Source: http://masscases.com/cases/sjc/311/311mass52.html
Timestamp: 2019-04-22 18:38:57+00:00

Document:
JOHN G. BRACKETT, trustee, vs. BOARD OF APPEAL OF THE BUILDING DEPARTMENT OF BOSTON & another.
Present: FIELD, C.J., DONAHUE, DOLAN, & COX, JJ.
A variance granted under Section 19 of the zoning law of Boston, St. 1924, c. 488, to the proprietor of a hotel permitting him to use a nearby lot owned by him and located in a general residence district for the parking of his patrons' automobiles "until such time as" he could "propitiously develop the lot for the purpose for which it is zoned," was not justified by the facts that use of the lot for a hotel and certain other buildings allowed in that district by Section 4 of the zoning law was prevented by an equitable restriction permitting its development by a single family residence only, that the juxtaposition of a local business district made such development impractical, that the trend of real estate in the vicinity was away from such residences, and that the proprietor had purchased the lot in good faith "to take care of" his "serious parking problem," thinking that he could go through the proper channels to get permission for use of it for that purpose.
Under Section 19 of the zoning law of Boston, St. 1924, c. 488, "practical difficulty or unnecessary hardship" must pertain to the premises for which the variance is sought, not other premises owned by the same person.
PETITION for a writ of certiorari, filed in the Superior Court on February 24, 1941.
The case was heard by Fosdick, J.
J. G. Brackett, pro se.
K. Hern, Assistant Corporation Counsel, (J. W. Kelleher, Special Assistant Corporation Counsel, with him,) for the respondent board.
ordered dismissed "as a matter of law and not as a matter of discretion," and the petitioner alleged exceptions. The Sheraton, Inc., a corporation, was joined as a respondent, but no question is raised as to the propriety of the order of the Superior Court dismissing the petition as to it. The question presented is whether the respondent board exceeded its authority.
licensed as a garage by section fourteen of chapter one hundred and forty-eight of the General Laws, is licensed as provided in paragraph (9)" by the board of street commissioners. It appears that the lot in question is in a general residence district that permits structures to be erected to a height of eighty feet, "and to be used for general residence purposes as enumerated under the provisions of Section 4, chapter 488, Acts of 1924, as amended." In a proceeding of this character only errors of law apparent upon the face of the record can be reviewed. Findings of fact are not open to revision. Bradley v. Zoning Adjustment Board of Boston, 255 Mass. 160, 163. Primarily, it is a question of fact whether the action of the board of appeal is warranted, although it may become a question of law. Norcross v. Board of Appeal of Boston, 255 Mass. 177, 186.
Statute 1924, c. 488, Section 19, provides that the board of appeal, as provided for in the building law of the city of Boston, may vary the application of the zoning law of the city "in specific cases wherein its enforcement would involve practical difficulty or unnecessary hardship and wherein desirable relief may be granted without substantially derogating from the intent and purpose of . . . [the law], but not otherwise." No question is raised as to compliance by the board with requirements as to notice or as to the unanimity of its vote in rendering its decision. The power of the board of appeal to authorize a variance is the same as that conferred upon the board of appeals under G. L. (Ter. Ed.) c. 40, Section 30, inserted by St. 1933, c. 269, Section 1.
adequate findings. Prusik v. Board of Appeal of Boston, 262 Mass. 451, 457-458.
through the proper channels in order to get relief to permit the parking of only its patrons' cars with no fee attached to same. . . . The Board has in mind the problem of a hotel situated in a general residential district located on one of the busiest thoroughfares in that section of the City of Boston, and it has in mind the close proximity of the Local Business Boundary Line to the premises here in issue, as well as the hardship involved in being unable to advantageously develop, or in any way to make productive, the lot for the purpose for which it is zoned; therefore, the Board finds that temporary relief should be granted . . . [the corporation] until such time as . . . [it] can propitiously develop the lot for the purpose for which it is zoned." It is also found that the premises in question are plainly of the class usable for the type of occupancy requested and are peculiarly adapted for that purpose; that public necessity and public safety will be served by affording the requested off-street parking facilities which will tend to relieve dangerous traffic congestion and will confer a benefit to the neighborhood as it will tend to preserve, if not to enhance, real estate values in the general area, which tend to depreciate because of traffic and parking concentration. The board states that it is satisfied that the restricting of the premises in question to a residential district will not promote the health, safety, convenience and general welfare of the inhabitants of that part of the city, taking into account the natural development thereof and the character of the district and the resulting benefit to accrue to the whole city. It concludes, therefore, that the enforcement of the law in this specific case involves practical difficulty and unnecessary hardship, not only upon the corporation, but also upon the nearby property owners and upon the general public who constantly pass and repass this important section.
that an attendant be provided by the hotel, that the parking space be limited to its patrons and guests, that no fee be charged for parking, that shrubbery be planted on that part of the premises facing Bay State Road and Deerfield Street, and that the varying of the application of the zoning law be limited to March 1, 1943.
