J & M Realty Co. v. City of Norwalk

• Decision Date: 27 February 1968
• Citation: 156 Conn. 185,239 A.2d 534
• Court: Connecticut Supreme Court
• Parties: The J AND M REALTY COMPANY v. CITY OF NORWALK.

Page 534

239 A.2d 534

156 Conn. 185

The J AND M REALTY COMPANY v. CITY OF NORWALK.

Supreme Court of Connecticut.

Feb. 27, 1968.

Charles M. Needle, Bridgeport, with whom, on the brief, was David Goldstein, Bridgeport, for appellant (plaintiff).

Edward J. Zamm, So. Norwalk, Special Counsel, with whom, on the brief, was Thomas A. Flaherty, Corp. Counsel, for appellee (defendant).

Before ALCORN, HOUSE, THIM, RYAN and COVELLO, JJ.

RYAN, Associate Justice.

The plaintiff is the owner of a parcel of land, 5.74 acres in area, located in the city of Norwalk, adjacent to the Connecticut Turnpike. The New York, New Haven and Hartford Railroad Company owns a tract of land abutting that of the plaintiff, and the plaintiff has entered into a contract with the railroad to purchase a three-acre parcel of this land. Because of the nature of the proposed purchase, it constituted a subdivision for which approval was required by the Norwalk planning commission in the first instance and then by the Norwalk common council. ¹ The plaintiff's application for a subdivision was approved by the planning commission on March 2, 1966, and was transmitted to the Norwalk common council with the approval of the planning commission endorsed on the record map. On May 24, 1966, the application for a subdivision was disapproved by the common council, and the plaintiff was so notified on May 25, 1966. The council did not notify the plaintiff at any time of its reasons for the disapproval.

The plaintiff appealed to the Court of Common Pleas, alleging that the action of the common council was arbitrary, unreasonable and an abuse of power conferred in that no account was taken by the council of the action of the planning commission in approving the subdivision and no examination was made of the merits of the subdivision and in that the action of the council was invalid because No. 214 of the 1947 Special Acts (25 Spec.Acts p. 302), as amended by No. 616 of the 1955 Special Acts (27 Spec.Acts, p. 556), and the subdivision regulations adopted pursuant thereto are unconstitutional because they establish no specific standards by which the council should approve or disapprove subdivision applications, because they contain no provisions requiring the council to inform applicants of the reasons for its approval, and because they are vague.

The trial court in its memorandum of decision held that in matters of this kind, the common council acts in a legislative capacity, that as a legislative body it can act for reasons best known to itself, and that there is no requirement that a legislative body shall state the reasons for its action. It concluded that the council made a complete investigation into the problems relevant to the plan and that the council had the right to act on facts which were known to it, even though those facts were not produced at the hearings. From the judgment dismissing its appeal, the plaintiff has appealed to this court.

Planning in the city of Norwalk is governed by special act and not by the General Statutes. Under No. 214 of the 1947 Special Acts, as amended by No. 616 of the 1955 Special Acts, a city planning commission was established in Norwalk. Its function was to make and adopt a master plan for the physical development of the city. The commission was authorized to include as part of this plan rules and regulations to control the subdivision of land. 25 Spec.Acts p. 303, No. 214 § 5. After the adoption of the master plan by the commission and by a majority vote of the council and after it was signed by the mayor in the manner approved in the charter for the adoption of ordinances, it attained the status of the official city plan. Subdivision plans were to be submitted first to the planning commission for its approval and then to the common council, whose approval was necessary before the plan could become effective.

Under the procedure outlined in the special acts, and in the subdivision regulations subsequently adopted, each application for a subdivision must be submitted to the commission, processed according to the subdivision regulations, and receive approval from the council. Norwalk Subdivision Regs., art. 2 § 4 (1966). If the commission approves, the record map is transmitted to the council with a recommendation for approval. The council may then adopt or disapprove the application by a simple majority vote. In case of disapproval by the commission, approval by the council requires a recorded vote of not less than two-thirds of its entire membership. Norwalk Subdivision Regs., art. 4 § 77 (1966).

The plaintiff claims that, in passing on an application for subdivision approval, the council acts in an administrative rather than a legislative capacity. The common council is the legislative body of the city of Norwalk. 16 Spec.Acts p. 1061, No. 352 § 80. A legislative body does not, however, always act in a legislative capacity in carrying out its various duties. Powers v. Common Council, 154 Conn. 156, 160, 222 A.2d 337; Bartlett v. Rockville, 150 Conn. 428, 429, 190 A.2d 690. Although applications for subdivision approval must first be presented to the planning commission, the power of final approval lies only with the common council. The primary function of the planning commission is to examine and screen all subdivision applications and report its recommendations to the common council. In the event the commission fails to act within sixty days, the application shall be deemed approved by the commission, but the matter in question still requires the action of the council. 25 Spec.Acts p. 304, No. 214 § 8. Furthermore, the special act and the subdivision regulations permit the council to approve a subdivision plan which the planning commission has disapproved. 25 Spec.Acts p. 304, No. 214 § 7; Norwalk Subdivision Regs., art. 4 § 79 (1966). It is quite apparent that the authority of the planning commission is secondary to that of the common council, which has the ultimate power of approval or disapproval of all subdivision applications. It is true, of course, that in adopting the subdivision regulations recommended by the planning commission, the function of the council is unquestionably legislative. Beach v. Planning & Zoning Commission, 141 Conn. 79, 84, 103 A.2d 814. On the other hand, we have consistently held that in exercising its function of approving or disapproving any particular subdivision plan, as distinguished from its function of adopting regulations, a municipal planning commission is acting in an administrative rather than in a legislative capacity. Forest Construction Co. v. Planning & Zoning Commission, 156 Conn. --, 236 A.2d 917; Blakeman v. Planning Commission, 152 Conn. 303, 306, 206 A.2d 425; McCormick v. Stratford Planning & Zoning Commission, 146 Conn. 380, 382, 151 A.2d 347; Langbein v. Planning Board, 145 Conn. 674, 679, 146 A.2d 412; Beach v. Planning & Zoning Commission, supra. This differentiation is in no way related to the nomenclature of the board authorized to approve or reject subdivision plans but is predicated on the nature of the function involved, viz., the application of existing regulations to a proposed subdivision plan. In the instant case, the common council was performing the function of a planning commission, and, in so doing, it was acting administratively. The trial court relied on the case of Burke v. Board of Representatives, 148 Conn. 33, 166 A.2d 849, wherein we...