Opinion ID: 200247
Heading Depth: 2
Heading Rank: 1

Heading: Substantial Evidence Attack on ZBA Decision

Text: 18 Second Generation argues that the ZBA's decision is not supported by substantial evidence and so is invalid. The substantial evidence test is highly deferential to the local board. See Penobscot Air Servs., Ltd. v. Fed. Aviation Admin., 164 F.3d 713, 718 (1st Cir.1999). As Southwestern Bell Mobile Systems, Inc. v. Todd, 244 F.3d 51 (1st Cir.2001), explains: 19 The substantial evidence standard of review is the same as that traditionally applicable to a review of an administrative agency's findings of fact. Judicial review under this standard, even at the summary judgment stage, is narrow.... Substantial evidence is such relevant evidence as a reasonable mind might accept as adequate to support a conclusion.... [T]he possibility of drawing two inconsistent conclusions from the evidence does not prevent an administrative agency's finding from being supported by substantial evidence. 20 Id. at 58 (internal quotations omitted). In conducting substantial evidence review, a reviewing court normally considers only evidence contained in the administrative record (i.e., the evidence presented to the ZBA). See Nat'l Tower, LLC v. Plainville Zoning Bd. of Appeals, 297 F.3d 14, 20-21 (1st Cir.2002). 21 In order to qualify for a variance under New Hampshire law, the landowner must show that meeting the normal zoning requirements poses an unnecessary hardship. Olszak v. Town of New Hampton, 139 N.H. 723, 661 A.2d 768, 771 (1995). 6 Under New Hampshire law, applicants must meet a three-prong test to establish unnecessary hardship: 22 (1) a zoning restriction as applied to their property interferes with their reasonable use of the property, considering the unique setting of the property in its environment; (2) no fair and substantial relationship exists between the general purposes of the zoning ordinance and the specific restriction on the property; and (3) the variance would not injure the public or private rights of others. 23 Simplex Techs., Inc., 766 A.2d at 717. The ZBA found that Second Generation did not meet any of the prongs. It explained that the land, given its unique setting, could reasonably be used for the residential purposes for which it was zoned and that there was a fair and substantial relationship between the ordinance and the restriction on the property because the ordinance prohibits obtrusive commercial uses from infiltrating the residential zone. 24 Both of these determinations are amply supported by substantial evidence. There was considerable, unrebutted evidence that Second Generation's land is well suited for developing housing and that if Second Generation were granted a variance, then inhabitants of the aptly-named Scenic View Drive would look out over the top of a cell tower. The district court correctly characterized the administrative record as showing: 25 The area [abutting the proposed tower] has no towers or other non-conforming commercial uses. Roads in the area are not lit by street lamps. Moreover, the property is located in a section of town that is prized for its spectacular views of the surrounding countryside. Several of the residences that would be affected by the proposed tower have deed restrictions protecting their views. Further, while only a limited number of existing residences would have a view of the tower, it is unclear whether it would also impair the views of any of the homes that are likely to be built in several proposed subdivisions in the area. 26 Second Generation, 2002 WL 1018923, at . In such a pristine (residential) setting, a 250-foot tower would be an obtrusive (commercial) use. 27 Second Generation protests that this court may only look to the Board's statements, and not to the district court's characterization. Second Generation confuses two different doctrines. This is not an instance in which the Board is improperly attempting to justify its decision in court on different grounds than it gave in its written decision. Nat'l Tower, 297 F.3d at 21. Instead, this is simply an instance in which the district court reviewed the record developed by the Board and provided more detail than did the Board in its decision. That is entirely in accordance with the Act. Local zoning boards are lay citizen boards, and while their decisions must be in writing, the boards need not make extensive factual findings in support of their ultimate decision. S.W. Bell Mobile Sys., Inc., 244 F.3d at 59-60. The findings here are sufficient to permit judicial review, and that ends the challenge.