[Cite as Safest Neighborhood Assn. v. Athens Bd. of Zoning Appeals, 2013-Ohio-5610.]

IN THE COURT OF APPEALS OF OHIO 

FOURTH APPELLATE DISTRICT 

ATHENS COUNTY 

SAFEST NEIGHBORHOOD ASSOC., ET AL., : Case Nos. 12CA32 

 : 12CA33 

Appellants-Appellees, : 12CA34 

: 12CA35 

v. : 

 : 

CITY OF ATHENS BOARD OF ZONING : DECISION AND

APPEALS, ET AL., : JUDMENT ENTRY

 : 

 Appellees-Appellants, : 

 : 

 and : 

 : 

KEVIN GILLESPIE/INTEGRATED SERVICES : RELEASED: 12/17/13 

OF APPALACHIAN OHIO, INC., : 

 : 

 Appellee-Appellant. : 

______________________________________________________________________ 

APPEARANCES: 

Patrick J. Lang, City of Athens Director of Law, and Lisa A. Eliason, Chief City 

Prosecutor, Athens, Ohio, for appellant City of Athens Board of Zoning Appeals, et al. 

Tiffany C. Miller, Bailey Cavalieri LLC, Columbus, Ohio, and William R. Walker, Walker 

& Walker Co., L.P.A., Athens, Ohio, for appellant Kevin Gillespie/Integrated Services of 

Appalachian Ohio, Inc. 

Garry E. Hunter, Garry E. Hunter Law Offices, Inc., LPA, Athens, Ohio, for appellees. 

______________________________________________________________________ 

Harsha, J. 

{¶1} In this consolidated appeal, the City of Athens Board of Zoning Appeals 

(BZA), the City of Athens Planning Commission (Planning Commission) and Kevin 

Gillespie/Integrated Services of Appalachian, Ohio, Inc. (Integrated Services) appeal the 

trial court’s entry reversing the BZA and Planning Commission’s decisions to permit 

Integrated Services to construct a two-story, multi-unit residential structure. However, 

as neutral bodies that decided whether to grant Integrated Services’ applications, the 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 2

BZA and Planning Commission lack standing to appeal the court of common pleas 

decision. Consequently, we must dismiss their appeals. Conversely, Integrated 

Services unquestionably has standing to appeal as an aggrieved party who has been 

adversely affected by the lower court’s decision and we consider the merits of its 

arguments. 

{¶2} Integrated Services argues, inter alia, that the lower court erred by finding 

that the appellees, Safest Neighborhood Association (Safest Neighborhood) and over 

40 Athens residents, had standing to appeal the BZA and Planning Commission’s 

decisions because each appellee did not show that he or she actively participated at the 

administrative hearing and was directly affected by the administrative decision. We 

agree. Because the lower court looked at the appellees collectively, rather than looking 

at each appellee individually, to determine if they met the requirements for standing, the 

court abused its discretion and we reverse its decision. 

I. OVERVIEW 

{¶3} This administrative appeal involves the construction of a multi-unit, 

residential structure by Integrated Services at 10 Graham Drive (the property) in Athens, 

Ohio. When Integrated Services purchased the property it was classified as a “B-3 

General Business Zone” and contained a single-family mobile home, which was a 

nonconforming use. After removing the mobile home, Integrated Services sought a 

variance from the BZA to construct a two-story structure. The BZA denied the variance, 

and rather than appeal that decision, Integrated Services sought approval of a threestory structure from the Planning Commission. The Planning Commission held a 

hearing on March 16, 2011, and approved the new plan for a three-story structure 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 3

without residential use on the first floor. Under the B-3 General Business zoning, 

Integrated Services did not need a variance to build a structure that did not include firstfloor residential use. However, Integrated Services then returned the case to the BZA 

and asked for a substitution of a nonconforming use (the mobile home) for a not more 

objectionable nonconforming use (the two-story structure). The BZA held a hearing and 

approved the substitution of a two-story structure with first-floor residential use, which it 

had previously denied in the request for a variance. 

{¶4} Safest Neighborhood and approximately 40 Athens residents filed an 

appeal with the Athens County Court of Common Pleas in case No. 11CI0149 

contesting the BZA’s decision. Many of the same residents also filed a related 

taxpayers’ action and asserted in their complaint that the City of Athens failed to 

properly notify the public of the March 16, 2011 Planning Commission hearing as 

required by the city code. Thereafter, the Planning Commission posted the notification 

and re-heard the matter on August 17, 2011. It again approved the three-story structure 

and also for the first time approved the substituted two-story structure. The appellees 

then filed an appeal with the Athens County Court of Common Pleas in case No. 

