Appeals of Harrison ( 2005 )


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  •                                     STATE OF VERMONT
    ENVIRONMENTAL COURT
    }
    Appeals of Harrison                         }       Docket Nos. 110-6-04 Vtec and 44-2-05
    Vtec
    }
    }
    Decision and Order on Motion for Summary Judgment
    Appellant-Applicants James and Janet Harrison (Appellants) appeal from decisions
    of the Development Review Board (DRB) of the Town of Berkshire concerning Appellants=
    proposed Planned Residential Development (PRD) subdivision. In Docket No. 110-6-04
    Vtec, Appellants appealed from the DRB=s May 20, 2004 refusal to accept Appellants=
    application for site plan review and for approval of the subdivision 1[1] as a PRD. In Docket
    No. 44-2-05 Vtec, Appellants appealed from a January 27, 2005 decision of the DRB
    denying Appellants= application for site plan approval and for approval of the subdivision as
    a PRD. Appellants are represented by Eric A. Poehlmann, Esq.; the Town is represented
    Robert E. Farrar, Esq.
    Appellants moved for summary judgment on the issue of whether any of their site
    1[1]
    Under the Berkshire Zoning Bylaws, approval of a subdivision under '240 is
    accomplished through site plan review ('235) rather than as a separate proceeding, as is approval
    of modifications for a PRD under '245.
    plans should be deemed to be approved, based on the sequence of applications and DRB
    actions in these matters, including whether or when any of their applications should have
    been accepted as complete. The following facts are undisputed unless otherwise noted.
    Appellants own an approximately 77.7-acre parcel of land located off Route 108, in
    the Rural Lands zoning district of the Town of Berkshire. The parties have not provided
    either the application or the proposed site plan at issue in the present appeals, but if the
    parcel is the same land as was at issue in an earlier appeal before the Environmental
    Court, Docket No. 199-9-02 Vtec, it consists of land located to the rear of four existing
    lots along Route 108, with access to Route 108 via a 50-foot-wide easement (right-of-
    way) proposed as a private road. In the present appeals, Appellants propose to subdivide
    a 25.1-acre portion of that 77.7-acre parcel into six2[2] lots as a PRD.
    Appellants first submitted an application for site plan3[3] review on December 29,
    2[2]
    Because the Court was not provided with the site plan, we cannot determine why the
    application is not in fact a seven-lot PRD subdivision, consisting of the six described lots plus a
    seventh lot containing the 52.6 remaining acres retained by Appellants.       However, the issues
    raised in this appeal do not depend upon that distinction.
    3[3]
    The Berkshire Zoning Bylaws do not in fact provide for separate Apreliminary@ and
    Afinal@ stages of site plan review, although the parties have referred to the December 2003
    application as one for Apreliminary@ site plan approval, and to the revised application submitted in
    May 2004 as one for Afinal@ site plan approval.
    2003, which was initially considered by the DRB at its January 15, 2004 hearing. Based
    on the unsigned minutes of that hearing, at the hearing Appellants= engineer presented the
    DRB with two other documents, described in the minutes as a ARequest for Waiver of
    Subdivision standards@ (presumably under the PRD regulations in '245, which provide for
    such a request) and a ARequest for Site Plan Review.@ The minutes state that the DRB
    voted to A[w]ait for Act 250 process to be completed before the DRB accepts this
    proposal for official review.@ Appellants did not appeal this action of the DRB; therefore
    Questions    1 and 2 in the Statement of Questions in Docket No. 110-6-04 Vtec are
    beyond the scope of this appeal and are HEREBY DISMISSED.
