Albahari v. Zoning Bd. of Appeals Brewster

• Decision Date: 08 February 2010
• Docket Number: No. 08-P-1515.,08-P-1515.
• Citation: Albahari v. Zoning Bd. of Appeals Brewster, 921 N.E.2d 121, 76 Mass. App. Ct. 245 (Mass. App. 2010)
• Parties: Steven W. ALBAHARI & others<SMALL><SUP>1</SUP></SMALL> v. ZONING BOARD OF APPEALS OF BREWSTER & another.<SMALL><SUP>2</SUP></SMALL>
• Court: Appeals Court of Massachusetts

921 N.E.2d 121

76 Mass. App. Ct. 245

Steven W. ALBAHARI & others¹ v.ZONING BOARD OF APPEALS OF BREWSTER & another.²

No. 08-P-1515.

Appeals Court of Massachusetts. Suffolk.

Argued April 7, 2009.

Decided February 8, 2010.

Walter H. McLaughlin, Hampden, for Lucille M. Owocki.

Peter S. Farber for the plaintiffs.

Present: DUFFLY, BROWN, & McHUGH, JJ.

McHUGH, J.

DefendantLucille Owocki owns two contiguous parcels of land in Brewster (town).On August 29, 2000, she filed an application for a permit to build a single-family house on the land.The town building commissioner (commissioner) initially denied the application, but following litigation described below, ultimately issued the permit on September 22, 2005.By then, however, the town zoning by-law (by-law) had changed in a way that made it impossible for Owocki to build in accordance with the plans attached to her application.Neighbors appealed issuance of the permit to the town's zoning board of appeals (board), which upheld the permit.The neighbors then appealed to the Land Court, which, on cross-motions for summary judgment, reversed.Owocki now appeals, and we affirm.

Background.

The summary judgment record reveals the following undisputed facts.On August 29, 2000, Owocki applied for a permit to build a single-family home on her two lots on Doran Drive in Brewster.In a letter dated September 29, 2000, the commissioner denied the application, citing five deficiencies that made the application "incomplete."First and foremost, the commissioner stated that the nature of some of the soil on Owocki's lots placed at least portions of those lots in a wetlands conservancy district, with the consequence that art. II, § 179-6(B), of the by-law prohibited building on them.The four other reasons were (1) a lack of septic permits, (2) a failure to furnish driveway permits, (3) a failure to furnish workers' compensation affidavits, and (4) issues with Owocki's foundation plans.The commissioner noted that "the specifics mention[ed] ... regarding the actual structures can be readily and quickly satisfied.However, the zoning/soil situation is a completely separate issue that must be addressed by the Zoning Board of Appeals."

Owocki appealed to the board from the commissioner's decision that her lots contained soil placing them in a wetlands conservancy district and requested a variance if the board agreed with the commissioner.At a February, 2001, hearing before the board, she offered evidence that her lots contained "Amostown" soil, a soil type the by-law did not list as a conservancy soil.The board, in a decision filed with the town clerk on February 23, 2001, voted unanimously to overturn the commissioner, noting that, by the time of the hearing, a soil expert and the commissioner agreed that no conservancy soils existed in areas of proposed construction on either of Owocki's lots.

On March 15, 2001, Steven W. Albahari and other abutters appealed the board's decision to the Superior Court pursuant to G.L. c. 40A, § 17.An agreed statement of facts submitted with cross motions for summary judgment stated that the lots had Amostown soil and, at the time of the board hearing, the by-law did not list Amostown as a conservancy soil.In a joint pretrial memorandum, however, the abutters stated that they expected to show that although the by-law did not list Amostown soil as a conservation soil, it did list "Ninigret" soil, which they claimed was, "for all intents and purposes the soil today known as `Amostown.'"

On September 28, 2001, while the case was awaiting resolution in the Superior Court, the town published notice of a proposal to amend the by-law by adding Amostown soil to the by-law's list of conservancy soils.The amendment was adopted and became effective on November 19, 2001.³Consequently, in a subsequent stipulation, the parties framed the issue for Superior Court resolution as "whether the zoning by-law in effect when the board of appeals rendered its decision (in February, 2001), or the zoning by-law amendment adopted in November, 2001, should control."

After hearing, a judge of the Superior Court concluded that the by-law in effect at the time of the board's decision was controlling and affirmed the board's decision.On the abutters ensuing appeal to this court, we affirmed in an unpublished memorandum and order on the ground that the only issue properly before the Superior Court was whether the board's decision was correct under the by-law "as it existed at the time the board considered the matter."Albahari v. Bd. of Appeals of Brewster,61 Mass.App.Ct. 1104, 807 N.E.2d 863(2004).In affirming the decision, however, we expressly declined to decide which version of the by-law would govern actual issuance of the permit, saying that the record was "not sufficient" to allow us to do so.Id. at n. 7, 807 N.E.2d 863.

