Precision Gun Range LLC, and Baron Creek LLC v. Jerry Wise, Kathy Wise, David Drake, and Brozia Drake, Owen County, Indiana Board of Zoning Appeals (mem. dec.) ( 2020 )


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  • MEMORANDUM DECISION
    Pursuant to Ind. Appellate Rule 65(D),
    this Memorandum Decision shall not be                                        FILED
    regarded as precedent or cited before any                               Nov 30 2020, 9:54 am
    court except for the purpose of establishing
    CLERK
    the defense of res judicata, collateral                                  Indiana Supreme Court
    Court of Appeals
    estoppel, or the law of the case.                                             and Tax Court
    ATTORNEYS FOR APPELLANTS                                ATTORNEYS FOR APPELLEES
    Michael L. Carmin                                       JERRY WISE, KATHY WISE,
    Daniel M. Cyr                                           DAVID DRAKE, AND BROZIA
    CarminParker, PC                                        DRAKE
    Bloomington, Indiana                                    Jonathan W. Hughes
    Andrew M. McNeil
    Martha A. Dean                                          Bose McKinney & Evans LLP
    Law Offices of Martha A. Dean, LLC                      Indianapolis, Indiana
    Avon, Connecticut
    ATTORNEY FOR APPELLEE
    OWEN COUNTY, INDIANA
    BOARD OF ZONING APPEALS
    John J. Moore
    Tuohy Bailey & Moore LLP
    Indianapolis, Indiana
    IN THE
    COURT OF APPEALS OF INDIANA
    Precision Gun Range LLC, and                            November 30, 2020
    Baron Creek LLC,                                        Court of Appeals Case No.
    Appellants,                                             20A-PL-231
    Appeal from the Owen Circuit
    v.                                              Court
    The Honorable Michael D. Keele,
    Jerry Wise, Kathy Wise, David                           Special Judge
    Drake, and Brozia Drake,                                Trial Court Cause No.
    60C02-1907-PL-304
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020                  Page 1 of 18
    Owen County, Indiana Board of
    Zoning Appeals,
    Appellees.
    Brown, Judge.
    [1]   Precision Gun Range LLC (“PGR”) and Baron Creek LLC (“Baron Creek”)
    appeal the trial court’s January 3, 2020 order which granted a request for stay
    and preliminary injunction. We affirm.
    Facts and Procedural History
    [2]   Jerry Wise and Kathy Wise reside in Owen County, Indiana, approximately
    1,119 yards due south of a rifle range operated by PGR. David Drake and
    Brozia Drake reside immediately west of the Wises.
    [3]   In March 2015, PGR filed a Conditional Use Application through Michael
    Marshall with the Owen County Board of Zoning Appeals (the “BZA”) to
    “create ‘Gun Club’ – Recreational on Lots 3-6 Franklin Industrial Park II.”
    Exhibits Volume I at 9. The application included a site plan with a rifle range
    and a pistol range. The conditional use application was filed for the property
    addresses of Lots 3, 4, 5, and 6 of the Franklin Industrial Park. At the time of
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 2 of 18
    the application, Baron Creek owned Lot 6, but it has never owned Lots 3, 4, or
    5.
    [4]   On April 9, 2015, the BZA conducted a public hearing to consider PGR’s
    conditional use application which provided for the operation of a rifle range in
    a west to east shooting orientation. The minutes from the meeting indicated the
    board members agreed that the request had met all conditions, regulations, and
    development standards required in the zoning ordinance, approved the
    conditional use request, and ordered that the gun range owners meet all safety
    standards and building requirements “per the State, Local and Federal for [sic]
    Firearms for both the proposed indoor and outdoor ranges and future
    development.”
    Id. at 15. [5]
      Between April 9, 2015, and September 26, 2015, PGR oriented the rifle range in
    a north to south direction. It received no written authorization to do so, and
    the rifle range opened on September 27, 2015, in a north to south shooting
    orientation.
