Opinion ID: 2094134
Heading Depth: 1
Heading Rank: 2

Heading: Validity of Four Acre Zoning

Text: Easttown Township has an area of 8.2 square miles devoted almost exclusively to residential use. It is traversed in the north by the Main Line of the Pennsylvania Railroad as well as by U.S. Route 30, a heavily traveled highway which emanates in Philadelphia, 20 miles to the east, and heads west to Lancaster and eventually to the West Coast. It is along this strip that the township's sole commercial activity is conducted and where its two small industrial concerns are located. The township finds itself in the path of a population expansion approaching from two directions. From the east, suburbs closer to the center of Philadelphia are reaching capacity and residential development is extending further west to Easttown. In addition, a market for residential sites is being generated by the fast growing industrial-commercial complex in the King of Prussia-Valley Forge area to the north of Easttown Township. Easttown's vital statistics provide a good indication of its character. At present, about 60% of the township's population resides in an area of about 20% of the township. The remaining 40% of the population occupies the balance of about 80% of its area. Privately imposed restrictions limit lot areas to four, five and ten acre minimums on approximately 10% of the total area of the township, consisting of land located in the southern and western sections. Of the total 5,157 acres in the township, some 898, or about 17%, have been restricted by the new zoning ordinance to minimum lots of two acres. Approximately 1,565 acres composing about 30% of the township are restricted by the zoning ordinance to lots of four acres minimum area. About 5% of the population live in the areas zoned for two and four acre sites which together constitute about 47% of the township. Some 1,835 acres, representing about 35% of the township, remain unaffected by the new zoning and continue, under the township's original zoning classification, to be zoned for building sites with a minimum area of one acre. Before 1959 most of the northeast quadrant of the township, as well as various other areas, had either been built up or prepared for development. In 1959 sporadic developments occurred in the south and central parts of the township, followed by several others in the south and southeast portions in 1960. In 1961 other developments occurred in the northeast and southwest sections, followed by lesser numbers in smaller areas of the north and central sections in 1962 and 1963. U.S. Census figures show that Easttown's population grew from 2,307 in 1920 to 6,907 in 1960. As of April, 1963, the population estimate was 8,400. Public school population through the sixth grade grew from 498 in the school year 1955-56 to 1,052 in the school year 1963-64 and, as projected, will be about 1,680 in 1969-70. [17] New residential construction from 1951 through the first eight months of 1963, a twelve year period, consisted of 1,149 units at an estimated cost of about $21,000,000, with an average of 100 building permits annually. At this rate of growth, allowing four persons per housing unit in Easttown, [18] its population, related to new residences, would grow under the previous one acre minimum zoning at the rate of about 400 persons per annum. Despite the growth and development of Easttown Township, much of the land in the central, southern and western sections continues to be held in parcels of considerable acreage. Sweetbriar, located on the southern boundary of the township, is one of these large parcels. There is discussion in the briefs as to whether the township, and particularly those sections zoned for four acres, is rural. Such semantic disputes are of little relevance in zoning cases since realities, rather than the label which, for convenience sake, is applied to them, are determinative of the issue. However, if a catch-all designation is to be applied, semirural or estate rural probably best describes the portions of the township zoned for minimum lots of four acres. The task of considering the Easttown Township zoning ordinance and passing upon the constitutionality of its four acre minimum area requirement as applied to appellees' property is not an easy one. In the span of years since 1926 when zoning received its judicial blessing, [19] the art and science of land planning has grown increasingly complex and sophisticated. The days are fast disappearing when the judiciary can look at a zoning ordinance and, with nearly as much confidence as a professional zoning expert, decide upon the merits of a zoning plan and its contribution to the health, safety, morals or general welfare of the community. This Court has become increasingly aware that it is neither a super board of adjustment nor a planning commission of last resort. See Di Santo v. Zoning Bd. of Adjustment, 410 Pa. 331, 189 A. 2d 135 (1963); Joseph B. Simon & Co. v. Zoning Bd. of Adjustment, 403 Pa. 