SECOND DI VI SI ON

M I LLER, P. J.

, BROWN and GOSS, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be

ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n

da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a l s .us /r ule s

M ar ch 15, 2019



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A 18A 1 975. M A CON-BIBB COUNTY PLANNING A N D Z O N I N G

COM M ISSION et al . v . EPIC M IDSTREAM

, LLC. TB-0 7 8

G O S S , J u d g e.

In t h i s d i s cret i o n ary ap p eal

, t h e M aco n -Bi b b Co u n t y Pl an n i n g an d Zo n i n g

Co m m i s s i o n (“ t h e Co m

m i s s i on ”) ap p eal s fro m t h e s u p eri o r co u rt o rd er rev ers i n g i t s

d en ial o f a co n d it i on al u s e p erm i t fo r a rai l ro ad sp u r t ran s fer s t at i o n t o u n lo ad et h an ol

i n t o a p i p el i n e. Th e Co m

m i ss i o n co n t en d s t h at t h e su p eri o r co u rt erred i n (1 ) fai l i n g

t o co n s i d er i t s an s wer to t h e cert i o rari p et i t i o n ; (2 ) fai l i ng to ad here t o th e d eferen t i al

s t an d ard o f rev i ew i n a cert i o rari p ro ceed i n g ; an d (3 ) i s su i n g a fi n al d eci s i on rat h er

t h an rem an d i n g t h e cas e t o t h e Co m m i s s i o n fo r a n ew h eari n g. Fo r th e reas o n s t h at

fo l l o w , we rev ers e.“ W h en rev i ewi n g a l o cal g o v ern i n g b o d y ’ s zo n i ng d eci s i o n, t h e s u p eri o r co u rt

ap p li es t he an y ev i d en ce s t an d ard o f rev i ew. In t h e ap pel l at e co urt s , t h e s t an d ard o f

rev i ew i s wh et h er t h ere i s an y ev i d en ce su p po rt i n g t h e d eci s io n o f t h e l o cal g o v ern i n g

b o d y

, n ot w h et h er t here is an y ev i d en ce s u pp o rt in g t h e d eci s i o n o f t h e s u p eri o r

co u rt .” (Ci t at i on an d p un ct u at i o n o m i t t ed .) Bu l l o ch Co u n t y Bd

. of Co mmr

s

. v.

W i l l ia ms , 3 3 2 Ga. Ap p . 8 15 (7 7 3 SE2 d 3 7) (2 01 5 ).

So v i ewed

, t h e reco rd s ho ws t h at Ep i c M i d s tream

, LLC, a h an d l er o f p et ro l eu m

fu el s

, acq u i red ro u g h l y 80 acres o f p ro p ert y (“ t h e p ro pert y ”) at t h e in t ers ect i o n o f

Barn es Ferry Ro ad wi t h So fk ee R o a d an d th e No rfo lk So u t h ern rai l l i n e i n Bi b b

Co u n t y

. So m e o f t h e p ro p ert y was zo n ed M-1 Li g ht In d u s t ri al (“ M -1 ”), 1 bu t a p o rt i o n

was zo n ed Ag ri cu l t ural

. Ep ic s o u g h t t o h av e t h e en t i re pro p ert y zo n ed M-1 an d fi l ed

a rezo n in g ap p l i cat io n o n Feb ru ary 4

, 2 0 1 5

. Th e ap p l i cat i o n was d eferred nu m ero u s

t i m es b efo re Ep i c was in s tru ct ed t o al so ap p l y fo r a co n d i ti o n al u s e p erm i t

, wh i ch i t

d i d on J u n e 4

, 2 01 5

. Bo t h ap p l i cat i o n s were su b seq u en tl y wi t h drawn

, an d Ep i c t h en

s u b m i tte d ne w a

pplic a t io n s fo r rezo n i n g an d a co n d i t i o nal u s e p erm i t

. Th e ap p l i cat i o n

1 Sect i o n 1 6.0 1 o f t h e Co m p r e h e n s iv e L an d Dev el o p m en t Res o l ut i o n fo r t h e

C i t y of M aco n an d Bi b b Co un t y p ro v id es t hat “ [t ] h e M -1 d i s t ri ct i s in t en d ed fo r

wh o l es al e an d l i g ht i n d u s t ri al u s es w h ere res u l t an t n o i s e, o d o r s

, p o l l u t i o n

, an d

co n ges t i o n are m i n i m i zed

. Res i d en t i al d ev el op m en t i s p ro h i b i t ed

. Th i s d i s t ri ct i s n ot

s u i t ab l e fo r h eav y

i nd u s tri al u s es .”

2s o u g ht co n d i t i o n al u se ap p ro v al p u rs u an t t o Sect i o n 1 6 .0 3 o f t h e Co m p reh en s i v e

Lan d Dev el o p m en t Res o lu t i o n fo r t h e C i t y o f M aco n an d Bi b b Co u n t y

, Geo rg i a

(“ CLDR”) t o b u i l d an d o p erat e a rai l ro ad s p u r t ran s fer s t a t i o n fo r t h e o ffl o ad i n g o f

et h an o l fro m rai l ro ad t an k er cars d i rect l y i nt o an u n d erg ro u n d p i p el i n e wh ich wo u ld

t ran s po rt t h e et h an o l t o Ep ic’ s p et ro l eu m d i s t ri b u t i on faci li t y n earb y

. 2 A fi n al h eari n g

was h el d o n Ep i c’ s ap p l i cat io n s o n N o v em b er 9

, 2 0 15

, d u ri n g wh i ch Ep ic p res en t ed

t es t i m o ny fro m i t s p ro

ject d i rect o r, t h e d es i g n fi rm ’ s p r o j e c t m an ag er, an d a l an d

p l an n er.

Du r i n g t h e h eari ng

, t h e d es i g n m an ag er t es t i fi ed t hat t h e rai l cars carry i n g

et h an o l wo u l d b e red i rect ed fro m th e No rfo l k So ut h ern rai l l i ne o n to t he rai l s p u r, o r

“ l o op .” 3 Si x t een t rai n cars wo u l d b e u n l o ad ed at a ti m e, fi v e t i m es , fo r a to t al o f 8 0

t rai n cars at a t i m e. Th e en t i re p ro ces s wo u l d b e co m p l et ed wi t h i n 2 4 h o u rs

, m ean i n g

i t was l ik el y t h at s o m e o f t h e p ro ces s w o u l d tak e p l ace d u ri n g t h e n i g h t

. Ep i c’ s

pr oj e c t di rect or t es t ifi ed t h at t h e u n l o ad i n g p ro ces s wo u l d h ap p en ap p roxim a t e ly onc e

2 Th e rai l s p ur wo u l d co n n ect t o th e al read y -ex i s t i n g No rfo l k So u t h ern rai l l i ne,

o n wh i ch et h an o l i s cu rren t l y t ran s po rt ed i n t rai n cars

. Th e p i p el i n e h ad n o t y et b een

b u i l t

, b u t h ad b een ap p ro v ed b y t h e Geo rg i a Dep art m en t o f Tran s p o r t a t i o n an d t h e

M aco n -Bi b b Co u nt y

En g i n eeri n g Dep art m en t

.

3 W e are u n ab l e t o d et erm i n e fro m th e reco rd t h e d i s t an ce fro m t h e No rt h fo lk

So u t hern rai l l i n e t o t h e rai l s p u r at i t s fart h es t p o in t fro m t h e rai l l in e.

3p er m o n t h fo r a t o tal of 1 3 u nl o ad i n g s p er y ear. He fu rt h er tes t i fi ed t h at t h e freq u en cy

co u ld i n creas e i n t h e fu t u re b as ed o n co n t ract u al d em an d s

.