    [6]   The Wises found bullet holes in their home, shop, and trailer. The Drakes
    found a bullet hole in their home’s gutter. The Wises found the first bullet hole
    on November 13, 2016, and reported this discovery to the Owen County
    Sheriff’s Department. Sergeant Michael Browning responded, inspected the
    property, and identified two bullet holes in the exterior siding of the steel shop,
    evidence of a bullet hitting concrete blocks, and a bullet hole in the side of a
    racecar trailer. Jerry Wise reported the incident to PGR, and PGR by its
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 3 of 18
    representative and range-manager, Kimberly Bartlett, indicated that it was
    aware of a problem with the left hand side of the range, and would fix it and
    repair the damage.
    [7]   On or around February 6, 2017, the Wises discovered a bullet in their home.
    On February 28, 2017, the Drakes discovered a bullet in their gutter and
    reported the incident to the Indiana State Police, and Sergeant Christopher
    Fears conducted an investigation. On March 15, 2017, Sergeant Fears met with
    Bartlett at PGR. Bartlett told Sergeant Fears “that the rifle alley could possibly
    be moved, and they would look into the solution. Ms. Bartlett advised . . . that
    as of this date, the rifle alley would be closed indefinitely until it is fixed or
    changed. She advised they would lock it down and not utilize it, at this time.”
    Appellants’ Brief at 17.
    [8]   The rifle range was closed during the period of March 2017 until May 25, 2019,
    but PGR continued to operate the pistol range during that time. When the rifle
    range was closed, neither the Drakes nor the Wises had any concerns about
    bullets entering or striking their properties.
    [9]   Although the rifle range was closed in March 2017, PGR notified the public via
    a November 21, 2017 press release that it would be reopening it on December 1,
    2017. On December 5, 2017, the BZA made a motion to close the rifle range
    until expert findings could deem it safe, and that month it closed the rifle range.
    PGR continued to operate its pistol range.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 4 of 18
    [10]   On January 11, 2018, the BZA met to discuss the conditional use. The BZA
    heard various complaints, and County attorney Richard Lorenz noted that any
    directional change in the range “should have been re-presented to the BZA for
    approval.”
    Id. at 18.
    The BZA voted “to give PGR 15 days to develop a
    presentation to demonstrate the safety of the range.”
    Id. All agreed that
    the
    rifle range would not reopen “until the BZA meets again on the matter.”
    Id. On February 2,
    2018, the BZA met, and it “was agreed upon to maintain the
    range’s closure until new safety measures are implemented and revisited.”
    Id. at 19. [11]
      On July 19, 2018, the BZA held a meeting where no action was taken on the
    range other than to authorize its attorney to work on a letter concerning a future
    closure. On September 20, 2018, the BZA held a meeting, reminded all in
    attendance that “a conditional use can be revoked at any time,” discussed
    hiring an outside specialist to review the safety at the range, and moved to
    request funding from the County Council “to hire an independent specialist.”
    Id. [12]
      On October 23, 2018, the BZA met again to discuss the independent inspection.
    It indicated that the County Council denied funds for the specialist and noted,
    “[s]ince there was an approved motion to close [by the BZA], [the rifle range]
    will remain closed until approval is given.”
    Id. [13]
      On May 24, 2019, the BZA held a meeting to consider the rifle range and
    ultimately tabled the issue “until further able to process.”
    Id. at 20.
    PGR
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 5 of 18
    unilaterally determined to reopen the rifle range on May 25, 2019. On May 26,
    2019, Sergeant Browning responded to a call from Kathy Wise who reported
    that the Wises had located a bullet lodged in the north side of their residence.
    Sergeant Browning observed the bullet hole and recovered the bullet from the
    window frame just above the bedroom window. He also identified what he
    believed to be ballistic damage to the Wises’ new arbor in their back yard.
    [14]   On June 10, 2019, all three members of the BZA and the Owen County
    planning director visited PGR and met with Bartlett. On June 18, 2019, the
    BZA held a meeting, the minutes for which stated in part: “A motion to allow
    PGR to operate and remain open was made by R. Wood 2nd by S. Wood.
    Carried 3-0.” Exhibits Volume I at 28.