11CI0254 contesting the Planning Commission’s August 17 decision. 

{¶5} The lower court consolidated the appellees’ appeals and issued an entry 

reversing both the BZA and Planning Commission’s rulings. The trial court found that 

the two-story structure expanded the mobile home’s prior nonconforming use contrary 

to the city code and the Planning Commission’s decision was not supported by a 

preponderance of substantial, reliable and probative evidence. Integrated Services, the 

BZA and Planning Commission now appeal the court of common pleas’ decision. 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 4

II. ASSIGNMENTS OF ERROR 

{¶6} In Case No. 12CA32 Integrated Services raises four assignments of error 

for our review: 

1. “THE TRIAL COURT ERRED RULING IN FAVOR OF APPELLANTS 

ABSENT APPELLANTS PRESENTING ANY ASSIGNMENTS OF ERROR 

OR CITATION OF FACTS IN THE RECORD TO SUPPORT THEIR 

ARGUMENT.” 

2. “THE TRIAL COURT ERRED FINDING THAT EVERY APPELLANT 

BELOW HAD STANDING TO BRING AN APPEAL TO THE TRIAL 

COURT.” 

3. “THE TRIAL COURT ERRED OVERRULING THE PLANNING 

COMMISSION ABSENT ANY FACTS OR FINDING THE PLANNING 

COMMISSION ENGAGED IN ANYTHING UNCONSTITUTIONAL, 

ILLEGAL, ARBITRARY, CAPRICIOUS, OR UNREASONABLE IN 

ARRIVING AT ITS DECISION.” 

4. “THE TRIAL COURT ERRED SUBSTITUTING ITS JUDGMENT AND 

OPINIONS FOR THAT OF THE PLANNING COMMISSION.” 

{¶7} In Case No. 12CA33 Integrated Services raises four assignments of error: 

1. “THE TRIAL COURT ERRED RULING IN FAVOR OF APPELLANTS ABSENT 

APPELLANTS PRESENTING ANY ASSIGNMENTS OF ERROR OR CITATION 

OF FACTS IN THE RECORD TO SUPPORT THEIR ARGUMENTS.” 

2. “THE TRIAL COURT ERRED FINDING THAT EVERY APPELLANT BELOW 

HAD STANDING TO BRING AN APPEAL TO THE TRIAL COURT.” 

3. “THE TRIAL COURT ERRED OVERRULING THE BZA RESOLUTION 

ABSENT FACTS OR FINDINGS THE BZA DID ANYTHING 

UNCONSTITUTIONAL, ILLEGAL, ARBITRARY, CAPRICIOUS, OR 

UNREASONABLE IN ARRIVING AT ITS DECISION.” 

4. “THE TRIAL COURT ERRED SUBSTITUTING ITS JUDGMENT AND 

OPINIONS FOR THAT OF THE BZA.” 

{¶8} In Case No. 12CA34 the BZA raises five assignments of error: 

1. “THE COMMON PLEAS COURT ERRED IN FINDING THAT IT WAS 

IMPLICIT UNDER THE CIRCUMSTANCES OF THE CASE THAT ALL 

APPELLANTS IN SAFEST NEIGHBORHOOD ASSOC., ET AL., 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 5

DEMONSTRATED UNIQUE HARM BY SIMPLY LIVING IN THE 

NEIGHBORHOOD.” 

2. “THE COMMON PLEAS COURT ERRED IN NOT CONSIDERING THE 

AFFIDAVITS OF JOHN PASZKE AND KEVIN GILLESPIE IN ITS DECISION OF 

OCTOBER 1, 2012.” 

3. “THE COMMON PLEAS COURT ERRED IN RULING THAT THERE WAS NO 

CLEAR TESTIMONY PRESENTED TO THE BOARD OF ZONING APPEALS AS 

TO WHETHER THE HOUSE WAS REMOVED WITHIN THE ONE YEAR TIME 

LIMIT.” 

4. “THE COMMON PLEAS COURT ERRED IN RULING THAT THE CITY 

BOARD OF ZONING APPEALS FAILED TO CONSIDER WHETHER THE TWO 

STORY MULTI-FAMILY UNIT WAS NOT MORE OBJECTIONABLE THAN THE 

ORIGINAL ONE STORY SINGLE FAMILY RESIDENCE.” 

5. “THE COMMON PLEAS COURT ERRED IN CONCLUDING THAT THE BZA 

WAS CONFUSED ON THE ISSUE OF THE RESOLUTION.” 