Th e lan d p l an n er h i red b y Ep i c t es t i fi ed t hat t h ere wo u l d be t h ree acces s p o i n t s

t o t h e p ro p ert y — t w o f ro m Barn es Ferry Ro ad an d on e fro m So fk ee Ro ad

. He

ex p lai n ed t h at di rect l y wes t o f t h e p ro p ert y l i es th e m ai n rai l l i n e, ru nn i n g p aral l el to

So fk ee Ro ad

, an d t h at th e area fu rt h er wes t is zo n ed M -2 In d us t ri al

, in wh ich area a

t ru ck lo ad i n g faci l i ty wi t h ab o v e-g ro u n d t an k s i s l o cat ed

. 4 At t h e t i m e o f t h e h eari n g,

t h e a r e a t o t h e n o rt h wes t o f t he p ro p ert y an d w es t of t h e rai l l i n e was v acan t an d

m o s t l y zo n ed M -1

. A res i den t i al n ei g h b o rh o o d was l o cat ed t o th e n o rt h o f t h e

p ro p ert y

, o n t h e ot h er s i de o f Barn es Ferry Ro ad

, n es t ed i n b et ween t h e p ro pert y an d

an I n d us t ri al Park

. Th e l an d t o t h e eas t o f t h e p ro p ert y was p ri m ari l y u n d ev el o p ed

wi t h s o m e res id en ces s cat t ered al on g Barn es Ferry Ro ad

. A l arg e farm was l o cat ed

d i rect l y s o ut h eas t o f t h e p ro p ert y wh i l e t h e area d i rect l y t o t h e s ou t h was l arg el y

u n d ev el op ed an d zo n ed Ag ri cu l t u ral o r M -1

. Vari ou s i n du s tri al d ev el o p m en t s were

l o cat ed i n t he area s o ut hwes t o f t h e p ro p ert y

, wh ich was zo n ed M -1

. Th e l an d p l an n er

4 P e r t h e CLDR, “ [t ] he M -2 H eav y In d u s t ri al D i s t ri ct i s i n ten d ed to p ro v i d e

ap p ro p ri at e l o cat i o n s fo r an y u s e wh i ch m ay b e o b no x io u s o r o ffen s i v e b y reas o n o f

em is s i o n o f o do rs

, d us t

, sm o k e, g as

, n o i se, o r v i b rat i o n

. Res i d en t i al u s es are

p ro h ib i t ed i n t h is d is t ri ct .”

4t es t i fi ed t h at t h e reg i o n i n w h i c h t h e p ro p ert y i s l o cat ed i s “ l arg el y in d u s t ri al ,” t h at

t h e p ro p ert y

i s wi t h i n cl os e p ro x i m i t y t o fi v e i n d u s t ri al p ark s , an d t hat th e p ro p ert y

i s b es t s u i t ed t o an i n du s t ri al p urp o s e. No h o m es h ad b een b u i l t i n t h e n ei g h b o rh o o d

ab u tt i n g t h e p ro pert y

s i n ce 1 9 9 1 . Acco rd i n g t o h i m , t h i s s h o wed t h at t h i s was n o t a

“ t h ri v i n g ” res i d en t i al area, an d t he t raject o ry o f t h e area d i d n o t po i n t t o ward

res i den t ial d ev el o p m en t

. Th e l an d p l an n er t es t i fi ed th at th e u n l o ad i n g area wo u l d b e

3 2 0 feet fro m

t h e n eares t res i d en t i al s t ru ct u re.

Th ree n ei gh b o ri n g res i den t s a n d a ci ty co u n ci l m em ber sp o ke d u ri n g t h e

h eari n g as t o t h e d am ag e d o n e t o t h e i r p ro p ert i es b y a jet -fu el p i p el i n e l eak t h at

o ccu rred i n th e 19 8 0 s i n t h e s am e area, wh i l e t h e p ro p ert y was o wn ed b y Nu St ar

En erg y

, LLC. Ep i c pu rch as ed t h e p ro p ert y as wel l as t h e jet -fu el p i p el i n e fro m Nu St ar

i n 2 0 12

. 5 Ho wev er, Nu St ar ret ai n ed res p on s i b i l i ty fo r t h e jet -fu el l eak an d i t s

rem ed iat i o n

.

R es i d en t s o f t h e n earb y n ei g h b o rh o o d s t at ed t h ei r o p po s it i on t o t he et h a n o l

o ffl oad i ng s tat i o n

, ci ti n g t hei r bel i ef t h at t h ei r lan d was al read y “ co n t am i n at ed ,” t h at

t h i s dev el o pm en t wo u ld fu rt h er d ecreas e t h ei r p ro p ert y v al u es

, an d t h at an ot h er l eak

5 Ep i c p l an n ed t o bu i l d a new p i p el i n e t o t ran s p ort th e et han o l u s i n g t h e

ex i s t in g ri g h t o f way

fo r t he jet -fu el p i p el i ne.

5o r s p i l l wo u l d o ccu r. El ai n e Lu cas

, a m em b er o f t h e M aco n -Bi b b Co u n ty Bo ard o f

Co m m i s s i o n ers (t he “ Bo ard ”) an d t h e M a c o n Ci t y Co un ci l rep res en t at i ve fo r t h e

n earb y res i d en t s

, bel i ev ed th at h er co n st it u en t s were s u fferi n g “ en v i ro n m en t al

i n ju s ti ce” an d s t il l h ad n o an s wers ab o u t t h e p as t jet -fu el p i p el i n e l eak

.

Th e Co m m i s si o n g ran t ed Ep i c’ s ap p l i cat i o n fo r rezo n i n g

, m ak i n g th e p ro p ert y

M -1 i n i t s en t i ret y

, b ut d en i ed t h e ap p l i cat i o n fo r a co n di ti o n al u s e p erm i t t o o p erat e

t h e rai l s p u r an d e t h a n o l faci l i ty

. Fo l l o wi ng t h e Co m m i s s io n ’ s d en ial o f t h e p erm i t

ap p li cat io n

, Ep i c fi l ed a m ot i o n fo r a reh ear i n g o n t h e m at t er p urs u an t t o CLDR §

2 7 .1 3

. 6 As p art o f i t s m o t io n

, Ep i c s u b m i t t ed rev i s ed s i te dev el o p m en t p lan s

, i n wh i ch

t h e pro po s ed tran s fer faci l i t y w a s m o v ed t o t h e s o u t h ern en d o f t h e p ro p ert y at a

6 Sect i o n 2 7 .1 3 o f t h e CLDR p ro v i d es t h at an y ap p li can t

wh o se ap p li cat i o n h as b een den i ed b y t h e Co m m i s s i o n m a y

, wi t h i n

t h i rt y (3 0 ) d ay s fro m t h e d at e o f d i s ap p ro v al

, fi le an ap pl i cat i o n fo r a

reh eari n g

. Al l m o t i on s fo r a reh eari n g by t h e Co m m i ss i o n s h al l b e heard

i n t h e s am e m an n er as an y o t her ap p l i cat i o n an d m ay be g ran t ed i f new

o r ad d i t i o nal wri t t en i n fo rm at i o n o r g rap h i cal i n fo rm at i o n t h at was n o t

av ai lab le at t h e t i m e o f t h e o ri g i n a l h e ari n g

, o r was no t p res en t ed fo r

ex cu s ab l e n eg l ect

, i s s h o wn

. Su ch i n fo rm at i o n sh al l b e s u b m i t t ed at th e

t i m e t h e req u es t fo r reh eari n g ap p l i cat i o n i s fi l ed

.

6g reat er d i s t an ce fro m th e res i d en t i al n ei g h b orh o o d to t h e n o rt h. 7 T he rev i s ed pl an al s o

i n cl u d ed ad d i t i o n al en g i neeri n g an d s afet y co n tro l s

, s u ch as an eart h en b erm

, wh i ch

wo u l d s erv e as a co n tai n m en t d ev i ce i f an y v ap o rs were rel eas ed an d wo u l d ru n

p aral l el to Barn es Ferry Ro ad

, p ro v i d i n g an ad d i t i o n al b arri er b et w een t he res i d en t i al

n ei g h b o rh o o d ; ad d it i o n al fi re h y d ran t s ; an d a s ecu ri t y fen ce to en cl o s e t h e faci l i t y

.

Ad d i t i o n al l y

, Ep i c c o m m u n icat ed t h at i t h ad m et wi th a rep res en t at i v e o f t h e

n ei g h b o rh o o d an d El a i n e Lu c a s in an effo rt t o co o rd i n at e a m eet in g wi t h l o cal

res i den t s t o h el p al l ev i at e t h ei r co n cern s an d ex p l ai n t h ei r n ew d ev el o p m en t p l an

.