    Rather, Appellants submitted updated information in support of their site plan
    application at the DRB=s hearing on May 20, 2004. Based on the unsigned minutes of
    that hearing, at the hearing the DRB again decided Anot to hear [the] proposal at this
    time, that way the clock will not start,@ and the DRB chairman stated that the ABoard will
    not accept [the] site plan application at this time because as previously voted the Board
    would not review [it] until [an] Act 250 permit was approved.@         On June 18, 2004,
    Appellants appealed to this Court from all Adecisions, actions and refusals to act@ taken by
    the DRB at its May 20, 2004 hearing, that is, the DRB=s refusal to Aaccept@ or Ahear@
    Appellants= site plan application.   That appeal was assigned Docket No. 110-6-04 Vtec;
    Questions 3 and 4 of the Statement of Questions, pertaining to those actions taken by the
    DRB at the May 20, 2004 hearing, remain in the appeal.
    On June 29, 2004, the Chairperson of the Town=s Selectboard sent a letter to
    Appellants stating that the Selectboard had directed the DRB to proceed with the review of
    Appellants= proposed PRD subdivision.     The letter informed them that a DRB meeting
    would be held on July 15, 2004, at which time Appellants= application would be on the
    agenda.
    Based on the unsigned and unapproved minutes of the DRB=s July 15, 2004
    hearing, at that hearing Appellants= engineer Apresented a request for Site Plan Review@
    for the proposed PRD, presumably      including the elements for which waiver was being
    requested as a PRD, under ''235 and 245 of the Zoning Bylaws. Later in the meeting,
    the DRB Areviewed the Zoning Bylaws and compiled a tent[at]ive list of additional
    information needed to consider the Harrison request.@     The DRB scheduled a Aspecial
    meeting@ for July 29, 2004 at 7:00 p.m. at the Berkshire Town Office, Ato conclude the
    list of additional information needed to consider the Harrison request,@ and also scheduled
    its next regular meeting for August 19, 2004.
    If the July 29, 2004 special meeting took place, or was further recessed to August
    19, 2004, no minutes of it have been provided to the Court.      However, it appears that
    Appellants= engineer must have been informed of the additional information requested by
    the DRB at some time before the August 19, 2004 regular meeting, as at that meeting he
    attended, presented Aupdated drawings@ and a Asoil evaluation,@ and gave Adetailed
    answers@ to a list of questions prepared by the Chairman of the DRB, who was not
    present at the August 19 hearing.    Based on the unsigned minutes of that hearing, six
    individuals: Kimberly Ransom, Harold Greenia, Ronald Wonot, Jacqueline Greenia, Lorraine
    Conlon and Patrick Heaghney, referred to as interested parties and as neighboring
    landowners, were also provided the opportunity ask questions regarding the proposal.
    At the close of the August 19, 2004 meeting, the three members of the DRB who
    were present voted Anot to accept the application . . . at this time because the Chairman
    was not present and he had made all the legal contacts concerning the application.@ The
    DRB then voted to Arecess the meetingA until September 2, 2004.              However, if a
    September 2, 2004 meeting took place, or was further recessed to September 16, 2004,
    no minutes of it have been provided to the Court.
    On September 16, 2004, the DRB held another hearing.         Based on the unsigned
    and unapproved minutes of the September 16, 2004 hearing, Appellants= engineer
    requested that Atonight=s meeting be considered informal pending the September 27th,
    2004 environmental court date, [as Appellants] do not want the information discussed
    tonight to prejudice the case.@   The minutes state that Appellants= engineer Asubmitted
    revised copies of the [site] plan and informational sheets to be reviewed,@ that Adiscussion
    was held about the revisions,@ and that Appellants= engineer Awould be back for the
    October 21st, 2004 meeting depending on the outcome of the September 27th, 2004
    court@ hearing. The DRB voted to adjourn the meeting, without reference to another date.
    This Court held pretrial conferences regarding the then-pending appeal (Docket No.
    110-6-04 Vtec) on September 27 and 28, 2004, at which the parties agreed that the
    Court   would place the appeal on inactive status until the DRB would have reached a
    decision on the merits of Appellants= site plan application, preserving whatever deemed-
    approval or other arguments Appellants had as of that date in that appeal.
