Duchac v. City of Hot Springs

• Decision Date: 16 June 1999
• Docket Number: No. CA,CA
• Citation: Duchac v. City of Hot Springs, 992 S.W.2d 174, 67 Ark.App. 98 (Ark. App. 1999)
• Parties: Rene DUCHAC, Appellant, v. CITY OF HOT SPRINGS, Appellees. 98-1270.
• Court: Arkansas Court of Appeals

Page 174

992 S.W.2d 174

67 Ark.App. 98

Rene DUCHAC, Appellant, v.CITY OF HOT SPRINGS, Appellees.

No. CA 98-1270.

Court of Appeals of Arkansas Division II.

June 16, 1999.

John P. Lewis, P.A., by: John P. Lewis; and Steve Westerfield, Hot Springs, for appellant.

David H. White and Brian W. Albright, Hot Springs, for appellee.

SAM BIRD, Judge.

AppellantRene Duchac appeals a decision of the Garland County Chancery Court granting the City of Hot Springs a permanent injunction against his use of the property at 605 Quapaw Street as a multi-family dwelling.Appellant contends that the court should not have granted the injunction because the property was a preexisting, nonconforming use when the zoning ordinance went into effect in 1963.Appellant also argues that the City should be barred from enforcing the zoning ordinance by estoppel and laches.The trial court held that the subject property was not a preexisting, nonconforming use.It also held that neither laches nor estoppel applied to the situation, and granted the injunction.We agree with the trial court and, therefore, affirm.

Dora Jane Ledgerwood Ellis, the daughter of C.H. Ledgerwood, who built the house in the 1920s, testified that it was converted from a one-family residence to a two-family residence sometime during the 1930s by turning a stairway around and adding more bedrooms upstairs.During World War II, Ledgerwood rented the upstairs apartment to an army officer and his wife.After the war was over, the upstairs apartment remained empty, except for a while in 1945 when Ms. Ellis returned from college and lived upstairs, but the house was never converted back to a one-family home.Mrs. Ellis said she married in 1964 and moved out of the house.In 1966 the Ledgerwood family moved to a new house.Ms. Ellis said that at that time it was a single-family residence, and Ledgerwood sold the property to Zenonas Minginas sometime between 1966 and 1969.

June Smith, who lives next door to 605 Quapaw, testified that as soon as she learned that Duchac was using the property for apartments, probably around the mid-70s, she complained to the city, and has continued to complain through the years.

Tom Elgin, the Director of Planning and Development for the City of Hot Springs, testified that the first comprehensive zoning ordinance for the city was passed in 1963.It zoned the area in which 605 Quapaw is located as R-3, "Low Density Residential."An ordinance identical to the 1963 ordinance is still in effect.Nevertheless, he admitted that the house at 601 Quapaw, next door to 605, is a four-unit apartment house; 627 Quapaw is about a half block from 605 and is a six-unit apartment house; and diagonally across an alley to the rear of 605 is a three-unit apartment house.Furthermore, directly behind 605 is an automobile body-repair shop.Mr. Elgin did not know whether these other buildings had been non-conforming uses at the time the zoning was adopted, or whether variances had been granted for them.

Appellant testified that he bought the apartment house at 605 Quapaw in 1973 from Zenonas Minginas, and the house had a two-bedroom unit upstairs, a two-bedroom unit downstairs, a one-bedroom unit downstairs, and an efficiency apartment downstairs, which were all occupied.He said he would not have bought the property as a single-family dwelling.Duchac obtained a purchase-money mortgage characterizing the property as a hotel, and has never used it as a single-family unit.He said that he has always had 100ccupancy, that he lived there himself for a while, and that he later used part of the house as his CPA and Real Estate office.Mr. Duchac also testified that each year since he purchased the property he has paid the City an "occupancy tax," and the City has never returned his money.

Over the years, Duchac said, the house has required maintenance to the plumbing, kitchens, bathrooms, and electrical system.If the City had informed him in 1970 that the house could not be used as an apartment building, he would not have purchased it, and if he had known "a couple of years later,"he wouldn't have spent money on needed electrical and plumbing upkeep.He said it would cost him "a fortune" to turn the house back into a single-family dwelling.Stairwells, walls, and appliances would have to be moved, and it would be "totally cost prohibitive."

