Merlo v. Planning and Zoning Com'n of Town of Wethersfield

• Citation: 495 A.2d 268,196 Conn. 676
• Court: Supreme Court of Connecticut
• Decision Date: 16 July 1985
• Parties: Mildred MERLO v. The PLANNING AND ZONING COMMISSION OF the TOWN OF WETHERSFIELD.

Page 268

495 A.2d 268

196 Conn. 676

Mildred MERLO v. The PLANNING AND ZONING COMMISSION OF the TOWN OF WETHERSFIELD.

Supreme Court of Connecticut.

Argued May 2, 1985.

Decided July 16, 1985.

Vincent F. Sabatini, Newington, with whom was Pamela S. Lorch, Newington, for appellant (defendant).

Paul J. Aparo, Hartford, with whom was Harold F. Keith, Hartford, for appellee (plaintiff).

Before PETERS, C.J., and ARTHUR H. HEALEY, SHEA, CALLAHAN and BRENNAN, JJ.

SHEA, Justice.

In this mandamus action the plaintiff sought an order that the defendant commission issue a certificate of approval of a subdivision plan she had submitted upon which a public hearing had been held by the commission. The ground relied upon by the plaintiff in her complaint was that the commission had failed to "approve, modify and approve, or disapprove" her subdivision plan, as required by General Statutes § 8-26, ¹ "within the period of time permitted under section 8-26d," ² which provides that "[a]ll decisions on such matters shall be rendered within sixty-five days after completion of such hearing." The trial court, Hon. Joseph E. Klau, state referee, concluded that the commission had disapproved the subdivision plan within the time allowed and rendered judgment for the defendant. On appeal by the plaintiff, the Appellate Court, Testo, Hull and Borden, Js., reversed the judgment of the trial court and ordered the defendant to certify its approval of the subdivision plan. Merlo v. Planning & Zoning Commission, 1 Conn.App. 621, 474 A.2d 477 (1984). Pursuant to General Statutes § 51-197f the defendant petitioned this court to certify the case for our review, and the petition was granted. We reverse the judgment of the Appellate Court and effectively reinstate the judgment of the trial court.

On November 15, 1977, the plaintiff applied to the defendant planning and zoning commission of Wethersfield for approval of a forty-two lot subdivision of her land located on Wells Road and Crest Street in that town. A public hearing on the application was held on January 3, 1978. The parties have stipulated that valid extensions of the statutory period for action on the subdivision plan, as requested by the plaintiff, were granted by the commission until July 18, 1978. Within this period, on June 22, 1978, a regularly scheduled meeting of the commission was held at which the plaintiff's subdivision plan was considered. At this meeting a motion was made and seconded that the plan be approved subject to three "stipulations." During the ensuing discussion several additional stipulations were proposed as amendments to the motion on the floor, but these were defeated. The original movant, as well as the commissioner who had seconded that proposal, accepted two additional stipulations for inclusion in their motion for approval of the subdivision. After some further debate the amended motion was disapproved by a vote of five to four. The minutes of the meeting recite that "the motion, with stipulations, was DISAPPROVED." The commission clerk, in accordance with General Statutes § 8-26, on July 28, 1978, published a legal notice of the decision on the application as follows: "motion to approve FAILED TO CARRY: Therefore this application was DENIED." The commission took no further action on the plaintiff's application.

The plaintiff, on August 8, 1978, made demand on the commission for a certificate of subdivision approval, claiming that because the commission had failed to "approve, modify and approve, or disapprove" her application as required by § 8-26, the subdivision plan had been automatically approved as the statute provided. The commission on August 15, 1978, denied this request, maintaining that it had disapproved the application on June 22, 1978. Almost two years later, the plaintiff by a complaint dated July 31, 1980, commenced this action of mandamus. At the same time she filed an administrative appeal from the commission's August 15 decision alleging, in the first count, the refusal of the board to issue the requested certificate of subdivision approval and, in the second count, that the commission had acted arbitrarily and illegally by failing to take the requisite statutory action within the time prescribed and by exceeding its authority in not recognizing that the plan complied with the subdivision regulations. The administrative appeal is still pending in the trial court.

