Summary
finding that regulation did not constitute impermissible delegation of legislative authority to zoning board of appeals
Summary of this case from VIP of Berlin, LLC v. Town of BerlinOpinion
FILE No. 1360
The defendant W, appealed to the Superior Court from the denial by the defendant zoning board of appeals of the town of Old Lyme of her original application for a special exception to erect a wind-driven generator on a sixty-six foot tower on her property. The zoning board had listed several reasons for its denial. While her appeal from that denial was pending, W filed a second application for the special exception for the generator which, because she had overcome the board's previous objections, was granted. The plaintiff S, whose property abutted that of W, appealed to the Superior Court from the decision granting the special exception. From the decision of that court affirming the board's decision granting W's second application, S appealed to this court. Held: 1. The zoning board had authority to consider the second application which involved the same subject matter as the first application, since the second application addressed the objections raised by the board in denying the first. 2. Since W's second application was distinct and separate from her first application, the fact that her appeal from the denial of the first was pending, did not bar the board from considering the second. 3. Since the town's zoning regulations authorize the erection of alternate energy systems in any district upon the granting of a special exception, S could not prevail on his claim that wind-driven generators were not permitted in the "Waterfront Business District." 4. Since the zoning regulation under which the special exception was granted specifically and precisely articulates the land uses which the board can authorize and since it provides adequate standards to guide the board in its determination of whether to grant an alternate energy special exception, that regulation does not impermissibly delegate legislative authority. 5. The trial court did not err in upholding the zoning board's interpretation of the setback requirements of the zoning regulations. 6. There was sufficient evidence to support the board's determination that W had complied with the requirements of the zoning regulations.
Argued January 19, 1983 —
Decided July 1, 1983
Appeal from the granting of a special use exception by the defendant zoning board of appeals, brought to the Superior Court in the judicial district of New London and tried to the court, Edelberg, J.; judgment dismissing the appeal from which the plaintiff appealed. No error.
John J. Carta, Jr., for the appellant (plaintiff).
David M. Royston, for the appellee (named defendant).
Michael E. Cronin, Jr., for the appellee (defendant Jean J. Woodstock).
On February 20, 1981, the defendant Woodstock applied to the Old Lyme zoning board of appeals for a special exception to erect a wind-driven generator atop a sixty-six foot tower to be located on her property at 18 Sandpiper Point Road. Article III, A.6.2, of the Old Lyme zoning regulations permits the construction of alternate energy systems such as wind turbines upon the granting of a special exception.
Old Lyme Zoning Regulations, Article III, A.6.2, provides: "Alternate energy systems such as solar collectors and wind turbines may be erected upon the granting of a Special Exception by the Zoning Board of Appeals subject to such conditions and standards as the Board may establish: (a) giving consideration to the effect of the proposed alternative energy system on present and future dwellings in the vicinity; (b)that the proposed site is of adequate size and location to accommodate the alternate energy system without encroachment into open space yard set back requirements. A 30,000 sq. A. minimum lot shall be required for installation of a wind turbine; (c) for wind turbines, (i) the tower's height shall not exceed 80 feet measured from its base (ground level) to the center line of the wind turbine; (ii) the tower shall be engineered and commercially available; (iii) the wind turbine shall be commercially available; (iv) the set back from any lot line shall be required to be, at a minimum, one tower height from the nearest boundary line."
On April 21, 1981, the board denied the application for the special exception and listed four reasons for its disapproval. First, the plans did not provide for any screening. Second, there were no safeguards with respect to climbing the tower. Third, the plan did not indicate whether setback requirements were met. Finally, the application contained conflicting information concerning the tower's height. The defendant Woodstock appealed that decision to the Superior Court.
On May 22, 1981, while her appeal was still pending, the defendant Woodstock again applied for a special exception to erect the tower. The board concluded that the new application overcame its previous objections and granted the special exception. The plaintiff, an abutting landowner, appealed the second decision to the Superior Court which affirmed the board's decision. The plaintiff now appeals to this court. We find no error.
