In Re Route 27, Driveway Modification Appeal, Etc. ( 2024 )

NOT FOR PUBLICATION WITHOUT THE
APPROVAL OF THE APPELLATE DIVISION
This opinion shall not "constitute precedent or be binding upon any court ." Although it is posted on the
internet, this opinion is binding only on the parties in the case and its use in other cases is limited. R. 1:36-3.
SUPERIOR COURT OF NEW JERSEY
APPELLATE DIVISION
DOCKET NO. A-1580-22
IN RE ROUTE 27, DRIVEWAY
MODIFICATION APPEAL, BLOCK
3516, LOTS 1, 30 AND 65, NEWARK,
ESSEX COUNTY (THIRTY-THREE
QUEEN REALTY, INC.).
__________________________________
Submitted February 13, 2024 – Decided September 3, 2024
Before Judges Sumners and Perez Friscia.
On appeal from the New Jersey Department of
Transportation.
Genova Burns LLC, attorneys for appellant Thirty-
Three Queen Realty, Inc. (William F. Harrison, of
counsel and on the briefs; Celia S. Bosco, on the briefs).
Matthew J. Platkin, Attorney General, attorney for
respondent New Jersey Department of Transportation
(Sara M. Gregory, Assistant Attorney General, of
counsel; Dennis J. Mikolay, II, Deputy Attorney
General, on the brief).
PER CURIAM
Thirty-Three Queen Realty, Inc. owns an industrial property in Newark
located at the corner of an intersection, fronting Route 27's northbound lane and
adjacent to an eastbound ramp entrance to an overpass highway, Route 22. The
property is occupied by two tenants: Flexon Industries, a water hose
manufacturer, and US Wire & Cable Corporation, an extension cord
manufacturer. There are two access points. One access point is a two-way
driveway to Route 27 northbound and southbound (Route 27 driveway). This is
primarily used by Flexon's 300 plus employees and continuously operates
twenty-four hours a day, seven days a week, with approximately two dozen daily
deliveries from fifty-three-foot-long tractor trailers. The second is an adjacent
on-ramp two-way driveway, via a right turn, onto Route 22 eastbound. Only the
Route 27 driveway is at issue on appeal.
Due to safety concerns, the New Jersey Department of Transportation,
through its Office of Access Design, proposed to undertake several
modifications to the intersection fronting Route 27's driveway. Titled the
"Dehart Place to Route 21 Resurfacing Project," the project would bring the
property's access points into closer compliance with the New Jersey State
Highway Access Management Code (Access Code), N.J.A.C. 16:47-1.1 to -14.1.
The proposal also sought to remediate existing Americans with Disabilities Act
(ADA), 42 U.S.C. §§ 12101-213, violations.
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The Department was concerned about the Route 27 driveway because it
"'is not controlled by the signal', . . . so when there is a red light, and vehicles
on Route 27 northbound 'actually stop at the [stop bar],' a vehicle on the
[p]roperty 'can freely exit' through [the] [d]riveway." Due to the location of the
stop bar1 and traffic signal, an "exiting vehicle . . . conflict[s] with (1) 'vehicles
that are turning left onto [Route 22's on-ramp]' from [R]oute 27 southbound and
. . . (2) pedestrians in the crosswalk." Consequently, the Department planned
to: (1) reduce the width of the Route 27 driveway from 77.5 to 66 feet; (2)
install brand-new traffic signals and upgrade the surrounding traffic signal s
timing; (3) add bicycle ramps and ADA-compliant crosswalks; and (4) expand
Route 27 from two lanes in each direction to three. Additionally, because of the
lane expansion, the project also eliminated left turns in and out of the property,
thereby only allowing vehicles to enter the property by turning right into the
1
A stop bar, also called a stop line, is the "solid white line[] extending across
[the end of a lane] indicat[ing] the point at which [a vehicle is intended to or
required to] stop." Fed. Highway Admin., U.S. Dep't of Transp., Manual on
Uniform Traffic Control Services § 3B.16(6) (rev. 2009).
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Route 27 driveway and exiting right out of the property's on-ramp Route 22
driveway.2
Recognizing how essential the left turn maneuver is to Queen Realty's
business, its owners submitted to the Department two traffic engineering
assessments addressing the impact the modifications would have on the property
and proposing alternative modifications that would preserve the left turn
movements from and onto Route 27. After considering concerns raised by
Queen Realty and its traffic engineering expert, Shropshire Associates LLC, the
Department revised its proposed modifications. The revised modifications
changed the location of the stop bar "perpendicular to the [d]riveway," so that it
would only prevent an "exiting vehicle" from turning right while vehicles idled
the Route 27's southbound traffic signal. The revision also added a concrete
median opposite the Route 27 driveway to ensure egressing vehicles would not
make left turns onto Route 27 southbound. However, the final plan still
prohibited left turns into and out of the property and onto and from Route 27
northbound.
