Davidson v. Board of Selectmen of Duxbury

• Decision Date: 01 July 1970
• Citation: 260 N.E.2d 695,358 Mass. 64
• Parties: Walter J. DAVIDSON v. BOARD OF SELECTMEN OF DUXBURY.
• Court: United States State Supreme Judicial Court of Massachusetts Supreme Court

Page 695

260 N.E.2d 695

358 Mass. 64

Walter J. DAVIDSON v. BOARD OF SELECTMEN OF DUXBURY.

Supreme Judicial Court of Massachusetts, Middlesex.

Argued April 9, 1970.

Decided July 1, 1970.

Robert J. Geogan, Town Counsel, for respondent.

Vincent L. Hennessy, Boston (George F. Killgoar, Boston, with him) for petitioner.

Before WILKINS, C.J., and SPALDING, CUTTER, KIRK, SPIEGEL, REARDON, and QUIRICO, JJ.

CUTTER, Justice.

By petition for writ of certiorari Davidson seeks to require the selectmen, the town's licensing authority, to issue a license to Davidson for the storage and sale of gasoline and other products at 28 Depot Street, South Duxbury (the locus). Davidson applied for this license (G.L. c. 148, § 13, as amended through St.1959, c. 353, § 1) after the town's board of appeals granted him a special permit to construct the station. ¹ On December 19, 1968, the selectmen, after a public hearing, denied the application, because 'no public necessity existed which would take precedence over the fact that the * * * (locus) is in a narrow, dangerous congested street, made more hazardous due to a large parking area for a store complex. The proposed use of this area for a central Post Office was also considered an additional hazard. The residents in the area objected to * * * the permit.' The parties have stipulated that this decision of the selectment (stated more fully in the selectmen's return to the petition, quoted below) was based 'solely on the grounds' thus stated. A Superior Court judge ordered that the selectmen's decision be quashed and that a license be issued. ² The selectmen appealed. There is a statement of agreed facts, in addition to the selectmen's return.

1. General Laws c. 148, § 13, gives to 'the local licensing authority' (here the selectmen) the power to grant the license. The decision of the selectmen not to issue a license to Davidson, was not arbitrary and capricious, standing by itself. The selectmen's return states their reasons. On the evidence 'they found that the vicinity, although zoned in part for business, is still to a great extent residential * * * the surfaced * * * street is less than thirty feet wide; there are no sidewalks; there are already two filling stations within three hundred yards of the * * * (locus); the * * * newly constructed A. & P. store building and additional stores with a large parking lot adjoining the locus' already create traffic hazards; the 'parking lot is constructed on a slope * * * and unattended parked cars roll into the street on an average of once a week; there is a new post office in * * * the A. & P. complex and since * * * no mail (is) delivered by foot-carriers in Duxbury, there is an additional traffic problem; the establishment of a gasoline filling station with entrance and exit provisions all within a few yards of the entrance to the * * * shopping area, would definitely * * * (disturb) the orderly flow of traffic on a street * * * already too narrow; and there was no * * * public demand for another station in the immediate vicinity.'

The facts thus stated are a sufficient basis for denying the application. The board's 'somewhat wide discretion' (see Scudder v. Selectmen of Sandwich, 309 Mass. 373, 376--377, 34 N.E.2d 708; Kidder v. City Council of Brockton, 329 Mass. 288, 290--291, 107 N.E.2d 774) is not limited to considering fire and explosion danger. Sherman v. Selectmen of Orleans, 355 Mass. ---, ^a 243 N.E.2d 911. Heavy traffic conditions may be considered. '(T)he burden is (not) on the * * * (selectmen) to justify the denial of the license.' Johnson Prod. Inc. v. City Council of Medford, 353 Mass. 540, 543, 233 N.E.2d 316, 319.

The return is conclusive as to all issues of fact before the selectmen and within their jurisdiction, at least in the absence of proper efforts to obtain extension of the return. See Byfield v. City of Newton, 247 Mass. 46, 53, 141 N.E. 658; Marcus v. Street Com'rs, 252 Mass. 331, 335, 147 N.E 866; DiRado v. Civil Serv. Comm., 352 Mass. 130, 132--133, 224 N.E.2d 193. On the facts shown by the return, which are not contradicted by the facts stipulated, the selectmen's action cannot be said to be 'arbitrary and capricious,' if their action is viewed as a decision separate and apart from the zoning decision on the special permit (fn. 1).

2. The propriety of the final decree of the Superior Court in the earlier zoning case requiring, in effect, a special permit to be granted for use of the locus for a filling station, is not before us. We note, however, that the final decree ³ was ordered to be entered on October 7, 1968, well before our decision (announced January 31, 1969) in Gulf Oil Corp. v. Board of Appeals of Framingham, 355 Mass. 275, 277--278, 244 N.E.2d 311. The present petitioner contends (as the trial judge ruled) that the earlier zoning decision (fn. 1) controls the present case and that the selectmen are estopped (by the earlier decision) to deny a license for gasoline storage and sale on the ground that such storage and sale would constitute a traffic harzard. The present petitioner also says that the zoning decree was granted, not merely on the ground that the judge in the earlier case on the evidence then introduced would himself have granted a special permit, but because the evidence did 'not warrant the conclusion * * * that * * * a service station would create an unnecessary traffic hazard.' It is to be noted that in the earlier zoning case, the defendant was the board of appeals. In this case, the board of selectmen is the respondent.

We perceive nothing in G.L. c. 148, § 13, as amended, or in c. 40A, which indicates to us...