Lu cas ag ai n t es t i fi ed o n beh al f o f t h e res i den t s at t h e h eari n g o n Ep ic’ s m o t i o n

fo r reh eari n g, s t at i n g

, “ T h e m a jo r co n cern an d t h e reas on we d o n ’ t wan t y o u to

ap p ro v e an y t h in g el se i s we are n o t s u re o f wh at ’ s o u t t h ere, wh at ’ s in t h e g ro u n d

. W e

are n o t s u re t h e l ev el o f co n tam i n at i on

. W e are n o t s u re wh et h er an y rem ed i at i o n h as

b een d o n e.

. . .” Sh e as k ed t h at t h e Co m m i s s i o n d efer o r d en y th e m o t i o n “ u n t i l we

g et s o m e an s w e r s [ o n t h os e i s s u es ] ” an d u n ti l t he n ei g h b o rh o o d co u l d s et u p a

7 In an em ai l s en t t h e m o n t h p ri o r t o t he fi n al h eari n g o n Ep i c’ s ap p l i cat i o n s

,

an u rb an p l an n er fo r t h e Co m m is s i o n wh o was p rep ari ng t h e Co m m i s s i on st aff rep o rt

o n t he ap p l i cat i o n s

, as ked Ep i c wh et h er t h e t ran s l o ad i n g s t at i o n co ul d b e “ rel o cat ed

t o an area al on g t he w es t ern pro p ert y li n es o r t o an area al o n g t h e s o u t h ern p ro p ert y

l i nes

. ” An d i f i t co u l d n o t , t o “ p l eas e ex p l ai n .”

7m eet i n g wi t h t he Geo rg i a E n v i ro n m en t al Pro tect i o n D i v i s i o n

. So m e n earb y res i d en t s

ag ai n s t at ed t h ei r o p p o s i t i o n

.

W i th t h e g en eral co n s en s u s am o n g t h e Co m m i s s i o n b ei n g t h at n o th i n g h ad ch an g ed

an d et h an o l was s t il l h azard o us , t h e m o t i o n was d en ied o n J an u ary 1 1 , 2 01 6

.

Ep i c p et i t i o n ed t h e s u p eri o r co u rt fo r cert i o rari p urs u an t t o OCGA § 5 -4 -1 an d

Sect i o n 2 7

. 1 5 o f t h e C L D R

, a rg u i n g t h at i t “ m et an d ex ceed ed ev ery as cert ai n ab l e

an d ob ject i v e s t an d ard

, cri t eri o n

, t erm

, co n d it i o n an d r e qu i rem en t n eces s ary fo r

i s s u a n c e o f t h e Perm i t as req u es t ed ,” an d t h at it h ad “ a cl ear l eg al ri g h t t o i s s u an ce

o f t h e Co n d i t i o n al Us e Perm i t [.] ” Aft er a h eari n g fo r oral arg um en t

, t h e su p eri o r co u rt

g ran t ed Ep i c’ s p et i ti o n, co n cl ud i n g t h at t h e Co m m i s si on gro s s ly ab u s ed it s d i s cret i o n

i n d en y i n g Ep i c’ s ap p li cat i o n

. T h e s u p eri or co u rt rev ers ed t h e Co m m ission’ s de ci s i o n

an d o rd ered t h at Ep ic’s c o n d i t i o n al u s e ap p li cat i o n b e g ran t ed

. Th e Co m m i s s i o n

s u b s eq u en t l y fi l ed an ap pl i cat i o n fo r d i s cret io n ary rev i ew, wh i ch t h i s Co u rt g ran t ed

.

Th i s ap p eal fo ll o wed

. Ad d i t i o nal fact s ad d u ced at t h e co n d i t i on al u s e h eari n g b efo re

t h e Co m m i s s i on wi l l b e ci ted as n eces s ary t o co ns i d er t h e Co m m i s s i o n ’ s arg u m en t s

.

1

. In rel at ed en u m erat i o n s o f e rro r, th e Co m m i s s i o n as s ert s t h at th e s u p eri o r

co u rt

, ap p l y i n g ju di ci al rev i e w b y cert i orari

, erred b ecau s e i t w ei g h ed t h e ev i d en ce

8p res en t ed b efo re t h e Co m m i s s i o n rat h er t h an ap p ly i n g th e ap p ro p ri at e an y ev i d en ce

s t an d ard . W e ag ree.

W h en rev i ewi n g a l o cal g o v ern i n g b od y ’ s zo n i n g d eci s io n b y wri t o f cert i o rari

,

“ [t ] h e sco p e o f rev i ew i s l i m i t ed t o al l erro rs o f l aw an d d et erm i n at i o n as t o wh et h er

t h e ju d g m en t o r ru li n g bel o w was s u s t ai ned by s u b s t an ti al ev i d en ce.” OCGA § 5 -4 -1 2

(b ). “ Su b s t an t ial ev i d en ce” u n d er t h is s ect io n has b een co n si s t en t l y i n t erp r e t ed to

m ean “ an y

ev i d en ce.” Ci t

y o f At l a n t a Go ver n men t v. S mi th , 2 2 8 Ga. Ap p . 8 6 4 , 8 6 5

(1 ) (4 93 SE2 d 5 1) (1 9 9 7 ). Th u s

, i n o rd er t o rev ers e t h e j u d gm en t o f th e Co m m i s s i o n,

t h e s u p eri o r co u rt m

u s t co ncl u d e t h at t h e reco rd b el o w l ack ed “ an y ” ev i d en ce to

s u p p ort the C om

m i ssion ’ s d eci s i o n

. Ja cks o n Co u n t y v. Ea r th Res o u r ces

, In c.

, 2 8 0 Ga.

3 8 9 (6 27 SE2 d 5 6 9 ) (2 0 0 6 ). Th i s Co urt ’ s “ s t an d ard of rev i ew i s wh et h er t here i s an y

ev i d en ce s up p o rt i n g t h e d eci s i o n o f t h e l ocal g o v ern i n g b o d y

, n o t wh et h er t h ere i s

a ny e vide n ce s u p p o rt i n g t h e d eci s i o n o f t he s up eri o r co u rt .” (Ci t at io n an d p u n ct u a tion

o m it t ed .) Id

.

Nei t her t h e su p eri or co u rt n o r t h i s Co u rt rewei g hs c red i b i l i t y

d et erm i nat i o n s o f t he fact fi n d er. In o t h er wo rd s

, b ecau s e t h e fact fi nd er

i n t h e i n i t i al p ro ceed i n gs i s ch arg ed wi th wei g h i n g t h e e v i den ce an d

ju d g in g t h e cred ib i l i t y of t h e wi t n es s es

, t h e s u p eri o r co u rt an d th i s Co u rt

m u s t v i ew t h e ev i d e n c e i n t h e l i g h t m os t fav o rab l e t o t h e fact fi n d er’ s

d eci si o n an d m

u s t affi rm t h e d eci s io n i f t h ere i s an y evi d en ce t o s up p o rt

9i t

, ev en wh en t h e p art y ch al l en g i n g t he fact fi n der’ s c o n cl u s i o n s

p res en t ed ev id en ce d u ri n g t h e i n i t i al p ro ceed in g s t h at co n f l i c ted w i t h

t h o s e co n cl us i on s

.

(Ci t at i o n s om i t t ed .) Deka l b Co u n t y v. Bu l l

, 2 9 5 Ga. Ap p

. 5 5 1

, 5 5 2 -5 53 (1 ) (6 7 2 SE2 d

5 0 0 ) (2 0 0 9 ). 8

S e c t i o n 3 0 3 (2 ) o f th e CLDR co n t ai n s s t an d ard s t o b e co n s i d ered b y t h e

Co m m i s s i o n

, wh ere ap p l i cab le, i n an ap p l i cat i on fo r a co n di t i o n al u s e p erm i t

. Th o s e

s t an d ard s , i n p ert in en t p art , are:

(a) Th e ex i st i n g l an d u s e p at t ern

. . . .

(d ) W het h er t h e p ro p o s ed u s e wi l l b e of s uch l o cat i o n

, s i ze, a n d

ch aract er t h at

, i n g en eral

, i t wi l l b e i n h arm o n y wi t h th e ap p ro p ri at e an d

o rd erl y d ev el o p m en t o f t h e area i n wh i ch i t i s p ro p o s ed t o b e s i t u a t ed

an d wi l l n o t b e det ri m en t al t o th e o rd erl y d ev el o p m en t o f ad jacen t

p ro p ert ies o r a d et erren t t o th e i m p ro vem en t of ad

jacen t pro p ert i es i n

a c co rd an ce wi t h t he zo n i ng cl as s i fi cat i o n o f s uch pro p ert i es

, t he e xisting

l an d u s e p at t ern , o r t h e co m p reh en s i v e l an d d ev el o pm en t p l an

.

