Hamilton v. Town of Holland

• Citation: 950 A.2d 1183,2007 VT 133
• Decision Date: 21 December 2007
• Docket Number: No. 06-234.,06-234.
• Parties: John Robert HAMILTON v. TOWN OF HOLLAND, Town of Holland Selectboard, Holland Tree Warden, et al.
• Court: United States State Supreme Court of Vermont

950 A.2d 1183

2007 VT 133

John Robert HAMILTON v. TOWN OF HOLLAND, Town of Holland Selectboard, Holland Tree Warden, et al.

No. 06-234.

Supreme Court of Vermont.

December 21, 2007.

Motion for Reargument Denied March 3, 2008.

Beth A. Danon of Blackwood & Danon, P.C., Burlington, for Plaintiff-Appellee/Cross-Appellant.

Paul S. Gillies and Daniel Richardson of Tarrant, Marks & Gillies, Montpelier, for Defendants-Appellants/Cross-Appellees.

Present: REIBER, C.J., JOHNSON, SKOGLUND and BURGESS, JJ. and COOK, D.J. (Ret.), Specially Assigned.

¶ 1. SKOGLUND, J.

This is the second appeal arising out of road work that the Town of Holland undertook on Lackey Road, a one mile long, Class 3, dirt road. Landowner John Robert Hamilton objected to the work itself and the manner in which it was authorized. In the first appeal, this Court reversed a grant of summary judgment in favor of the Town. At the subsequent trial in superior court, landowner received $1.00 in nominal damages and $15,000.00 in attorney's fees. The Town appeals the superior court's grant of attorney's fees. Landowner cross-appeals, contending that the superior court erred when it determined that the road work did not constitute an alteration within the meaning of 19 V.S.A. § 701(2). Landowner also appeals the nominal damage award, the court's refusal to award compensatory damages, and its decision to award only $15,000.00 in attorney's fees instead of the $32,987.50 requested. We affirm in part and reverse in part.

¶ 2. The record establishes the following undisputed facts. Landowner owned property on Lackey Road, in Holland.¹ In the early summer of 2001, the Town selectboard decided to widen a half-mile section of Lackey Road because the section was not wide enough to allow large vehicles— such as a truck, snowplow or school bus— to pass each other safely. The Town engaged the assistance of the State District/Regional Highway Commission in selecting and marking the trees that needed to be removed for the road project.

¶ 3. As originally conceptualized, the road-widening project required removal of many trees as well as ledge, which would have required blasting, digging drainage ditches, and installing culverts. At the Town's August 6, 2001 selectboard meeting, landowner voiced objections to the tree-cutting proposal. Notwithstanding his concerns, the selectboard voted to go ahead with the project. Following this meeting, another evaluation of the road was made, the project was scaled back, and the number of trees to be cut was reduced.

¶ 4. After the August meeting, landowner filed a complaint for declaratory and injunctive relief in Orleans Superior Court seeking to prevent the Town from cutting down the trees. The parties' dispute centered primarily on a disagreement about what, if any, procedures the Town must employ before widening Lackey Road and cutting down trees in furtherance of the road-widening project. Landowner argued that the Town must follow the procedures for altering a public highway set forth in Title 19, including performing a survey of the road, before proceeding with the widening project. See 19 V.S.A. §§ 701-714 (setting forth procedures for altering a public highway). The Town argued that it had authority under 19 V.S.A. § 304(a)(1) to maintain Lackey Road, and that widening the road is part of the Town's maintenance responsibility. The Town also argued that the Town's tree warden was not required to hold a hearing before removing the trees under 24 V.S.A. § 2509, because they were a hazard to the public. See 24 V.S.A. § 2509 (tree warden may cut down a public shade tree without holding a public hearing if the tree "is infested with or infected by a recognized tree pest, or when it constitutes a hazard to public safety"). The Town moved for summary judgment which was granted by the superior court. This generated landowner's first appeal. See Hamilton v. Town of Holland, No.2002-222, 2003 WL 25746031 (Vt. Mar. 27, 2003) (unreported mem.).

¶ 5. In that first appeal, we held that the record did not support the court's grant of summary judgment in favor of defendant's claim that Title 19 did not apply. The court had grounded its decision in part on the fact that the trees to be cut were all located within the right-of-way for Lackey Road, and that all of the work would take place within that right-of-way. However, the location of the right-of-way and the trees to be cut was sufficiently at issue, and therefore we reversed summary judgment. Id.