2
Because the modifications would not resolve any of the existing violations,
the Department planned to issue several waivers.
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Queen Realty appealed the final plan, requesting a contested hearing
before an administrative law judge (ALJ) of the Office of Administrative Law
(OAL). The request was denied but the challenge was referred to the
Department's Director of the Division of Right of Way and Access Management
(Director) to conduct formal public hearings.
Over the course of two days of hearings, several witnesses provided
testimony relevant to this appeal. For the Department, Nirah Shah, John Eric
Henson, and James Vena testified. Shah, a resurfacing project engineer and case
manager, served as a fact witness, detailing the property's four Access Code
violations and explaining how the final plan would improve the safety of the
intersection fronting the property's Route 27 driveway, which is one of the "top
100 unsafe intersections" in the State. Henson, an engineer with the
Department's design consultant, KMA Consulting, discussed the final modified
plan’s directional restrictions imposed on vehicles while emphasizing the
restrictions would not curb the existing "highly industrial" use of the property.
Vena, an engineer from McCormick Taylor, KMA's sub-consultant for the
resurfacing project, testified about the impact the traffic signal plans for the
intersection would have on the property.
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On behalf of Queen Realty, Nathan Mosley, a Shopshire partner, traffic
engineer, and senior project manager, detailed his company's assessment of the
plan and its alternative plan. Evaluating the traffic accident data of the
intersection fronting the property, Mosely disputed the intersection as one of
New Jersey's most dangerous intersections.
John Folkman, Queen Realty's vice president and Flexon's board
chairman, testified about the impact the revised plan would have on the
companies' business. He explained how preventing trucks and vehicles from
turning left would cause major delays, increase business costs and create
employee safety concerns and hardships.
After the administrative record closed, the Director denied Queen Realty's
challenge and accepted the Department's final plan as consistent with the
requirements of the Access Code and the State Highway Access Management
Act (Act), N.J.S.A. 27:7-89 to -98. Specifically, the Director considered
"whether the proposed modification of the [d]riveway [would] provide
reasonable access to the general system of streets and highways in the State . . .
and allow [the] continuation of the existing use on the lot or site." (citations and
internal quotations marks omitted). The Director determined the decision must
be "heard on the basis of criteria set forth in the [Act, Access Code], and the
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evidence presented at the hearing[s]" because the modifications to Queen
Realty's driveway were "in conjunction with the implementation of a
[Department-approved] State highway improvement" changing the "width of the
curb[]line opening of [Queen Realty's] driveway by more than five feet."
N.J.A.C. 16:47-2.13 and -11.3(g).4 He found, under N.J.A.C. 16:47-2.1, the
Department's plan to change the "width of the curb[]line opening of [Queen
Realty's] driveway by more than five feet" was not a revocation of the Queen
3
N.J.A.C. 16:47-2.1, provides:
"Adjustment of driveway" means changing the width of
the curb[]line opening of a driveway by five feet or less,
changing the location of a driveway by [ten] feet or less,
moving a driveway away from the centerline of the
State highway (such as when the State highway is
widened), or changing the elevation or profile of a
driveway, in conjunction with a State highway project
advanced by the Department or others.
4
N.J.A.C. 16:47-11.3(g), states:
The Director will provide the written final agency
decision to the lot or site owner or any access easement
holder within 45 days of the closing of the record or
remand the matter for further consideration by the
access design unit. In reaching the final agency
decision, the Director will consider the evidence
presented at the hearing and the provisions of the State
Highway Access Management Act and this chapter.
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Realty's access to Route 27, but a modification. He decided that while the
elimination of left-hand turns makes it "less convenient and more time-
consuming" for trucks to enter the property, the trucks could still "enter and exit
through the modified [d]riveway," allowing manufacturing on the property to
continue. The Director thus found "unsubstantiated" Queen Realty's contentions
that the final plan would create "devastating hardships" on the property's
existing use and its tenants' businesses.
