN R CONNELL THE TO~~ OF STANDISH TEDD M GIFFORD THE TRUSTEES OF 5T JOSEPHS COLLEGE CAROLL A GIFFORD STUART W JACKSON JOSEPH W MCKENNA MICHELLE P MCKENNA MONTY D VOGEL Ys.

Plaintiff's Attorney Defendant's Attorney JOHN C BANNON ESQ Thomas Doyle Esq. PO BOX 9785 Catherine Connors Esq PORTLAND ME 04104-5085 Nicholas Livesay Esq (Z07) 77 3-5651 One Monument Square Portland ME 04101

Date of