176, 168 A. 2d 317 (1961). Instead, the Court acts as a judicial overseer, drawing the limits beyond which local regulation may not go, but loathing to interfere, within those limits, with the discretion of local governing bodies. Tidewater Oil Co. v. Poore, 395 Pa. 89, 149 A. 2d 636 (1959). The zoning power is one of the tools of government which, in order to be effective, must not be subjected to judicial interference unless clearly necessary. For this reason, a presumption of validity attaches to a zoning ordinance which imposes the burden to prove its invalidity upon the one who challenges it. Cleaver v. Bd. of Adjustment, 414 Pa. 367, 200 A. 2d 408 (1964); Bilbar Constr. Co. v. Easttown Twp. Bd. of Adjustment, 393 Pa. 62, 141 A. 2d 851 (1958). While recognizing this presumption, we must also appreciate the fact that zoning involves governmental restrictions upon a landowner's constitutionally guaranteed [20] right to use his property, unfettered, except in very specific instances, [21] by governmental restrictions. The time must never come when, because of frustration with concepts foreign to their legal training, courts abdicate their judicial responsibility to protect the constitutional rights of individual citizens. Thus, the burden of proof imposed upon one who challenges the validity of a zoning regulation must never be made so onerous as to foreclose, for all practical purposes, a landowner's avenue of redress against the infringement of constitutionally protected rights. The oft repeated, although ill defined, limitation upon the exercise of the zoning power requires that zoning ordinances be enacted for the health, safety, morals or general welfare of the community. See Cleaver v. Bd. of Adjustment, 414 Pa. 367, 200 A. 2d 408 (1964). Such ordinances must bear a substantial relationship to those police power purposes. Glorioso Appeal, 413 Pa. 194, 196 A. 2d 668 (1964); Sylvester v. Pittsburgh Zoning Bd. of Adjustment, 398 Pa. 216, 157 A. 2d 174 (1959). Regulations adopted pursuant to that power must not be unreasonable, arbitrary or confiscatory. Eller v. Bd. of Adjustment, 414 Pa. 1, 198 A. 2d 863 (1964). The zoning enabling act being silent as to a right of appeal, we consider this case on broad certiorari, reviewing the testimony, the evidence, and the entire record. Keystone Raceway Corp. v. State Harness Racing Comm'n, 405 Pa. 1, 173 A. 2d 97 (1961); Schmidt v. Philadelphia Zoning Bd. of Adjustment, 382 Pa. 521, 114 A. 2d 902 (1955). Because the court below took no additional testimony, we will look at the decision of the board of adjustment to determine if, in upholding the constitutionality of the four acre minimum zoning, the board committed an abuse of discretion or an error of law. Upper Providence Twp. Appeal, 414 Pa. 46, 198 A. 2d 522 (1964). There is no doubt that in Pennsylvania, zoning for density is a legitimate exercise of the police power. See Bilbar Constr. Co. v. Easttown Twp. Bd. of Adjustment, 393 Pa. 62, 141 A. 2d 851 (1958); Volpe Appeal, 384 Pa. 374, 121 A. 2d 97 (1956). Every zoning case involves a different set of facts and circumstances in light of which the constitutionality of a zoning ordinance must be tested. Therefore, it is impossible for us to say that any minimum acreage requirement is unconstitutional per se. See Annot., 95 A.L.R. 2d 716 (1964). [22] The relative advantages of a one acre lot over a one-half acre lot are easy to comprehend. Similarly, a two acre lot has advantages over a one acre lot and three acres may be preferred over two acres or ten acres over three. The greater the amount of land, the more room for children, the less congestion, the easier to handle water supply and sewage, and the fewer municipal services which must be provided. At some point along the spectrum, however, the size of lots ceases to be a concern requiring public regulation and becomes simply a matter of private preference. The point at which legitimate public interest ceases is not a constant one, but one which varies with the land involved and the circumstances of each case. We turn, then, to the question of the constitutionality of a four acre minimum in the factual context of the instant case. Quite obviously, appellees will be deprived of part of the value of their property if they are limited in the use of it to four acre lots. [23] When divided into one acre lots as originally planned, the value of Sweetbriar for residential building was approximately $260,000. When the four acre restriction was imposed, the number of available building sites in Sweetbriar was reduced by 75% and the value of the land, under the most optimistic appraisal, fell to $175,000. The four acre minimum greatly restricts the marketability of this tract because, with fewer potential lots, the cost of improvements such as curbing, streets and other facilities is thus greater on each lot. In addition, each building lot being larger, the cost per lot is automatically increased. The desire of many buyers not to be