OLD TENNENT CEMETERY ASSOCIATION VS. TOWNSHIP OF MANALAPAN PLANNING BOARD (L-3635-16, MONMOUTH COUNTY AND STATEWIDE)

NOT FOR PUBLICATION WITHOUT THE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-2961-19
OLD TENNENT CEMETERY
ASSOCIATION,
Plaintiff-Appellant,
v.
TOWNSHIP OF MANALAPAN
PLANNING BOARD,
Defendant-Respondent.
___________________________
Argued September 30, 2021 – Decided October 20, 2021
Before Judges Mawla and Mitterhoff.
On appeal from the Superior Court of New Jersey, Law
Division, Monmouth County, Docket No. L-3635-16.
Edward F. Liston, Jr., argued the cause for appellant.
Ronald D. Cucchiaro argued the cause for respondent
Township of Manalapan Planning Board (Weiner Law
Group, LLP, attorneys; Ronald D. Cucchiaro, of
counsel and on the briefs).
Roger J. McLaughlin argued the cause for respondent
Township of Manalapan (McLaughlin Stauffer & Shaklee,
PC, attorneys, join in the brief of respondent Township of
Manalapan Planning Board).
PER CURIAM
Plaintiff Old Tennent Cemetery Association appeals from a February 18,
2020 order dismissing its complaint in lieu of prerogative writ with prejudice.
The complaint was filed to challenge defendant Township of Manalapan
Planning Board's (Planning Board) denial of plaintiff's preliminary and final site
plan application to construct a driveway and crematorium on its property. The
Planning Board claimed that it lacked jurisdiction because plaintiff required a
variance from the Zoning Board of Adjustment (Zoning Board). The trial judge
agreed and dismissed the complaint. On appeal, plaintiff argues that dismissal
of its complaint was erroneous and that it was not required to obtain a variance
from the Zoning Board. We affirm.
We discern the following facts from the record. Old Tennent Cemetery is
a 12.5-acre property with a "one-story brick office building along with
associated circulation and parking improvements" in the Township of
Manalapan. A series of burial plots occupy 0.68 acres of the property, while the
rest remains undeveloped. The property is located near the intersection of
Freehold-Englishtown Road and Tennent Road. The main access to the property
is "a paved driveway extending through adjacent Lot 3.011 to the north which
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contains improvements associated with the Old Tennent Church and Cemetery."
The property is "situated within the R-E (Residential Environmental) Zone."
Before the Planning Board, plaintiff sought a preliminary and final site
plan approval to construct an approximately 1,327 square-foot building addition
to be used as a crematorium. This proposed addition would be on the "westerly
side of the existing one-story office building" on the property. "An expansion
of the existing driveway on-site is also proposed to provide vehicular access to
the crematorium." Plaintiff also proposed "landscaping improvements."
On July 28, 2016, the Planning Board conducted a hearing on the
application. Before the Planning Board, a non-profit group, Stop the Manalapan
Crematorium, Inc. (SMC), objected to the application. The president of SMC,
Glenn Cohen, testified that he was a resident of Manalapan. Cohen testified that
the group was comprised of approximately eleven members, nine or ten of which
were Manalapan residents. SMC is purportedly funded by donations from
Manalapan residents and it does not own any property in Manalapan. The
Planning Board voted that SMC had standing to oppose plaintiff's application.
Counsel for SMC argued that the Planning Board did not have jurisdiction
to hear (d) variances, which included (d)(2) variances for expansion of
nonconforming uses. He asserted that the Old Tennent Cemetery dates back to
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the 1700s and was, "admittedly," a preexisting nonconforming use. He also
argued the addition of a crematorium was an expansion of the nonconforming
use, necessitating a (d)(2) variance. He further argued that the matter should be
transferred to the Zoning Board.
Plaintiff, on the other hand, argued that it had "just as much [a] right to
add a crematory to its cemetery as the Laurel Lawn 1 cemetery owner did."
Plaintiff maintained that "Old Tennent [Cemetery] is legally entitled to continue
its cemetery pursuant to N.J.S.A. 40:55D-68, and it is entitled to include a
crematorium as accessory to use under the Laurel Lawn case." Plaintiff
contended that "Old Tennent [Cemetery] is older than all of Manalapan zoning
ordinances," even "older than the United States of America by a great many
years," thus making it a pre-existing nonconforming use. Plaintiff averred that
the crematory will be 1,327 square feet, which is 0.25 percent of the total square
footage of the cemetery itself. Thus, plaintiff claimed all that was required is a
site plan application, not a (d) variance, which the Planning Board has
jurisdiction over pursuant to N.J.S.A. 40:55D-60. In short, plaintiff reasoned
that because "Old Tennent [Cemetery] is a preexisting nonconforming use" and
1
Laurel Lawn Cemetery Ass'n v. Zoning Bd. of Adjustment of Twp. of Upper
Deerfield, 226 N.J. Super. 649 (Law Div. 1988).