(e) W h et h er, i n t h e cas e o f an y u s e l o cat ed i n

, o r d i rect l y ad j acen t t o

, a

res i d en ti al d i s t ri ct o r area:

8 See al s o O C GA § 5-4 -1 5 (b ) (wh en rev i ewi n g a l ower t ri b u n al ’ s ru l i n g o n

wri t of cert i o rari

, t he su p eri or co u rt m ay o n l y i s s u e a fi n al d eci s i o n “ i f t h ere i s n o

q u es ti o n o f fact i n v o lv ed wh i ch m ak es i t n eces s ary to sen d t h e cas e b ack fo r a n ew

h eari n g b efo re t he t ri b u nal b el o w”).

10(i ) Th e nat u re an d i n t en s i t y o f o p erat i o n s wi ll b e s u ch t h at b o t h

p ed es t ri an an d v eh i cu l ar t raffi c t o an d fro m t h e u s e an d t h e as sem bl y o f

p ers on s i n co n n ect i o n t h erewi t h wi l l n o t b e h azard o u s o r i n co n v en i en t

t o

, o r i n co n gru o us wi th

, s ai d res i d en ti al d i st ri ct o r area, o r co n fl i ct w i t h

t h e n o rm al t raffi c o f t h e n ei g h b o rh o o d ; an d

(i i ) Th e l o cat io n an d h ei g ht of b u il d i n g s, an d o t her s t ru ct u res

, an d

t h e n at ure an d ex t en t o f s creen in g

, bu fferi n g o r l an d s cap i n g o n t h e s i t e

wi l l b e s u ch t h at t h e u s e w i l l n o t h in d er o r d is co u rag e t h e ap p ro p ri at e

d ev el o p m en t an d u se of a d j acen t l an d an d b u i ld i n g s i n co n fo rm an ce

wi t h ex i s t i n g zo n i n g d i s t ri ct s an d d ev el o p m en t p at t ern

.

(f) Wh e t h er t h e p ro p o s ed u s e wi l l i n creas e th e po p ul at i o n d en s i t y

res u lt i n g i n th e i n c r e as e o r o v ert ax i n g o f t h e l o ad o n p u b l i c faci l i t i es

s u ch as s ch o o l s

, u t i l i t ies

, s t reet s

, et c.; o r ap p ro v al o f t h e u s e wo u l d

en co u rag e ad

j acen t areas t o d ev el o p at h i gh er d en si t ies t h an p ro v i d ed i n

t h e co m p r e h en s i v e pl an res u l t i n g i n t h e o v ert ax i n g o f s u ch pu b l i c

faci l it i es

.

(g ) W h et h er t h e p ro p o sed u s e wi l l cau s e a heal t h h azard

, a p u b li c s afet y

p ro b l em

, o r n u i s an ce creat ed o r e x ces s i v el y i ncreas in g t raffi c an d

as s o ci at ed co n g es t i o n ; creat i n g a d rai n ag e p ro b l em ; g en erat i n g

u n n eces s ary d i s t u rb an ces d u e t o n o i s e, th e em i t t an ce o f sm o k e o r o t h er

co n t am i n an t s

, o do r, el ect ri cal i n t erferen ce o r cau s i n g p o ll u t i o n t o l an d

, ai r an d / o r wat er.

(h ) W h et h er th e p ro p o s ed ch an g e wi l l ad v ers el y affect p ro p ert y v al u es

i n ad jacen t areas

. . . . .

As d et ai l ed b el o w, t h ere was ev i d en ce p res en t ed b efo re t h e Co m m i s s i o n fro m

wh i ch i t co u l d d en y

Ep i c’ s req u es t fo r a co n d i ti o n al u s e p erm i t u n d er t h e s t an d ard s

s et fo rt h i n Sect i o n 3 0 2 (2 ) o f t h e CLDR. No tab l y

, t h ere was a wri t t en pet i t i o n i n t h e

11reco rd b efo re t h e Co m m is s i o n si g n ed by n earl y o n e h u nd red area res i d en t s o p p o s i n g

t h e rel at ed re

- z on in g ap pl i cat io n t o al l o w th e co n s t ru ct i o n o f th e rai l s pu r l i n e an d

d ev el o p m en t o f a ren ewab le en erg y rai l -t o -p i pel i n e l oad i n g s t at i o n

. Th i s p et i t i o n

rai s ed co ncern s ab o u t th e fl am m ab le n at u re of t h e et han o l, co n cern s th at t h e p i p el i n e

wo u l d d ev al u e t hei r p r o p e r t y

, an d t raffi c an d n o i s e i s s u es

. Th e p et i t i o n s al s o n o t ed

co n cern s ab o u t t h e h azard o us n at u re o f et han o l

, an d co n cern s reg ard i n g t h e p o t en t i al

fo r s p i l l s d u ri n g t he u n l o ad i n g p ro ces s. Fu rt h er, at t h e co n d i t i o n a l u s e ap p l i cat i o n

h eari n g

, a ci t y co u nci l m em b er an d t h ree area res i d en t s s p ok e i n op p os i t i o n, o u t l i n i n g

ad d it i o n al s p eci fi c co n cern s ab o u t p ri or co n t am i nat i o n b y a fu el p i p el i n e l eak i n t h e

area wh i ch req ui red cap p in g o f area w at er wel l s. Rev eren d Art h u r Hu bb ard

, a p as t o r

o f a n earb y ch u rch

, ex p l ai ned th at h i s ch urch an d co m m u n i t y h ad b een at t h at l o cat i o n

fo r o v er a h u nd red an d t wen t y y ears

, b efo re i n d u s tri al u s es m o ved i n to t h e area. He

ex p lai n ed t h at h is p ro p ert y an d th e p ro p ert y o f h i s n ei g h b o rs h a d a l read y b een

co n tam i n at ed an d d ev al u ed b y th e p ri o r jet fu el s p i l l. Co m m i s s i o n er Lu cas n o t ed t h at

t h e M aco n -Bi b b Co u n t y Co m m i s s io n s en t a let t e r t o t h e Pl an n i n g an d Zo n i n g

Co m m i s s i o n

, as ki n g i t t o d efer t h e d eci s io n u n t i l res i d en t s co u l d h av e a co m m u n i t y

m eet i n g wi t h t h e St at e of Geo rg ia En v i ro n m en t al Pro t ect i o n Di v i si o n

. A n o t h er

s p eak er b ro u g h t ev i d en ce o f a p ri o r d erai l m en t o f t rai n cars carry i n g et h an o l in

12an o th er st at e t o d em o ns t rat e th at t h ei r fears reg ard i n g t h e po t en t i al fo r a s p i l l o r

co n tam i n at i o n were n o t u nwarran ted

.

I n Oct o b er 2 0 1 5

, aft er Ep i c’ s i n i t i al ap p li cat i o n fo r re-zo n i ng

, et h an o l was

d es i g n at ed as a h azard o u s l i q u i d b y t h e Pi p el i n e Hazard o u s M at eri al s Safet y

Ad m i n i s t rat i o n (“ PHM SA”) an d t h e Fed eral Rai l way Ad m i n i s t rat i o n. See 4 9 C. F. R.