Moreover, the Director determined the elimination of left turns "along
with the installation of the concrete median and relocation of the [s]top bar[]
[are] necessary to accomplish the purposes of . . . improv[ing] highway safety"
and "provid[ing] congestion relief" along Route 27. The Director concluded the
Department's "ultimate aim is to 'select[] a plan that will best achieve the
overarching goal of providing reasonable access to the State's system of
highways rather than maximizing [Queen Realty's] business interests.'"
The Director's decision was effectively the Department's final agency
decision. Queen Realty appealed.
Initially, we quickly dispense of Queen Realty's contention that it was
entitled to a contested hearing before the OAL. Under N.J.S.A. 52:14F-8(b),
absent the agency's request, an ALJ is not permitted to hear contested cases when
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"the head of the agency . . . [is] required to conduct, or determine to conduct the
hearing directly and individually." Furthermore, N.J.S.A. 52:14F-7(a) places
the authority to determine "whether a case is contested" in the "head of the
agency." The Administrative Procedure Act, N.J.S.A. 52:14B-1 to -
15, provides that the "'[h]ead of the agency' . . . includes the individual or group
of individuals constituting the highest authority within any agency authorized
or required by law to render an adjudication in a contested case." N.J.S.A.
52:14B-2.
Here, the Director, as "head" of the Division of Right of Way and Access
Management, decides "whether to refer [the] matter to an ALJ, as well as the
power to make the final decision on the merits." Allstars Auto Grp. v. N.J.
Motor Vehicle Comm'n, 234 N.J. 150, 161 (2018) (quoting In re Carberry, 114
N.J. 574, 584-85 (1989)). Applying the plain language of N.J.A.C. 16:47-11.3,
which governs the appeals process for "modification of a driveway," the
Director's decision not to refer the matter to the OAL was well within his
authority as the head of the Division.
Before addressing the merits of Queen Realty's specific arguments, we
discuss the principles governing our review. An agency action is arbitrary,
capricious, or unreasonable if it violates the law, if the record does not contain
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substantial evidence to support it, or if the agency's conclusion "could not
reasonably have been [reached] on a showing of the relevant factors." In re
Carter, 191 N.J. 474, 482-83 (2007) (citation omitted).
Thus, we make three inquiries: (1) whether the Department's "action
violates express or implied legislative policies"; (2) whether the record contains
substantial evidence to support the Department's findings; and (3) "whether in
applying the legislative policies to the facts," the Department "erred in reaching
a conclusion that could not reasonably have been made on a showing of the
relevant factors." Mazza v. Bd. of Trs., 143 N.J. 22, 25 (1995); see also In re
Stallworth, 208 N.J. 182, 194 (2011); Carter, 191 N.J. at 482-83.
In the context of motor vehicle transportation, highway access is "within
the specialized expertise of the [Department]," In re I/M/O Route 26 at New
Amwell Rd., Block 161 (Hillsborough), 322 N.J. Super. 345, 357 (App. Div.
1999), and "[a] 'presumption of validity is afforded to the Department's plans
and decisions in that domain," In re Route 66, 477 N.J. Super 22, 32 (App. Div.
2023). However, we are "in no way bound by the agency's interpretation of a
statute or its determination of a strictly legal issue" and may review any
questions of law de novo. Mayflower Sec. Co. v. Bureau of Sec., 64 N.J. 85, 93
(1973). When the Department makes changes to a property's access, it "bears
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the burden of proving that the alternative access . . . is reasonable . . . and
provides a convenient, direct, and well-marked route to enter the property and
to return to the state highway." In re Revocation of Access of Block No. 613,
Lots No. 4 & 5, Twp. of Toms River, Ocean Cnty., 224 N.J. 53, 56 (2016).
We now turn to the merits of Queen Realty's appeal. It maintains the final
agency decision was arbitrary and capricious because the final plan denied it
"reasonable access to the affected streets and highways and effectively
preclud[ing] continuation of the" property's "existing use." It argues the
Department failed to meet its burden in showing the final plan's alternative
routes were reasonable because they involve multiple turns, which are "not very
well lit," "poorly paved," and required drivers to commute through areas with
"an unappealing crime rate" and "floods during heavy rain[]." Queen Realty
also argues the Department's ruling was not supported by substantial credible
evidence, and the opinions of the Department's experts lacked supporting data
and did not rebut expert testimony by its expert. We are unpersuaded by these
arguments.