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"a crematorium is merely an accessory to a cemetery," it was entitled to apply
for preliminary and final site plan approval before the Planning Board.
Following argument, the Planning Board opened the discussion to
members of the public solely on the issue of jurisdiction. One member of the
public, who happened to be the secretary of the Planning Board for Englishtown,
stated plaintiff needed a "use variance" and should "go before the Zoning
Board." The Planning Board's attorney, Ronald Cucchiaro, advised that the
Zoning Board was the only entity with the authority to determine whether Old
Tennent Cemetery is a preexisting nonconforming use. 2 Cucchiaro also
disagreed with the suggestion that Laurel Lawn "mandates that this is an
accessory use which obviate[d] the need for a (d)(2) variance." Cucchiaro made
the following recommendations: that the Planning Board does not have
jurisdiction because the nonconforming use status was never certified b y the
Zoning Board and, assuming arguendo it did, a (d)(2) variance was required
which would also be submitted to the Zoning Board.
2
Cucchiaro advised that the present matter was premature because there was no
issuance of a certificate of nonconformity and that the Planning Board cannot simply
accept the fact that Old Tennent Cemetery has a constitutionally vested right as a
preexisting nonconforming use.
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Based on the arguments presented, and Cucchiaro's recommendation, one
board member made a motion "that [the Planning Board] lack[ed] the authority
to hear [the] application . . . ." The motion was seconded, and a majority of the
Planning Board voted in favor of the motion.
On September 8, 2016, the Planning Board memorialized its findings and
conclusions in a resolution. The Planning Board determined that the Zoning
Board "has exclusive jurisdiction to determine if the existing cemetery, and all
of its improvements is a . . . non-conforming use." The Planning Board also
found that "the introduction of a new crematorium, which includes the expansion
of an existing structure, requires variance relief . . . ." For those reasons,3 the
Planning Board denied plaintiff's application for preliminary and final site plan
approval.
On October 19, 2016, plaintiff filed a complaint in lieu of prerogative writ
against the Planning Board. Plaintiff sought to reverse the denial of its
application and to declare the September 8, 2016 resolution void. Plaintiff also
sought an order directing the Planning Board to approve its application as well
as an award of counsel fees. On November 22, 2016, the Planning Board filed
3
The Planning Board also noted that the New Jersey Cemetery Act, N.J.S.A. 45:27-
1 to 38, required plaintiff to first obtain approval from the Township Committee.
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an answer, as did the Township of Manalapan (the Township) after being
granted leave to intervene.
On February 18, 2020, Judge Lisa P. Thornton issued an order dismissing
plaintiff's action in lieu of prerogative writ with prejudice, accompanied by a
fourteen-page written opinion. The judge found that the evidence suggested that
"Old Tennent Cemetery is a nonconforming use, not a permitted use." The judge
determined that because an accessory use to a principal nonconforming use
constituted an "expansion of a nonconforming use," it was subject to the
exclusive jurisdiction of the Board of Adjustment. 4 Accordingly, the judge
dismissed plaintiff's complaint with prejudice. 5 Plaintiff now appeals from that
order. Plaintiff presents the following arguments for our review:
POINT I
AN ALTERNATIVE TO BURIAL, COMPRISING
1/400TH THE AREA OF A PRE-REVOLUTION
CEMETERY, IS A DE [MINIMIS] ACCESSORY OF
A NONCONFORMING USE; THE DISMISSAL OF
4
In doing so, the court noted that it was "not overwhelmed by defendants' contention
that a threshold issue exists regarding whether Old Tennent Cemetery is a valid
nonconforming use" because defendants did "not dispute plaintiff's statement that
Old Tennent Cemetery has existed since at least the Revolutionary War, long before
a zoning ordinance was contemplated, let alone adopted."
5
The judge also rejected plaintiff's contention that the Planning Board's decision
was tainted by the "noisy recusal." That decision has not been appealed and is not
before this panel.
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PLAINTIFF'S COMPLAINT WAS ERRONEOUS
AND SHOULD BE REVERSED.
