If this opinion indicates that it is “FOR PUBLICATION,” it is subject to 

revision until final publication in the Michigan Appeals Reports.

-1-

S T A T E O F M I C H I G A N

C O U R T O F A P P E A L S

LEHMAN INVESTMENT COMPANY, LLC,

Petitioner-Appellant,

FOR PUBLICATION

August 17, 2023

9:00 a.m.

v No. 361791

Oakland Circuit Court

CITY OF THE VILLAGE OF CLARKSTON and 

CLARKSTON HISTORICAL DISTRICT 

COMMISSION,

LC No. 2021-186123-AA

Respondents-Appellees.

Before: REDFORD, P.J., and K. F. KELLY and RICK, JJ.

RICK, J.

This matter involves an application submitted by petitioner, Lehman Investment Company, 

LLC, requesting permission to demolish a home in the historic district of the city of the Village of 

Clarkston (the City). Petitioner appeals by leave granted1an order of the Oakland Circuit Court 

denying appellate relief and affirming the decisions of respondent Clarkston Historical District 

Commission (the Commission), and the State of Michigan Historic Preservation Review Board 

(the Review Board), to deny petitioner’s application. We affirm.

I. FACTUAL BACKGROUND

The subject property is a vacant home and detached garage located at 42 West Washington 

Street in the City’s historic district. The land was purchased by local business owner Ethan Hawk 

in 1949, and the home and garage were constructed in 1953. The historic district where the home 

is situated was listed on the National Register of Historical Places in 1980. It is comprised of over 

100 buildings dating from approximately 1825 to 1949. This time period, when the core of the 

town grew to accommodate lumber mills and the processing of grain from surrounding farms, is 

considered a “period of significance” for historical purposes. The district includes buildings in the 

 

1 Lehman Investment Co v City of the Village of Clarkston, unpublished order of the Court of 

Appeals, entered Nov 23, 2022 (Docket No. 361791).
-2-

Greek Revival, Queen Anne, and Italianate styles. Because the buildings were constructed after 

1949, which was the tail end of the district’s period of significance, they are considered a “noncontributing resource,” or nonhistorical, for purposes of the historic district.

Petitioner acquired the property and ultimately decided it wanted to demolish the house

and the garage. Although the property is not a contributing resource to the historic district, it is 

nonetheless subject to the Commission’s oversight because it is within the boundaries of a historic 

district. Thus, anyone seeking to work on the property must go through a permitting process set 

forth in the local historic districts act (LHDA), MCL 399.201 et seq. Specifically, MCL 399.205 

provides, in relevant part:

(1) A permit shall be obtained before any work affecting the exterior 

appearance of a resource is performed within a historic district . . . . The 

person . . . proposing to do that work shall file an application for a permit with 

the . . . commission . . . . A permit shall not be issued and proposed work shall not 

proceed until the commission has acted on the application by issuing a certificate 

of appropriateness or a notice to proceed as prescribed in this act.

* * *

(3) In reviewing plans, the commission shall follow the United States 

secretary of the interior’s standards for rehabilitation and guidelines for 

rehabilitating historic buildings, as set forth in 36 C.F.R. part 67. . . . The 

commission shall also consider all of the following:

(a) The historic or architectural value and significance of the resource and 

its relationship to the historic value of the surrounding area.

(b) The relationship of any architectural features of the resource to the rest 

of the resource and to the surrounding area.

(c) The general compatibility of the design, arrangement, texture, and 

materials proposed to be used.

(d) Other factors, such as aesthetic value, that the commission finds 

relevant.

(e) Whether the applicant has certified in the application that the property 

where work will be undertaken has, or will have before the proposed project 

completion date, a fire alarm system or a smoke alarm . . . .

* * *

(6) Work within a historic district shall be permitted through the issuance 

of a notice to proceed by the commission if any of the following conditions prevail 

and if the proposed work can be demonstrated by a finding of the commission to be 

necessary to substantially improve or correct any of the following conditions:
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(a) The resource constitutes a hazard to the safety of the public or to the 

structure’s occupants.

(b) The resource is a deterrent to a major improvement program that will be 

of substantial benefit to the community and the applicant proposing the work has 

obtained all necessary planning and zoning approvals, financing, and 

environmental clearances.

