City of Bethel Heights, Ark. v. City of Springdale

Cite as 2017 Ark. App. 81
ARKANSAS COURT OF APPEALS
DIVISION II
No. CV-16-332
CITY OF BETHEL HEIGHTS, Opinion Delivered February 8, 2017
ARKANSAS
APPELLANT APPEAL FROM THE BENTON
COUNTY CIRCUIT COURT
V. [NO. CV-2015-818-2]
CITY OF SPRINGDALE, SPRINGDALE HONORABLE BRAD KARREN,
PLANNING COMMISSION, AND JUDGE
GREGORY A. KENDRICK
REVOCABLE LIVING TRUST DATED
10/5/12
APPELLEES AFFIRMED
PHILLIP T. WHITEAKER, Judge
This is a companion case to City of Bethel Heights v. Kendrick Revocable Living Trust,
2017 Ark. App. 78, handed down today. Here, the City of Bethel Heights appeals the
decision of the Benton County Circuit Court granting a motion to dismiss Bethel Heights’
declaratory-judgment action against the appellee, the City of Springdale.1 The circuit court
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Bethel Heights named both the City of Springdale and the Springdale Planning
Commission as defendants in its complaint. For simplicity, we refer to them together as
“Springdale.”
In addition, we note that the Gregory A. Kendrick Revocable Living Trust is named
as an appellee. The trust had been named a defendant in Bethel Heights’ first amended
complaint in response to Springdale’s motion to dismiss on the grounds that Bethel Heights
had failed to join it as a proper party under Arkansas Rule of Civil Procedure 19. After the
circuit court granted Springdale’s motion to dismiss the declaratory-judgment aspect of the
suit, the trust filed a motion to be dismissed from the case, noting that the only matter
Cite as 2017 Ark. App. 81
also granted Springdale’s motion for summary judgment with respect to Springdale’s decision
to rezone a parcel of property. We affirm.
I. Background
The litigation surrounding the detachment and annexation of the subject property is
the subject of the companion case. The facts pertinent to the instant appeal are that Shelly
Kendrick and the Gregory A. Kendrick Living Trust (“Kendrick”) owned parcels of property
totaling approximately eighty-seven or eighty-eight acres (“the property”). The property was
originally located within the boundaries of Bethel Heights. In 2015, Kendrick sought to
detach the property from Bethel Heights and have it annexed to Springdale pursuant to Act
779 of 1999. Following the detachment of the Kendrick property from Bethel Heights,
Springdale filed an ordinance to annex the property in March 2015.2 Springdale subsequently
filed an ordinance to rezone the property from agricultural use to industrial use. Bethel
Heights challenged Springdale’s rezoning actions, filing a complaint that sought a declaratory
judgment and injunctive relief.
II. Applicable Law
The underlying dispute between the parties involves the enactment and amendment
of local zoning. Such actions are a legislative function. Sullins v. Cent. Ark. Water, 2015 Ark.
pending before the circuit court was a review of Springdale’s legislative action and that
Bethel Heights had no remaining claim against it. The circuit court granted the trust’s
motion, and it is not a party to this appeal.
2
Bethel Heights previously filed suit against Springdale and Kendrick, challenging the
annexation. That case was dismissed by the Benton County Circuit Court, and although
Bethel Heights appealed to this court, its appeal was dismissed for failure to file briefs.
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29, at 8, 454 S.W.3d 727, 732–33 (citing Bolen v. Washington Cnty. Zoning Bd. of Adjustments,
2011 Ark. App. 319, at 7, 384 S.W.3d 33, 38). One challenging a municipality’s legislative
rezoning decision may appeal to the circuit court of the county in which the rezoning was
authorized. Ark. Code Ann. § 14-56-425(b)(1) (Supp. 2015). The circuit court shall uphold
the legislative rezoning decision unless the court determines that the decision was arbitrary
or capricious or lacking a rational basis. Ark. Code Ann. § 14-56-425(b)(2); PH, LLC v. City
of Conway, 2009 Ark. 504, at 12, 344 S.W.3d 660, 667. The supreme court established the
guidelines for determining whether legislative zoning actions are arbitrary and capricious in
City of Lowell v. M & N Mobile Home Park, Inc., 323 Ark. 332, 916 S.W.2d 95 (1996):
In reviewing cases involving legislative enactments, such as zoning ordinances,
there is a presumption that the legislative branch acted in a reasonable manner, and the
burden is on the moving party to prove that the enactment was arbitrary. City of Little
Rock v. Breeding, 273 Ark. 437, 619 S.W.2d 664 (1981).
....