§ 1 9 5 .2 (“ Hazard o u s l i q u id m e a n s

. . . et h an o l ”); 4 9 U. S. C. A. § 6 01 0 1 (a) (4 ) (C)

(“ ‘ h azard o u s l i q u i d ’ m ean s

. . . a s u b s t an ce t hat th e Secret ary o f Tran sp o rt at i o n

d eci d es m ay p os e an u n reas o n ab l e ri s k o f li fe o r p ro p ert y w h en t ran sp o rt ed b y a

h azard o us l i q u i d p i p el i ne faci l i t y i n a l i q u i d s tat e”). Aft er t h es e ch an g es were

p res en t ed t o t h e Co m

m i s s io n, t h e p l an n i n g rep o rt n o t ed t h at “ i n l i gh t o f t h e ad d i t i o n al

i n fo rm at i o n reg ard i n g et h an o l an d i t s d an g ers t o p ub l i c h eal t h an d wel fare, s t aff h as

co n cern s t h at t h i s p ro p o s ed d ev el o p m en t wi ll p o s e si g n ifi can t n eg at i v e im p act s t o t h e

ad jo i n i n g an d n earb y p ro p ert ies .” Fu rt her, t h e p l an n i n g rep o r t s tat ed th at t h e rezo n in g wo u l d cau s e “ n eg at i ve i m p act s as l i g h t an d no i s e fro m t h e rai l cars an d d i es el

l o co m ot i v es t h at co u ld affect ad jacen t p ro p ert i es ” as wel l as co n cern s t h at et h an o l i s

a “ h azard o u s an d fl am m ab l e li q u i d t h at co u l d p o s e a dan g er t o t h e ad jacen t res i d en t s

i n t h e ev en t o f a d erai l m en t, s pi l l

, o r fi re

. ” D u r i n g t h e h eari n g

, Ep i c was u n ab l e to

co n fi rm t h at t h e t rai n s t h at wo u l d b e t ran s p ort i ng t h e et han o l wo u l d b e ret ro fi t t ed to

13co m

p l y wi t h t h e n ewes t reg u lat i o n s ap p l y i n g t o th e t r a n s p o rt at io n o f et h an o l

. E p i c

al s o res p o n d ed t o q u es t i o n s b y co n cern ed n ei g h b o rs

, an d ex p l ai n ed t h at al t h o u g h i t

w o u l d d o it s b es t t o u n lo ad t h e p i p el i n e du ri n g b us i n es s h o urs

, it was u n ab l e t o

g u aran tee t h at i t wo u l d n o t h ap p en at n i g h t

.

In rev ers i ng t h e Co m

m i s s i o n ’ s d en i al o f t h e sp e c i al us e p erm i t

, t h e s u p eri o r

co u rt ’ s o rd er ci t es t o as s u ran ces b y Ep i c t h at t h e ch an ces o f an acci d en t o r s p i l l were

l o w an d t h at t h e o p erat io n was d es i g n ed s o as t o av o id p ol l ut i o n t o t h e area “ l an d

, ai r

o r wat er o n o r o ff p ro p ert y .” Th e o rd er n o t es t h at t he s u peri o r co u rt t oo k

n o t i ce o f th e fear t h e co m m u n i t y ho l d s an d t h e h ard s hi p s i t h as en d ured

i n t h e p as t

. . . Yet

, t h e i s s u e at h an d m u s t b e d et erm i ned on m o re t h an

fear al o ne. As s t at ed ab o v e, g en eral i zed fears d o n o t ri s e t o th e l ev el o f

an y ev i d en ce. T h e [c] o u rt reco gn i zes t h at t h e fear i s real

, b u t th e

ev i d en ce in o p p o s i t i o n do es n o t s u pp o rt an y reas o n ab l e l i k e l i ho o d o r

p ro b ab i l i t y o f i n ci den t

. Th e o n l y ev i d en ce refl ect s a h i gh l y reg u l at ed

p ro ces s t o en s u re th e p ro p er h an d li n g o f a s ub s t an ce

. . . Th erefo re, th e

Co u rt s ees n o ev i d en ce t o t h e d eg ree neces s ary t o su p p o rt a d en i al o f th e

ap p l icat i o n[.]

Un l ik e t h e g en eral i zed co n cern s v o i c e d ab o u t l an d fi l l s i n F u l t o n Co u n t

y v.

Ba r ten fi el d

, 2 5 7 G a. 7 6 6 ( 3 6 3 SE2 d 5 5 5 ) (1 9 8 8 ), t h ere were s p eci fi c i s s u es rai s ed

d u ri n g t h e h eari n g ab o ut n o i s e, t raffi c, p o s s i b l e co n t am in at i o n

, an d t h e fl am m ab i l i t y

14an d h azard o u s n a t u r e o f et han o l t h at were s peci fi c t o th is t ract an d co nd i t i o n al u s e

ap p li cat io n

. See Ja cks o n Co u n t y

, 2 8 0 Ga. at 3 9 1 (fi n d i n g t h at t h e l o cal zo n i n g b o ard

h ad ev i d en ce b efo re i t fro m wh i ch t o d en y a s p eci al u s e p erm i t wh en

, i n t er al i a,

res i den t s rai s ed s p eci fi c co n cern s ab o u t t h e p ro p o s al t o creat e a l an d fi ll i n th e area).

Th ere was reco rd ev i d en ce b efo re t h e Co m m i ss i o n t o s u p p ort i t s deci s i o n t o d en y t h e

co n di t i o n al u se ap p l i cat i o n

. Th e s u p eri o r co u rt ’ s o rd er ack n o wl ed g es t h i s ev i d en ce,

b u t t h en wei gh s ev i d en ce i n t h e reco rd to co n cl u d e th at t h ere was “ n o ev i d en ce t o t h e

d eg ree n eces s ary t o s u p p o rt a d en i al o f t h e ap p l i cat i o n b as ed o n t h e ab o v e s tan d ard .”

“ It is no t t h e l aw t hat o n ly ex p ert o p i n i o n s co u l d b e p res en t ed to

, an d co n s i d ered b y

,

t h e Bo ard

, n o r i s t h e s u p eri or co u rt t o wei g h t h e ev i d en ce b efo re it ; t h e q u es t i o n i s

wh et h er t h ere was a n

y evi d en ce b efo re t h e Bo ard to s u p p o r t i t s d e c is i o n .” Ja cks o n

Co u n t y, s u p ra. As t h e reco rd s u p p o rt ed th e Co m m i s si o n ’ s d eci si o n t o d en y t h e

co n di t i o n al u s e p erm i t

, t h e s u p eri o r co u rt erred i n o rd eri n g t h e Bo ard t o i s s u e i t

.

2

. As a res u l t o f ou r h ol d i n g i n Di v is i on 1

, th e Co m m i ss i o n’s r e m a i n i n g

en u m erat i o n s o f erro r are m o ot

.

Ju d g men t r ever sed . Mi l l er

, P. J., co ncu r

s a nd Br o wn , J. d i s s en t

s

. *

* THI S OPI NI O N I S P HYSI CAL PRECEDENT ONLY, COURT OF

APPEALS RULE 3 3 .2 (a ).

15A1 8 A1 975. M A C O N

- B I B B C O U N T Y P L ANNING AND ZONING

COM M ISSION et al . v . EPIC M IDSTREAM

, LLC.

B R O W N , J u d g e, d i s s en t i n g

.

I res p ect fu l l y d i s sen t

. To accep t th e m ajo ri t y ’ s i n terp ret at i o n o f “ an y ev i d en ce”

i s t o accep t an y m o d i cu m of s p ecu l at i v e fear or u n s u b s t an t iat ed an d m i sp l aced b l am e

as reas o n ab l e cau s e t o d en y an ap p ro p ri at e u s e o f p ri v at e p ro p ert y

.

At t h e o u ts et

, i t i s im

p o rt an t t o recal l t h at t h e co n d i ti o n al u s e ap p li cat i o n b efo re

t h e Co m m i s s i o n was n o t fo r an et h an o l p i pel i n e. As th e m ajo ri t y n o t es i n pas s i n g in

a fo ot n ot e, Ep i c al read y h ad o b t ai n ed t h e a p p r o v a l o f t h e Geo rg i a Dep art m en t o f

Tran s p ort at i o n an d t he M aco n -Bi b b Co u n t y En g i neeri ng D ep art m en t fo r t h e et h an ol

p i p e l i n e ri g h t o f way

. Th u s

, reg ard l es s o f wh et her t h e Co m m i s s i o n ap p ro v ed o r

d en ied t h e co n d i t i on al u s e ap p l i cat i o n b efo re i t

, Ep i c co u ld b u i l d th e et h an o l p i p el i n e

a l o n g Barn es Ferry Ro ad an d t h e n ei g h b o rh o o d. An d reg ard l es s o f wh et h er t h e

Co m m i s s i o n ap p ro v ed o r d en i ed t h e ap p l i cat i o n b efo re i t

, t h e No rfo l k So u th ern m ai n

rai l l i n e wo u ld co n t i n u e t o ru n ad jacen t t o t h e nei g h b o rh oo d

, al read y carry i n g

h azard o us s u b s t an ces s u ch as et h an o l

.