{¶9} In Case No. 12CA35 the Planning Commission raises five assignments of 

error: 

1. “THE COMMON PLEAS COURT ERRED IN ORDERING THE PLANNING 

COMMISSION TO VERIFY THE TRANSCRIPTS.” 

2. “THE COMMON PLEAS COURT ERRED IN NOT CONSIDERING 

SURREPLY BRIEFS OF THE PLANNING COMMISSION AND INTEGRATED 

SERVICES.” 

3. “THE COMMON PLEAS COURT ERRED IN FINDING THAT SAFEST 

NEIGHBORHOOD ASSOC., ET AL., DEMONSTRATED UNIQUE HARM BY 

SIMPLY LIVING IN THE NEIGHBORHOOD WHEN SOME OF THEM 

APPEARED AT THE HEARING.” 

4. “THE COMMON PLEAS COURT ERRED IN NOT CONSIDERING THE 

AFFIDAVITS OF JOHN PASZKE AND KEVIN GILLESPIE IN ITS DECISION OF 

OCTOBER 1, 2012.” 

5. THE COMMON PLEAS COURT ERRED IN RULING THAT THE HEARING 

BEFORE THE PLANNING COMMISSION WAS PERFUNCTORY AT BEST 

WHEN THE TRANSCRIPT IS REPLETE WITH INFORMATION ABOUT THE 

DISABILITIES COMMISSION, TREES AND PARKING.” 

III. LAW AND ANALYSIS 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 6

A. The BZA and Planning Commission Lack Standing to Appeal the Court of Common 

Pleas’ Decision 

{¶10} Before considering the merits of the parties’ appeals, we first address the 

BZA and Planning Commission’s standing to appeal the court of common pleas’ 

decision. “Whether a party has standing to appeal ‘is jurisdictional and may be raised 

sua sponte.’” Liquidation Properties v. Mosley, 4th Dist. Scioto No. 11CA3453, 2012-

Ohio-6281, ¶ 14, quoting In re Forfeiture of John Deere Tractor, 4th Dist. Athens No. 

05CA26, 2006-Ohio-388, ¶ 10. 

{¶11} “Neither a township board of zoning appeals nor any of its members as 

such have a right to appeal from the judgment of a court, rendered on appeal from a 

decision of such board and reversing and vacating that decision.” Di Cillo & Sons, Inc. v. 

Chester Zoning Bd. Of Appeals, 158 Ohio St. 302, 109 N.E.2d 8 (1952), syllabus. “In 

an appeal to the board of zoning appeals, the board does not become a party to that 

appeal,” but rather is a body to decide whether the issuance of a variance is 

appropriate. Id. at 304-305. “[T]he board should be as disinterested in deciding matters 

brought before it as a court should be.” Id. at 305. “Just as a common pleas court is not 

a party in a case it decides and may not appeal from a decision of a court of appeals 

that reverses the common pleas’ decision, the board of zoning appeals is not a party to 

[an] appeal and has no standing to appeal.” Parker v. Swancreek Twp. Bd. of Zoning 

Appeals, 6th Dist. Fulton Nos. F-04-035, F-04-036, F-04-038, 2005-Ohio-538, ¶ 4. 

Instead, the proper party to appeal under R.C. Chapter 2506 is “the city, the city official 

responsible for enforcing the zoning regulations, or other persons aggrieved by the 

court’s decision.” Sich v. Bd. of Zoning Appeals for the City Middletown, 12th Dist. 

Butler No. CA83-08-093, 1984 WL 3386, *1 (July 16, 1984), citing Di Cillo at 305; Gold 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 7

Coast Realty, Inc. v. Bd. of Zoning Appeals, 26 Ohio St.2d 37, 39, 268 N.E.2d 280 

(1971). 

{¶12} We believe the same rationale and rule apply to the Planning 

Commission. The Planning Commission “exercise[d] a function in which it is 

presumably neutral” in its task of deciding whether to approve Integrated Services’ site 

plan to build its three story complex. Whitemyer Advertising, Inc. v. Zoar Planning 

Comm., 5th Dist. Tuscarawas No. 90AP100058, 1991 WL 302454, *1. Although Safest 

Neighborhood and the other appellees incorrectly named the BZA and the Planning 

Commission as opposing parties in their appeals to the court of common pleas, the BZA 

and Planning Commission do not have standing to appeal the court of common pleas’ 

reversal of their decisions. See Gold Coast at 39. Accordingly, we do not have 

jurisdiction to consider the BZA and Planning Commission’s appeals and must dismiss 

them. See Rickard v. Trumbull Twp. Zoning Bd. of Appeals, 11th Dist. Ashtabula Nos. 

