Opinion ID: 1751437
Heading Depth: 3
Heading Rank: 6

Heading: Zoning and Overall Planning

Text: Jackson contends that Madison failed to present evidence regarding the need for zoning and planning in the proposed annexation area, particularly as to Tract 1, therefore the chancellor's approval of the annexation as reasonable should be reversed and rendered as a matter of law. Madison asserts that the best planning can occur when an area is annexed prior to being fully developed, in order to provide for future infrastructure and services, and that the only logical planner and provider for the proposed annexation area is Madison, as no other entity has the ability to provide for the proposed annexation area now or in the foreseeable future.
Regarding zoning and overall planning, at the close of all evidence the chancellor found: In Tracts 2 and 3, we have basically subdivisions that are outgrowths of subdivisions that currently exist within the present corporate limits of the City of Madison; and those outgrowing subdivisions have, in the opinion of the court, based upon the evidence, been substantially developed or developed substantially  whichever  pursuant to the ordinances of the City of Madison. In other words, to a large extent it already exists in those areas, and to a certain extent in Tract 4, particularly Oak Ridge. There are other areas of Tract 4. I believe there is Kimwood and actually three others, I believe, the names of which escape me at the moment. But they are developing at this point, development already having begun and continuing, some of which meet some of the city's standards and some of which do not. There has been testimony from one individual objector, as I recall, concerning the need for traffic control in this area which might require some type of city planning. And if I remember correctly, that same witness testified that he had talked with county officials and had been advised that the county could offer him no further assistance than what they had offered in the past, which he felt to be inadequate. Due to the existence of septic tanks in the area, eventually sewer service will be required which, of course, will require certain elements of planning. The point has been made throughout the trial and also again reiterated during closing arguments that much can be said of the proposition that a city should do its planning on the front end  that is, to annex areas before it's too late. You have certain areas of Tract 4 and Tract 1 that would fit into that category, Tract 4 in particular. Tract 4 is so connected with the City of Madison, it is so located, that the possibility of it being connected with any other city is, to say the best, remote. In all probability, in fact and in actuality it will at some point in time be a part of the City of Madison and certainly will be in need of city planning and zoning. Tract 1 presents a little different situation, and one element that the court cannot disregard, with respect to the western portion, is that the western portion is owned basically by two owners, both of whom are requesting this annexation. Strange as it may seem, they're requesting more government control. Madison is certainly a different community, different from the norm in this state; and there are those, obviously, who see that as a great advantage. But for whatever reasons, they are requesting that they be included in the annexation. With the completion of the parkway, with the building of the new school, this area will certainly see a great deal more traffic and inflow of population; and therefore there will be the need for some type of planning and zoning in the area. The argument is made in the westernmost portion, the Madison Hills development, that there is no need for city controls out there as far as planning and zoning. That argument is two-fold. One is that the county provides similar-type services, and two, that if the property is developed by Mr. Brown and Mr. Cheramie, it will be top drawer and you need not worry about it. The problem the court has with those two arguments are, one, that Mr. Brown and Mr. Cheramie may well develop the entirety of that project; but the chances of that are slim to remote. Again, the property was not purchased with that intent. Mr. Cheramie testified that the intent all along was to purchase the property, sell off parts of it for other development, and for he and Mr. Brown to develop the residential lots. It is possible that in selling the property Mr. Brown could do it in such a fashion as to require that any construction meet city standards. It is also possible that that would not be done. It is also possible that if you had enough money you could buy it today and put a racetrack out there. They bought it to sell. They bought it for a profit. That is the goal; that is the purpose. The property will develop. When you have that much money invested in it, it is not a religious experience. Having considered the testimony in its totality, having personally viewed the area and reviewed the exhibits that have been introduced here in this courtroom, the court is of the opinion that when considering the needs of the four tracts for zoning and overall planning that could be offered by the City of Madison, that evidence suggests the reasonableness of the annexation.
Unlike the situation presented by most annexation cases, the proposed annexation area in the case at issue had the benefit of zoning, planning, a comprehensive plan, subdivision regulations, building and permit procedures and inspections, and other land use controls, courtesy of Madison County. Mayor Hawkins claimed the county zoning and building codes compared unfavorably to Madison's codes and enforcement. Tract 1 consists of three basic areas: the Lake Castle area, Madison Central High School, and a 625 acre parcel owned by J. Army Brown. Although Brown's associate, L.C. Cheramie, testified that he and Brown planned top quality development, as the chancellor noted, this assurance may not be adhered to by future owners. [6] Cheramie claimed the proposed annexation area needed city zoning and planning to provide for controlled growth and to maintain property values. Nonetheless, all infrastructure for the Madison Hills area had been planned to comply with city requirements and cost estimates were complete. Madison, at the time of the trial, employed no professional planning staff and no zoning administrator. As of trial, Madison offered no planning or zoning services for the proposed annexation area which were not offered by Madison County, the Central Mississippi Planning and Development District, or the private consultants used by Madison County. Madison did have an official comprehensive plan in compliance with the law. Hal Ellison, a member of Madison's planning committee, testified that the proposed annexation area needed the benefits provided by Madison's zoning, despite the zoning ordinance provided by Madison County, because Madison's zoning ordinance would preserve low density development and prevent incompatible land use. Lusteck testified that Madison's approach to planning and zoning provided more detail, control, and participation than that available through the Madison County program. There was also evidence presented that Madison offered better enforcement of its zoning ordinance than did the county. W.F. Dearman, Jr., a civil engineer and land developer, testified that county zoning regulations and subdivision regulations were adequate. Corinne Fox agreed.
The projected need for municipal services in areas under development at the time of trial and for areas still in the planning stages of development at the time of trial will require planning in order to provide such services in a timely manner. It seems that the chancellor considered this, as well as all other evidence presented, in finding that this factor weighs in favor of reasonableness. Naturally, the evidence was conflicting; accordingly, the chancellor's finding cannot be disturbed.