    [15]   On July 17, 2019, the Wises and Drakes filed a Complaint for Declaratory
    Relief, Injunction, and Verified Petition for Judicial Review in the Owen
    Circuit Court against the BZA, PGR, Baron Creek, and Marshall under cause
    number 60C02-1907-PL-304. Under Count I, “Declaratory and Injunctive
    Relief – Violation of Existing Variance,” they requested that the court enter: a
    declaratory judgment that Defendants, PGR, Baron Creek, and/or Marshall are
    in violation of the Conditional Use Variance and Zoning Ordinance; a
    preliminary injunction prohibiting PGR, Baron Creek, and/or Marshall from
    operating a rifle and/or pistol range on Lot 6 pending the outcome of this case;
    and a permanent injunction prohibiting PGR, Baron Creek, and/or Marshall
    from operating the non-complying rifle and pistol ranges. Appellants’
    Appendix Volume II at 52. The complaint also contained Count II, “Petition
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 6 of 18
    for Judicial Review,” and Count III, “Petition for Order Staying Zoning
    Decision Pending Review.”
    Id. at 55, 66. [16]
      On August 7, 2019, the Wises and Drakes filed an Agreed Motion for
    Extension of Time to File Record of Proceedings. On September 11, 2019, PGR
    and Baron Creek filed a Motion for Partial Dismissal; a Motion for Judgment
    on the Pleadings and Dismissal (Counts II and III); and a Motion for Partial
    Dismissal in which they argued in part that the Wises and Drakes did not have
    standing to assert a claim premised on enforcement of the zoning ordinance.
    On September 16, 2019, the BZA filed a response to the complaint. 1
    [17]   On September 25, 2019, the Wises and Drakes filed a Memorandum of Law in
    Opposition to Motion for Partial Dismissal and a Memorandum of Law in
    Opposition to Motion for Judgment on the Pleadings and Dismissal (Counts II
    and III) and Cross Motion for Judgment on the Pleadings (Counts I, II, and
    III). On October 2, 2019, the court held a hearing, and five days later it entered
    an order denying the motion for partial dismissal and scheduled a hearing for
    November 14, 2019.
    [18]   PGR and Baron Creek timely filed a motion to certify the order for
    interlocutory appeal. On October 16, 2019, PGR and Baron Creek filed a
    Motion to Dismiss Petition for Judicial Review, and two days later they filed a
    Motion to Reconsider Motion to Dismiss and in the Alternative Motion to
    1
    The BZA has not filed a brief in this appeal.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 7 of 18
    Consolidate in which they moved to consolidate the cause with cause number
    60C02-1703-CT-116 (“Cause No. 116”). 2
    [19]   On November 12, 2019, the court denied PGR and Baron Creek’s Motion to
    Certify Order for Interlocutory Appeal, Motion to Dismiss Petition for Judicial
    Review, and Motion to Dismiss and in the Alternative Motion to Consolidate.
    [20]   On November 14, 2019, the court held the scheduled hearing. Counsel for the
    Wises and Drakes asserted:
    Your Honor we’re here today on a stay hearing and on a
    Preliminary Injunction, Petitioners are entitled to both.
    Although the granting of either will accomplish the same
    purpose, which is to enjoin Defendants, Precision Gun Range
    from operating its rifle range on property situated in Owen
    County, either one of those will accomplish that purpose.
    Transcript Volume I at 6.