2008-A-0024, 2008-A-0027, 2008-A-0025, 2008-A-0026, 2008-A-0028, 2009-Ohio2619, ¶ 43. 

{¶13} Conversely, Integrated Services unquestionably has standing to appeal as 

an aggrieved party who has been adversely affected by the court of common pleas’ 

decision and we consider the merits of its appeal. See Liquidation Properties, 4th Dist. 

Scioto No. 11CA3453, 2012-Ohio-6281, at ¶ 14. 

B. Standard of Review 

{¶14} Administrative appeals at the municipal level are governed by R.C. 

Chapter 2506. Willoughby Hills v. C.C. Bar’s Sahara, Inc., 64 Ohio St.3d 24, 26, 591 

N.E.2d 1203 (1992). Under R.C. Chapter 2506, the court of common pleas may find 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 8

that the order, adjudication or decision of the administrative agency is “unconstitutional, 

illegal, arbitrary, capricious, unreasonable, or unsupported by the preponderance of 

substantial, reliable, and probative evidence on the whole record.” R.C. 2506.04. 

Consistent with its findings, the court of common pleas may then “affirm, reverse, 

vacate, or modify the order, adjudication, or decision, or remand the cause to the officer 

or body appealed from with instructions to enter an order, adjudication, or decision 

consistent with the findings or opinion of the court.” R.C. 2506.04. “[I]n weighing 

evidence, the court may not ‘blatantly substitute its judgment for that of the agency, 

especially in areas of administrative expertise.’” AT&T Communications of Ohio, Inc. v. 

Lynch, 132 Ohio St.3d 92, 2012-Ohio-1975, 969 N.E.2d 1166, ¶ 13, quoting Dudukovich 

v. Lorain Metro. Hous. Auth., 58 Ohio St.2d 202, 207, 389 N.E.2d 1113 (1979). 

Accordingly, the court of common pleas must affirm the agency’s decision if it is 

supported by “a preponderance of reliable, probative, and substantial evidence.” 

Burchfield v. Jackson Twp. Bd. of Zoning Appeals, 4th Dist. Pickaway No. 07CA11, 

2008-Ohio-1228, ¶ 8. 

{¶15} However, reviews by appellate courts under R.C. 2506.04 are more 

limited in scope than the court of common pleas. Three Wide Entertainment v. Athens 

Bd. of Zoning Appeals, 194 Ohio App.3d 1, 2011-Ohio-2304, 954 N.E.2d 191, ¶ 9 (4th 

Dist.) (per curiam). “‘This statute grants a more limited power to the court of appeals to 

review the judgment of the common pleas court only on “questions of law,” which does 

not include the same extensive power to weigh “the preponderance of substantial, 

reliable and probative evidence,” as is granted to the common pleas court.’” Henley v. 

Youngstown Bd. of Zoning Appeals, 90 Ohio St.3d 142, 147, 735 N.E.2d 433 (2000), 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 9

quoting Kisil v. Sandusky, 12 Ohio St.3d 30, 34, 465 N.E.2d 848 (1984), fn. 4. “‘It is 

incumbent on the trial court to examine the evidence. Such is not the charge of the 

appellate court. * * * The fact that the court of appeals * * * might have arrived at a 

different conclusion than the administrative agency is immaterial. Appellate courts must 

not substitute their judgment for those of an administrative agency or a trial court absent 

the approved criteria for doing so.’” Henley at 147, quoting Lorain City School Dist. Bd. 

of Edn. v. State Emp. Relations Bd., 40 Ohio St.3d 257, 261, 533 N.E.2d 264 (1988). 

{¶16} The court of common pleas’ ruling “may be appealed by any party on 

questions of law.” R.C. 2506.04. Thus, the standard of review we apply is more limited 

in scope; appellate courts are limited in an R.C. 2506.01 appeal to reviewing questions 

of law. Lorain City School Dist. at 261. See also Burchfield at ¶ 9. However, “‘[w]ithin 

the ambit of “questions of law” for the appellate review would be abuse of discretion by 

the common pleas court,’” in choosing or applying the law. Henley at 148, quoting Kisil

at 34, fn.4. Although the abuse of discretion standard usually affords maximum defense 

to the lower court, no court retains discretion to adopt an incorrect legal rule or to apply 

an appropriate rule in an inappropriate manner. Such a course of conduct would result 

in an abuse of discretion. See Harsha, William, H., The Substance of Appeals, 17 Ohio 

Lawyer, No. 6, 17. We make such a determination as with other questions of law on a 

de novo basis. 