The governing principles of law relating to the power to authorize variances need not be repeated. The question to be decided is whether the facts set forth in the return warrant the conclusion that there ought to be a variance because (1) the enforcement of the law works "`unnecessary hardship' upon the landowner," and (2) desirable relief may be granted without substantially derogating from the intent and purpose of the law. Phillips v. Board of Appeals of Springfield, 286 Mass. 469, 471-472, and cases cited.
may grant a permit for physicians' and dentists' offices, "provided the building or use is not detrimental or injurious to the residential character of the neighborhood." (Section 4.) There is no finding of the board that the trend of real estate in the vicinity of the premises is away from general residences. The premises are zoned for the uses defined by said Section 4. The restriction, so long as it stands, prevents the owner from making use of the lot for the erection of buildings that would be otherwise permitted, and the zoning law, unless varied, prevents the use for the parking of automobiles to the extent that the variance seeks to permit. In view of the finding of the board that temporary relief should be granted the corporation until such time as it can propitiously develop the lot for the purpose for which it is zoned, it would seem that the board had in mind the disadvantage of the corporation arising from the restriction upon its lot, rather than any disadvantage attributable to the fact that the premises are zoned in a general residence district. In short, apart from the fact that the premises in question are restricted to a single family dwelling, there is no finding that there are any other conditions that render the premises unsuitable for residential and other uses permissible under the zoning law, and which apply generally to all other land in that particular zone. If there is a general hardship, this situation may be remedied by revision of the general regulation, and not by granting a special privilege of a variation to single owners. If the time has come, as to which, of course, we can express no intimation, that there should be modifications or changes of essential particulars of the scheme of the zoning law, as, for example, a change in the boundary lines of a district, the power to do this is reserved in narrow limits to the board of zoning adjustment under Section 20 of said c. 488. Norcross v. Board of Appeal of Boston, 255 Mass. 177, 185. Arverne Bay Construction Co. v. Thatcher, 278 N. Y. 222, 233.
purchased the premises "in good faith" in order to take care of its parking problem, thinking that it could go through "the proper channels in order to get relief to permit" parking of its patrons' automobiles. This is very different from findings that the corporation in good faith believed, at the time of the purchase, that the premises were in any other than a general residence district, or that there was any substantial reason why it, in common with all others, should not be charged with knowledge of what the public records and maps on file showed with respect to the zone in which the land lay. See Prusik v. Board of Appeal of Boston, 262 Mass. 451, 457. It is true that the board found that the premises in question abut a local business (L-80) district, but there is no finding that there is anything new about this. For all that appears, this particular district boundary line has long been established. There is no finding that there are any nonconforming premises anywhere in the district in which the premises are located. See Hammond v. Board of Appeal of Springfield, 257 Mass. 446, 448. In any scheme of zoning it would seem that the establishment of boundary lines may impose some hardship upon premises on that side of the line where the conditions as to use are more onerous, but if this results in a general burden upon premises so situated, the question whether there shall be a change in the boundary lines is not for the board of appeal to determine.
c. 204, Section 1 (a), hereinbefore set out. The predicament of the corporation appears to be an incident of the location of its hotel, something quite apart and distinct from its predicament as the owner of the premises in question that were purchased by the corporation "in order to take care of its parking problem," thinking it could go through the proper channels in order to get relief. In our opinion the "practical difficulty or unnecessary hardship" must relate to the premises for the benefit of which a variance is sought.
There is no occasion to repeat what has been said as to the meaning of the words "practical difficulty" or "unnecessary hardship." See Norcross v. Board of Appeal of Boston, 255 Mass. 177, 185; Prusik v. Board of Appeal of Boston, 262 Mass. 451, 457; Coleman v. Board of Appeal of Boston, 281 Mass. 112, 116-117; Phillips v. Board of Appeals of Springfield, 286 Mass. 469, 471-472; Leahy v. Inspector of Buildings of New Bedford, 308 Mass. 128, 132-133. No one factor determines the question of what is practical difficulty or unnecessary hardship, but all relevant factors, when taken together, must indicate that the plight of the premises in question is unique in that they cannot be put reasonably to a conforming use because of the limitations imposed upon them by reason of their classification in a specified zone. When this appears, the further question has to be determined, whether desirable relief may be granted without substantially derogating from the intent and purpose of the zoning law, but not otherwise.
We are of opinion that, upon this record, the board of appeal exceeded its authority in granting the variance for the reason that it does not appear that the enforcement of the zoning law involves practical difficulty or unnecessary hardship upon the corporation as owner of the premises for which a variance is sought. Accordingly, it is unnecessary to determine any other questions. See Phillips v. Board of Appeals of Springfield, 286 Mass. 469, 471.
a prior petition by the corporation for an allegedly similar variance that was denied by the board of appeal, and no account of the proceedings therein set out has been taken. No opinion is expressed as to the propriety of including in the return the record of these prior proceedings.
The petition as to The Sheraton, Inc. was rightly dismissed. There is no occasion for the writ of certiorari to issue to bring before the court a record of the board, inasmuch as it has been certified and included in the return. The exceptions are sustained and the case is remanded to the Superior Court where a writ is to issue to quash the proceedings. G. L. (Ter. Ed.) c. 249, Section 4.

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