(c) Retaining the resource will cause undue financial hardship to the owner 

when a governmental action, an act of God, or other events beyond the owner’s 

control created the hardship, and all feasible alternatives to eliminate the financial 

hardship, which may include offering the resource for sale at its fair market value 

or moving the resource to a vacant site within the historic district, have been 

attempted and exhausted by the owner.

(d) Retaining the resource is not in the interest of the majority of the 

community.

In June 2017, petitioner filed an application with the Commission, seeking approval to 

demolish the house and garage. The application listed “redevelopment” as the reason for the 

proposed project. The Commission held three hearings on the project in June, July, and August 

2017. After much consideration, the Commission denied petitioner’s request, indicating that the 

application did not meet the secretary of the interior’s standards for issuance of a certificate of 

appropriateness under MCL 399.205(3) of the LHDA. The Commission issued a formal denial on 

August 29, 2017.

Petitioner appealed that decision to the Review Board, which assigned the matter to an 

administrative law judge (ALJ). The ALJ reversed the Commission’s decision, finding that the 

Commission’s reasons for denying petitioner a certificate of appropriateness, including concerns 

related to future use and that the property should be deemed historical, were outside its statutory 

authority. With respect to MCL 399.205(3), on which the Commission partly based its decision, 

the ALJ found:

[N]o testimony was provided at the [Commission] meetings or in this hearing on 

appeal to support any claim that the instant property had any relationship to the 

historic value of the surrounding area or that it had any independent historic value 

as it related to the existing architectural and historic eras described in the existing 

Historic District.

The ALJ thus ordered that a certificate of appropriateness be issued to petitioner.

The ALJ’s ruling was then sent to the Review Board, which had the final say on whether 

demolition could move forward, pursuant to the Administrative Procedures Act (APA), 

MCL 24.201 et seq. The Review Board adopted the ALJ’s ruling in part, but ultimately remanded

because the ALJ failed to “address that a commission can also review a request for work in a 

historic district on a non-historic, non-contributing resource to determine whether a commission 

should issue a Notice to Proceed.” The Review Board ordered the ALJ to examine this issue in 

further detail.
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Another hearing was held before an ALJ, who ultimately remanded the matter to the 

Commission. The ALJ noted that the parties agreed that this matter involved the application of 

MCL 339.205(6)(d), which allows work to be permitted through the issuance of a notice to proceed 

if, in part, “retaining the resource is not in the interest of the majority of the community.” The 

ALJ found that the Commission was in a “particularly unique position” to opine on the interest of 

the majority of the community. Consequently, the ALJ remanded the matter to the Commission 

for purposes of considering:

The historic preservation issues relating to Petitioner[’s] . . . August 8, 2017 

Application as an application for a Notice to Proceed as provided in 

MCL §399.205(6)(a-d). The [Commission] shall evaluate the application and issue 

or deny a Notice to Proceed. The [Commission] shall make separate and specific 

findings and take separate votes as to each of the subparagraphs (a) through (d) of 

MCL §399.205(6).

The Commission held another hearing on remand. Petitioner argued that the subject 

buildings are not historical resources and, thus, “there’s no historical interest here for the majority 

of the community to argue about to retain.” The City responded that because the property is within 

the historic district, it is “fair game” for the Commission to regulate the buildings. The City further 

argued that petitioner bore the burden of proof to establish that the work qualified for a notice to 

proceed. Several members of the community, including Ethan Hawk’s grandson, spoke at the 

hearing and opposed the home’s demolition. At the close of the hearing, the Commission voted 

unanimously to deny petitioner a notice to proceed.

Thereafter, the Commission issued a written denial. It noted that the provisions for a notice 

to proceed, MCL 399.205(6)(a)-(d), were considered, and that petitioner conceded that 

Subsections (a), (b), and (c) did not apply. Regarding Subsection (d), the Commission recounted 

that each commissioner had noted petitioner’s lack of proof to show “that retaining the resource is 

not in the interest of the majority of the community considered individually.” The Commission 

then found:

Therefore it is the finding of the [Commission] that Petitioner has failed to 

demonstrate, pursuant to MCL 399.205 (6) a, b, c, or d, that removing the resource 

at 42 West Washington Street is necessary to substantially improve any condition 

in the historic district, and that removing the resource is not in the best interest of 

the majority of the community.

On appeal to the Review Board, an ALJ accepted and adopted the Commission’s decision, 

stating that the Commission “has properly denied Petitioner’s request for a Certificate of 

Appropriateness and a Notice to Proceed.” The Review Board adopted the ALJ’s ruling in full. 

