Canter v. Planning Bd. of Westborough

• Decision Date: 17 May 1976
• Parties: Louis M. CANTER et al. v. PLANNING BOARD OF WESTBOROUGH.
• Court: Appeals Court of Massachusetts

Page 691

347 N.E.2d 691

4 Mass.App.Ct. 306

Louis M. CANTER et al.

v. PLANNING BOARD OF WESTBOROUGH.

Appeals Court of Massachusetts, Worcester.

Argued Feb. 12, 1976.

Decided May 17, 1976.

Eugene L. Tougas, Waltham, for plaintiffs.

Robert J. Gallagher, Town Counsel, Westborough, for Planning Board of Westborough.

Before KEVILLE, GRANT and ARMSTRONG, JJ.

ARMSTRONG, Justice.

The plaintiffs appealed under G.L. c. 41, § 81BB, from a decision of the defendant planning board disapproving their subdivision plan on the grounds that the development proposed therein would have the effect of creating dangerous traffic conditions in several public ways adjacent to the subdivision and that access into certain portions of the subdivision would not be adequate in the event of fire or other emergencies due to the narrowness of, and anticipated congestion on, the adjacent ways. A judge of the Superior Court made findings which substantiated the reasons for disapproval given by the board and ordered the plaintiffs' bill dismissed. The case is before us on the plaintiffs' appeal from a final decree to that effect entered on November 6, 1973.

The Superior Court's review, and ours, must be confined to the reasons for disapproval of the subdivision plan stated by the planning board. Daley Constr. Co. Inc. v. Planning Bd. of Randolph, 340 Mass. 149, 152, 163 N.E.2d 27 (1959). Mac-Rich Realty Constr. Inc. v. Planning Bd. of Southborough, --- Mass.App. ---, --- ^a, 341 N.E.2d 916 (1976). The decisions of the planning board and of the Superior Court do not show, or attempt or purport to show, that the traffic problems which were the stated reasons for disapproval constituted violations of rules or regulations promulgated by the planning board under the authority and direction of G.L. c. 41, § 81Q. There is no suggestion in the record that the plan does not comply with any recommendation the board of health may have made under G.L. c. 41, § 81U, or with any provision of the town's zoning by-law.

The final sentence of G.L. c. 41, § 81M, added by St.1957, c. 265, states: 'It is the intent of the subdivision control law that any subdivision plan filed with the planning board shall receive the approval of such board if said plan conforms to the recommendation of the board of health and to the reasonable rules and regulations of the planning board pertaining to subdivisions of land . . ..' The same thought appears in G.L. c. 41, § 81U, the second paragraph of which states that '. . . the planning board shall approve, or, if such plan does not comply with the subdivision control law or the rules and regulations of the planning board or the recommendations of the health board or officer, shall modify and approve or shall disapprove such plan. In the event of disapproval, the planning board shall state in detail wherein the plan does not conform to the rules and regulations of the planning board or to the recommendations of the health board or officer and shall revoke its disapproval and approve a plan which, as amended, conforms to such rules and regulations or recommendations.' It follows from that clear statutory language that the planning board may not disapprove a plan not shown to violate the regulations of the planning board or the requirements of the board of health. Pieper v. Planning Bd. of Southborough, 340 Mass. 157, 163--164, 16o N.E.2d 14 (1959). Castle Estates, Inc. v. Park & Planning Bd. of Medfield, 344 Mass. 329, 333--334, 182 N.E.2d 540 (1962). Baker v. Planning Bd. of Framingham, 353 Mass. 141, 144--145, 228 N.E.2d 831 (1967). United Reis Homes, Inc. v. Planning Bd. of Natick, 359 Mass. 621, 622--623, 270 N.E.2d 402 (1971). Sparks v. Planning Bd. of Westborough, --- Mass.App. ---, --- ^b, 321 N.E.2d 66 (1974). Selectmen of Ayer v. Planning Bd. of Ayer, --- Mass.App. ---, --- ^c, 336 N.E.2d 388 (1975). MacRich Realty Constr. Inc. v. Planning Bd. of Southborough, --- Mass.App. at --- - --- ^d, ¹, 341 N.E.2d 916. The regulations of the planning board, to be effective as a basis for disapproval of a plan, must be 'comprehensive, reasonably definite, and carefully drafted, so that owners may know in advance what is or may be required of them and what standards and procedures will be applied to them.' Castle Estates, Inc. v. Park & Planning Bd. of Medfield, supra, at 334, 182 N.E.2d at 545. Sparks v. Planning Bd. of Westborough, supra, at --- - --- ^e, 321 N.E.2d 666. Chira v. Planning Bd. of Tisbury, --- Mass.App. ---, --- ^f, 333 N.E.2d 204 (1975).

The rules and regulations of the planning board were admitted in evidence and are before us. We find nothing in them which appears to be directed to those aspects of the plan which were made the grounds for disapproval. The planning board does not contend otherwise. It follows that the board's decision cannot be sustained.

We do not reach, therefore, the principal issue argued before us--namely, whether the planning board has the power to disapprove a subdivision plan due to traffic problems and access problems caused not by any inadequacy of the ways set out on the subdivision plan, but rather by inadequacies in the public ways adjacent to or providing access to the proposed development. We only point out that we do not regard issue as necessarily having been concluded by such cases as Daley Constr. Co. v. Planning Bd. of Randolph, 340 Mass. at 152--156, 163 N.E.2d 27 and MAC-RICH REALTY CONSTR. INC. V. PLANNING BD. SOUTHBOROUGH, --- MASS.APP. AT --- , 341 N.E.2D 916,^G which apply in other contexts the principle that a planning board should not disapprove a plan on the basis of inadequacies in utility or municipal services outside the proposed subdivision. The language of § 81M ² could be read to suggest that a developer may be required...