    [21]   On January 3, 2020, the court entered an order that stayed the June 18, 2019
    BZA decision. The court found that the petition for review and the petition for
    a stay order showed a reasonable probability that the appealed zoning decision
    2
    On March 23, 2017, the Wises and Drakes filed a Complaint for Damages and Injunctive Relief against
    PGR in the Owen Circuit Court under Cause No. 116. The complaint alleged Count I, negligence, Count II,
    nuisance, and Count III, trespass. The complaint requested consequential damages, punitive damages, and a
    permanent injunction to prevent PGR from operating and/or resuming the operation of the shooting range in
    a manner that endangers the property of the Wises and Drakes “because without a permanent injunction
    [PGR’s] operation of the Shooting Range threatens Plaintiffs with immediate and irreparable injuries that are
    not compensable with monetary damages.” Appellants’ Appendix Volume VII at 83. On October 14, 2020,
    a mediator filed a report in Cause No. 116 indicating that a settlement was reached in that case.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020                 Page 8 of 18
    was invalid and/or illegal, the BZA failed to issue written findings of fact, and
    the BZA never considered the re-orientation of the rifle range. With respect to
    the request for preliminary injunction, the court stated that under the per se rule,
    the Wises and Drakes needed to show only that (i) they have at least a
    reasonable likelihood of success at trial by establishing a prima facie case that
    PGR is violating the law; and (ii) the public interest would not be disserved by
    issuing the injunction. The court found that they established a reasonable
    likelihood that PGR’s rifle range was in violation of the zoning ordinance and,
    even if the BZA could authorize the rifle range, PGR was in violation of the
    BZA’s only written authorization for the operation of the range. It ordered
    PGR to refrain from operating its rifle range in a north to south shooting
    orientation during the pendency of the stay and ordered the Wises and Drakes
    to file a bond in the amount of $500 conditioned upon the due prosecution of
    the proceeding. The court also denied PGR and Baron Creek’s motion for
    judgment on the pleadings and dismissal of Counts II and III and the Wises and
    Drakes’ cross-motion for judgment on the pleadings for Counts I, II, and III.
    On January 29, 2020, PGR and Baron Creek filed a notice of appeal of the
    January 3, 2020 order. 3
    3
    The notice of appeal states the appeal is from an interlocutory order and taken as of right pursuant to Ind.
    Appellate Rule 14(A)(5).
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020                    Page 9 of 18
    Discussion
    [22]   PGR and Baron Creek assert that: (A) the Wises and Drakes lack standing; (B)
    the Wises and Drakes were not entitled to a stay; and (C) the preliminary
    injunction was improper.
    A. Standing
    [23]   To the extent PGR and Baron Creek argue that the Wises and Drakes lack
    standing, this issue was raised by PGR in its September 11, 2019 Motion for
    Partial Dismissal. The trial court denied this motion in its October 7, 2019
    order, which was not certified for interlocutory appeal. Even assuming PGR
    and Baron Creek can now assert that the Wises and Drakes lack standing, we
    cannot say that reversal is warranted. Standing has been defined as “having
    ‘sufficient stake in an otherwise justiciable controversy to obtain judicial
    resolution of that controversy.’” Ind. Civil Rights Comm’n v. Indianapolis
    Newspapers, Inc., 
    716 N.E.2d 943
    , 945 (Ind. 1999) (quoting BLACK’S LAW
    DICTIONARY 1405 (6th ed. 1990)), reh’g denied. Standing requires that a party
    have “a personal stake in the outcome of the lawsuit and must show that he or
    she has sustained or was in immediate danger of sustaining, some direct injury
    as a result of the conduct at issue.” Foundations of East Chicago, Inc. v. City of East
    Chicago, 
    927 N.E.2d 900
    , 903 (Ind. 2010) (quoting Higgins v. Hale, 
    476 N.E.2d 95
    , 101 (Ind. 1985)), clarified on reh’g by 
    933 N.E.2d 874
    .
    [24]   PGR and Baron Creek refer to the Owen County Zoning and Subdivision
    Control Ordinance (the “Ordinance”) and assert that “[t]he Planning Director
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 10 of 18
    is fully vested with authority to determine whether or not a violation should be
    pursued.” Appellants’ Brief at 32. Under the heading “Authorized Remedies
    for Violations,” the Ordinance provides:
    A. Upon a reasonable belief that a person is violating a provision
    of this ordinance or a condition, requirement or commitment
    imposed or made thereunder, the Planning Director may seek,
    with the assistance of the Commission Attorney, the following
    civil remedies:
    1. a civil penalty for ordinance violation;
    2. a temporary restraining order, preliminary injunction or
    permanent injunction to restrain a person from violating
    the ordinance or a condition, requirement or commitment
    imposed or made thereunder; and
    3. a mandatory injunction directing a person to perform a
    condition, requirement or condition imposed or made
    under the ordinance or to remove a structure erected in
    violation of the ordinance. The foregoing remedies may be
    sought by any property owner specially damaged by any such
    violation of the ordinance.