Petitioner then appealed to the Oakland Circuit Court, which also affirmed the ALJ’s ruling. After 

reviewing the applicable statutory language, the circuit court stated:

[T]he Court agrees with the Review Board that in terms of demolishing a 

“resource,” [MCL 399.]205(6) applies rather than [MCL 399.]205(1) and (3). 

Specifically, the definition of “Notice to Proceed” is defined as “the written 

permission to issue a permit for work that is inappropriate and that adversely affects 
-5-

a resource.” The Court cannot fathom a situation where the complete demolition 

of a resource would not “adversely affect” it. Moreover, in doing its own research, 

the Court notes that Michigan caselaw specifically references MCL 399.205(6) and 

states, “MCL 399.205(6) permits demolition for various reasons . . .” and “the 

interior standards apply only to a request for a certificate of appropriateness 

(dealing with rehabilitating historic resources), and not to a request for a notice to 

proceed (dealing with demolishing buildings).” City of Grosse Pointe Park v 

Detroit Historic Dist Com[m], [u]npublished [p]er [c]uri[a]m [o]pinion of the 

Court of Appeals, [issued] April 19, 2012 (Docket No. 298802). There are no 

published holdings on this issue, but it appears that [MCL 399.]205(6) applies 

specifically to demolitions, such as in this case. Therefore, the Court finds that the 

Review Board’s decision to remand the case back to the Commission for 

consideration of [MCL 399.]205(6) was not arbitrary and capricious nor outside the 

scope of its authority. [(Footnote omitted).]

The circuit court then observed that according to petitioner, the record was sufficient to 

make a finding under the notice to proceed standard, and thus, the ALJ erred by remanding the 

matter to the Commission. The circuit court disagreed with petitioner’s argument, reasoning that 

the Commission had not considered the specific criteria applicable to a notice to proceed at the 

original hearing. It concluded that petitioner had not made a “cogent argument as to why [the 

ALJ] should have made a decision on facts that were not yet part of the Appeal.”

Finally, the circuit court rejected petitioner’s contention that it met the criteria for obtaining 

a notice to proceed. After noting that the only applicable criterion was whether “retaining a 

resource is not in the interest of the majority of a community,” the court found that:

[Petitioner] did not provide any proof [on remand] that retaining the residence was 

not in the best interest of the community. The only evidence that is part of the 

record is that the residence is not a historical resource. But whether it is a historical 

resource is irrelevant to whether the Appellant met his burden under 

[MCL 399.]205(6)(d). 

The circuit court concluded that the Review Board did not abuse its discretion by denying 

petitioner’s permit for a notice to proceed. Accordingly, the court denied petitioner’s appeal. 

Petitioner now appeals to this Court.

II. STANDARD OF REVIEW

A circuit court’s review of an administrative agency’s ruling is limited to determining 

whether the ruling was authorized by law and supported by competent, material, and substantial 

evidence on the whole record. Dignan v Mich Pub Sch Employees Retirement Bd, 253 Mich App 

571, 576; 659 NW2d 629 (2002); see also Const 1963, art 6, § 28; MCL 24.306. “ ‘Substantial 

evidence’ is defined as any evidence that reasonable minds would accept as adequate to support 

the decision; it is more than a mere scintilla of evidence but may be less than a preponderance of 

the evidence.” Becker-Witt v Bd of Examiners of Social Workers, 256 Mich App 359, 361; 663 

NW2d 514 (2003) (quotation marks and citation omitted). “Courts should accord due deference 
-6-

to administrative expertise and not invade administrative fact finding by displacing an agency’s 

choice between two reasonably differing views.” Dignan, 253 Mich App at 576.

“This Court’s review of the circuit court’s decision is, in turn, limited to a determination 

whether the lower court applied correct legal principles and whether it misapprehended or grossly 

misapplied the substantial evidence test to the agency’s factual findings.” Mantei v Mich Pub Sch 

Employees Retirement Sys, 256 Mich App 64, 71; 663 NW2d 486 (2003) (quotation marks and 

citation omitted). “This is essentially a ‘clearly erroneous’ standard of review.” Becker-Witt, 256 

Mich App at 362. Under this standard, “[a] finding is clearly erroneous when, on review of the 

whole record, this Court is left with the definite and firm conviction that a mistake has been made.” 