C. The Appellees’ Standing to Appeal the BZA 

and Planning Commission’s Decisions 

{¶17} Initially we determined that the BZA and the Planning Commission lacked 

standing to appeal the decision of the court of common pleas to the court of appeals. 

Now we address whether the appellees had standing to appeal the decisions of the BZA 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 10

and the Planning Commission to the court of common pleas. Different rules apply in 

each context, so we have addressed them separately. 

{¶18} Because it is dispositive of this appeal, we first consider Integrated 

Services’ argument that the lower court erred by finding that the appellees had standing 

to appeal the BZA and Planning Commission’s decisions. It contends that the appellees 

did not meet the requirements set forth by the Supreme Court of Ohio in Roper v. Bd. of 

Zoning Appeals, Twp. Of Richfield, 173 Ohio St. 168, 180 N.E.2d 591 (1962), and 

applied by this court in Fahl v. Athens, 4th Dist. Athens No. 06CA23, 2007-Ohio-4925. 

{¶19} Standing determines “‘whether a litigant is entitled to have a court 

determine the merits of the issues presented.’” State ex rel. Teamsters Local Union No. 

436 v. Cuyahoga Cty. Bd. of Commrs., 132 Ohio St.3d 47, 2012-Ohio-1861, 969 N.E.2d 

224, ¶ 10, quoting Ohio Contrs. Assn. v. Bicking, 71 Ohio St.3d 318, 320, 643 N.E.2d 

1088 (1994). R.C. 2506.01 limits the right to appeal administrative decisions that 

determine “rights, duties, privileges, benefits, or legal relationships of a person * * *.” 

However, R.C. Chapter 2506 “does not address the question of who has standing to 

bring such an appeal.” (Emphasis sic.) Willoughby Hills, 64 Ohio St.3d at 26, 591 

N.E.2d 1203 (1992). 

{¶20} Under the common law doctrine of standing, only those parties who can 

demonstrate a present interest in the subject matter of the litigation and have been 

prejudiced by the judgment of the lower court possess the right to appeal. Id.; Jenkins v. 

Gallipolis, 128 Ohio App.3d 376, 381, 715 N.E.2d 196 (4th Dist.1998). The Supreme 

Court has “construed R.C. Chapter 2506 to permit appeals only by those who are 

directly affected by the administrative decision.” (Emphasis sic.) In re Petition for 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 11

Incorporation of the Village of Holiday City, 70 Ohio St.3d 365, 371, 639 N.E.2d 42 

(1994). The burden of proof to establish standing lies with the party seeking to appeal 

and therefore that party must ensure that the record supports his or her claim of 

standing. Jenkins at 381-382; Antush v. N. Ridgeville, 9th Dist. Lorain Nos. 

02CA008161, 02CA008169, 02CA008192, 2003-Ohio-3164, ¶ 10. 

{¶21} The Supreme Court first considered the issue of third party standing in 

Roper v. Bd. of Zoning Appeals, Twp. Of Richfield, 173 Ohio St. 168, 180 N.E.2d 

591(1962), and determined that it would be inappropriate to limit standing in an 

administrative appeal to the party denied its application by the agency. Roper at 173-

174. The Court reasoned that such an approach “is contrary to the intention of the 

Legislature” and “repugnant to the majority of this court.” Id. at 173. Thus the Court held 

that a: 

resident, elector and property owner of a township, who appears 

before a township Board of Zoning Appeals, is represented by an 

attorney, opposes and protests the changing of a zoned area from 

residential to commercial, and advises the board, on the record, that if 

the decision of the board is adverse to him he intends to appeal from 

the decision to a court has a right of appeal to the Common Pleas 

Court if the appeal is properly and timely made pursuant to Sections 

519.15 and 2506.01 to 2506.04, inclusive, and Chapter 2505, Revised 

Code. 

Id. at syllabus. 

{¶22} In Schomaeker v. First Nat. Bank of Ottawa, 66 Ohio St.2d 304, 421 

N.E.2d 530 (1981), the Court again considered the issue of third party standing to bring 

an administrative appeal and further limited standing under R.C. Chapter 2506 to only 

those parties “directly affected” by an administrative decision. Id. at 311-312. The Court 

explained that a: 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 12

person owning property contiguous to the proposed use who has 

previously indicated an interest in the matter by a prior court action 

challenging the use, and who attends a hearing on the variance together 

with counsel, is within that class of persons directly affected by the 

administrative decision and is entitled to appeal under R.C. Chapter 2506. 