    Appellants’ Appendix Volume II at 156 (emphasis added). Based on the
    Ordinance and the record, the Wises and Drakes do not lack standing.4
    B. Stay
    4
    Ind. Code § 36-7-4-1603 is titled “Judicial review; standing” and addresses standing to obtain judicial
    review of a zoning decision. PGR and Baron Creek do not cite Ind. Code § 36-7-4-1603 or present cogent
    argument regarding the impact of the statute.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020                Page 11 of 18
    [25]   Appellants argue that the Wises and Drakes are not entitled to a stay, the
    Petition for Judicial Review must be dismissed, and “[u]pon dismissal of the
    Petition for Judicial Review, in accordance with I.C. 36-7-4-1609, there is no
    basis to maintain an order of stay.” Appellants’ Brief at 45.
    [26]   Ind. Code § 36-7-4-1609 provides:
    (a) A person seeking judicial review may seek, by filing a verified
    petition, an order of the court staying the zoning decision
    pending review by the court. The court may enter an order
    staying the zoning decision pending a final determination if:
    (1) the court finds that the petition for review and the
    petition for a stay order show a reasonable probability that
    the zoning decision appealed from is invalid or illegal; and
    (2) a bond is filed that is conditioned upon the due
    prosecution of the proceeding for review and that the
    petitioner will pay all court costs and abide by the zoning
    decision if it is not set aside. The bond must be in the
    amount and with the surety approved by the court.
    However, the amount of the bond must be at least five
    hundred dollars ($500).
    (b) If a petition for review concerns a revocation or suspension of
    a previously approved variance, exception, or use, any stay
    ordered under subsection (a) is effective during the period of the
    review and any appeal from the review and until the review is
    finally determined, unless otherwise ordered by the court
    granting the stay. If the stay is granted as provided in this section
    and the zoning decision is approved on final determination, the
    revocation or suspension of the variance, exception, or use
    immediately becomes effective.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 12 of 18
    [27]   Without citation to authority, PGR and Baron Creek argue that “[t]he June 18,
    2019 BZA decision was not a zoning decision subject to judicial review.”
    Appellants’ Brief at 41. They assert that the “June 18, 2019 vote to allow the
    range to reopen is a nullity” and “was a vote for action not within the power or
    the purview of the Board of Zoning Appeals.”
    Id. at 41-42.
    They also contend
    that the Wises and Drakes waived any appeal of the April 9, 2015 decision of
    the BZA. However, we note they acknowledge in their statement of facts that
    the conditional use application and site plan with respect to the April 9, 2015
    decision intended the operation of a rifle range in a west to east shooting
    orientation, and that they subsequently operated the rifle range in a north to
    south direction. We cannot say that PGR and Baron Creek have demonstrated
    that the BZA’s June 18, 2019 decision did not constitute a zoning decision for
    purposes of Ind. Code § 36-7-4-1609 or that the Wises and Drakes did not
    timely file their complaint.
    [28]   To the extent PGR and Baron Creek argue that the complaint for declaratory
    relief is mischaracterized as a request for judicial review and that no petition for
    judicial review was filed, the Wises and Drakes correctly point out that
    argument “ignores the fact that Homeowners filed a two-count complaint” and
    that Count II was for judicial review. Appellees’ Brief at 42.
    [29]   PGR and Baron Creek also argue that “[t]endering eight hundred thirty-seven
    (837) miscellaneous papers consisting of every loose paper from the BZA files
    ever pertaining to Conditional Use Permit 2015-01 dating from April, 2015
    through and after June 8, 2019 does not comport with I.C. 36-7-4-1613.”
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 13 of 18
    Appellants’ Brief at 43. We note they do not assert that any portion of the
    record is missing. We also note that the Joint Stipulations of Fact filed on
    November 13, 2019, state: “The parties agree that all documents (837 pages)
    contained in the files of the BZA certified by Jenny Osborne on August 28,
    2019 and provided to the parties by the BZA’s counsel are authenticated as
    public records and reserve all other objections to the admissibility of the records
    for the hearing.” Exhibits Volume I at 6. This argument is without merit.