Appellant also testified that he had talked to Zenonas Minginas about the history of the house when he purchased it, but Minginas died around 1980, and appellant had no access to the records regarding Minginas's tenants.Appellant said he had been able to locate only one of the tenants who lived in the house when he purchased it.He complained that the delay by the City of almost thirty years had greatly diminished his witness list because so many who were familiar with the early history of the house had died or moved away.

Zenonas Minginas's son, John Minginas, testified for appellant by deposition, stating that his father purchased the property as an apartment building, moved into the house in January 1969, and it had three mailboxes in the carport, evidencing its use as a multi-family dwelling.At that time, the lower floor of the house had a large living room, a kitchen, a bathroom, a bedroom, and an intermediate room, which could be used for a bedroom.Zenonas Minginas subsequently divided the living room with partitions into two sleeping rooms and a bathroom, and the occupants shared the kitchen with the family living in the larger downstairs area.Upstairs there was a living room, kitchen, two bedrooms, and a bathroom.The only way to get upstairs was from the outside; there was no connection by which a person could go into the main house downstairs and get to the upstairs apartment.John Minginas insisted that his father purchased the house for use as rental property.

Appellant first argues that the trial court erred in granting the permanent injunction because the property was exempt from the 1963 zoning ordinance as a preexisting, nonconforming use.He relies on Blundell v. City of West Helena, 258 Ark. 123, 522 S.W.2d 661(1975), where the court recognized:

[Z]oning ordinances, being in derogation of the common law, must be strictly construed in favor of the property owner and ... under our constitution, the right of private property is regarded as before and higher than constitutional sanction.Attempts to deprive the owner of a preexisting use have been regarded as unconstitutional as a taking of property without compensation or in violation of due process of law....[W]e prefer what has been referred to as the "substantial use" test for determining whether the use of property is an existing use at the time of adoption of a zoning ordinance to the extent that the use may be continued thereafter.

258 Ark. at 130-31, 522 S.W.2d at 666(citations omitted).

Appellant argues that, although the upstairs apartment was not occupied for several years after World War II, the character of the house as a multi-family dwelling was not changed.Therefore, when the ordinance was passed in 1963, the house was a nonconforming use.

The chancellor relied on Anderson v. City of Paragould, 16 Ark.App. 10, 695 S.W.2d 851(1985).Anderson had lived in a mobile home on his lot when a zoning ordinance against trailers became effective, so his home qualified as a preexisting, nonconforming use.Appellant removed the mobile home from his lot and traveled for almost a year between 1983 and 1984.He returned to Paragould and sought a zoning variance to build an apartment building on the lot.When it was denied, Anderson moved another mobile home onto the lot.The Arkansas Supreme Court held that because the Paragould zoning ordinance contained a clause stating that a discontinuance of the preexisting, nonconforming use for over thirty days constituted an abandonment, Anderson lost the right to exercise the preexisting, nonconforming use.The court said, "Where the ordinance in question contains a discontinuance time limitation, courts have held that such nonexercise of the nonconforming use is sufficient, of itself, to terminate the nonconforming use, regardless of intention to abandon."16 Ark.App. at 12, 695 S.W.2d at 852.

Article 3-7 in the Hot Springs Zoning Code, provides:

A nonconforming use of land or a nonconforming use in a structure designed for a conforming use shall not be restored to a nonconforming use after such nonconforming use has been discontinued for 12 months.

Based on this ordinance and the evidence before him, the chancellor held that the multi-family use of the property during World War II was discontinued for a sufficient period of time prior to the passage of the city zoning code in 1963 to constitute an abandonment.

In appellate review of ordinary equity cases there are two different components of the chancellor's ruling that are considered.The appellate court will not set aside a chancellor's finding of fact unless it is clearly erroneous.Ark. R. Civ. P. 52.This deference is granted because of the regard the appellate court has for the chancellor's opportunity to judge the credibility of the witnesses.City of Lowell v. M & N Mobile Home Park, Inc., 323 Ark. 332, 916 S.W.2d 95(1996).However, a chancellor's conclusion of law is not entitled to the same deference.If a chancellor erroneously applies the law and the appellant suffers prejudice, the erroneous ruling is reversed.Manifestly, a chancellor does not have a better opportunity to apply the law than does the appellate court.Id.The issues in this case turn on questions of fact rather than questions of law, and we find that the chancellor's conclusion that the nonconforming use of the building had been abandoned before the ordinance took effect is not clearly erroneous.

Ms. Ellis testified that she had lived in the house until 1964 and it was a single-family residence at that time.On cross-examination, Ms. Ellis was asked:

Q.Now,...