Id. at paragraph two of the syllabus. 

{¶23} Then in Willoughby Hills, the Supreme Court affirmed that standing to 

appeal an administrative decision to the court of common pleas is not limited only to the 

party denied the variance and that “[a]djacent or contiguous property owners who 

oppose and participate in the administrative proceedings concerning the issuance of a 

variance are equally entitled to seek appellate review under R.C. 2506.01.” Willoughby 

Hills, 64 Ohio St.3d at 26, 591 N.E.2d 1203 (1992). The Court then elaborated on its 

holding in Schomaeker and explained that: 

[t]he “directly affected” language in Schomaeker merely serves to clarify 

the basis upon which a private property owner, as distinguished from the 

public at large, could challenge the board of zoning appeals’ approval of 

the variance. The private litigant has standing to complain of harm which 

is unique to himself. In contrast, a private property owner across town, 

who seeks reversal of the granting of a variance because of its effect on 

the character of the city as a whole, would lack standing because his 

injury does not differ from that suffered by the community at large. The 

latter litigant would, therefore, be unable to demonstrate the necessary 

unique prejudice which resulted from the board's approval of the 

requested variance. 

Id. at 27. 

{¶24} It is apparent from these cases that a third party property owner has 

standing to appeal an administrative agency decision under R.C. 2506.01 when that 

property owner actively participated at the administrative hearing and has been directly 

affected by the decision. 

1. Active Participation 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 13

{¶25} An individual, who attends the administrative hearing and voices his or her 

opposition to the proposed action, has actively participated in the proceedings. See 

Willoughby Hills at 26; Groffre Invests. v. Canton Bd. of Zoning Appeals, 5th Dist. Stark 

No. 2012-CA-00059, 2013-Ohio-1131, ¶ 25. In addition, an attorney who appears at the 

administrative hearing on behalf of his client, indicates such a representation and 

opposes the issue may also be sufficient to establish the party’s active participation. 

Groffre at ¶ 28-30. 

2. Directly Affected 

{¶26} A party is directly affected by an administrative decision, as distinguished 

from the public at large, when he or she can demonstrate a unique harm. Midwest 

Fireworks Mfg. Co. v. Deerfield Twp. Bd. of Zoning Appeals, 91 Ohio St.3d 174, 179-

180, 743 N.E.2d 894 (2001) (Cook, J., dissenting), citing Willoughby Hills, 64 Ohio St.3d 

at 27, 591 N.E.2d 1203. Thus, a court “‘must look beyond physical proximity to 

demonstrate if the order constitutes a determination of the rights, duties, privileges, 

benefits or legal relationships of a specified person.’” Jenkins, 128 Ohio App.3d at 382, 

715 N.E.2d 196 (4th Dist.1998), quoting Am. Aggregates Corp. v. Columbus, 66 Ohio 

App.3d 318, 322, 584 N.E.2d 26 (10th Dist.1990). Generally, concerns about increased 

traffic are shared equally by the public at large and, therefore, are not adequate grounds 

to confer standing under R.C. 2506.01. Jenkins at 382. However, evidence that the 

appealing party’s property value may decrease due to an administrative decision 

“constitutes a direct effect sufficient to confer standing.” Id.

3. Is Standing Determined Individually or Collectively? 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 14

{¶27} The record shows that of the over 40 residents that appealed the 

agencies’ decisions to the court of common pleas, only seven attended and spoke at 

the May 11, 2011 BZA hearing, and only three attended and spoke at the August 17, 

2011 Planning Commission hearing. Attorney Garry Hunter also attended the August 

17 hearing and indicated that he was speaking on behalf of “over a hundred” residents. 

{¶28} Integrated Services filed a “Joint Motion for Hearing on Issue of Standing” 

with the lower court and argued that the appellees who did not attend the BZA and 

Planning Commission hearings should be dismissed from the case for lack of standing.1

 

It further asserted that the appellees who did attend each hearing did not demonstrate a 

“direct effect” or “unique harm” and should also be dismissed from the case. The 

appellees filed a “Memorandum in Opposition to Motion to Dismiss for Lack of 

Standing,” in which they asserted several reasons why the court should not consider the 

the appellants’ argument or alternatively find that they had standing to appeal. The 

lower court did not rule on the motion, and Integrated Services again raised the issue of 

standing in their briefs filed with the court of common pleas. In its October 1, 2012 

entry, from which Integrated Services appeals, the court addressed the issue and stated 

that: 

Before taking up the question of the standard of review and the arguments 

of law, the court must first consider two matters, that of standing and 

surreplies. The record is clear that appellants, or at least a substantial 

number of them, appeared at the hearings on this matter and voiced their 

opposition. 