The plaintiff first claims that the board could not reverse its prior decision by granting the second application. This is not so. A zoning board has the power to consider a second application for a special exception involving the same subject matter when the applicant files a subsequent plan which has been substantially changed to address the objections raised by the board in denying the original application. Rocchi v. Zoning Board of Appeals, 157 Conn. 106, 111, 248 A.2d 922 (1968); Mitchell Land Co. v. Planning Zoning Board of Appeals, 140 Conn. 527, 534-35, 102 A.2d 316 (1953).
Examination of the record discloses that the second application proposed a line of trees along the plaintiff's boundary and shrubbery around the base of the tower to meet the screening objections. The new plan proposed the erection of an anti-climbing device made of three-quarter inch plywood and galvanized steel around the base of the tower as a protection against climbing. The application precisely specified the tower's height and included an engineering map indicating that the structure would comply with the applicable open space yard setback requirements. Since the alterations addressed and met the objections prompting the original denial, the board was justified in granting the special exception despite the earlier denial of a similar request. Mitchell Land Co. v. Planning Zoning Board of Appeals, supra, 535.
The plaintiff next claims that the pendency of the defendant Woodstock's appeal from the board's earlier decision acted as a bar to the board's consideration of her second application. We do not agree. "As pointed out, the second application was entirely distinct and separate from the prior one. That [there was] an appeal pending on the same general subject matter did not render the board without power to hear and act upon a new and different application." Mitchell Land Co. v. Planning Zoning Board of Appeals, supra, 536.
The third claim of error involves the fact that a wind turbine or wind generator is not specifically designated as a permitted use in the Waterfront Business District in which this property lies. Since a wind generator is not "customarily incidental" to any use specifically authorized in a Waterfront Business District, the plaintiff argues that it may not qualify as an accessory use and is therefore not permitted. We do not agree.
Article II of the zoning regulations sets forth the permitted uses in each zoning district. There is no district in which a wind generator is described as a permitted use. Article III, A.6.2, however, authorizes such a device upon the granting of a special exception.
Zoning regulations "must be construed as a whole and in such a manner as to reconcile all their provisions so far as possible." Connecticut Sand Stone Corporation v. Zoning Board of Appeals, 150 Conn. 439, 441, 190 A.2d 594 (1963). The provision of Article III, A.6.2, authorizes the erection of alternate energy systems in any district upon the granting of a special exception. Wind generators thereby become an additional permitted use in any district including the Waterfront Business District in which this property lies, subject however, to the zoning board's determination that the criteria for such a special exception exist.
The plaintiff next claims that Article III, A.6.2, constitutes an impermissible delegation of legislative authority to the zoning board of appeals in violation of General Statutes 8-2. This statute provides that the authority to determine land use reposes solely in municipal zoning commissions. The plaintiff argues that the language of Article III, A.6.2, is so ambiguous, vague and arbitrary that it effectively confers upon the zoning board of appeals legislative authority to designate a land use which is nowhere else in the regulations specifically permitted. We do not agree.
Article III, A.6.2, specifically authorizes "alternate energy systems such as solar collectors and wind turbines." There is nothing imprecise or vague about this language. The fact that alternate energy systems do not appear elsewhere in the regulations as permitted uses does not mean that specifically authorizing their use as a special exception constitutes an impermissible delegation of legislative authority.
See footnote 1, supra.
The plaintiff's reliance on WATR, Inc. v. Zoning Board of Appeals, 158 Conn. 196, 257 A.2d 818 (1969), in support of his argument here is factually misplaced. In WATR, Inc., the regulation in issue authorized the zoning board of appeals to permit any use not otherwise specifically prohibited elsewhere in the regulations. "[I]t did not limit the board in any way to a determination of whether or not a proposed use falls within one of the special exceptions expressly permitted by the regulation." WATR, Inc. v. Zoning Board of Appeals, supra, 200. Unlike the regulation in WATR, Inc., Article III, A.6.2, specifically and precisely articulates what the use may be. It does not generalize nor is it vague. We therefore conclude that its language does not constitute an impermissible delegation of legislative authority.