burdened with the upkeep of a four acre lot also makes Sweetbriar, so restricted, less desirable. Although there was some evidence in the record that lots of four acres or more could eventually be sold, it is clear that there is not a readily available market for such offerings. Against this deprivation of value, the alleged public purposes cited as justification for the imposition of a four acre minimum area requirement upon appellees' land must be examined. Appellants contend that the four acre minimum is necessary to insure proper sewage disposal in the township and to protect township water from pollution. At present, only a very small portion of the township in the densely populated northern section is served by a sewage system. The remainder of the lots in the township utilize on-site sewage disposal. With regard to water supply, the evidence was fairly conclusive that the Philadelphia Suburban Water Company serves most, if not all, of the township and that it would furnish water to a development in Sweetbriar. A past president of the Devon Citizens Association testified that tests had been conducted which allegedly showed evidence of pollution in township streams and bodies of water. However, neither the results of these tests nor the testimony of those who made them were ever introduced. Under the circumstances, this line of testimony must be ignored. The matter of pollution was also discussed by the township engineer. In this regard it is significant to note that although it is claimed that sewage and drainage problems were discussed prior to the zoning now in question, the report submitted to the township supervisors by the planning commission never mentioned these as problems which their recommendation for upzoning was designed to meet. The township engineer's testimony on the subject of drainage and sewage was vague and unconvincing, consisting, as it did, of the bald statement that he felt that there was a danger of pollution. In addition, this opinion was based upon the hypothetical case of the entire township being developed on the basis of one acre lots maximum, a situation very unlikely to occur in the near future and probably never. We can not help but note also that the Second Class Township Code provides for establishing sanitary regulations which can be enforced by a sanitary board regardless of the zoning for the area. [24] The Code also provides for the installation and maintenance of sewer systems [25] but the township has made no plans in this regard. In addition, under the township subdivision regulations, the zoning officer may require lots larger than the minimum permitted by the zoning ordinance if the result of percolation tests upon the land show that a larger land area is needed for proper drainage and disposal of sewage. These legislatively sanctioned methods for dealing with the sewage problem compel the conclusion that a four acre minimum is neither a necessary nor a reasonable method by which Easttown can protect itself from the menace of pollution. In addition to the alleged problem of sewage disposal as justifying the four acre minimum, appellants cite the inadequacy of township roads and the burden which continued one acre zoning for the entire township would impose upon that road system. As an adjunct to their argument regarding the inadequacy of the road system, appellants maintain that the four acre minimum zoning is warranted because of the difficulty of providing fire protection over the township roads. Because of the narrowness of the roads, their winding nature and the volume of traffic which they presently bear, a fire official responsible for the portion of Easttown Township in which Sweetbriar is located testified that difficulty is frequently encountered in getting equipment to a fire. Except for the four-lane U.S. Route 30, most of the roads in the township, including the state roads, are two lanes wide having cartways ranging from 14 to 18 feet. Many are winding, some are hilly, and in some locations trees planted within the rights of way overhang so as to slow or even partially impede some types of traffic. While some of the roads, most notably U.S. Route 30 and to a lesser extent Waterloo Road, have already reached their practical capacity at peak hours, not all of them have. It is not clear that any, except for the two above-mentioned, have done so based upon daily average traffic. Church Road, on which Sweetbriar abuts, has not. According to the experts produced for both sides, Easttown's present road network as a whole is capable, with normal maintenance and improvement, of serving a population up to 13,000. This is 4,600 more than the population of the township in April, 1963. On the basis of the former one acre zoning, resulting in a population increase of 400 persons per year, that figure would not be reached until after 1972 or later. It can be seen, therefore, that the restriction to four acre lots, so far as traffic is concerned, is based upon possible future