Ou r Su p rem e Co u rt h as “ prev i o u s l y ru l ed t h at i n Geo rg i a t h e

s u b s t an t i al -ev i d en ce st an d ard i s effect i v el y t h e s am e as t h e an y -ev i den ce s t an d ard

.. . wh i ch s h al l m ean t h at t h e reco rd d oes n o t co n t ai n s u ch rel ev an t ev i d e n c e a s a

reas on ab l e m i n d m i g h t accep t as ad eq u at e t o s up p ort s ai d d eci s i o n.” (Ci t at i o n s an d

p u n ct u at i o n om it t ed .) Emo r y Un i v. v. Levi t as

, 2 6 0 G a. 8 9 4, 8 97 (1 ) (4 0 1 SE2 d 6 9 1 )

(1 9 9 1). See al s o Ci t

y o f At l an ta Go vt

. v. S

mi t h

, 22 8 Ga. Ap p

. 8 6 4

, 8 6 5 (1 ) (4 9 3 SE2 d

5 1 ) (1 9 9 7 ) (o v erru l i n g cas es t o t h e ex t en t t h ey reco g n ize a di fferen ce b et ween t h e an y

ev i d en ce an d s u b s t an t i al ev i den ce s tan d ard s an d reco g n i zi ng t h at th e ap p ro p ri at e

s t an d ard o f rev i ew t o b e ap pl i ed t o is s u es o f fact o n wri t o f cert i o rari i s wh et h er t h e

d eci s i o n i s s u p p ort ed b y an y ev i d en ce).

Th e m ajo ri t y o m i t s im

p o rt an t d et ai l s fro m t h e reco rd i n o rd er t o d own p l ay t h e

fact t h at t h e 1 98 0 s jet -fu el p i p el i n e l eak

, an i n ci d en t w ho l l y u n rel at ed t o t h e

ap p li cat io n

, an d t h e affect ed res i d en t s ’ d i s co n t en t wi t h Nu St ar, an en t i t y wh o l l y

u n rel at ed t o Ep i c, w ere at t h e co re o f t h e o p p o s i t i o n t o Ep i c’ s a p p l i c a t i o n

. Fo r

i n s t an ce, at t h e fi n al h eari n g, o n e re s i d e n t vo i ced th at “ t h e b i g i s s u e” w as t h at

“ [Nu St ar]

. . . l eft a l eak i n g p i p el i n e t h a t has n o t b een cl ean ed u p

. . . [Nu St ar h as ]

co n tam i n at ed t h e area, an d t hey h av e n o t rem ed i at ed i t .” Du ri n g t h e h eari n g reg ard i n g

Ep i c’ s m o t io n fo r reh eari n g, o n e res id en t t es t i fi ed as fo l l o ws :

t h e l as t t i m e t h e Co m

m i s s i o n v o t ed o n t h i s

, i t was u n an i m o u s b ecau s e

— n o t becau se i t was n o t t h e ri g h t p l a c e fo r i t

, b ut becau s e t h i s

co m m u n i t y h as al read y b een s u per s carred

. . . . I’ m an g ry t hat [Ep i c]

2wo u ld ev en co m e b ack t o y ’ al l an d as k t o p u t i t i n t h e sam e s p o t

. T he

co n t am i n at io n i s t h ere.

. . . W e real l y

, rea l l y, r e al l y n eed fo r Ep i c an d

N u S t a r t o t ak e res p o n s i b i l i t y fo r w h at ’ s o u t t h ere no w, cl ean it u p a n d

m a yb e i n t e n

, 1 5 y ears wh en t h at co m m u n i ty i s cl ean

, th en t hey can

res u bm i t . . . .”

In d en y i n g Ep ic’ s ap p li cat i o n, o n e m em b er o f t h e Co m

m i s s i o n s t at ed

,

t h ere wi ll b e n eg at i v e im

p act s s uch as li g h t an d n o i se fro m t h e rai l cars

an d l o co m o t i v es th at co u l d affect ad jacen t pro p ert i es

. Ad d it i on al l y

,

t h ere i s t h e as p ect o f e t h an o l b ei n g a h azard o u s an d fl am m ab l e l i q u i d

t h at co u l d p os e dan g ers t o t h e ad j a c e n t res i d en t s in t h e ev en t o f a

d era i l m e n t

, s p i l l, o r fi re. To m e, th at ’ s t h e i s s u e, es p eci al l y fo r t h i s

n ei g hb o rh o o d.

. . . [B] ecau s e of t hi s n ei g h b orh o o d a n d s o m e o f th e

t h i n gs t h at i t ’ s b een th ro u g h an d s o m e o f t h e th i ng s t h at t h e y ’r e s t i l l

t ry i n g t o fi g u re ou t

, I d o n’ t feel co m fo rt ab l e ap p ro v i n g [t h e co nd i t i o nal

u s e ap p l i cat i o n ]

.

Th e Ch ai rm an o f t h e Co m m i s s i o n ech o ed t hi s s en t i m en t

, s t at in g “ I u n d ers t an d t h i s

o p erat i o n b et ween t h e 19 8 4 s pi l l an d wh at ’ s g o i n g o n ri g h t no w. I kn o w t h ey are t wo

s ep arat e i s s u es

. Bu t fear i s co m m o n h ere. An d an o t h er o p p ort u n i t y fo r

– fo r an y k i n d

o f t rag ed y

i s – i t ’ s v ery o bv i o u s h ere. . . .”

Th e m ajo ri t y ’ s at tem

pt to d i s t i n g ui s h t h e i n s t an t ca s e fro m Fu lt o n Co u n t y v.

Ba r ten fel d

, 2 57 Ga. 7 6 6

, 7 7 0 (3 ) (3 6 3 SE2 d 5 5 5 ) (1 9 8 8 ), b y p o i n t in g t o t h e “ s p eci fi c

i s su es rai s e d ” h e re i s to n o av ai l

. Fo r i n s t an ce, t h e m ajo ri t y h ig h l i g ht s traffi c as a

3s p eci fi c i s s u e rai s ed by a ci t izen d u ri n g th e fi nal heari n g t o s u p p o rt t h e Co m m i s s i o n ’ s

d eci s i o n

. Ho wev er, t h e p l an n i n g rep o r t s p e c i fi cal l y n o t ed t h at t h e t raffi c i m p act to

Barn es Ferry Ro ad w o ul d b e m i n i m al b as ed o n t h e l i m i ted d ev el o p m en t p ro p o s ed

. In

reach i n g t h i s co n cl us i o n

, t he p l an n i n g st aff req u es ted i n p u t fro m t h e Maco n -Bi b b

Co u n t y Traffi c En g i n eeri n g Dep art m en t

, wh ich h a d “ n o t raffi c i s s u es wi t h t h e

p ro p os al .” 1 As o u r Su p rem e Co u rt ex p l ai ne d in B arte nfe ld

, su p ra, “ op p o s i t i o n [b as ed ]

u p o n

. . . g en eral ized fear, n ot s p eci fi cal l y s ho wn t o ex i s t u n d er t h e fact s o f t h i s cas e,

[i s ] i n s u ffi ci en t ” t o ri s e t o t h e l ev el o f an y ev i den ce. Id

. at 7 7 0 (3 ). Fo l l o wi n g t h e

m ajo ri ty ’ s l i n e o f reas o n i n g l ead s t o t h e co n cl u s i o n t h at s p eci fic

, unsubsta

ntiat ed fears

s o m eh o w h o l d m o re wei g h t t han g en er a l

, u n s u bs t an ti at ed fears

. Reg ard les s o f h o w

n arro wl y t h e fear or i s s u e i s fram ed

, i f it s t i l l i s “ n ot s p eci fi cal l y s h o wn t o ex i s t u n d er

t h e f a ct s o f t h e cas e,” i t d o es n o t ri s e t o t h e l ev el o f an y ev i d e n c e

. ( E m p h as i s

s u p p li ed .) Id

. (h eari n g t es t i m o n y i n o pp o s i t i o n t o d ev el op m en t reg ard i n g g en eral i zed

fear t h a t l a n d fi l l s lo wer p ro p ert y v al u es an d creat e t raffi c pro b l em s in su ffi ci en t

1 Th e i s s u e o f t raffi c was rai s ed i n a pet i t i o n o p p o s i n g t he p ro p o s ed

d ev el o p m en t s ub m i t t ed t o t h e Co m m i s s i o n

. Th e m ajo ri t y n eg l ect s t o p oi n t o u t t h at t h e

reco rd al s o co n t ai ns a s eco n d wri t t en p et i ti o n s i g n ed b y lo cal res i d en t s s u p p o r t i n g t h e

p ro p os ed d ev el o p m en t

. Si m p l y p u t

, t h es e ri v al p e t i t i o n s s h o w p u b l i c op p os i t i o n to

a n d s u p po rt o f t he p r o p o sed d ev el o p m en t

, b o t h gro u n ded o n g en eral i zed p o i n t s o f

v i ew rat h er t h an fact s s u p p o rt ed b y ev id en ce.