We recently defined “arbitrary” and “capricious” in City of Little Rock v. Pfeifer, 318
Ark. 679, 887 S.W.2d 296 (1994), as follows: Arbitrary is “decisive but unreasoned
action,” and capricious is “not guided by steady judgment or purpose.” The definition
most easy to apply was given in City of Little Rock v. Breeding, 273 Ark. 437, 445, 619
S.W.2d 664, 668 (1981), when we said that the enactment was not arbitrary if there
was any reasonable basis for its enactment.
City of Lowell, 323 Ark. at 338–39, 916 S.W.2d at 98–99.
Our appellate standard of review is equally well settled in appeals concerning legislative
rezoning. We will affirm the circuit court’s findings unless they are clearly erroneous or clearly
against the preponderance of the evidence. PH, LLC, 2009 Ark. 504, at 13, 344 S.W.3d at
667. A finding is clearly erroneous when, although there is evidence to support it, the
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reviewing court based on the entire evidence is left with a firm conviction that a mistake has
been committed; disputed facts and determinations of credibility are within the province of
the fact-finder. Id.
III. Motion to Dismiss
Bethel Heights’ complaint against Springdale sought a declaratory judgment that
Springdale’s rezoning was not compatible with or equivalent to those of the adjacent lands in
Bethel Heights, as required by Arkansas Code Annotated section 14-56-306 (Supp. 2015).
Springdale filed an answer and motion to dismiss, asserting that a declaratory-judgment action
was not the appropriate procedural vehicle for challenging its zoning decision. Specifically,
Springdale argued that Arkansas Code Annotated section 14-56-425(b) provides the specific
statutory mechanism by which a city’s legislative zoning decision is to be reviewed. After a
hearing, the circuit court granted Springdale’s motion to dismiss, finding that declaratory
judgment was not the appropriate procedure for reviewing Springdale’s zoning action and
stating that the case would go forward using the standard set forth in section 14-56-425(b).
In its first point on appeal, Bethel Heights challenges the circuit court’s order granting
Springdale’s motion to dismiss. It does not, however, challenge the circuit court’s decision to
dismiss its declaratory-judgment action. Rather, Bethel Heights complains that the circuit
court erred in making a factual finding in its order, wherein the court found “that the City
of Springdale’s rezoning of the property at issue in the Plaintiff’s Complaint was not arbitrary,
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was not capricious, and did not lack a rational basis.”3 Bethel Heights complains that this
factual finding essentially foreclosed the outcome of the case and that the court should have
waited until after an evidentiary hearing to make the finding that Springdale’s zoning decision
was not arbitrary and capricious.
We find Bethel Heights’ arguments unpersuasive. The heart of the motion to dismiss
was the determination that a declaratory-judgment action was not the proper vehicle for
challenging a zoning decision, a conclusion that Bethel Heights does not challenge on appeal.
Although the circuit court made a collateral finding that Springdale’s zoning decision was not
arbitrary or capricious based on the surrounding zoning, it nonetheless set the matter for “a
hearing on the remaining merits . . . at which time the City of Springdale’s legislative decision
to rezone the property at issue in this case will be reviewed by the court using the standard
set forth in [section] 14-56-425(b)[.]” Bethel Heights was thus presented the opportunity to
adduce any additional evidence on the question that it felt appropriate; indeed, in response
to Springdale’s subsequent summary-judgment motion, Bethel Heights did just that. Error
that does not result in prejudice is not reversible. Sherman v. Boeckmann, 2016 Ark. App. 568,
at 13, ___ S.W.3d ___, ___.
We review a circuit court’s decision to grant a motion to dismiss for abuse of
discretion. Hinton v. Bethany Christian Servs., 2015 Ark. App. 301, at 3, 462 S.W.3d 361, 362
3
The court based its conclusion on this matter on “the information contained in the
map attached to the Plaintiff’s complaint, which indicates single-family residential zoning to
the south, agricultural zoning to the east, floodplain designation to the north, and industrial
zoning to the southwest of the property at issue in the Plaintiff’s Complaint.”
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(citing Doe v. Weiss, 2010 Ark. 150; Passmore v. Hinchey, 2010 Ark. App. 581, 379 S.W.3d
497). We cannot say that the circuit court abused its discretion in granting Springdale’s
motion to dismiss.
IV. Summary Judgment
Following the circuit court’s order granting Springdale’s motion to dismiss, Springdale
filed a motion for summary judgment in which it asserted that the undisputed facts
demonstrated that its rezoning decision was not arbitrary and capricious. The circuit court
granted Springdale’s motion. In its second point on appeal, Bethel Heights contends that the
circuit court erred in granting Springdale’s motion for summary judgment.