conditions. [26] Zoning is a tool in the hands of governmental bodies which enables them to more effectively meet the demands of evolving and growing communities. It must not and can not be used by those officials as an instrument by which they may shirk their responsibilities. Zoning is a means by which a governmental body can plan for the future  it may not be used as a means to deny the future. [27] The evidence on the record indicates that for the present and the immediate future the road system of Easttown Township is adequate to handle the traffic load. It is also quite convincing that the roads will become increasingly inadequate as time goes by and that improvements and additions will eventually have to be made. Zoning provisions may not be used, however, to avoid the increased responsibilities and economic burdens which time and natural growth invariably bring. [28] It is not difficult to envision the tremendous hardship, as well as the chaotic conditions, which would result if all the townships in this area decided to deny to a growing population sites for residential development within the means of at least a significant segment of the people. The third justification for rezoning, and one urged upon us most assiduously, deals with the preservation of the character of this area. [29] The photographic exhibits placed in the record by appellants attest to the fact that this is an area of great beauty containing old homes surrounded by beautiful pasture, farm and woodland. It is a very desirable and attractive place in which to live. Involved in preserving Easttown's character are four aspects of concern which the township gives for desiring four acre minimum zoning. First, they cite the preservation of open space and the creation of a greenbelt which, as most present day commentators impress upon us, are worthy goals. While in full agreement with these goals, we are convinced that four acre minimum zoning does not achieve the creation of a greenbelt in its technical sense and, to the limited extent that open space is so preserved, such zoning as is here involved is not a permissible means to that end. By suggesting that the creation of a greenbelt is a purpose behind this zoning, appellants betray their argument that there is a ready market for four acre plots. Only if there is no market for four acre lots will the land continue to be open and undeveloped and a greenbelt created. This, however, would amount to confiscation of the property of Easttown landowners for which they must be compensated. If the preservation of open spaces is the township objective, there are means by which this can be accomplished which include authorization for cluster zoning or condemnation of development rights with compensation paid for that which is taken. A four acre minimum acreage requirement is not a reasonable method by which the stated end can be achieved. Next, the township urges us to consider the historic sites in the township and the need to present them in the proper setting. We are unmoved by this contention since it appears to be purely and simply a makeweight. First, an examination of the map of historical sites in the township demonstrates that the overwhelming majority of such sites, located in areas of dense population, can hardly be provided with proper settings by four acre zoning elsewhere in the township. Appellants cite two main historic places of interest. One is the home of General Anthony Wayne, a Revolutionary War hero. It is significant to note, however, that the township supervisors placed the Wayne home in a district zoned for only two acre minimum lots. The second historic site is Old Swedes Church which is not located in the township but whose cemetery is. It appears that both the Wayne home and the church are surrounded by land to protect them. In any event, the beautification of several structures of minor historical significance neither calls for nor legitimatizes the imposition of low density zoning of the magnitude here contemplated upon 30% of the township. Closely related to the goal of protecting historic monuments is the expressed desire to protect the setting for a number of old homes in Easttown, some dating back to the early days of our Commonwealth. Appellants denominate this goal as falling within the ambit of promoting the general welfare. Unfortunately, the concept of the general welfare defies meaningful capsule definition and constitutes an exceedingly difficult standard against which to test the validity of legislation. However, it must always be ascertained at the outset whether, in fact, it is the public welfare which is being benefited or whether, disguised as legislation for the public welfare, a zoning ordinance actually serves purely private interests. There is no doubt that many of the residents of this area are highly desirous of keeping it the way it is, preferring, quite naturally, to look out upon land in its natural state rather than on other homes. These desires, however, do not rise to