Mantei, 256 Mich App at 72 (quotation marks and citations omitted). Questions of law, including 

the proper interpretation of statutes, are reviewed de novo. Ayar v Foodland Distrib, 472 Mich 

713, 715; 698 NW2d 875 (2005).

III. ANALYSIS

A. NOTICE TO PROCEED

Petitioner first argues that the circuit court erred by upholding the Review Board’s decision 

requiring petitioner to proceed under the notice to proceed standard. We disagree.

According to petitioner, the statutory language of MCL 399.205 permits the Commission 

to issue either a certificate of appropriateness or a notice to proceed when an applicant applies for 

a permit to demolish a resource within a historic district. Whether petitioner’s understanding of 

the statute is correct depends on how we interpret MCL 399.205. The first step in construing 

statutory language is discerning the Legislature’s intent, which is the best indicator of which is the 

plain language used. Grimes v Mich Dep’t of Transp, 475 Mich 72, 76; 715 NW2d 275 (2006). If 

the language of a statute is clear and unambiguous, then it must be applied as written. Id. In doing 

so, this Court must give effect to each word, phrase, and clause, avoiding any construction that 

renders any language surplusage. Id. at 89. Moreover, “[s]tatutes relating to the same subject 

matter or sharing a common purpose are in pari materia and must be read together” harmoniously. 

Inter Coop Council v Dep’t of Treasury, 257 Mich App 219, 225; 668 NW2d 181 (2003). Further, 

while an agency’s interpretation of statutory language is entitled to respectful consideration, it is 

not binding on the courts and it cannot conflict with the Legislature’s intent as expressed in the 

plain language of the statute at issue. Mich Basic Prop Ins Ass’n v Office of Fin & Ins Regulation, 

288 Mich App 552, 558; 808 NW2d 456 (2010).

MCL 399.205(1) provides that “[a] permit shall be obtained before any work affecting the 

exterior appearance of a resource is performed within a historic district[.]” Most of the key words 

in the statute are defined under MCL 399.201a. For example, according to MCL 399.201a(s), a 

“resource” includes “1 or more publicly or privately owned historic or nonhistoric buildings, 

structures, sites, objects, features, or open spaces located within a historic district.” (Emphasis 

added). “Work,” encompasses “construction, addition, alteration, repair, moving, excavation, or 

demolition.” MCL 399.201a(v) (emphasis added). And a “historic district” is defined as “an area, 

or group of areas not necessarily having contiguous boundaries, that contains 1 resource or a group 

of resources that are related by history, architecture, archaeology, engineering, or culture.” 
-7-

MCL 399.205a(j). Thus, reading MCL 399.205(1) in harmony with MCL 399.201a, it is plain that 

a permit is required to demolish a nonhistoric resource within a historic district.

MCL 399.205(1) additionally provides, in part:

The person, individual, partnership, firm, corporation, organization, institution, or 

agency of government proposing to do that work shall file an application for a 

permit with the inspector of buildings, the commission, or other duly delegated 

authority. If the inspector of buildings or other authority receives the application, 

the application shall be immediately referred together with all required supporting 

materials that make the application complete to the commission. A permit shall not 

be issued and proposed work shall not proceed until the commission has acted on 

the application by issuing a certificate of appropriateness or a notice to proceed as 

prescribed in this act. [MCL 399.205(1) (emphasis added).]

At first glance, MCL 399.205(1) appears to grant the Commission discretionary authority 

whether to issue a certificate of appropriateness or a notice to proceed in response to an application 

requesting permission to demolish a resource within a historic district. This comports with 

petitioner’s view of the case. Petitioner’s argument, however, ignores that along with defining 

general terms like “work” and “resource,” MCL 399.201a also specifically defines “certificate of 

appropriateness” and “notice to proceed.” Subsection (b) of the statute defines “certificate of 

appropriateness” as “the written approval of a permit application for work that is appropriate and

that does not adversely affect a resource[,]” whereas Subsection (n) defines “notice to proceed” as 

“the written permission to issue a permit for work that is inappropriate and that adversely affects 

a resource, pursuant to a finding under [MCL 399.205(6)].” See MCL 399.201a(b) and (n)

(emphasis added). Reading MCL 399.205(1) in conjunction with these definitions, it is plain that 

the Commission does not have absolute discretion to decide whether to issue a certificate of 

appropriateness or a notice to proceed. Instead, whether one or the other is issued is contingent on 

the type of work for which the permit is sought.

