Opinion ID: 1844344
Heading Depth: 1
Heading Rank: 1

Heading: May 1, 1990 DECISION:

Text: We begin with the May 1, 1990 decision by the Planning Commission later adopted by the Board. The circuit court found there was sufficient information in the record to support the Board's conclusions. We agree. The Commission/Board first concluded the area involved was primarily residential and would be adversely impacted by the additional traffic, noise and other problems associated with commercial usage, and thus, the proposed use would be injurious to the use and enjoyment of other residential properties in the neighborhood. The Olsons' plan for the motel complex consisted of a twenty-four-hour-a-day operation, including a restaurant, gift shop and lounge. The City Planner and several area residents testified this activity would be injurious to the residential character of the neighborhood because of increased traffic and activity in what was essentially a residential neighborhood. Throughout these proceedings, various opponents and proponents of the project expressed their views. An appraiser testified that property values in the vicinity would not be adversely affected by the proposed project. Nonetheless, many area residents testified that they were concerned with increased traffic likely to be caused by the project and lack of access other than through residential streets. Apparently, traffic problems were already being created with regard to earthwork being done on the Olson property. Area residents were concerned increased traffic would cause danger to children playing in the neighborhood. In addition, although the motel would have had ample parking for its guests, no parking was available for employees which meant they would have to park either in the city lot, exacerbating an already existing parking shortage, or along residential streets causing increased congestion there. The second reason expressed by the Board for denying the permit was the inadequacy of access. After the Planning and Zoning Commission went into session, it became apparent another but related concern about the project was traffic problems caused by lack of access to the site by means other than residential streets. It was known to all concerned that access to the project required opening Fargo Street, which was platted at 18.5 feet. The Olsons presented information at the hearing that the proposed street would be able to handle two-way traffic, although it would not allow for any parking. However, the City Planner stated, in his opinion, Fargo Street, even if opened, would not provide sufficient access. Although other streets in Deadwood are as narrow as Fargo Street would have been, newer streets are required to be platted at fifty feet (because Fargo Street was platted in the 1800's, this requirement does not apply). The City did not desire to open Fargo Street, as it did not want to be liable for maintenance and safety in the event the Olsons went out of business. We specifically note the City's unwillingness to open Fargo Street or accept liability for it once the street was opened. See SDCL 11-3-12 (1982) (No governing body shall be required to open, improve, or maintain any... dedicated street ... solely by virtue of having approved a plat or having partially accepted any ... dedication, donation or grant.); SDCL 11-3-12.1 (1982) (approval of proposed access required prior to filing plat of proposed development). In addition, at the time the May 1990 hearing was commenced, the City was planning to build a fire hall at the location of Fargo Street. The City Planner stated the use of Fargo Street for access would impede normal and orderly development of the City's surrounding property and in the City's construction of the proposed fire hall. He also stated the site was not suitable for the project absent extensive engineering. Finally, the Board reasoned access on Fargo Street was infeasible because of the confusion and congestion it felt would be created by the location of the narrow street adjacent to a municipal parking lot. In small towns, city officials have the experience and competence to assess impact on property values and to weigh and assess similar values without relying on experts to determine whether or not a use is in harmony with the zoning ordinance and master plan. White Bear Docking, 324 N.W.2d at 177. Here, city officials utilized their experience and, in conjunction with testimony from area residents, concluded the proposed motel would have an adverse impact on the surrounding residential neighborhood. In addition, the Board concluded the proposed access was inadequate. Based on the above, we conclude there was sufficient factual support for the conclusions reached by the Board in its May 1990 hearing. [4] The Olsons argue the City failed to acknowledge the portion of the City's comprehensive plan which discusses the area east of Spring Creek within the city limits. According to the trial court's November 1990 memorandum opinion and the Olsons' brief, the Comprehensive Zoning and Subdivision Plan of the City of Deadwood (Report No. 3) of 1971, places the Olsons' property in planning area number four. The report states: This area lies east of Spring Creek within the City limits. It is proposed that cluster like development with a commercial motel-hotel district be encouraged. The new parks should be created to form a scenic break between the rodeo grounds and the campground. Another park is also proposed south of rodeo grounds and near the creek. Thus, the Plan encourages development in a cluster-like manner with a commercial motel/hotel district. A comprehensive plan must be complied with when zoning regulations are promulgated. SDCL 11-4-3 (1982). The statute does not refer to use-on-review applications. Here the city ordinance, by allowing commercial development on a use-on-review basis, is consistent with the comprehensive plan. However, before a developer is entitled to a permit, the city ordinance requires the Board to find the proposed use will not offend the ordinance's prerequisites; that is, the proposed use may not be injurious to the use and enjoyment of other property in the immediate vicinity ... for the purpose already permitted, and must have adequate utilities, access, ... and other necessary facilities. Cf. Save Centennial Valley Ass'n., Inc. v. Schultz, 284 N.W.2d 452, 457 (S.D.1979). The Olsons also argue, because the Board merely restated the sections of the ordinance which were offended and did not set forth findings of fact, the decision was arbitrary and capricious. We disagree. Unlike the situations presented in many of the cases cited by the Olsons, the city ordinance in question here does not require the Board to make findings of fact. We note a board of adjustment is not a state agency and, therefore, is not subject to the state administrative procedure and rules statutes. SDCL 1-26-1(1) (1991 Supp.). In the absence of [an ordinance requiring such], a board of adjustment is not required to include findings of fact or a statement of reasons for its decision. South Maple Street Association v. Bd. of Adjustment, 194 Neb. 118, 230 N.W.2d 471, 472 (1975). Accord Crane v. Bd. of Cty. Com'rs. of Sarpy Cty., 175 Neb. 568, 122 N.W.2d 520, 524 (1963); City of Detroit v. S. Loewenstein & Son, 330 Mich. 359, 47 N.W.2d 646, 649 (1951). But see Honn, 313 N.W.2d at 416 (municipal body must have reasons for its decision recorded in more than just a conclusory fashion); Citizens, Etc. v. Pottawattamie Cty. Bd. of Adjust., 277 N.W.2d 921, 925 (Iowa 1979) (imposing requirement, in dicta, that board make findings sufficient to enable a reviewing court to determine with reasonable certainty the factual basis and legal principles on which the board acted, despite absence of requirement in ordinance). We conclude the reasons set forth by the Board were sufficient. The city ordinance does not require more. Both the circuit court and this court have had no difficulty in reviewing the board's decision, the reasons stated and the record to determine a factual basis exists. We do not believe the May 1990 decision was unreasonable or arbitrary.