the level of public welfare. This is purely a matter of private desire which zoning regulation may not be employed to effectuate. Appellants make some attempt to impose upon this area an aura of historic significance which deserves the protection of the township. Of course, the fact that these houses are old makes them architecturally and historically interesting. But it does not justify the creation of a special setting for them. They are all privately owned; most are already surrounded by substantial land holdings which, if their owners so desire, serve as protection against being fenced in by new residential development. In addition, there is nothing about south Easttown which differentiates it from any other area in the southeastern section of Pennsylvania. Surely, no one would seriously maintain that the entire southeast corner of the state should be declared immune from further development on areas of less than four acres simply because there are many old homes located there. The fourth argument advanced by appellants, and one closely analogous to the preceding one, is that the rural character of the area must be preserved. If the township were developed on the basis of this zoning, however, it could not be seriously contended that the land would retain its rural character  it would simply be dotted with larger homes on larger lots. Appellants point to the fact that the surrounding townships have similar low density zoning provisions. Although the zoning of the surrounding area is frequently a relevant consideration in assessing the validity of a zoning regulation, see Kubia Appeal, 396 Pa. 109, 151 A. 2d 625 (1959); Act of May 1, 1933, P.L. 103, § 2003, added by Act of July 10, 1947, P.L. 1481, § 47, 53 P.S. § 67003, it is not controlling on the issue presented. This is particularly so when we are dealing with a unique zoning classification such as is involved here. With most zoning classifications, there can be little question as to their suitability in any political subdivision; the only issue concerns their placement. With these classifications, the surrounding zoning is particularly relevant. As the classification itself becomes more questionable, however, similar classifications in surrounding districts become of less significance in supporting the validity of the restriction. The briefs submitted by each appellant in this case are revealing in that they point up the two factors which appear to lie at the heart of their fight for four acre zoning. The township's brief raises (but, unfortunately, does not attempt to answer) the interesting issue of the township's responsibility to those who do not yet live in the township but who are part, or may become part, of the population expansion to the suburbs. Four acre zoning represents Easttown's position that it does not desire to accommodate those who are pressing for admittance to the township unless such admittance will not create any additional burdens upon governmental functions and services. The question posed is whether the township can stand in the way of the natural forces which send our growing population into hitherto undeveloped areas in search of a comfortable place to live. We have concluded not. A zoning ordinance whose primary purpose is to prevent the entrance of newcomers in order to avoid future burdens, economic and otherwise, upon the administration of public services and facilities can not be held valid. Of course, we do not mean to imply that a governmental body may not utilize its zoning power in order to insure that the municipal services which the community requires are provided in an orderly and rational manner. The brief of the appellant-intervenors creates less of a problem but points up the factors which sometime lurk behind the espoused motives for zoning. What basically appears to bother intervenors is that a small number of lovely old homes will have to start keeping company with a growing number of smaller, less expensive, more densely located houses. It is clear, however, that the general welfare is not fostered or promoted by a zoning ordinance designed to be exclusive and exclusionary. [30] But this does not mean that individual action is foreclosed. An owner of land may constitutionally make his property as large and as private or secluded or exclusive as he desires and his purse can afford. He may, for example, singly or with his neighbors, purchase sufficient neighboring land to protect and preserve by restrictions in deeds or by covenants inter se, the privacy, a minimum acreage, the quiet, peaceful atmosphere and the tone and character of the community which existed when he or they moved there. [31] In light of the foregoing, therefore, we are compelled to conclude that the board of adjustment committed an error of law in upholding the constitutionality of the Easttown Township four acre minimum requirement as applied to appellees' property. We therefore affirm the order of the Court of Common Pleas of Chester County. Order affirmed.