Here, petitioner sought to demolish the house and garage at issue. Given the definitional 

differences between a certificate of appropriateness and a notice to proceed, we are of the opinion

that demolishing a resource would “adversely affect” the resource. MCL 399.201a(n). However, 

the LHDA does not define “inappropriate,” nor does it define the phrase “adversely affects a 

resource.” When a statute does not define words or phrases, this Court may rely on dictionary 

definitions to ascertain their plain and ordinary meaning. Ford Motor Co v Dep’t of Treasury, 313 

Mich App 572, 584; 884 NW2d 587 (2015). “Inappropriate,” means “unsuitable.” MerriamWebster’s College Dictionary (11th ed). “Adverse,” or “adversely,” is defined as “acting against 

or in a contrary direction,” or “opposed to one’s interests.” Id. “Affect” means to “produce an 

effect upon” something. Id. Thus, for work to be “inappropriate and . . . adversely affect a 

resource,” then, means the work is unsuitable and has a harmful effect upon a resource, be it 

historic or nonhistoric. Complete destruction of a resource, i.e., “demolition,” MCL 399.201a(e), 

is by definition harmful to a resource. Consequently, we conclude that under the plain language 

of the applicable statues, it is necessary for the Commission to issue a notice to proceed when an 

applicant seeks to totally demolish a resource within a historic district. Accordingly, neither the 

circuit court nor the Review Board erred by concluding that MCL 399.205 required petitioner to 

meet the requirements for issuance of a notice to proceed.
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Petitioner tangentially argues that the Review Board erred by remanding for consideration 

under the notice to proceed standard when both the certificate of appropriateness and notice to 

proceed standards consider community interest. According to petitioner, because the Commission 

had fully vetted community interest in the certificate of appropriateness proceedings, the remand 

was an abuse of discretion. However, petitioner fails to explain how any language in the statute 

pertaining to issuance of a certificate of appropriateness, MCL 399.205(3), requires that 

community interest must be considered. Indeed, nowhere does that provision specifically 

reference community interest; instead, it directs that a commission shall “follow the United States 

secretary of the interior’s standards for rehabilitation and guidelines for rehabilitating historic 

buildings, as set forth in 36 C.F.R. part 67.” MCL 399.205(3). Petitioner attempts to argue that 

the Commission considered community interest when it applied the secretary of the interior’s 

standards. Yet, again, petitioner fails to highlight any provision of the secretary of the interior’s 

standards requiring consideration of community interest. Petitioner also does not provide any 

record citations in support of his argument. Accordingly, we consider this argument abandoned. 

See Wilson v Taylor, 457 Mich 232, 243; 577 NW2d 100 (1998) (“It is not sufficient for a party 

simply to announce a position or assert an error and then leave it up to this Court to discover and 

rationalize the basis for his claims, or unravel and elaborate for him his arguments, and then search 

for authority either to sustain or reject his position.”).2 Ultimately, the circuit court did not clearly 

err by upholding the Review Board’s remand order requiring petitioner to proceed under the notice 

to proceed standard of MCL 399.205(6).

B. THE ALJ’S REMAND TO THE COMMISSION

Petitioner next argues that the ALJ erred by remanding the matter to the Commission for 

reconsideration of petitioner’s application under the notice to proceed standard. We disagree.

After remand from the Review Board, the ALJ ordered supplemental briefing and held a 

hearing on whether the ALJ or the Commission should issue a decision on a notice to proceed. 

The ALJ ultimately entered an order remanding the matter to the Commission, finding it was in a 

“particularly unique position” to opine on the interest of the majority of the community. The order 

directed the Commission to evaluate the application and issue or deny a notice to proceed after 

making “separate and specific findings and tak[ing] separate votes as to each of the subparagraphs 

(a) through (d) of MCL §399.205(6).” On appeal, the circuit court concluded that the ALJ did not 

err by remanding the matter to the Commission because the Commission failed to consider the 

specific criteria applicable to a notice to proceed, and petitioner had not yet made a “cogent 

 

2 Petitioner raises several other issues, including allegations that the Review Board’s remand under 

the notice to proceed standard was motivated by a nefarious intent to save the resource and also to 

ferret out petitioner’s future plans for the property, and that this entire issue is unpreserved because 

respondents never argued below that the notice to proceed standard should have been applied. The 

former issue has been abandoned because petitioner failed to support it with law or citation to the 

record, see Wilson, 457 Mich at 243. The latter is equally without merit because petitioner cites 

no law in support of the notion that the Review Board is prohibited from ruling on a basis different 

than that specifically raised by the parties. Accordingly, we decline to address the merits of either 

issue.
-9-

argument as to why [the ALJ] should have made a decision on facts that were not yet part of the 

Appeal.”