    [30]   In addressing the request for a stay under Ind. Code § 36-7-4-1609, the trial
    court concluded that the petition showed a reasonable probability that the
    appealed zoning decision was invalid and/or illegal, the BZA lacked authority
    to grant a conditional use to operate a rifle range, and the Ordinance limited the
    use of real property in Owen County. The court found that the BZA failed to
    issue the required written findings of fact pursuant to Ind. Code § 36-7-4-915
    and that, “[a]bsent specific, tailored, written findings of fact, the BZA’s June 18,
    2019 decision is invalid and illegal and must be stayed pending a final
    resolution of this matter.” Appellants’ Appendix Volume II at 43. The court
    also found that the BZA never considered the re-orientation of the rifle range,
    “[t]he BZA’s June 18, 2019 Zoning Decision allegedly authorizing PGR to
    operate its rifle range is in violation of the BZA’s own Findings of Fact
    approved in April of 2015 which oriented the range in a west to east direction,”
    and “[w]ithout formal written action from the BZA and/or the Zoning
    Administrator, PGR’s use of the range in a north to south orientation must be,
    and hereby is, stayed.”
    Id. at 44.
    Appellants do not cite Ind. Code § 36-7-4-915
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 14 of 18
    or specifically challenge the trial court’s findings with respect to the stay under
    Ind. Code § 36-7-4-1609. Again, Appellants have not demonstrated grounds for
    reversal.5
    C. Preliminary Injunction
    [31]   In challenging the preliminary injunction, PGR and Baron Creek assert that the
    trial court made no findings of actual harm, and that declaratory relief is not
    available where the Wises and Drakes have an adequate remedy through their
    complaint for nuisance in Cause No. 116. They argue that “[t]he Court referred
    to a per se rule that [PGR’s] actions were illegal and, therefore, exempted [the
    Wises and Drakes] from satisfying the balance of harm and the balance of
    public interest tests. However, [the Wises and Drakes] are not likely to succeed
    on the merits of Count I.” Appellants’ Brief at 25.
    5
    For the first time in their reply brief, PGR and Baron Creek assert that the trial court’s conclusion that there
    are no zoning districts that authorize a rifle range in Owen County is clearly erroneous, and they also
    mention for the first time on appeal the Second Amendment of the United States Constitution. The Wises
    and Drakes filed a motion to strike portions of PGR and Baron Creek’s reply brief including the argument
    regarding the Second Amendment. In their reply to the motion to strike, PGR and Baron Creek
    acknowledge that their opening brief did not address constitutional problems with an interpretation of the
    Ordinance. Generally, the law is well settled that grounds for error may be framed only in an appellant’s
    initial brief and are waived if addressed for the first time in the reply brief. See Monroe Guar. Ins. Co. v.
    Magwerks Corp., 
    829 N.E.2d 968
    , 977 (Ind. 2005). In their Response to Motion to Strike, PGR and Baron
    Creek assert that “[a]ppellate courts are not prohibited from considering the constitutionality of a statute even
    though the issue otherwise has been waived” and that “a reviewing court may exercise its discretion to
    review a constitutional claim on its own accord.” Appellants’ Response to Motion to Strike at 4 (citing Plank
    v. Cmty. Hosps. of Ind., Inc., 
    981 N.E.2d 49
    , 53-54 (Ind. 2013)). We note that PGR and Baron Creek do not
    challenge the constitutionality of a statute; rather, they assert there is no mention of shooting ranges being
    prohibited in the Ordinance.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020                     Page 15 of 18
    [32]   The grant or denial of a preliminary injunction rests within the sound discretion
    of the trial court, and our review is limited to whether there was a clear abuse of
    that discretion. Apple Glen Crossing, LLC v. Trademark Retail, Inc., 
    784 N.E.2d 484
    , 487 (Ind. 2003). To obtain a preliminary injunction, the moving party has
    the burden of showing by a preponderance of the evidence that: (1) the
    movant’s remedies at law are inadequate, which will cause him irreparable
    harm pending resolution of the substantive action; (2) the movant has at least a
    reasonable likelihood of success at trial by establishing a prima facie case; (3)
    the threatened injury to the movant outweighs the potential harm to the
    nonmoving party that would result from the grant of an injunction; and (4) the
    public interest would not be disserved by the injunction.
