Opinion ID: 2601845
Heading Depth: 2
Heading Rank: 2

Heading: adoption of a new zoning classification is per se legislative action

Text: ¶ 14 While we accept the trial court's findings of fact, its legal conclusions are more troublesome. The Mapleton City Council wished to increase the density of development allowed on a portion of a previously protected zone. It also wished to change its policy to allow for the possibility of structures on previously unbuildable slopes. The fact that Mapleton needed to create a new zoning classification in order to accomplish these ends strongly suggests that the zoning change does not comport with the general purpose and policy of the original ordinance. Citizen's Awareness Now v. Marakis, 873 P.2d 1117, 1124 (Utah 1994). ¶ 15 Previously, the failure of this second element of the Marakis test would have triggered a presumption that Mapleton's action was legislative, requiring the court to consider the final two elements [of the test], material variance and appropriateness of voter participation. Id. In our effort, however, to facilitate appropriate citizen action while not unduly fettering the activities of municipal government, we continue to adjust our approach to the legislative/administrative determination based on the concerns brought before us in the cases. We now hold that the adoption of a new zoning classification is per se legislative action. Indeed, such action requires a balancing of policy and public interest factors which is the essence of legislating. We contemplate that this bright line rule will reduce confusion in this area of the law and put municipalities on clearer notice of when they are choosing to act legislatively as opposed to administratively. ¶ 16 As we clarify today, the adoption of a new zoning classification consists of the creation of a zoning option that did not previously exist. It is changing the range of available zoning categories versus fitting pieces into the existing zoning categories. ¶ 17 On the other side of the coin, when a municipality acts to adjust an existing zone, it more likely acts administratively. Adjustment of the existing zone includes routine changes such as variances, conditional use, and density changes. Action within the framework of the existing zone may still require some Marakis analysis, primarily in cases where the city is attempting to affect a change outside of the routine. ¶ 18 In enacting the PD-2 zone, Mapleton created a new zoning categoryone designed to apply exclusively to the Gibby property. It differs from the existing CE-1 zone in that, most notably, density has been increased and building restrictions on steep slopes have been loosened. However, the salient point is that Mapleton accomplished these changes by creating a new zoning classification rather than by adjusting the existing zone. Mapleton's action is therefore legislative and subject to referendum.