4ev i d en ce). Co m pare Ja cks o n Co u n t

y v. Ea r t h Res o u r ces

, In c.

, 2 80 Ga. 3 89

, 3 9 1 (6 2 7

S E 2d 569) ( 2 0 06 ) (l an d p l an n i n g s t aff’ s co n cl u si on t h at l an d fi l l wo u l d b e i nconsiste nt

wi t h t h e Co m

p reh en s i v e Lan d Us e Pl an

, cert i fi ed real es t at e ap p rai s er’ s o p in i o n t h at

t h e l an d fi l l wo u ld n eg at iv el y affect s u rro un d i n g pro p e r t y v a l u es

, an d t es t i m o n y o f

n e a r b y t o wn s ’ o ffi ci al s reg ard i n g t h e n eg at i v e i m p act o f t ru ck t raffi c am ou n t ed t o

m o re t h an gen eral i zed fears co n cern i n g l an d fi l l s an d su p p o rt ed zo n i n g b o dy ’ s d en i al

o f s peci al u s e perm i t ); 2 Fu lt o n Co u n t y v. Co n g r eg a t i o n o

f A ns h ei Ch es ed

, 2 7 5 Ga.

8 5 6

, 8 58 -8 5 9 (2 ) (5 7 2 SE2 d 5 3 0 ) (2 0 0 2) (ev i de n ce t h at t h e i n t ro d uct i o n o f s i m i l ar

“ i n st i t u t io n al u s es ” i n a n ei g h b o rh o od acro s s t h e s t reet h ad l ed t o i n creas ed d en s i t y

d ev el o p m en t

, t h reat en in g “ t h e s t ab i l it y of t h e n e i g h b orh o o d ,” was s u ffi ci en t to

s u p p o r t t h e zo n i n g b o d y ’ s deci s i o n t o den y a co n d i t i o n al u s e p erm i t fo r a p l ace o f

wo rs h i p wi t h i n a s in g l e-fam i l y res i d en t i al n ei g hb o rh o od ), d i s ap p ro v ed o f o n o t h er

g ro u nd s b y Ci t

y o f Cu mmi n g

v. Fl o wer

s

, 3 0 0 Ga. 8 2 0 (7 9 7 SE2 d 8 4 6 ) (2 0 1 7 ).

Th e m ajo ri t y o f

fers t h at “ t h e pl an n i n g rep o rt s tat ed t h at t h e re-zo n i n g wo u ld

cau s e ‘ n eg at i v e i m

pact s ’ [s uch ] as l i gh t an d n o i s e fro m th e rai l cars an d d i es el

2 By co n tras t

, h ere, t h e p l an n i n g s t aff rep ort co n cl u d ed t hat t h e p r o p o s ed

d ev el o p m en t wo u l d n o t hav e an ad v e r s e effect o n t h e co m p reh en s i v e l an d

d ev el o p m en t p l an an d t h a t t h e re was “ n o ev i d en ce p ro v i d ed t h at [t h e p ro p o s ed ]

d ev el o p m en t [wo u l d ] ad v ers el y affect [] p ro p ert y

v al u es i n ad

jacen t areas .”

5l o co m ot i v es ’ ” t o s u p p ort i t s fo reg o n e co ncl u s i o n t h a t t h e p ro p o s ed d ev el o p m en t

wo u l d n eg at i v el y im

p act ad jacen t p ro p ert i es

. Ho wev er, th e pl an n in g rep o rt s t at es t h at

t h es e were neg at iv e i m

p act s t h at “co u l d affect ad jac en t p ro p ert i es .” (Em

p h as i s

s u p p li ed .) Fu rt herm o re, th e p l an n in g rep o rt

, aft er i d en t i fy i n g t h es e p ot en t i al n eg at i v e

i m p act s

, wen t o n t o o u tl i n e t h e v ari o us re m e d i a l m eas u res Ep i c pro p o s ed to

co u nt eract t h e p o ss i b i l i ty o f t h es e i m p act s

, i n cl u d i n g t h at th e d e v e l o p m en t wo u ld

i n cl u d e a 1 0 0 -fo o t u n d is t u rb ed t ree b u ffer, p ro v i d in g a v e r t i cal s creen as wel l as

h o ri zo n t al s ep arat io n fro m t h e res i den ces o n t h e o p p o s i t e s i d e of Barn es Ferry Ro ad

.

Th e s t aff al s o ex p l ai n ed th at Ep i c h ad d es i g ned t h e tran s fer faci l i t y as a l o o p s u ch t h at

rai l cars wo u l d n o t b e un co u p l ed an d reco u p led t o t ran s fer t he et han o l, th u s l i m i t i n g

t h e p ro ces s ’ s n oi s e. Du ri n g t h e fi n al h eari n g

, Ep i c p res en ted t es ti m o n y fro m i t s l an d

p l an n er th at t he o n l y n oi s e w o ul d co m e fro m t h e t rai n cars t rav el i n g on t h e l o o p an d

t h e t ran s fer p ro ces s

, wh ich wo u l d o n l y o ccu r aro u n d o n ce p er m on t h

. Acco rd i n g to

h i m

, t h e n o i se g en erat ed fro m t h e u n l o ad i n g wo u l d b e l e s s t h an th e n oi s e al read y

g en erat ed b y t h e m ai n rai l l in e an d t wo n earb y ai rp o rt s

. T h e d es i gn p ro ject m an ag er

t es t i fi ed th at t h e t ran s fer faci li t y wo u l d u t i l i ze el ect ri cal p u m p s

, m ak i ng t h e p ro ces s

“ rel at i vel y q u i et ” an d t h at t h e “ l o o p ” d es i g n

, s u ch t h at t rai n cars wo u l d n o t h av e to

u n co up l e an d reco u p l e, wo u l d fu rt h er red u ce n o is e. He al s o ex p l ai n ed at t h e h eari n g

6t h at t h e l i g h t i ng fo r t h e t ran s f e r a r e a wo u l d b e co n cen t rat ed at t h e “ lo o p ” an d

“ d i rect i o n al ,” m ean i n g i t w o ul d b e p o i n t ed d o wn t o ward t h e o p erat i o n al area. Th e

reco rd is d ev o i d of an y ev i d en ce t h at d es p i t e t h o s e m e a s u r e s th ere w o u l d s t i ll b e

“ n eg at i ve im

p act s” fro m l i g h t o r n o i s e. Co m p a r e C i t y o f Ro s wel l v. F

el l o ws h ip

Ch r i st i a n S

ch o o l

, In c.

, 2 81 Ga. 7 6 7 -7 6 8 (1 ) (6 4 2 SE2 d 82 4 ) (2 0 0 7 ) (zo n i n g b o d y was

au t h o ri zed t o d en y perm i t fo r h i g h s ch o o l s t ad i u m wh en ap p l i can t ’ s o w n ev i d en ce

s h o wed t h at t h e st ad i um wo u l d ad d t o t h e al read y ex i s t i n g ad v ers e t raffi c co n d i t i on s

i n t h e a r e a d u e t o two o t h er s tad i u m s wi t h i n o n e m il e, an d n o p ract i cal rem ed i al

m eas u res co u l d b e t ak en t o co u n t eract t h at n eg at iv e co n s eq uen ce).