The plaintiff next claims that Article III, A.6.2, does not contain adequate standards to guide the zoning board of appeals in making a determination whether to grant or deny an application for an alternate energy special exception. The gravamen of this claim is that subsection (a) fails to provide an adequate standard to guide the board in its determinations. This subsection requires the board to "giv[e] consideration to the effect of the proposed alternate energy system on present and future dwellings in the vicinity."
"`The challenge of unconstitutional delegation of legislative power is successfully met if the [regulation] declares a legislative policy, establishes primary standards for carrying it out or lays down an intelligible principle to which the agency must conform with a proper regard for the protection of the public interest . . . .' Jennings v. Connecticut Light Power Co., 140 Conn. 650, 670, 103 A.2d 535; State v. Stoddard, 126 Conn. 623, 628, 13 A.2d 586." Clark v. Town Council, 145 Conn. 476, 483-84, 144 A.2d 327 (1958). The regulation here, when considered in its entirety, as it must be, amply meets this challenge. It contains both the legislative policy and specific qualifications necessary for the valid exercise of the powers conferred by 8-2 upon zoning boards of appeals. Clark v. Town Council, supra, 484.
General Statutes 8-2 provides in relevant part that "regulations . . . may provide that certain classes or kinds of . . . structures or use of land are permitted only alter obtaining a . . . special exception from a . . . zoning board of appeals . . . subject to standards set forth in the regulations . . . . Such regulations may . . . encourage . . . the use of solar and other renewable forms of energy . . . ."
In addition to the general declaration of subsection (a) to consider the proposed system's effect on neighboring dwellings, the regulation sets forth very particular standards in subsections (b) and (c). Subsection (b) establishes a minimum lot requirement of 30,000 square feet and prohibits the system's encroachment into open space yard setback requirements. Subsection (c) limits the tower height of a wind turbine to eighty feet as measured from the base to the centerline of the wind turbine, requires that the wind turbine be commercially available and establishes a minimum setback requirement from any lot line as one tower height from the nearest boundary line. Considered in their entirety we conclude that these standards are sufficiently detailed to withstand the claim that an undefined discretion has been impermissibly transferred to the zoning board of appeals.
The plaintiff next claims that the court erred in sustaining the board's interpretation of the setback requirements articulated in Article III, A.6.2(c) (iv), which provide that "the setback from any lot line shall be required to be, at a minimum, one tower height from the nearest boundary line." The plaintiff argues that the proper measurement of the setback distance is one tower height (67') from the boundary line to any part of the energy system including, in this case, the anchor points of the guy wires securing the tower. The board, however, interpreted the regulation to require a setback of one tower height from the boundary line to the base of the tower.
The obvious purpose of such a requirement is to ensure that the tower remains within the confines of its owner's property in the event that it should collapse. The record discloses that the Old Lyme zoning commission had previously interpreted the setback requirement to apply only to the base of the tower.
If the trial court's conclusions are not illogical or unreasonable, it is not this court's function to retry the case. The court was entitled to accord considerable deference to the board's prior interpretations of the disputed regulation. Fedorich v. Zoning Board of Appeals, 178 Conn. 610, 616, 424 A.2d 289 (1979). We find no error in the position adopted by the court.
The plaintiff relies on a statement contained in WATR, Inc. v. Zoning Board of Appeals, 158 Conn. 196, 197, 257 A.2d 818 (1969), wherein the Bethany planning and zoning commission concluded that the guy wires for an 874 foot television transmission tower "would necessarily be an integral part of the structure." We note that the language of the Bethany regulations concerning transmission towers is not a part of the record nor were the guy wires the issue on appeal. While we note the apparent difference in the number and character of guy wires required to support an 874 foot tower as opposed to a 67 foot tower, we conclude that because of the lack of the precise text of the regulations involved, the WATR, Inc. case is of little help in addressing the issue raised here.
The plaintiff finally argues that there was insufficient evidence to support the position adopted by the board that Article III, A.6.2, had been complied with. We do not agree. Examination of the record discloses that the application together with the presentation offered at the public hearing furnish an adequate basis to support the conclusion awarding the defendant the special exception at issue here.