In September, 2005, after further appellate review was denied, seeAlbahari v. Board of Appeals of Brewster,442 Mass. 1103, 810 N.E.2d 1229(2004), and our rescript issued, the commissioner granted Owocki the permit for which she had applied nearly five years earlier.Again, the abutters appealed to the board, but this time the board upheld the commissioner, finding that, although his letter denying the building permit cited four deficiencies in Owocki's application in addition to the issue involving the soil, Owocki had satisfied two of the deficiencies before first publication of notice of the proposed by-law change, and the other two involved routine, ministerial details that were easily corrected.Accordingly, the board concluded that "the building permit should [have] been deemed to have been issued [before first publication of the notice] and ... the decision of the Building Commissioner should be upheld because the subsequent amendment to the Bylaw would not apply to the permit."

Once more the abutters appealed pursuant to G.L. c. 40A, § 17, this time to the Land Court.There, the parties filed cross motions for summary judgment.A judge of that court granted the abutters' motion and denied Owocki's, essentially because the judge disagreed with the board's conclusion that the two unsatisfied deficiencies in the application could be remedied with routine, ministerial corrections.Judgment entered annulling the board's decision and ordering it to rescind the permit.Owocki appeals, claiming the judge should have deemed that her permit issued before first publication of notice regarding the amended by-law and, therefore, was not subject to the amendment that added Amostown soil to the by-law's list of conservancy soils.

Discussion.

At the outset, two components of our standard of review are worth noting.First, because the Land Court judge decided the case on cross motions for summary judgment, we give no deference to his decision.Instead, "[f]rom the same record as the motion judge, the reviewing court examines the allowance of summary judgment de novo."Poon v. Massachusetts Inst. of Technology,74 Mass.App.Ct. 185, 194, 905 N.E.2d 137(2009).

Second, although the judge who reviews a zoning board decision pursuant to G.L. c. 40A, § 17, typically finds the facts de novo, see, e.g., Josephs v. Board of Appeals of Brookline,362 Mass. 290, 295, 285 N.E.2d 436(1972), a judge who decides the case on motions for summary judgment engages in no fact finding at all.Instead, the judge looks at the record to determine whether there is any genuine issue of material fact and, if not, whether the evidence, viewed in the light most favorable to the nonmoving party,⁴ shows that the moving party is entitled to judgment as a matter of law.SeeMass.R.Civ.P. 56(c), as amended, 436 Mass. 1404(2002);Barrasso v. Hillview W. Condominium Trust,74 Mass.App.Ct. 135, 137, 904 N.E.2d 778(2009).

Consideration of the moving party's entitlement to judgment as a matter of law, of course, implicates the substantive law.Here, the primary source of the substantive law is G.L. c. 40A, § 6, inserted by St.1975, c. 808, § 3, which provides that a zoning by-law "shall not apply to ... a building ... permit issued before the first publication of notice of the public hearing on such ... by-law ..., but shall apply ... to a building ... permit issued after the first notice of said public hearing."

The permit in this case did not actually issue before the first publication of notice of a hearing on the proposed by-law change.Were that all there were to it, Owocki would not be entitled to the permit she now seeks, for she acquired no rights simply by filing the permit application.See, e.g., Spector v. Building Inspector of Milton,250 Mass. 63, 71, 145 N.E. 265(1924)("The fact that the petitioner filed his application for a permit before the zoning by-law was enacted is no reason why the by-law should not be held applicable to him from and after it became operative");Caputo v. Board of Appeals of Somerville,330 Mass. 107, 111, 111 N.E.2d 674(1953).

But that is not all there is to it.We suggested as much when the case was here earlier, saying then that the record was not sufficient for us

"to determine, even if we had jurisdiction to do so in this review under G.L. c. 40A, § 17, whether the permit in question should be deemed to have been `issued' for the purpose of G.L. c. 40A, § 6(seeFramingham Clinic, Inc. v. Zoning Bd. of Appeals of Framingham,382 Mass. 283, 297[, 415 N.E.2d 840(1981)], in which the Supreme Judicial Court held that once an applicant demonstrates its entitlement to a building permit, `the issuance of [the] permit is a matter of duty, not discretion, and relief in the form of an order that a permit issue is appropriate'), or whether the circumstances are such as to have created in defendant Owocki a `vested' right to the permit.ContrastCollura v. Arlington,367 Mass. 881, 888(1975);National Amusements, Inc. v. Commissioner of the Inspectional Servs. Dept. of Boston,26 Mass.App.Ct. 80, 86(1988)."

Albahari...