Opinion ID: 2520474
Heading Depth: 2
Heading Rank: 1

Heading: March 11, 2002 Approval Of The Conditional Use Permit Application

Text: Fischer argues that the action taken by the Commission on March 11, 2002, was a decision granting a CUP. That decision must be reversed, argues Fischer, because the application did not contain a certification from an Idaho licensed engineer, which is required pursuant to the Ketchum Zoning Code (KZC) § 17.92.010(D)(2) governing avalanche zone districts. The City denies any failure to comply with the procedural requirements of the Code and insists that the Commission has only approved the CUP application with conditions, including a condition that the engineer's certification is provided before the CUP will be granted and a building permit issued. Fischer contends that following the City's reasoning not only allows for the submission of the engineering certification to occur after the Commission's approval, but also she will be denied not only an opportunity to rebut the certification at the public hearing (I.C. § 67-6512(b)) but also obfuscates the final filing date for appeal or judicial review. KZC Section 17.92.010(D)(2) provides: Avalanche protective, deflective and preventative structures, devices or earthwork, which threaten to deflect avalanches toward the property of others or otherwise threaten to increase the danger to persons or property are prohibited. The construction of such structures, devices or earthwork shall be permitted only as a conditional use. Prior to granting of a conditional use permit, the applicant shall submit to the City plans signed by an engineer licensed in the state of Idaho, certifying that the proposed construction will withstand the avalanche forces set forth in the avalanche studies on file with the City and that the proposed construction will not deflect avalanches toward the property of others. Other information and engineering studies may be requested in consideration of an application for a conditional use permit. As a further condition of any conditional use permit, appropriate landscaping may be required where such structures, devices or earthwork alter the natural slope or beauty of the land. This shall not apply to reforestation. Alteration or removal of any existing natural barriers is prohibited. Id. (emphasis added). KZC Section 17.92.010(D)(3) provides: Prior to the issuance of building permit for any structure within the Avalanche Zone, except a single-family residence, the applicant shall submit to the Ketchum Building Inspector plans signed by an engineer licensed in the state of Idaho, certifying that the proposed construction will withstand the avalanche forces as set forth in the avalanche studies on file with the City, or the avalanche forces set forth in a study of the property in question prepared at the owner's expense and submitted to the City by a recognized expert in the field of avalanche occurrence, force and behavior. Id. (emphasis added). Fischer compares the language in the two sections, which in the first instance relates to the granting of a CUP and in the second instance relates to the issuance of a building permit. Fischer contends only the Commission may grant a CUP, which action is not ministerial in nature and is distinct from the issuance of a building permit. We agree. Under the Ketchum Zoning Code, conditional uses shall be allowed only upon the approval of the Commission, subject to such conditions as the Commission may attach. Such approval shall be in the form of a written permit. KZC § 17.116.010. See also I.C. § 67-6519 (providing for a procedure for processing applications for permits that are to be examined before the commission makes its decision on the permit or makes its recommendation to the governing board). Only when the application demonstrates that conditional use permit criteria have been satisfied, shall the Commission grant a conditional use permit. KZC § 17.116.030. When deciding whether to grant a CUP, the Ordinance requires the Commissioners to consider whether the application satisfies the general CUP criteria, as well as whether the proposed avalanche attenuation device threaten[s] to deflect avalanches toward the property of others or otherwise threaten to increase the danger to persons or property. See KZC § 17.116.030; KZC § 17.92.010(D)(2). The burden of persuasion is upon the applicant (Delmonte) to show that all of the above requirements were satisfied. Howard v. Canyon County Bd. of Comm'rs, 128 Idaho 479, 481, 915 P.2d 709, 711 (1996). After three public hearings and a site visit, the Commissioners found: The duplex is proposed to be constructed to withstand the forces of avalanches. The duplex is proposed to have a structural wall positioned mostly perpendicular to the flow of the design avalanche. . . . The Commission found that, in addition, the proposal would not otherwise threaten to increase the danger to persons or property.    The applicant will need to submit building permit plans which are stamped by the engineer certifying that the proposed construction will withstand avalanche forces set forth in the avalanche studies on file with the City and that the proposed construction will not deflect avalanches toward the property of others. The Commission found that the design and proposed construction of the building meets this standard only if the working drawings prepared for the building permit are certified by an engineer according to this standard. If the plans are not certified, the applicant does not receive a Conditional Use Permit or a building permit. The Commission found that if the applicant meets the conditions of approval, there will be no increase in danger to the neighborhood. The Commission thereafter concluded that the application complies with Ketchum Zoning Code Title 17 and the Ketchum Comprehensive Plan and approved the CUP application on February 25, 2002. The