    DRB hearings on the merits of Appellants= site plan and PRD subdivision
    application were held on October 28, 2004, November 18, 2004, and December 16,
    2004, as referred to in the January 27, 2005 DRB decision. That decision states that
    the DRB Aelected to review the application on October 28, 2004,@ and again that it Avoted
    unanimously to accept the Site Plan for review on October 28, 2004.@
    Based on the unsigned and unapproved minutes of the December 16, 2004
    hearing, it was at that hearing that the DRB voted to deny Appellants= application on its
    merits, on the basis of its failure to Ameet the minimum road frontage.@       The written
    decision was issued on January 27, 2005; its appeal to this Court was assigned Docket
    No. 44-2-05 Vtec.
    Completeness and deemed-approval issues in Docket No. 110-6-04 Vtec
    In the decision appealed in Docket No. 110-6-04 Vtec, the DRB initially refused to
    accept Applicants= applications for site plan approval, apparently on the grounds that the
    applications did not include an issued Act 250 permit. (We will assume, for the purposes
    of this discussion, that this project does require Act 250 approval, as this issue would be
    moot if it does not.)
    The final step in approval of any project is a zoning permit issued by the Zoning
    Administrator.   Section 215(b)(1) of the Zoning Bylaws provides that no zoning permit
    shall be issued unless and until the listed other permits and approvals have been issued, if
    those other permits and approvals are required for the project.           Section 215(b)(1)
    specifically lists Asite plan approval, if applicable,@ '215(b)(1)(B), as one prerequisite to
    issuance of a zoning permit, and also lists Aall applicable state permits,@ '215(b)(1)(E),
    as another prerequisite to issuance of a zoning permit.      Thus the Zoning Administrator
    would not be authorized to issue a zoning permit until a project=s Act 250 permit was in
    place and until the project had received site plan approval from the DRB.
    However, nothing in '215(b)(1) requires an applicant to obtain the various other
    permits and approvals required for a project in any particular order, prior to applying for
    the zoning permit. Section 215(b)(1) does require that an Act 250 permit be obtained for
    the project prior to issuance of a zoning permit by the Zoning Administrator, but it does not
    require that the Act 250 permit be obtained prior to site plan approval (or prior to approval
    of the project as a PRD subdivision).
    By contrast, nothing in '235 refers to any required state permits as a prerequisite
    to the DRB=s consideration of site plan approval. Unlike the prerequisites to zoning permit
    approval in '215(b)(1)(E), '235 only requires information pertaining to site plan issues to
    be included in the application for site plan approval, '235(c)(1) (as well as requiring
    submittal of the site plan drawings required by '235(c)(2)).            The requirement in
    '235(c)(1)(F) that the site plan application=s written statement include Aevidence of receipt
    of all necessary reviews, approvals, and permits@ therefore must refer only to the reviews
    and approvals necessary for site plan approval (including subdivision and PRD approval
    conducted through site plan approval), such as the municipal or state approval of septic
    systems required by '240(a)(3).      As nothing in ''235, 240 or 245 requires prior Act
    250 approval in order to obtain site plan approval, the DRB should not have refused to
    consider the site plan application on the sole basis that the project had not yet obtained its
    Act 250 permit.
    However, under the specific language in '235(f) of the Zoning Bylaws, Appellants
    were not then entitled to deemed approval as to the application submitted at the May
    2004 DRB hearing. That section requires that, within sixty days of Areceiving a complete
    site plan application@ the DRB shall Aissue a written statement on the application;@ it also
    provides that failure Ato render a decision@ shall be deemed approval of the application.
    Analyzed under '235(f), the DRB did not consider the May 20, 2004 site plan
    application to be complete until, at the earliest, the August 19, 2004       meeting, as the
    DRB required more information (for reasons other than the Act 250 permit) through July
    15, 2004, which Appellants provided at the August 19, 2004 hearing. As of September
    28, 2004, the parties agreed to stop the clock. As of that date, the DRB had used 40
    days, and therefore deemed approval did not occur.        When the clock started again on
    October 28, 2004, that date was treated by the DRB as the date of acceptance of a
    newly-revised application.      The deemed-approval arguments regarding the application
    accepted for review on October 28, 2004, are discussed below under Docket No. 44-2-
    05 Vtec.
    The DRB=s failure to consider the merits of the May 20, 2004 application would
    have required us to remand this matter to the DRB for it to consider that application on its
    merits or to rule on its lack of completeness on other grounds.         However, as the DRB
    proceeded in June of 2004 to consider the application on its merits without regard to the
    Act 250 permit issue, a remand is unnecessary.
