Case Title: Rich v. Ryals

Citation: 212 So. 2d 641

Docket Number: 

State: florida

Court: Florida Supreme Court

Date: 1968-07-02T00:00:00Z

Document:
212 So. 2d 641 (1968)
E. Gene RICH, As Planning and Zoning Director, Orange County Planning and Zoning Commission, Appellant,
v.
Bruce A. RYALS and Bruce A. Ryals Enterprises, Inc., Appellees.
No. 36838.

Supreme Court of Florida.
July 2, 1968.
Giles, Hedrick & Robinson and William S. Turnbull, Orlando, for appellant.
Robert W. Olsen, Orlando, for appellees.
ROBERTS, Justice.
We here review by direct appeal a decision by the District Court of Appeal, Fourth District, initially construing and *642 holding unconstitutional Section 19, Chapter 63-1716, Laws of Florida, Special Acts of 1963. The lower court order had sustained a bill in equity for injunction and required the defendants to answer within a period of twenty days. The appellant here, who was the plaintiff in the trial court (appellee in the District Court of Appeal) petitioned the trial court for the issuance of an injunction prohibiting the defendants from operating a junk yard in violation of the Orange County zoning law. The zoning act in question, Chapter 31068, Laws of Florida, Special Acts of 1955, was amended by Chapter 63-1716, supra, such amendment, among other things, providing:
The plaintiff, who was Planning and Zoning Director, Orange County Planning and Zoning Commission, simply alleged that defendants were operating a junk yard in violation of the Act. The traditional allegations of nuisance, irreparable damages, and lack of an adequate remedy at law were omitted, plaintiff relying on the 1963 Act as providing a right to an injunction. Because of these omissions the defendants moved to dismiss the complaint, with the Zoning Director contending that he was entitled to an injunction on a mere proof of a violation. The trial court took note of the absence of the allegations of nuisance, irreparable damages, and a lack of adequate remedy at law, and denied the motion to dismiss for the reason that such allegations were not necessary under the terms of the Act. In reversing the trial court, the District Court of Appeal, 202 So. 2d 779 said:
The District Court then proceeded to initially consider the constitutionality, velnon, of Section 19 of the 1963 amendment and held it to be unconstitutional for the reason:
A casual examination of the Orange County Zoning Law will show that it provides ample protection to citizens and property owners in that County by the prerequisite of holding public hearings before the adoption of zoning classifications and an appropriate method of appeal is provided. The appellees contend that since the statute uses the word "shall" in providing *643 for the issuance of an injunction that it mandates a chancellor to grant an injunction and that such is an unjustified invasion of the province of the judiciary by the legislative branch of the government. We do not agree.
Volume 30, Fla.Jur., under Statutes, Section 8, says:
The question is not new to this court. In Fagan v. Robbins, 96 Fla. 91, 117 So. 863, this court said:
Again, in Schneider v. Gustafson Industries, Inc., 139 So. 2d 423, this court said:
It has long been the policy of this court in the interpretation of statutes where possible to make such an interpretation as would enable the court to hold the statute constitutional. It is therefore our opinion and we hold, that since the Legislature is without authority to mandate a court of equity to issue an injunction, and since we are to presume that the Legislature intended to pass a valid and constitutional act, the word "shall" as used in Section 19 of Chapter 63-1716, Laws of Florida, Special Acts of 1963, is permissive and not mandatory, and for that reason it was error for the District Court of Appeal to hold that the word "shall" amounted to a mandate and invalidated the involved Section 19.
Having held the Act to be valid, we then reach the question of whether or not the complaint merely alleging a violation of the zoning ordinance is sufficient on its face to justify injunctive relief. We think it is. In 17 Fla.Jur., Injunctions, Section 47, it is stated:
We cite with approval from Florida Industrial Commission v. Hurlbert, Fla.App., 114 So. 2d 209, this language:
In Pinellas County v. Hooker, Fla.App., 200 So. 2d 560, in dealing with a very kindred question, that court said, and we also cite with approval:
For the reasons stated, we hold that the complaint on its face states a cause of action for injunction. It is noteworthy, however, that the chancellor has allowed time for the defendants to answer thereby providing an opportunity to assert equitable defenses, if any, including laches or estoppel where such exists, all of which can be considered and determined by the chancellor on final hearing.
We are not unmindful of a contrary rule stated by the District Court of Appeal, Second District, in Jacobsen v. Padgett, 108 So. 2d 303. Since both the Jacobsen v. Padgett, supra, and Pinellas County v. Hooker, supra, are from the same District Court of Appeal, it is clear that Pinellas County v. Hooker, with which we agree, clearly overrules Jacobsen v. Padgett.
Accordingly, the decision of the District Court here under review is quashed with directions that the cause be remanded to the trial court for further proceedings not inconsistent with this opinion.
It is so ordered.
CALDWELL, C.J., THORNAL, ERVIN and ADAMS, JJ., and SPECTOR, District Court Judge, concur.
DREW, J., concurs specially with Opinion.
DREW, Justice (specially concurring):
Ever since the decision in Village of Euclid, Ohio v. Ambler Realty Company[1] and in the few scattered cases involving basic principles of zoning prior to that time, the courts of chancery of this country have used the injunctive power  negatively and affirmatively  in zoning litigation. In the early cases injunction and mandamus were the usual remedies resorted to. In more recent times the declaratory judgment acts have been utilized but there can be no doubt now, nor has there been any doubt in this State at least since Philbrick v. City of Miami Beach,[2] of the power of the equity courts to use the injunctive process on behalf of the public authorities to enforce the lawful provisions of valid zoning regulations which regulations, since Village of Euclid, Ohio v. Ambler Realty Company, have enjoyed the presumption of validity. In Philbrick v. City of Miami Beach this Court summarized its views in the following language:
A specific grant of power in a statute or under a zoning regulation is not necessary to vest such jurisdiction in the equity courts. Our Constitution grants to courts of equity in this State the power to issue injunctions. It is a universal rule that courts will not deny to a public body an injunction restraining criminal acts harmful or destructive to property rights of its own or those held in trust for the public.[3] This injunctive power is available not only to the public authorities in enforcing these presumptively valid regulations made on behalf of the public generally but are also available to any property owner or citizen adversely affected by any such regulation which may for any reason be invalid or unenforceable as applied to his property.
While I am in accord with the views expressed by Mr. Justice Roberts in the able majority opinion concerning the constitutionality of the questioned statute, I do not think that the decision in this case turns upon such question. Even though the complaint alleged the existence of the statute, such allegation was unnecessary. The trial court held the complaint stated a cause in equity for injunction and we are concerned with the correctness of that ruling, not the reasons assigned therefor. The trial court allowed the property owner twenty days in which to file defenses. These injunctive proceedings work no hardship upon the property owner. On the contrary it provides an orderly, efficient and workable plan for the enforcement of zoning regulations and the disposition of questions affecting the validity thereof. For these, as well as the reasons assigned in the majority opinion, it is my view that the chancellor below was entirely correct in overruling the motion to dismiss the complaint and retaining the cause for decision on the merits.
[1]  272 U.S. 365, 47 S. Ct. 114, 71 L. Ed. 303.
[2]  3 So. 2d 144.
[3]  28 Am.Jur. Injunctions, Section 151. Also see 152, 157, 159; 17 Fla.Juris.Injunctions, Sections 48, 49.