Opinion ID: 1927000
Heading Depth: 1
Heading Rank: 4

Heading: the comprehensive land use plan

Text: [¶ 20] Adelman further argues that the amendments to Baldwin's Land Use Ordinance that added communications towers as a conditional use in the highlands and rural areas are inconsistent with Baldwin's Comprehensive Plan. The Town and WMTW both assert that the court properly granted a summary judgment because the amendments to the ordinance are consistent with the comprehensive plan. [¶ 21] We review the grant of a summary judgment for errors of law and independently examine the record to determine if a genuine issue of material fact exists. See Nevin v. Union Trust Company, 1999 ME 47, ¶ 5, 726 A.2d 694, 696. We view the evidence in a light most favorable to the party against whom the judgment has been granted. Id. [¶ 22] Section 4352(2) of Title 30-A requires all zoning ordinances to be consistent with the comprehensive plan adopted by the town's legislative body. See 30-A M.R.S.A. § 4352(2) (1996). Adelman bears the burden of proving that the communications tower amendments are inconsistent with Baldwin's Comprehensive Plan. See Vella v. Town of Camden, 677 A.2d 1051, 1053 (Me.1996). We review the record to determine whether the Town's legislative body (in this case the town meeting) could have found the amendments to the Land Use Ordinance to be in basic harmony with the comprehensive plan. See id. We will not substitute our judgment for that of the legislative body. See id. [¶ 23] Adelman does not carry his burden of proving that the ordinance is inconsistent with the comprehensive plan. To assert the inconsistency between the amendments and the comprehensive plan, Adelman relies on four sections of the comprehensive plan stating (1) that development should be restricted in the highlands where elevations of 700-feet sustain slopes of 25%; (2) that the use of the highlands should be primarily for natural resources and very low density residential uses; (3) that 74% of the residents think the town should acquire land to protect scenic beauty or environmental importance; and (4) that the rural areas are intended to preserve Baldwin's character and to insure that any development will occur in a manner that preserves the aesthetics of the rural character of the community. These sections do not mandate action but merely suggest recommended conduct. Three of the four sections use the permissive term should, but none of sections use mandatory language such as must or shall. Thus, these sections do not prohibit the construction of a communications tower. [¶ 24] Additionally, Adelman does not consider other sections of the comprehensive plan which may be interpreted to encourage the development of the communications tower. These sections state (1) that the comprehensive plan aims to serve the needs of all the townspeople while minimally restricting the rights of landowners; (2) that the Town must have a clear and compelling reason to limit the property rights of landowners; (3) that the plan should encourage new commercial, service, and light industrial uses in certain areas to diversify the tax base and promote local job opportunities, and (4) to identify and seek to preserve significant parcels of land by landowners' voluntary actions to help maintain Baldwin's rural character. The legislative body adopting the tower amendments could have construed the amendments to be in basic harmony with the comprehensive plan because by encouraging development of communications towers, the Town diversifies its tax base; increases local job opportunities; addresses the needs of all the townspeople; and protects the rural community by preserving 320 acres of undeveloped land for hiking and hunting. See Vella, 677 A.2d at 1053 (stating that the Court will not substitute its judgment for that of the legislative body drafting the amendments). The record supports a conclusion that the Land Use Ordinance amendments are consistent with Baldwin's Comprehensive Plan; there are no genuine issues of material fact and the court did not err as a matter of law. See Nevin, ¶ 5, 726 A.2d. at 696. We, therefore, affirm the Superior Court's grant of a summary judgment. The entry is: Judgment affirmed.