They were all from the neighborhood proximate to 10 Graham Drive in 

Athens and made their concerns known about safety, traffic and parking 

 

1

 The BZA and Integrated Services filed a “Joint Motion for Hearing on Issue of Standing” in Case No. 11-

CI-149. The Planning Commission and Integrated Services also filed a “Joint Motion for Hearing on Issue 

of Standing” in Case No. 11-CI-254. 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 15

and property value diminution and while they may not have specified that 

the anticipated harm would be unique to them, such was implicit under the 

circumstances of the case. 

Appellants have shown themselves to be aggrieved under the application 

of the Athens City Zoning Code and Title 41 of the City’s Planning 

Commission. Thus the motions to dismiss in both this case and in Case 

No. 11CI254 are overruled. 

{¶29} This is not a case involving associational standing. Each appellant must 

satisfy the requirements for standing as an individual, not collectively as part of a group 

or association. Here, the trial court abused its discretion by not determining if each of 

the appellees had standing to appeal the BZA and Planning Commission’s decisions. 

To have standing each appellee, including Safest Neighborhood,2

 needed to have 

actively participated in the relevant hearing and demonstrated that he or she has been 

directly affected by the administration’s decision. It was an abuse of discretion, i.e. 

improper application of the law, for the lower court to group the appellees together in 

deciding whether the parties collectively met each requirement. 

{¶30} Integrated Services argues that every appellee must meet the 

requirements listed in Roper to have standing, including voicing his or her intent to 

appeal at the administrative hearing. However, we do not read the Court’s statement in 

Roper as an exhaustive list of requirements that a third party must meet to have 

standing to appeal an administrative agency’s decision. Rather, we view this statement 

as descriptive of Roper’s actions in that case, not prescriptive as Integrated Services 

 

2

 The appellees have not specified under what theory they assert Safest Neighborhood Association has 

standing to appeal the BZA and Planning Commission’s decisions. However, it lacks standing in a 

representative capacity to appeal on behalf of its members under R.C. Chapter 2506. See Noe Bixby 

Road Neighbors v. Columbus City Council, 150 Ohio App.3d 305, 2002-Ohio-6453, 780 N.E.2d 1046, ¶ 

10 (10th Dist.); Women of the Old West End, Inc., v. City of Toledo, 6th Dist. Lucas No. L-97-1204, 1998 

WL 334188, *4 (June 5, 1998). Therefore, Safest Neighborhood must meet the same requirements as 

the other city residents to have standing, i.e. active participation and direct effect. 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 16

contends. See Groffre, 9th Dist. Stark No. 2012-CA-00059, 2013-Ohio-1131 at ¶ 26. 

Nevertheless, we are aware that other appellate courts do not take this same view. See

Hofer v. N. Perry Bd. of Zoning Appeals, 11th Dist. Lake No. 2007-L-165, 2008-Ohio6876, ¶ 16, 17; Kraus v. Put-In-Bay Tp. Bd. of Zoning and Appeals, 6th Dist. Ottawa No. 

OT-04-011, 2004-Ohio-4678, ¶ 15; Hickory Street Coalition v. City of Akron Planning 

Comm., 9th Dist. Summit No. 21738, 2004-Ohio-2246, ¶ 10, 12. 

{¶31} In support of their argument that the appellees lack standing, Integrated 

Services also cites Fahl v. Athens, 4th Dist. Athens No. 06CA23, 2007-Ohio-4925. In 

Fahl we considered the issue of standing under R.C. 2506.01 and held that because the 

parties did not actively participate at the administrative hearing, they lacked standing to 

appeal the agency’s decision to the court of common pleas. Id. at ¶ 1. Integrated 

Services reads Fahl as our acceptance of a strict reading of Roper, and asserts that on 

this basis the appellees must meet all the requirements listed by the Court in Roper to 

have standing. However, Fahl sets forth no precedent or binding rule of law on the 

issue of standing beyond its impact on the parties in that case. A close review of the 

opinion in Fahl reveals one judge dissented and one concurred in judgment only on the 

standing issue. 

{¶32} In opposition, the appellees argue that “the common law definition of 

standing is not relevant in this case” because the Athens City Code provides for an 

independent statutory appeals process from the Planning Commission and BZA. 