    Deemed-approval issues in Docket No. 44-2-05 Vtec
    Section 235(f) of the Zoning Bylaws requires that, within sixty days of Areceiving a
    complete site plan application@ the DRB shall Aissue a written statement on the
    application;@ it also provides that failure Ato render a decision@ shall be deemed approval of
    the application. In this respect it goes beyond the state statute4[4] in effect in early 2004,
    4[4]
    The state statute in effect through June of 2004 provided a 60-day deemed-approval
    period for a Planning Commission=s or DRB=s actions on site plan review, counted from the date
    on which it Areceives the proposed plan.@   24 V.S.A. former '4407(5). The statute provided a
    45-day deemed-approval period for a Planning Commission=s or DRB=s actions on approval of a
    subdivision, counted from the date of Athe public hearing.@ 24 V.S.A. former '4415. (Compare
    the 60-day deemed-approval period for a Zoning Board of Adjustment=s (ZBA=s) or DRB=s actions
    on conditional uses, counted from the Afinal public hearing,@ 24 V.S.A. former 4407(2); and the
    which required the DRB to Aact to approve or disapprove@ the site plan within sixty days
    after the date upon which it Areceives the proposed plan.@ 24 V.S.A. former '4407(5).
    That is, the state statute had no completeness requirement for the application.
    The DRB also seems to have confused the trigger for the start of the deemed-
    approval period for site plan approval with that for other types of DRB actions. The site
    plan approval deemed-approval period is triggered by the DRB=s receipt of a complete
    application.   The clock starts ticking once the application is complete; it cannot be
    postponed by recessing the hearing from time to time. By contrast, under the state statute
    (applicable as there is no specific deemed-approval provision in the Zoning Bylaws
    regarding these other proceedings), the deemed-approval periods for subdivision approval,
    conditional use approval, or other appeals to the DRB are triggered from the date of the
    Apublic hearing,@ the date of the Afinal@ public hearing, or from Acompleting@ the hearing.
    24 V.S.A. former ''4415, 4407(2), and 4470(a), respectively.
    While the state statute changed as of July 1, 2004, under 24 V.S.A. '4481,
    existing municipal bylaws that are inconsistent with the new statute were not superseded
    by the state statute until September 1, 2005, and then only to the extent that they may be
    inconsistent with changes found in sections codified as 24 V.S.A ''4412, 4413, and 4440
    45-day deemed-approval period for all other matters appealed to the ZBA or DRB, counted from
    Acompleting@ the hearing. 24 V.S.A. former ''4464(c)and 4470(a).)
    through 4476 of the new statute.         Thus, even if the changes in the deemed approval
    provisions5[5] of the state statute are considered to have superseded '235(f) of the Zoning
    Bylaws, that would not have occurred until September 1, 2005, after the events at issue in
    both appeals.
    5[5]
    See 24 V.S.A. '4464(b)(1) (2004) (45-day deemed-approval period applicable to all
    municipal decisions, counted from the Aadjournment@ of the hearing):
    The appropriate municipal panel may recess the proceedings on any application
    pending submission of additional information. The panel should close the evidence
    promptly after all parties have submitted the requested information. The panel shall
    adjourn the hearing and issue a decision within 45 days after the adjournment of
    the hearing, and failure of the appropriate municipal panel to issue a decision within
    this period shall be deemed approval and shall be effective on the 46th day.