POINT II
PLAINTIFF WAS NOT REQUIRED TO OBTAIN
MANALAPAN TOWNSHIP'S PERMISSION TO
INCLUDE AN ACCESSORY CREMATORIUM ON
ITS PROPERTY.
This court uses "the same standard used by the trial court" in evaluating
actions by a public body, such as a zoning board. Bd. of Educ. of Clifton v.
Zoning Bd. of Adjustment of Clifton, 409 N.J. Super. 389, 433-34 (App. Div.
2009) (citing Cohen v. Bd. of Adjustment of Rumson, 396 N.J. Super. 608, 614-
15 (App. Div. 2007)). The court's standard of review of a decision by a zoning
board varies depending on the issue being challenged. Courts accord wide
latitude to the discretion of such public bodies to make fact-findings and
decisions on land use applications. Kane Props., LLC v. City of Hoboken, 214
N.J. 199, 229 (2013) (citing Burbridge v. Governing Body of Twp. of Mine Hill,
117 N.J. 376, 385 (1990)); Kramer v. Bd. of Adjustment, 45 N.J. 268, 296-97
(1965).
On questions concerning the interpretation or determination of law,
however, the court's review is de novo. Manalapan Realty, L.P. v. Twp. Comm.
of Manalapan, 140 N.J. 366, 378 (1995) (stating that the "trial court's
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interpretation of the law and the legal consequences that flow from established
facts are not entitled to any special deference"); Fallone Props., L.L.C. v.
Bethlehem Twp. Plan. Bd., 369 N.J. Super. 552, 561 (App. Div. 2004). A board
of adjustment's "decision regarding a question of law, such as whether it has
jurisdiction over a matter, is subject to de novo review by the courts and thus is
afforded no deference." Pond Run Watershed Ass'n v. Twp. of Hamilton Zoning
Bd. of Adjustment, 397 N.J. Super. 335, 350 (App. Div. 2008) (citing TWC
Realty P'ship v. Zoning Bd. of Adjustment of Edison, 315 N.J. Super. 205, 211
(Law Div. 1998)).
The heart of the matter before us is whether, assuming arguendo that
plaintiff's use is a pre-existing nonconforming use, the Planning Board or the
Zoning Board of Adjustment has jurisdiction to hear plaintiff's application. The
New Jersey Constitution authorizes the Legislature to regulate land use. N.J.
Const. art. IV, § 6, ¶ 2. The Legislature delegated its authority to regulate land
use to municipalities under the Municipal Land Use Law (MLUL), N.J.S.A.
40:55D-1 to -163. Municipalities are required to strictly conform to the MLUL.
See N.J. Shore Builders Ass'n v. Twp. of Jackson, 199 N.J. 449, 452 (2009).
Preliminarily, the MLUL defines a nonconforming use as "a use or activity
which was lawful prior to the adoption, revision[,] or amendment of a zoning
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ordinance, but which fails to conform to the requirements of the zoning district
in which it is located by reasons of such adoption, revision[,] or amendment."
N.J.S.A. 40:55D-5. It is well-settled that "[t]he zoning board's power to certify
nonconforming uses is exclusive and may not be exercised by any other
municipal agency." Twp. of Stafford v. Stafford Twp. Zoning Bd. of
Adjustment, 154 N.J. 62, 69 (1998) (citing N.J.S.A. 40:55D-68; N.J.S.A.
40:55D-20).
Pursuant to N.J.S.A. 40:55D-20, "[a]ny power expressly authorized by
[the MLUL] to be exercised by (1) planning board or (2) [zoning] board of
adjustment shall not be exercised by any other body, except as otherwise
provided in this act." N.J.S.A. 40:55D-70 outlines the powers of a zoning board.
The Zoning Board has exclusive jurisdiction to "grant a variance to allow
departure from regulations" to allow "a use or principal structure in a district
restricted against such use or principal structure, [and] an expansion of a
nonconforming use." N.J.S.A. 40:55D-70(d)(1)-(2); see also Najduch v. Twp.
of Indep. Plan. Bd., 411 N.J. Super. 268, 276-77 (App. Div. 2009) (noting the
exclusive jurisdiction of boards of adjustment with respect to N.J.S.A. 40:55D -
70(d) variances and their ancillary jurisdiction pursuant to N.J.S.A. 40:55D -
76(b)).