I

The defendant commission has raised in this court, as well as in the Appellate Court, a jurisdictional issue concerning the propriety of mandamus as a remedy where there is a statutory appeal available, such as that pending, in which a plaintiff includes as one ground for relief essentially the same claim presented in the mandamus action. ³ The commission relies on the principle that "when a party has a statutory right of appeal from the decision of an administrative agency, he may not, instead of appealing, bring an independent action to test the very issue which the appeal was designed to test." Carpenter v. Planning & Zoning Commission, 176 Conn. 581, 598, 409 A.2d 1029 (1979); see Laurel Park, Inc. v. Pac, 194 Conn. 677, 685, 485 A.2d 1272 (1984). With respect to the extraordinary writ of mandamus, it is well established that an essential prerequisite for issuance of the writ is the absence of any other sufficient remedy. Juliano v. Farrell, 196 Conn. 283, 286, 492 A.2d 187 (1985); Kays, Inc. v. Board of Tax Review, 170 Conn. 477, 480, 365 A.2d 1207 (1976); Milford Board of Education Assn. v. Board of Education, 167 Conn. 513, 519, 356 A.2d 109 (1975).

As the Appellate Court noted, this court in several cases has implicitly approved mandamus as an appropriate remedy where it is claimed that a subdivision plan has been automatically approved pursuant to § 8-26 because of the failure of a planning commission to perform its statutory duty within the prescribed time. M & L Homes, Inc. v. Zoning & Planning Commission, 187 Conn. 232, 445 A.2d 591 (1982); Gervasi v. Town Plan & Zoning Commission, 184 Conn. 450, 440 A.2d 163 (1981); Viking Construction Co. v. Planning Commission, 181 Conn. 243, 435 A.2d 29 (1980). In Vartuli v. Sotire, 192 Conn. 353, 366, 472 A.2d 336 (1984), we held that the pendency of a zoning appeal, "which could do no more than secure approval of the coastal site plan, which already had been approved by operation of law," did not preclude resort to the more expeditious ⁴ and effective remedy of mandamus in order to "vindicate the plaintiffs' right to the immediate issuance of a building permit." The situation is similar in this case, where the plaintiff claims that her subdivision plan has been approved pursuant to § 8-26 by virtue of the inaction of the commission. If the plan has been approved by operation of law, as she contends, her right to certification of its approval by the commission can most directly, completely and expeditiously be effectuated by mandamus. ⁵ See State ex rel. Brooks v. Hitchcock, 33 Conn.Sup. 686, 690-91, 367 A.2d 692 (1976).

II

The trial court concluded that the defeat of the motion to approve the subdivision application was a denial of the subdivision plan, as reflected by the notation in the minutes of the commission that the motion, with stipulations, "was DISAPPROVED" and as indicated by the published legal notice that the "application was DENIED." The Appellate Court decided that "[t]he commission's failure to approve the application with stipulations is not one of the three dispositions authorized in § 8-26," declaring that "[t]he commission's action obviously did not 'approve' or 'modify and approve,' and the defendant just as clearly did not 'disapprove' the subdivision application." Merlo v. Planning & Zoning Commission, supra, 1 Conn.App. at 624, 474 A.2d 477.

The automatic approval provision of § 8-26 states that "[t]he failure of the commission to act" upon a subdivision application "shall be considered as an approval ...." We have construed this provision to require a planning commission to "approve, modify and approve, or disapprove" such an application within the time allowed in order to avoid the sanction of automatic approval. Carpenter v. Planning & Zoning Commission, 176 Conn. 581, 593, 409 A.2d 1029 (1979); Finn v. Planning & Zoning Commission, 156 Conn. 540, 544 244 A.2d 391 (1968). The question before us is whether the defeat of the motion to approve the application subject to the stipulations proposed by the movant constituted a "disapproval" of the application within the intent of the statute. We conclude that this action of the commission did constitute such a disapproval.

The circumstance that the final vote of the commission with respect to the application was upon a motion to approve, which was defeated by a majority, and that no motion to disapprove was ever voted upon warrants little discussion. We have previously held that the failure of an application to garner enough votes for its approval amounts to a rejection of the application. Lupinacci v. Planning & Zoning Commission, 153 Conn. 694, 696, 220 A.2d 274 (1966); Hall v. Planning & Zoning Board, 153 Conn. 574, 576, 219 A.2d 445 (1966). Here the motion to grant the application did not receive the majority vote necessary for approval, and the minutes, in accordance with our cases, correctly stated that it had been "DISAPPROVED."

The fact that the motion to approve the subdivision plan included certain stipulations not included in the application as submitted by the plaintiff raises a more difficult question. From a parliamentary viewpoint, the defeat of this motion is not the equivalent of a disapproval of the application as submitted by the plaintiff. See Robert's Rules of Order (1979 Rev.) § 33, pp. 144-45. In any practical sense, however, the majority vote against the application as modified by the stipulations contained in the motion, which appear to have been added in order to overcome objections raised by some...