Opinion ID: 1467748
Heading Depth: 1
Heading Rank: 2

Heading: The Department's Intervention and Objection

Text: Cardon argues that the Department may not intervene and raise an issue not addressed at the administrative level. We have previously held that the Department may intervene in a zoning appeal, as long as the intervention is timely. Dep't of State Planning v. Mayor of Hagerstown, 288 Md. 9, 415 A.2d 296 (1980). The parties agree that the intervention was timely but disagree as to the Department's right to raise a new issue on administrative appeal. Section 2(r), quoted in footnote 3, gives the Department the standing and all rights of a party in interest or aggrieved party ..., but these rights may be exercised only in accordance with applicable rules of procedure and law as they relate to the proceeding. The question, then, is whether a party in interest or an aggrieved party can attack the validity of a zoning ordinance in the appeal of a zoning decision which relied in part upon that ordinance. We hold they may. Article 66B, entitled Zoning and Planning, delineates the statutory law in zoning matters. Article 66B addresses, in separate subtitles, Zoning in Baltimore City (subtitle 2), and General Development Regulations and Zoning (subtitle 4). Section 4.08(a) establishes the right of an aggrieved party to appeal to the circuit court of the county in which the zoning decision was made. Similarly, Section 2.09(a) establishes the right of an aggrieved party in Baltimore City to appeal a zoning decision to the Circuit Court for Baltimore City. [4] In interpreting § 2.09, this Court has held that on appeal a party may attack the validity of a local zoning ordinance even though the issue was not raised below. Ellicott v. Mayor of Baltimore, 180 Md. 176, 23 A.2d 649 (1942). In Ellicott, local residents protested a variance granted by the Baltimore City zoning board, and then, on appeal to Baltimore City Superior Court, they attacked the validity of the ordinance which authorized the variance. The appellees argued that an attack on the statute must be raised by seeking an injunction in equity. Chief Judge Bond, writing for the Court, disapproved of this theory, noting that if separate action was required: the design of the statute and the ordinance would be departed from. Some persons interested in a municipal development, who might feel aggrieved within the meaning of the law, and are intended to be heard, taxpayers and others besides neighboring owners, for instance, could not contest the validity of the variation at all because they would not be able to show the peculiar injury necessary [for an injunctive action]. Bauernschmidt v. Standard Oil Co., [153 Md. 647, 139 A. 531 (1927)], supra. And questions of validity of the variation and of iregularities in the Board's action could not be heard together in one proceeding. The statute and ordinance are still capable of a construction that will permit raising the question of validity on the appeal; it is convenient for the court on appeal to hear questions as the original ordinance contemplated; to separate the questions we should be following strict logic to impose a disadvantageous practice; and that, we have concluded, should not be done. The contest of the varying ordinance may be heard on the appeal to the court, although not before the Board. Id., 180 Md. at 181, 23 A.2d at 651. See also Hartman v. Prince George's County 264 Md. 320, 324, 286 A.2d 88, 90 (1972); Poe v. Baltimore, 241 Md. 303, 307, 216 A.2d 707, 711 (1966); and Mayor of Baltimore v. Seabolt, 210 Md. 199, 206, 123 A.2d 207, 212 (1956). Because of the similar language contained in § 2.09(a) and § 4.08(a) of Article 66B, we hold, in accordance with Ellicott, that objections to the validity of a local zoning ordinance may be raised for the first time on administrative appeal. Cardon also contends that the validity of a comprehensive rezoning is an issue which cannot be raised in an administrative appeal pursuant to Md. Ann. Code (1957, 1983 Repl.Vol.), Art. 66B, § 4.08(a). In Bd. of County Comm'rs v. Stephans, 286 Md. 384, 408 A.2d 1017 (1979), we so held, and we reaffirm that holding today. While Cardon has correctly stated the law, its error lies in applying that law to these facts. In this instance, the validity of comprehensive rezoning was not attacked; the attack was made upon the validity of a local zoning ordinance. The Circuit Court, however, determined that, despite the Commissioners' expressed intent, comprehensive rezoning had occurred. This is not the same as a procedure in which the comprehensive plan itself is directly attacked. Therefore, Cardon's argument has no merit.