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Plaintiff principally relies on Laurel Lawn, 226 N.J. Super. 649 in support
of its arguments. There, like the case at bar, the cemetery "pre-existed the
zoning ordinance" and was "located in the R-2 Residential zone," where a
cemetery was "not a permitted use." Id. at 650. Therefore, the cemetery was a
preexisting non-conforming use. Ibid. The township allowed cemeteries, "but
only in R-1 Residential and A-1 Agricultural zones." Ibid. Laurel Lawn wanted
"to build a crematorium in the cemetery" and, thus, applied for a conditional use
permit. Ibid. Crematoriums were "not specifically provided for in any zone,"
and funeral homes were "permitted in R-2 Residential Zones." Ibid.Laurel Lawn argued that the crematorium was "an accessory or incidental
use to [the] cemetery . . . ." Ibid. The township contended, however, that the
crematorium was "a primary use, not incidental to the non-conforming cemetery
use." Id. at 651. After reviewing various definitions in the New Jersey
Cemetery Act, as well as prior precedent involving accessory uses, the judge
ultimately held:
Until recently, cremation was not generally
accepted, favored or utilized, which may explain why
there is no well[-]lit path of stare decisis dealing with
the subject, why the [t]ownship zoning ordinance is
silent on the subject, why many Title 8A amendments
deal with the subject and why crematories are not
situate[d] and functioning in most cemeteries.
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The practice appears to be gaining acceptance
and more widespread use as an alternative to traditional
interment. Since that is exactly what it is, an alternative
to interment, then the Legislative bent toward equating
cremation with a cemetery use seems logical, practical
and utilitarian, not disruptive, noxious or alien to a
cemetery.
[Id. at 653.]
In short, Laurel Lawn stands for the unremarkable proposition that a
crematorium is an accessory or incidental use to a cemetery because, like a
funeral home, it deals with the disposition of human remains. Id. at 651-53; see
also Cox & Koenig, New Jersey Zoning & Land Use Administration § 38-2
(2021) ("A crematorium has been held to be an accessory use to a cemetery."
(citing the same)). The judge reversed the Zoning Board's decision. Laurel
Lawn, 226 N.J. Super. at 653.
Accessory uses, like a crematorium in a cemetery, "which are either not
permitted by ordinance or which are accessory to a nonconforming principal use
can be allowed by way of variance only pursuant to" N.J.S.A. 40:55D-70(d).
Cox & Koenig, New Jersey Zoning & Land Use Administration § 38-5 (2021).
Because a crematorium is an accessory use to a cemetery, and the Old Tennent
Cemetery is a pre-existing non-conforming use, a N.J.S.A. 40:55D-70(d)
variance is required unless crematoriums are permitted by ordinance.
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It is clear that crematoriums are not permitted by ordinance. "Any use,
except for essential services, which is not specifically listed as a permitted use,
an accessory use[,] or a conditional use on the Schedule of Permitted Uses shall
be deemed a prohibited use." Manalapan Township, N.J., Ordinance, ch. 95, art.
V, §95-5.3(A) (2012). As the trial judge observed, the R-E Zone in the
Township of Manalapan allows the following permitted uses: single-family
dwelling; community residences for the developmentally disabled pursuant to
N.J.S.A. 40:55D-66.1; single-family detached residential clusters; municipal
facilities operated by Manalapan Township; volunteer fire house, first aid
station; township parks, playground and swimming areas; farms. Manalapan
Township, N.J., Ordinance, ch. 95, art. V, §95-5.1 (2013). The R-E Zone allows
the following conditional uses: private swim clubs; elementary and secondary
schools; places of worship; private parks and playgrounds. Ibid. The R-E Zone
allows some of the following accessory uses: horses, horse shelters and exercise
areas; essential services; private garages; signs; fences and walls; private
swimming pools; toolsheds and storage buildings; animal shelters for domestic
pets; off-street parking; private tennis courts; private residential sports courts.
Ibid.
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Taken together, assuming the Tennent Cemetery is a pre-existing non-
conforming use, and in light of the fact that a crematorium is an accessory use
to a cemetery, Laurel Lawn, 226 N.J. Super. at 653, the Zoning Board of
Adjustment had exclusive jurisdiction:
The zoning board of adjustment will also exercise
jurisdiction where an application for site plan approval
is made for an accessory use . . . to a principal
nonconforming use. In such a case, [the accessory use]
would constitute the expansion of a nonconforming use
and hence the Zoning Board . . . would have exclusive
jurisdiction.
[Cox & Koenig, New Jersey Zoning & Land Use
Administration § 23-15 (2021).]
To the extent we have not addressed any of the parties' remaining
arguments, we conclude that they are without sufficient merit to warrant
discussion in a written opinion. R. 2:11-3(e)(1)(E).
Affirmed.
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