The ALJ and the circuit court reached the correct result here. In the initial proceedings, 

the Commission did not consider the statutory requirements for granting a notice to proceed. It 

failed to make any of the required findings under MCL 399.205(6), and moreover, petitioner’s 

proofs were not specifically tailored toward this provision. Recall that MCL 399.205(6) provides:

Work within a historic district shall be permitted through the issuance of a 

notice to proceed by the commission if any of the following conditions prevail and 

if the proposed work can be demonstrated by a finding of the commission to be 

necessary to substantially improve or correct any of the following conditions:

(a) The resource constitutes a hazard to the safety of the public or to the 

structure’s occupants.

(b) The resource is a deterrent to a major improvement program that will be 

of substantial benefit to the community and the applicant proposing the work has 

obtained all necessary planning and zoning approvals, financing, and 

environmental clearances.

(c) Retaining the resource will cause undue financial hardship to the owner 

when a governmental action, an act of God, or other events beyond the owner’s 

control created the hardship, and all feasible alternatives to eliminate the financial 

hardship, which may include offering the resource for sale at its fair market value 

or moving the resource to a vacant site within the historic district, have been 

attempted and exhausted by the owner.

(d) Retaining the resource is not in the interest of the majority of the 

community.

Comparatively, MCL 399.205(3), pertaining to issuance of a certificate of appropriateness, directs 

the Commission, in part, to “follow the United States secretary of the interior’s standards for 

rehabilitation and guidelines for rehabilitating historic buildings, as set forth in 36 C.F.R. part 67.” 

Having reviewed the transcripts of the initial hearings and the original order denying petitioner’s 

application, it is evident that the Commission was focused on the secretary of the interior’s 

standards, not the criteria for determining whether to issue a notice to proceed.

In short, there was no evidence, and no findings or a decision, relative to a notice to proceed 

for the ALJ to either review or make his own decision. Just as remand is proper when a trial court 

applies an incorrect standard or when the record is insufficient to allow meaningful appellate 

review, remand is also appropriate here because the ALJ could not guess whether the Commission 

would have reached the same result under the proper standard. Cf. Woodington v Shokoohi, 288 

Mich App 352, 357; 792 NW2d 63 (2010); Elazier v Detroit Non-Profit Housing Corp, 158 Mich 

App 247, 250; 404 NW2d 233 (1987).

On appeal, petitioner vigorously asserts that community interest in retaining the property 

had been “fully vetted” at the initial proceedings and thus that the ALJ’s remand was improper. 
-10-

But petitioner ignores the portions of the record in which evidence of community interest was 

proffered during the certificate of appropriateness proceedings. See MCR 7.212(C)(7). 

Notwithstanding that this failure constitutes abandonment of its argument, Wilson, 457 Mich 

at 243, a review of the Commission hearings offers no indication that petitioner presented evidence 

specific to the notice to proceed standard, including evidence of community interest. Instead, the 

Commission discussed its options, addressed concerns pertaining to whether the buildings could 

be deemed historical and how petitioner’s future use of the property could affect the historic 

district, and ultimately voted to deny the application. In fact, there was some public testimony 

indicating opposition to demolition during these hearings. Given the absence of any evidence on 

the record relevant to the notice to proceed standard, the ALJ obviously could not make a legally 

supportable decision about whether to issue a notice to proceed. Moreover, petitioner has not cited 

any authority to support the contention that the ALJ, under factually similar circumstances, should 

have made this decision, as opposed to the Commission. Given petitioner’s failure to cite 

authority, lack of citation to relevant portions of the record, and its failure to adequately explain 

how it would have prevailed had the ALJ not remanded the matter to the Commission, we reject 

in its entirety petitioner’s argument that the ALJ erred by remanding the matter to the Commission.

C. THE SUBSTANTIAL EVIDENCE STANDARD

Finally, petitioner argues that the Review Board erred in adopting the ALJ’s revised ruling

because substantial evidence indicated that there was no community interest in preserving the 

property. We again disagree.