The law is well settled that summary judgment is to be granted by a circuit court only
when it is clear that there are no genuine issues of material fact to be litigated, and the party
is entitled to judgment as a matter of law. Harrisburg Sch. Dist. No. 6 v. Neal, 2011 Ark. 233,
381 S.W.3d 811; Bishop v. Farm Bureau Mut. Ins. Co. of Ark., Inc., 2016 Ark. App. 168, 486
S.W.3d 211. Once the moving party has established a prima facie entitlement to summary
judgment, the opposing party must meet proof with proof and demonstrate the existence of
a material issue of fact. Bishop, supra. On appellate review, we determine if summary judgment
was appropriate based on whether the evidentiary items presented by the moving party in
support of the motion leave a genuine issue of material fact unanswered. Campbell v. Asbury
Auto., Inc., 2011 Ark. 157, 381 S.W.3d 21. We view the evidence in the light most favorable
to the party against whom the motion was filed, resolving all doubts and inferences against the
moving party. Id.
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To understand the thrust of Springdale’s summary-judgment motion, we must first
look to the nature of the claim raised in Bethel Heights’ complaint. Bethel Heights alleged
that Springdale’s rezoning of the property from agricultural use to industrial use was “not
compatible with [the land uses] of the contiguous and adjacent properties situated in Bethel
Heights.” It therefore contended that the rezoning was not in compliance with Arkansas Code
Annotated section 14-56-306 and was void. Section 14-56-306 essentially provides that land
use in adjacent or contiguous cities must be compatible; a “compatible land use” includes “a
land use authorized by the municipal zoning ordinance for the zone that is the equivalent to,
or that is as nearly equivalent as possible to, a land use authorized by the municipal zoning
ordinance.” Ark. Code Ann. § 14-56-306(c)(3)(B).
Springdale, in moving for summary judgment, provided affidavits and exhibits to
demonstrate that its zoning decision was compatible with land uses that had been authorized
in Bethel Heights. For example, Springdale submitted the affidavit of Patsy Christie, the
director of Planning and Community Development for the City of Springdale, in which she
averred that, at the time of the rezoning of Springdale’s recently annexed property, a parcel
of property located within Bethel Heights, which was immediately to the west of and
adjacent to the property, was zoned industrial by Bethel Heights. An affidavit from Fred
Wagner, a licensed real estate agent who had the pertinent four-acre Bethel Heights property
listed for sale, stated that the property listing indicated that the property was zoned for
industrial use. Similarly, an affidavit from Wayne VanHook, another real estate agent, stated
that the mayor of Bethel Heights had given VanHook a copy of the Bethel Heights
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ordinance by which the four-acre tract had been zoned industrial in 2007. Springdale thus
established a prima facie case that its rezoning of the Kendrick property from agricultural to
industrial was a use that was compatible with the zoned uses of an adjacent or contiguous
municipality—i.e., that its rezoning decision comported with section 14-56-306.
In response, Bethel Heights argued that the zoning decision was arbitrary and
capricious for several reasons: Springdale had not complied with the proper procedural
prerequisites to the rezoning; the rezoning decision was arbitrary and capricious due to the
status of the adjacent properties; it amounted to spot zoning; and it amounted to contract
zoning. In support of its response, Bethel Heights attached the petition for rezoning;
Springdale’s planning-commission minutes from the meeting at which the ordinance
rezoning the Kendrick property was prepared; an affidavit from Trey Trumbo, the owner
of several of the adjoining properties that were zoned residential, who opined that his
property values would decline if the rezoning were permitted to stand; and excerpts from
Gregory Kendrick’s deposition testimony.4
The exhibits, however, did not meet proof with proof on the question of whether
Springdale’s rezoning was compatible with the zoned use of an adjacent property; therefore,
the circuit court did not err in granting Springdale’s motion for summary judgment. See
4
Bethel Heights reiterates these arguments on appeal. The circuit court, however,
never made a ruling on Bethel Heights’ contentions regarding spot zoning, contract zoning,
procedural defects, or the effect on neighboring properties. These arguments are thus not
preserved for appellate review. See Black v. Duffie, 2016 Ark. App. 584, at 33 (noting that,
in order to preserve an issue for appellate review, an appellant is obligated to obtain a specific
ruling on it from the circuit court).
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Chandler v. Wal-Mart Stores Inc., 2016 Ark. App. 372, at 9, 498 S.W.3d 766, 770 (“If a
plaintiff fails to meet proof with proof on any essential element of his or her claim, then the
movant is entitled to summary judgment.”) (citing Bushong v. Garman Co., 311 Ark. 228, 843
S.W.2d 807 (1992)).
Affirmed.
HARRISON and KLAPPENBACH , JJ., agree.
Hall, Estill, Hardwick, Gable, Golden & Nelson, P.C., by: Robert K. Rhoads and M. Scott
Hall, for appellant.
Ernest B. Cate, City Attorney, for appellees.
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