Athens City Ordinance 23.07.11(A) states: 

Filing of appeal from BZA decision: Any person or persons, jointly or 

severally aggrieved by any decision of the BZA, or any resident, or any 

officer, department, or appointed body of the municipality may present to 

the Athens County Court of Common Pleas a petition, duly verified, setting 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 17

forth that such decision is illegal, in whole or in part, and specifying the 

ground of illegality. Such petition shall be presented to the court within 30 

days after the mailing of the BOA’s decision to the applicant 

{¶33} However in case No. 11CI0149 challenging the BZA’s decision, the 

appellees filed their appeal under R.C. Chapters 2505 and 2506, and thus the city 

ordinance would not be applicable in that case. In case No. 11CI0254 appealing the 

Planning Commission’s decision, the appellees sought relief under R.C. Chapters 2505 

and 2506, as well as Athens City Code Section 41.10(H). Athens City Ordinance 

41.10(H) provides: “Appeals from a final order, adjudication, or decision of the planning 

commission may be to the Court of Common Pleas of Athens County pursuant to Ohio 

Revised Code Chapters 2505 and 2506.” Thus, we reject the appellees’ argument that 

the standing requirements of R.C. Chapter 2506 do not apply to their appeals. 

{¶34} The appellees further argue that Integrated Services did not timely raise 

the issue of standing because it requested a hearing on the issue after the parties filed 

the transcripts, established a briefing schedule and the appellees’ filed their brief. 

Therefore, the appellees argue that Integrated Services waived any right under Civ.R. 

12(H) to challenge their standing. However, when standing is jurisdictional in nature, it 

can be raised at anytime during the proceedings. Buckeye Foods v. Cuyahoga County 

Bd. of Revision, 78 Ohio St.3d 459, 460, 678 N.E.2d 917 (1997). And because standing 

is a jurisdictional issue in administrative appeals and Integrated Services filed a motion 

with the court requesting a hearing on the issue of standing and then again raised the 

issue in its briefs, we find the appellees’ forfeiture argument meritless. See Alexis 

Entertainment, L.L.C. v. Toledo, 6th Dist. Lucas No. L–13–1028, 2013-Ohio-3496, ¶ 7, 

citing State ex rel. Jones v. Suster, 84 Ohio St.3d 70, 77, 701 N.E.2d 1002 (1998), fn. 4. 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 18

{¶35} Finally, the appellees contend that because Integrated Services argued in 

the related taxpayer action that the appellees have “an adequate remedy at law in the 

Zoning and Planning Commission Appeals” they “have waived their right to then 

challenge standing in this case.” They cite no authority to support this assertion nor are 

we aware of any. 

IV. CONCLUSION 

{¶36} We find that the lower court erred as a matter of law and abused its 

discretion in its “collective” application of the principles of standing. Thus we sustain 

Integrated Services’ second assignment of error in case Nos. 12CA32 and 12CA33. 

Accordingly we reverse the court of common plea’s decision and remand the case so 

that the lower court can determine if each appellee, including Safest Neighborhood, has 

standing to appeal the relevant administrative decision. This decision renders moot 

Integrated Services’ remaining assignments of error and we decline to address them. 

See App.R. 12(A)(1)(C). 

JUDGMENT REVERSED AND REMANDED. 

{¶37} We also dismiss the BZA and Planning Commission’s appeals in case 

Nos. 12CA34 and 12CA35 for lack of standing. 

APPEALS DISMISSED. 
Athens App. Nos. 12CA32, 12CA33, 12CA34, 12CA35 19

JUDGMENT ENTRY

 It is ordered that the JUDGMENT IS REVERSED in case Nos. 12CA32 and 

12CA33 and that the CAUSE IS REMANDED. Appellees shall pay the costs. It is 

ordered that the APPEAL IS DISMISSED in case Nos. 12CA34 and 12CA35. 

Appellants shall pay the costs. 

 The Court finds there were reasonable grounds for this appeal. 

 It is ordered that a special mandate issue out of this Court directing the Athens 

County Court of Common Pleas to carry this judgment into execution. 

 Any stay previously granted by this Court is hereby terminated as of the date of 

this entry. 

 A certified copy of this entry shall constitute the mandate pursuant to Rule 27 of 

the Rules of Appellate Procedure. 

McFarland, P.J. & Hoover, J.: Concur in Judgment and Opinion. 

 For the Court 

 BY: ________________________________ 

 William H. Harsha, Judge 

NOTICE TO COUNSEL 

 Pursuant to Local Rule No. 14, this document constitutes a final judgment 

entry and the time period for further appeal commences from the date of filing 

with the clerk.