From the outset, petitioner suggests that the Commission, in determining whether to issue 

a notice to proceed under MCL 399.205(6), was required to consider historic preservation issues 

related to the property. Petitioner is incorrect. Nothing in any of the criteria justifying a notice to 

proceed specifically requires the Commission to consider whether the resource at issue is historic 

or nonhistoric. Petitioner, therefore, has failed to establish any error in this regard.

Petitioner otherwise argues that the Commission failed to provide reasons to support its 

decision. The record belies petitioner’s claim. The Commission specified that it was denying 

petitioner’s application for a notice to proceed because petitioner failed to meet its burden of proof. 

Mainly, the Commission found that petitioner “failed to demonstrate, pursuant to MCL 399.205 

(6) a, b, c, or d [sic], that removing the resource . . . is necessary to substantially improve any 

condition in the historic district, and that removing the resource is not in the best interest of the 

majority of the community.” Consequently, the Commission did provide reasons supporting its 

decision denying the notice to proceed, and petitioner’s argument fails.

Petitioner additionally asserts that the Commission’s decision was wrong because 

substantial evidence indicated there was no community interest in preserving the property. 

Specifically, petitioner asserts that lack of community interest in retaining the property is reflected 

in the fact that (1) there was no public opposition to demolition during the initial proceedings for 

a certificate of appropriateness; (2) the historic district had not been updated since 1980 to include 
-11-

the subject property; and (3) the Commission had not offered petitioner an economically feasible 

alternative plan for the property that would preserve it under MCL 399.205(5).

3

Petitioner did not make any of these arguments or attempt to establish proofs in support of 

these claims at the remand hearing held before the Commission. Instead, petitioner made 

arguments irrelevant to the notice to proceed requirements and presented no witnesses or 

documentary evidence to support issuance of a notice to proceed under MCL 399.205(6)(d). For 

example, petitioner argued at the hearing that the Commission had not provided any compelling 

reasons why the structures had to be preserved. This argument was a red herring: Petitioner, not 

the Commission, bore the burden of proof to establish that preserving the structures was not in the

interest of the majority of the community. Bunce v Secretary of State, 239 Mich App 204, 216; 

607 NW2d 372 (1999). Similarly, petitioner argued that because the buildings are not historical, 

there was “no historical interest” for the majority of the community to retain them. 

However, as previously explained, whether a specific structure in an area designated as a 

“historic district” is historical is not the proper question in determining whether a notice to proceed

should be issued. The question is whether the structure is a “historic resource” or a “resource”, 

under MCL 399.201a(l) and (s). If it is either, then the notice to proceed process of MCL 

399.201a(n) and MCL 399.205(6) apply. 

Absent the arguments proffered, petitioner did not otherwise provide any proofs to show 

that the majority of the community had no interest in retaining the structures. Furthermore, at least 

three citizens made public comments opposed to demolition of the structures at the Commission 

remand hearing. Consequently, having reviewed the record, we conclude that the Commission 

reasonably decided that petitioner failed in its burden of proof to establish that “[r]etaining the 

resource is not in the interest of the majority of the community.” MCL 299.205(6)(d).

In sum, the Commission reasonably concluded that petitioner had failed to present any 

evidence warranting the issuance of a notice to proceed, and neither the ALJ nor the Review Board 

erred by adopting that decision. In turn, the circuit court’s decision to affirm the Review Board’s 

decision does not evince a misapplication of the substantial-evidence test. Accordingly, petitioner 

has not presented any basis on which to displace the Commission’s finding that petitioner failed 

to meet its burden of proof to show entitlement to a notice to proceed.

 

3 MCL 399.205(5) provides:

If an application is for work that will adversely affect the exterior of a 

resource the commission considers valuable to the local unit, state, or nation, and 

the commission determines that the alteration or loss of that resource will adversely 

affect the public purpose of the local unit, state, or nation, the commission shall 

attempt to establish with the owner of the resource an economically feasible plan 

for preservation of the resource.
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IV. CONCLUSION

Petitioner has failed to show error requiring reversal of the ALJ’s ruling, and moreover, 

has not shown that the circuit court abused its discretion in affirming said ruling. Accordingly, we 

affirm.

/s/ Michelle M. Rick 

/s/ James Robert Redford 

/s/ Kirsten Frank Kelly