N.J.A.C. 16:47-1.2(d) authorizes "[t]he Department [to] adjust, modify,
or remove a driveway or a street that provides access to the State highway." See
also N.J.A.C. 16:47-11.1 (permitting the Department to "adjust, modify, or
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remove a driveway" to advance the Access Code's objectives). Although the
Act does not define "modify" or "modification," the Access Code provides,
"Modification of driveway" means changes to
driveways in conjunction with the implementation of a
State highway improvement advanced by the
Department or others, with Department approval,
which changes the number of driveways, the width of
the curb[]line opening of a driveway by more than five
feet, or the location of a driveway by more than 10 feet.
It includes replacing all ingress or all egress between a
State highway and a lot or site with ingress or egress
via a private easement on a different lot or site; or
elimination of ingress, egress, or both between one
State highway and a lot or site, while still providing
ingress, egress, or both between a different State
highway and the lot or site. Modification of driveway
does not refer to changes made by a lot or site owner to
his or her own driveway.
[N.J.A.C. 16:47-2.1 (emphasis added).]
Moreover, N.J.A.C. 16:47-11.1(b)(2), similarly states:
Modification of a driveway is:
i. Changing the number of driveways, the width of a
driveway by more than five feet, or the location of a
driveway by more than [ten] feet;
ii. Replacing all ingress to a lot or site from a State
highway or all egress from a lot or site to a State
highway with ingress or egress via a private easement
between a State highway and a different lot or site; or
iii. Eliminating ingress to a lot or site from a State
highway, egress from a lot or site to a State highway,
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or both, while still providing ingress, egress, or both on
a different State highway[.]
[(Emphasis added).]
Whereas, revocation, under the Access Code, "means termination of an access
permit by the Commissioner, when all State highway access is removed after a
determination that alternative access will be available for use at the conclusion
of the highway project." N.J.A.C. 16:47-2.1 (emphasis added).
Here, the final plan continues to allow access to the property to Route 27,
albeit through northbound maneuvers. Thus, the Department correctly
determined that the Route 27 driveway alterations constitute a modification, not
a revocation of State highway access. See In Re Route 66, 477 N.J. Super. at
39 ("Because the Department's plan maintains . . . access to [the] State Highway
66 using a private easement, it literally satisfies the definition of 'modification.'
. . . The plan therefore is not a revocation or a removal of access."); see also In
re I/M/O Route 206, 322 N.J. Super. at 357 (holding there was no statutory
revocation of access where one of the owner's driveways with highway access
was being closed because the owner "retained some direct egress from and
ingress to" the highway by way of the other proposed widened driveway) . And
because the Department's modification does not revoke Queen Realty's highway
access, the Department is not obligated to determine whether its final plan is
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more compliant with the Access Code than Queen's Realty's proposal. See In re
Revocation of Access of Block No. 613, 224 N.J. at 56.
The Department's witnesses showed that the final plans provided for
traffic to more safely ingress and egress the property prior to the revised traffic
pattern. The property owner's "right of access is subject to regulation for the
purpose of protecting the public health, safety and welfare." In re Route 66, 477
N.J. Super. at 32 (quoting N.J.S.A. 27:7-90(e)). The access rights of property
owners "abutting a State highway must be held subordinate to the public's right
and interest in a safe and efficient highway." Id. (quoting N.J.S.A. 27:7-90(g)).
Its experts' testimony addressed the various alternative access alterations
proposed by each party. Further, Shah, who was a fact witness, merely
explained the Department's intent to improve the safety of the Route 27/Route
22 intersection. His testimony was amplified by Henson, who opined:
If we're allowing a permitted left to happen at the
intersection, the driver going north who could take a
right, most likely taking a right to go. . . onto the ramp
for [Route] 27 eastbound – [Route] 22 eastbound could
think the guy's taking a left off of [Route] 27
southbound and is going on the ramp, but he's really
going to the driveway, that's an accident. That's . . . a
potential crash that could happen at that location
because we have two vehicles trying to enter two
different locations at the same location. Thus[,] that's
why the [Route] 27 northbound movement onto the
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ramp is a much safer option with the median and the
left turn movements removed.
Henson's conclusions were based on the Bureau's assessment that "a vehicle
cannot cross three lanes of through traffic."
In sum, the Department's final plan was not arbitrary, capricious, or
unreasonable. It promotes the safe flow of traffic for tractor trailers and much
smaller motor vehicles in and out of the property. There is no credible evidence
that the property will not be able to continue its current industrial use.
Any of Queen Realty's arguments that we have not addressed is because
they lack sufficient merit to warrant discussion in a written opinion. R. 2:11-
3(e)(1)(E).
Affirmed.
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