    Id. If the movant
    fails
    to prove any of these requirements, the trial court’s grant of an injunction is an
    abuse of discretion.
    Id. [33]
      Under the “‘per se’ injunction standard,” “if the action to be enjoined clearly
    violates a statute, the public interest is so great that the injunction should issue
    regardless of whether a party establishes ‘irreparable harm’ or ‘greater injury.’”
    State v. Econ. Freedom Fund, 
    959 N.E.2d 794
    , 804 (Ind. 2011) (citing Ind. Family
    & Soc. Servs. Admin. v. Walgreen Co., 
    769 N.E.2d 158
    , 161-162 (Ind. 2002)), reh’g
    denied, cert. denied, 
    568 U.S. 825
    (2012). In other words, “a relaxed standard
    may sometimes be applied for clear, uncontested unlawful conduct.” Ind.
    Family & Soc. Servs. 
    Admin., 769 N.E.2d at 162
    (citing Schrenker v. Clifford, 
    270 Ind. 525
    , 529, 
    387 N.E.2d 59
    , 61 (1979)). “[B]ecause parties are relieved of
    several showings usually necessary to obtain injunctive relief, this relaxed
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 16 of 18
    standard ‘is only proper when it is clear that [a] statute has been violated.’”
    Id. (quoting Union Township
    Sch. Corp. v. State ex rel. Joyce, 
    706 N.E.2d 183
    , 192
    (Ind. Ct. App. 1998), reh’g denied, trans. denied).
    [34]   To the extent PGR and Baron Creek assert that the trial court referred to the per
    se injunction standard and improperly “exempted Petitioners from satisfying
    the balance of harm and the balance of public interest tests,” Appellants’ Brief
    at 25, we note that the trial court’s order addressed both harm and public
    interests. With respect to harm, the trial court found that the Wises found
    bullet holes in their home, shop, and trailer; the Drakes found a bullet hole in
    their home’s gutter; PGR’s representative indicated PGR was aware it had a
    problem with the range and indicated in March 2017 that the rifle alley would
    be closed indefinitely; the Drakes and the Wises had no bullet strikes on their
    property during the time the rifle range was closed; Kathy Wise reported a
    bullet lodged in the north side of her residence on May 26, 2019, after PGR
    unilaterally reopened the rifle range; the Wises and Drakes’ expert could not
    rule out the range as the source of the bullets; and the Wises and Drakes’ lives
    have been impacted by the discovery of bullets on and in their property. As for
    the public interest, the trial court found that “[t]he public interest is actually
    served by enjoining the operation of a rifle range on PGR’s property” and “[t]he
    public is best served by having the law, including the local Zoning Ordinances
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020   Page 17 of 18
    applied in an orderly, fair, and judicious manner.” Appellants’ Appendix
    Volume II at 46. We find no clear abuse of discretion by the trial court. 6
    [35]   For the foregoing reasons, we affirm the trial court’s January 3, 2020 order.
    [36]   Affirmed.
    Robb, J., and Crone, J., concur.
    6
    As for PGR and Baron Creek’s assertion that the Wises and Drakes’ remedies at law are adequate, we note
    that they did not appeal the trial court’s November 12, 2019 order denying their motion to dismiss or
    consolidate the case with Cause No. 116. Further, a mediator filed a report on October 14, 2020, in Cause
    No. 116 indicating that a settlement was reached. PGR and Baron Creek do not cite to any details of the
    settlement. They have not established that an award of monetary damages or remedy which may have been
    provided in the settlement would adequately protect the Wises and Drakes.
    Court of Appeals of Indiana | Memorandum Decision 20A-PL-231 |November 30, 2020             Page 18 of 18