¶ 6. We also addressed landowner's claim that the statutes governing shade trees applied to the project. The Legislature has placed all "[s]hade and ornamental trees within the limits of public ways and places" under the control of the tree warden, 24 V.S.A. § 2502, and, under 24 V.S.A. § 2508, a public shade tree may not be cut down except by the tree warden or his or her designee. A public shade tree within residential parts of a municipality may not be cut down without a public hearing unless the tree is infested by pests or is a hazard to public safety. Id. § 2509. The Town argued that the trees had to be removed to eliminate a public safety hazard, namely the narrow width of Lackey Road. We agreed with landowner that § 2509 does not grant the tree warden authority to cut public shade trees under the public hazard exception if the trees themselves do not present the public safety hazard. We concluded that "the trees themselves [were] not a public safety hazard as contemplated by § 2509, and [that] the Town's tree warden had no authority to remove them without a public hearing." We ruled that the trial court's contrary decision was erroneous, and reversed and remanded for further proceedings.

¶ 7. After remand, landowner amended his complaint. He added a 42 U.S.C. § 1983 claim for deprivation of his constitutional right to due process based on the failure of the tree warden to hold a hearing prior to removing the trees in question, a claim of trespass, and a claim of conversion of trees pursuant to 13 V.S.A. § 3606. He sought compensatory and punitive damages on all counts and made a claim for treble damages under § 3606. A one-day bench trial was held.

¶ 8. At trial, the superior court concluded that the road project was "more extensive than routine maintenance," but that it did not constitute "a major alteration to the road as that term is defined in [19 V.S.A.] § 701." Therefore, the court held, the project did not trigger the requirements of 19 V.S.A. § 704. The court concluded that the tree warden's failure to hold a hearing on the proposed cuttings violated 24 V.S.A. § 2509, as indeed it was required to in light of our earlier ruling. However, the court found that landowner had shown no injury from the violation of due process and, therefore, was not entitled to compensatory damages. Instead, the court awarded nominal damages in the amount of $1.00 for his 42 U.S.C. § 1983 claim. Because of these nominal damages, the court judged landowner to be the prevailing party under 42 U.S.C. § 1988 and thus eligible for attorney's fees. Ultimately, the court awarded landowner $15,000.00 for his attorney's fees. The Town appealed, and landowner cross-appealed.

¶ 9. This Court reviews a trial court's findings of fact for clear error. Quenneville v. Buttolph, 2003 VT 82, ¶ 11, 175 Vt. 444, 833 A.2d 1263. The trial court's "[f]indings of fact must stand unless, viewing the record in the light most favorable to the prevailing party and excluding the effect of modifying evidence, there is no credible evidence to support the findings." Id. (quotations omitted). Our review of the trial court's conclusions of law, however, is nondeferential and plenary. MacDonough-Webster Lodge No. 26 v. Wells, 2003 VT 70, ¶ 17, 175 Vt. 382, 834 A.2d 25.

¶ 10. We turn first to the trial court's conclusion that the project, as proposed by the Town, did not constitute an alteration within the meaning of 19 V.S.A. § 701(2). According to the statute, "`[a]ltered' means a major physical change in the highway such as a change in width from a single lane to two lanes." Id. If the change constituted an alteration, then the Town was required to comply with 19 V.S.A. § 704, which reads:

When selectmen accept, lay out, or alter a highway, as provided in this chapter, they shall cause a survey to be made in accordance with the provisions of section 33 of this title and shall mark each termination of the survey by a permanent monument or boundary or refer the termination or survey by course and distance, to some neighboring permanent monument. The survey shall describe the highway and the right-of-way by courses, distances and width, and shall describe the monuments and boundaries.

¶ 11. Landowner urges us to look at the Town's proposed project as it was originally planned in evaluating the trial court's findings and conclusions on this issue. The original plan called for significant earth moving and ledge blasting at certain points along the road. After landowner expressed his concerns at the selectboard meetings, the project was scaled back significantly. The revised project involved cutting fifteen trees in front of landowner's property, a total of thirty to thirty-nine trees along the entire length of the road, and regrading and adding gravel. The Town contends that we must examine the project as it was eventually carried out.

¶ 12. In this case, the Town could have taken two paths in response to landowner's suit. First, it could have conducted a survey even though it did not believe one was necessary. This would have taken time, and would have cost the taxpayers of Holland money. Second, the Town could have chosen, as it did, to scale back the project so that it could no longer be considered an alteration. Landowner's disappointment with the course the Town chose does not give us license to examine a road project that was never actually carried out. Therefore, we examine the Town's project as it actually...