Th e m ajo ri t y al s o p oi n t s t o t h e p lan n i n g rep o rt ’ s no t e “ th at e t h a n o l i s a

‘ haz a r d o u s an d fl am m ab l e l i q u i d t h at co ul d p o se a d an g er t o t h e ad jacen t res i d en t s

7i n t h e ev en t o f a d erai l m en t, s p i l l

, o r fi re.’ ” 3 Ag ai n, t he m ajo ri ty om i t s t h at t h e

p l an n i n g rep o rt g o es o n t o co n s i d er t h e p ro p o s ed rem ed i al m eas u res :

[Ep i c] m us t m ai n tai n co m

p l i an ce wi t h s ev eral fed er al an d s t at e

req u irem en ts t hat are d es i g n ed t o m i t ig at e p o t en t ial d an g ers as s o ci at ed

wi t h t h e t ran sfer o f et h an o l l i qu i d

. . . . Th e ap p l i can t h as o ut l i n ed a p lan

t o m i t i g at e n eg at i v e i m

p act s t o t h e n earb y p ro p ert y o wn ers in cl u d i n g th e

p o s s i b i l i t y o f rel o cat in g t h e et h an o l t ran s fer s t at i o n t o a d i fferen t area o f

t h e s i t e [wi t h a g reat er d i s t an ce fro m res i d en ces ]

.

Th e reco rd s ho ws t hat E p i c p ro v i d ed t h e Co m m i s s i o n wi t h i t s wo rk in s t ru ct i o n s an d

s afet y ch eck l i s t to b e co m p l et ed each t i m e a t ran s fer o ccu rred , a d et ai l ed o u t l i n e o f

o p erat i o n al p ro ced u res

, an d a su m m ary o f t h e p ro po s ed s p il l co n t ai n m en t s y s t em fo r

t h e faci l i t y

, i n cl u d i n g t h e ap p l i cab l e reg u l at i o n s

. Du ri n g t h e fi nal h eari n g, t h e d es i g n

3 In i t s i n i ti al rep o rt o n Ep i c’ s r e-z o n i n g ap p l i cat i o n

, t h e p l a nn i n g rep o rt

reco m m en d ed g ran t i n g E p i c’ s req u es t t o re-zo n e. Ho wev e r, t h e p l an n i n g st aff l at er

i s su ed an am en d ed rep ort b as ed o n i n fo rm at i o n reg ard i ng et h an o l th at h ad s i n ce co m e

t o l i g h t

. Acco rd i n g to t h e rep o rt

, t h e Pi p el i ne an d H azard o u s M at eri al s Safet y

Ad m i n i s t rat i o n (PHM SA) ad d ed et h an o l t o i t s d e f i n i t i o n o f “ hazard o u s l i q u i d s ” in

M arch o f 2 0 1 5

, m ean in g PHM SA h ad d et erm i n ed t h at et h an o l was a s u bs t an ce wh i ch

“ ma y p os e an u n reas o n ab l e ri s k t o l i fe o r p ro pert y wh en tran s p o rt ed b y a h azard ou s

l i qu i d p ip el i ne faci li t y i n a l i qu i d s t at e” p u rs u an t t o 4 9 U.S.C. § 6 0 1 0 1 ( a ) (4 ) (B).

(Em p h as i s s u p p l i ed

. ) PHM SA’ s deci s i o n was b as ed on t h e p ro ject ed in creas e in

b i o fu el s d em an d ; t h e b el ief t h at p i p el i ne t ran s po rt at i o n was a m o re effi ci en t m o d e o f

t ran s po rt at i o n wi t h a co n s is t en t l y l o wer acci d en t rat e t h an o t h er m o d e s o f

t ran s po rt at i o n ; an d t h e need fo r u n i fo rm o v ers i g h t an d co n s i s t en t reg u l at i o n o f en erg y

l i qu i ds b y PHM SA. Des p i t e t h i s n e w i n f o rm at i o n

, t h e pl an n i n g s t aff d i d n ot

reco m m en d d en y i n g t h e req u es t t o re-zo n e.

8p ro

ject m an ag er, an en gi neer, t es t i fi ed t hat t h e faci l i t y w o u l d h av e a co nt ai n m en t area

— reg u l at ed b y fed eral

, s t at e, an d co u nt y g u i d e l i n es — wh ere an y d ri p s o r s p i l l s

wo u l d b e cap t ured

. W hen q u es t i o n ed b y t h e Co m m i s s i o n, h e al s o ex p l ai n ed t h at n o

v ap ors o r fu m es w o u l d es cap e d u r i n g t h e p r o ces s b ecau s e i t i s a “ cl o s ed s y s t em ,”

m ean i n g t h e et h an o l i s “ s u ck [ed ] ” ou t o f t h e t rai n car wh i l e ai r i s p u m p ed i nt o t h e car.

Ag ai n

, n o s p eci fi c ev id en ce was o ffered to reb u t t hi s t es t i m o n y ap art fro m v o cal i zed

an d u n s u b s t an ti at ed co n cern s o f “ h u m an erro r[]

. ”

In s u m

, t h e o p p o s i ti o n t o t h e co nd i t i o n al u s e ap pl i c a t i o n was b as ed al m o s t

wh o l l y u p o n t h e p ri o r Nu St ar jet -fu el p i p el i n e l eak w h i ch o ccu rred o v er 3 0 y ears ag o

al o n g wi t h t h e affect ed res i d en t s ’ d i s s at i s fact io n wi t h t he rem ed i at i o n p ro ces s an d t h e

p ercei v ed l ack of co m

m u n icat i o n ab o u t t h at s p i l l

. 4 Becau s e I b e li ev e t h e s u p eri o r

4 Nu St ar h el d a m eet i n g wi t h s o m e o f t h e affect ed res i d en ts i n M ay o f 2 0 1 5 to

ex p lai n th e rem ed i at io n effo rt s an d t h e p ro gres s t h at h ad b een m ad e. An o ffi ci al fro m

t h e Geo rg i a Dep art m en t o f Pu b l i c Heal t h s en t a m em o ran d u m d at ed J un e 2

, 2 0 1 5

, to

t h e M aco n -Bi b b Co u nt y En v i ro n m en t al Heal t h M an ag er aft er “ a res i den t o f Barn es

Ferry Ro ad rai s ed co n c e r n s o f t h e p ro p o s ed Ep i c

. . . Et h an ol tran s fer rai l s p u r

rezo n i n g

. . . .” Th e m em oran d u m cl ari fi ed t hat “ [t ] h e p as t [jet -fu el ] i nci d en t an d i t s

cl ean u p i s [a] s ep arat e i s s ue fro m t h e p ro p o s ed rai l s p ur,” an d i n cl u d ed a s u m m ary

o f t he jet -fu el p i p el in e l eak an d t h e rem ed i at i on effo rt s

. Th e m em o ran d u m ex p l ai n ed

t h at Ep i c h ad s u bm it t ed a req u i red s afet y p l an t o t h e PHM SA wh i ch co v ered s afet y

p ro t o co l fo r st aff t rai n i n g

, eq u i p m en t

, an d p ro ced u res o n h o w t o r es p o n d to

em erg en cy

s i t uat i o n s

. Ad d i t i on al l y

, t h e m em o ran du m s et fo rt h g en eral i n fo rm at i o n

ab o ut et h an o l

, i n cl u d i ng t h at et h an o l rap i d l y b i o d eg rad es i n s o i l an d wat er; an y

rel eas ed et han o l v ap o r d i s p ers es rap i d ly ; an d “ [f] ro m a t o x i ci t y an d en v iro n m en t al

9co u rt cl earl y g rap pl ed w i t h an em o t i o n al l y ch arg ed i ss u e an d p ro p erl y co ncl u d ed t h at

n o ev i d en ce s u pp o rt ed t h e Co m m i s s i o n ’ s deci s i o n u n der t h e ap pro p ri at e s t an d ard o f

rev i ew, I res p ect fu l l y

d i s s en t

.

s t an d p o in t

, d en at u red fu el g rad e Et h an o l i s a s afer al t ern at i v e t o t h e 5 0 / 5 0 m i x o f

g as o li n e an d kero s en e t h at co m p ri s ed [t h e jet -fu el pi p el i n e l eak ] .” Th e l an d p l an n er’ s

rep o rt ech o es t h i s, ci t in g a p o rt i o n o f a cl as s gi ven t o fi refi g h t ers o n et h an o l as

fo l l o w s : “ Et h an o l i s l es s t ox i c t h an g as o li n e o r m et h an ol

. Carci n o g en i c co m p o u nd s

are n o t p res en t i n p ure et han o l .”

10