Commission attached to its decision approving the CUP a condition that the building permit plans shall be signed by an engineer licensed in the State of Idaho certifying that `the proposed construction will withstand the avalanche forces set forth in the avalanche studies on file with the City and that the proposed construction will not deflect avalanches toward the property of others.' Fischer argues that pursuant to Title 17, the Commission shall approve, deny or approve with conditions the application for a conditional use permit. KZC § 17.116.040. Fischer asserts that approval is the granting of a CUP, see KZC 17.116.050, challenging the City's position that it will grant the CUP upon receipt of the engineer's certification. We apply the same principles in construing municipal ordinances as we do in the construction of statutes. Friends of Farm to Market v. Valley County, 137 Idaho 192, 197, 46 P.3d 9, 14 (2002), (citing Cunningham v. City of Twin Falls, 125 Idaho 776, 779, 874 P.2d 587, 590 (Ct.App.1994)). Any such analysis begins with the literal language of the enactment. Ada County v. Gibson, 126 Idaho 854, 856, 893 P.2d 801, 803 (Ct.App.1995). All sections of applicable statutes must be construed together so as to determine the legislature's intent. Friends of Farm to Market, 137 Idaho at 197, 46 P.3d at 14, (citing Lockhart v. Dept. of Fish and Game, 121 Idaho 894, 897, 828 P.2d 1299, 1302 (1992)). In the instant case, Delmonte made a similar argument as that made by Mr. Daley, in Daley v. Blaine County that it is impractical and uneconomical to obtain an engineer's certification until the application is approved. In Daley v. Blaine County, 108 Idaho 614, 701 P.2d 234 (1985), the Supreme Court affirmed the Board of Commissioners' denial of a conditional use permit to erect a building for residential use in a flood plain management district. Daley challenged the denial and argued that he could not see going out and spending $500 to $800 to design a [mound] system that shows it can be done right, and then having the application denied anyway. Daley, 108 Idaho at 616, 701 P.2d at 236. Because the application for the conditional use permit did not contain all necessary building specifications, or the specifications for sewer and water facilities, the Court determined that serious questions remained unanswered by the applicant, justifying the Commissioners' decision to deny the conditional use application. Id. The CUP application in Delmonte's case does not include an engineer's report to ensure that the avalanche attenuation device will meet the standard of the ordinance, and approval of the application without the required certification avoids compliance with the ordinance. The Commission cannot issue findings of fact supporting compliance with its ordinance without the certification of a licensed engineer to the fact that the ordinance's underlying requirements have been met. Without the certification of the licensed engineer at the public hearings leading to the issuance of the conditional use permit, the interested public has no meaningful chance to comment on the CUP's impact on community or other facts affecting surrounding property. The Commission's two-step process of approval with conditions prior to granting the CUP, nullifies the importance of the statutory public hearing required under I.C. § 67-6512(b). In the system which exists now, the conditions of the Commission's approval are referred to staff. Staff then makes the decision as to whether the conditions have been met and refers the matter back to the Commission for final granting of the CUP. In doing so there is no chance for public comment on the final granting of the CUP. Idaho Code § 67-6512(e) specifically contemplated that further studies may be ordered but those must be done prior to granting the CUP. Again, the interested parties right to a public hearing is weakened or possibly nullified if those studies are not completed prior to the public hearing. The Ketchum zoning ordinances show only the Commission may grant a CUP, not the staff. By I.C. § 67-6512 the CUP can only be granted, denied, or granted with conditions by the Commission. Ketchum further argues Fischer has failed to timely file the notice of appeal from the Commission. It is clear the Commissions approval of Dalmonte's CUP was a final appealable order, thus implying it was a granting of the CUP pursuant to I.C. § 67-6512. In Canal/Norcrest, Columbus Action Committee v. City of Boise, 136 Idaho 666, 668, 39 P.3d 606, 608 (2001), the issue presented to the Court was whether the approval of the conditional use permit was a final action by the city. The Court inquired into whether further action by the Board or the City is required determines the finality of the approval for appeal purposes and held: The approval of the conditional use permit by the City in this case provides that the developer obtain the necessary permits to begin construction, including the design review approval. Only if the developer fails to comply with the stated conditions of the permit will the Council be required to take further action on the permit and consider revocation. [The Court held] that the City's approval of the conditional use application is a final, appealable decision subject to judicial review. Id. at 671-72, 39 P.3d at 610-11. (internal citations omitted). It has previously been held the date on which the decision is made corresponds to the date of the written findings, conclusions and order, which starts the time for filing an appeal. See White v. Bannock County Comm'rs, 139 Idaho 396, 80 P.3d 332 (2003). Here, Fischer properly filed the notice of appeal from the decision of the Commission, which the City of Ketchum is asserting is merely the approval of the CUP. Because the Court has found the Commission failed to properly grant a Conditional Use Permit the other issues presented are moot.