    In Docket No. 44-2-05 Vtec, the application was accepted for review on October
    28, 2004, and may have been6[6] determined to be complete7[7] at that meeting.               The
    DRB rendered its decision, for the purposes of deemed approval, on December 16, 2004,
    when it voted to deny the application, 49 days later. See, e.g., Appeal of Griffin, Docket
    No. 92-6-04 Vtec (Vt. Envtl. Ct., May 23, 2005), at 7 (ZBA Arendered its decision@when
    it voted).
    The DRB then completed the requirements of '235(f) by issuing a written decision.
    The January 27, 2005 written decision was not issued within the sixty-day time period
    from October 28, 2004.          However,      '235(f) does not provide the deemed-approval
    remedy for failure to issue the Awritten statement on the decision@ within sixty days; rather,
    deemed approval is only triggered by failure to Arender the decision@ within the sixty-day
    6[6]
    The October and November 2004 DRB meetings were not transcribed, nor were even
    unofficial minutes prepared for those meetings, due to technical problems with the recording
    equipment.
    7[7]
    In addition, at the December 16, 2004 hearing, Appellants submitted Aa new
    landscaping plan [and] soil data sheets;@ Appellants themselves characterize these materials as
    having been submitted Aat the DRB=s insistence,@ suggesting that the DRB may instead have
    viewed the application as incomplete until that time. See Appellants= Reply to the Town=s Resp. to
    Appellants= Mot. for Summ. J., at 2. While under In re McEwing Services, LLC, 
    2004 VT 53
    , at
    & 19, the Aunsolicited, voluntary submission of evidence after the deemed approval period has run@
    does not bar the application of the deemed approval remedy, if the submission of supplemental
    information were in fact requested by the DRB, it would not fall within this rule.
    period. Deemed approval is intended to remedy protracted deliberations and indecision of
    the DRB, In re Appeal of McEwing Services, LLC, 
    2004 VT 53
    , & 21, but is not to be
    used beyond that purpose, Appeal of Newton Enterprises, 
    167 Vt. 459
    , 464-65 (1998).
    The decision was rendered within the required time period. Therefore, deemed approval of
    the October 28, 2004 site plan application did not occur and Appellants= motion for
    summary judgment on Questions 1 and 2 in Docket No. 44-2-05 Vtec must be denied.
    Accordingly, based on the foregoing, it is hereby ORDERED and ADJUDGED in
    Docket No. 110-6-04 Vtec that Questions 1 and 2 of the Statement of Questions are
    DISMISSED as beyond the scope of the appeal from actions taken by the DRB on May
    20, 2004. Appellants= Motion for Summary Judgment is GRANTED as to Question 3 of
    the Statement of Questions, in that lack of prior Act 250 approval for the project does not
    in and of itself render a site plan application incomplete; but Appellants= Motion for
    Summary Judgment is DENIED and Summary Judgment is GRANTED in favor of the
    Town as to Question 4 of the Statement of Questions, in that Appellants= site plan
    application made on May 20, 2004, does not qualify for deemed approval under '235(f)
    of the Zoning Bylaws. This decision concludes Docket No. 110-6-04 Vtec.
    Also based on the foregoing, it is hereby ORDERED and ADJUDGED in Docket
    No. 44-2-05 Vtec that Appellants= Motion for Summary Judgment is DENIED as to
    Questions 1 and 2 of the Statement of Questions. A conference is hereby scheduled for
    December 12, 2005, (see enclosed notice) to discuss the remaining issues in Questions
    3, 4, and 5 of the Statement of Questions in Docket No. 44-2-05 Vtec.           The parties
    should be prepared to discuss whether the proposal must be considered under ''235,
    240 and 245 of the Zoning Bylaws; to state which elements they request waivers for as a
    PRD subdivision; and to file a copy of the site plan prior to the conference.
    Done at Berlin, Vermont, this 29th day of November, 2005.
    _________________________________________________
    Merideth Wright
    Environmental Judge
    

Document Info

Docket Number: 110-06-04 Vtec

Filed Date: 12/29/2005

Precedential Status: Precedential

Modified Date: 4/24/2018