Opinion ID: 2535246
Heading Depth: 3
Heading Rank: 2

Heading: Change in the character of the neighborhood

Text: ¶ 27. Thomas asserts that Aldridge failed to prove by clear and convincing evidence that the character of the neighborhood had changed to an extent to justify rezoning. ¶ 28. This Court has reversed rezoning decisions by boards of supervisors when the decision was not supported by substantial evidence. Wright v. Mayor and Comm'rs of City of Jackson, 421 So.2d 1219, 1223 (Miss.1982); City of Oxford v. Inman, 405 So.2d 111, 112 (Miss.1981); Hughes v. Mayor and Comm'rs of City of Jackson, 296 So.2d 689, 691 (Mis.1974). See also Bd. of Aldermen, City of Clinton v. Conerly, 509 So.2d 877, 886 (Miss.1987); Cloverleaf Mall, Ltd. v. Conerly, 387 So.2d 736, 741 (Miss.1980); Lewis v. City of Jackson, 184 So.2d 384, 387-88 (Miss. 1966); Cockrell v. Panola County Bd. of Supervisors, 950 So.2d 1086, 1095 (Miss. Ct.App.2007). ¶ 29. Rezoning hearings are informal in nature. Woodland Hills Conservation Ass'n, Inc. v. City of Jackson, 443 So.2d 1173, 1180 (Miss.1983). To determine the factual issues in rezoning requests, a board may consider information provided at the rezoning hearing, its own common knowledge, and its own familiarity with the area. Faircloth, 592 So.2d at 943; see also Childs, 1 So.3d at 860. The rules of evidence are misplaced in rezoning matters. Woodland Hills, 443 So.2d at 1180. The board also may consider any hearsay evidence that is admitted when it makes its decision. Id. at 943-44. It is both proper and desirable that rezoning decision makers consider information they have acquired outside the hearing room. Id. In Board of Aldermen of Town of Bay Springs v. Jenkins, 423 So.2d 1323 (Miss. 1982), this Court stated that [t]he hearing should be an informal, nonadversary proceeding in which the rules of evidence are not applicable and reaffirmed that the mayor and board of aldermen were permitted to consider both sworn and unsworn statements at the hearing and their common knowledge and familiarity with the area. Id. (quoting R. Khayat and D. Reynolds, Zoning Law in Mississippi, 45 Miss. L.J. 365, 372-73 (1974)). Notwithstanding that informality is acceptable in rezoning proceedings, the governing body still must find the necessary criteria for rezoning by clear and convincing evidence[,] and that the evidence is contained in the record. Bd. of Aldermen, City of Clinton v. Conerly, 509 So.2d at 885. ¶ 30. This Court has provided some guidance to determine what constitutes substantial evidence. In Board of Aldermen, City of Clinton, this Court held that a governing board needs a minimum of evidence, such as a map, changes in the area, statistics demonstrating a public need, and other evidence to make an informed judgment. Bd. of Aldermen, City of Clinton, 509 So.2d at 886. Subsequently, in Sea Lands, this Court stated that it is impossible to articulate or design a particular test for determining what is sufficient evidence to show a material change and a public need to support rezoning. Sea Lands, 759 So.2d at 1227-28. As stated in Sea Lands, while there is no test to determine what constitutes sufficient evidence to prove a substantial change in the character of the neighborhood and public need, without comparable evidence, such as maps showing a change or recent rezoning in the area, statistics or other evidence of growth in the neighborhood, and charts showing the quantity of construction, the record lacks comparable evidence to show a material change in the neighborhood or a public need. Id.; Bd. of Aldermen, City of Clinton, 509 So.2d at 886. ¶ 31. However, this Court also recognizes that zoning is not stagnant. Because communities grow and changes occur, municipal officials possess the power to rezone. Woodland Hills, 443 So.2d at 1180. A good comprehensive plan contemplates a dynamic community and recognizes change that balances growth with individual property interests. Id. at 1179. The Court has held: [A]ll presumptions must be indulged in favor of the validity of zoning ordinances. It is presumed to be reasonable and for the public good. It is presumed that the legislative body investigated it and found conditions such that the action which it took was appropriate. The one assailing the validity has the burden of proof to establish that the ordinance is invalid or arbitrary or unreasonable as to his property, and this must be by clear and convincing evidence. Edwards v. Harrison County Bd. of Supervisors, 22 So.3d 268, 279 (Miss.2009) (quoting Childs, 1 So.3d at 861). Again Rhyne also points out: `Zoning is not static, and zoning restrictions are subject to change. Thus, a municipality may amend its zoning ordinance whenever it deems conditions warrant such change.' Edwards, 22 So.3d at 275 (citing City of Jackson v. Bridges, 243 Miss. 646, 654, 139 So.2d 660, 663 (1962)). Mississippi Code Section 11-1-17(1)(a) states, in part: The governing authority of each municipality and county may provide for the preparation, adoption, amendment, extension and carrying out of a comprehensive plan for the purpose of bringing about coordinated physical development in accordance with present and future needs.... Miss.Code Ann. § 11-1-17(1)(a) (Rev. 2002). ¶ 32. The Board's order provides little insight into its reasoning for granting rezoning. However, the order adopted the Commission's recommendation to rezone and grant a special exception with limitations. The order also recited who made presentations and who provided testimony for and against rezoning. [2] The trial court affirmed the Board's decision granting rezoning and granting a special exception to Aldridge. In determining that there was substantial evidence to permit rezoning, the trial court stated: The record before the Panola Land Development Commission as well as the Panola County Board of Supervisors is that there are numerous businesses along [H]ighway 6 west from Batesville. Some are industrial; some are commercial. Some are supply companies. Many are related to the retail sale of automobiles. There are lumber supply companies, schools, and private homes, farms as well as others. Therefore, there was ample evidence before the board of heavy industrial business as well as recent industrial and commercial expansions. This Court is of the opinion that there was ample evidence before the Board of Supervisors for a finding by the Board that there is an ongoing material change in the character of the neighborhood and the change has continued since the adoption of the Panola County Land Use Ordinance in 2002. The Board of Supervisors had sufficient evidence before them, as revealed by the record, to find there is a public need in Panola County for an additional company to buy and dispose of scrap metal. The Board had the right to consider the ongoing expansion of industry in Panola County and the need for private citizens as well as other commercial and industrial entities to have another outlet for scrap metal. The record reveals that there is only one other scrap metal collector in Panola County. The Board of Supervisors had more than sufficient evidence before it to find by clear and convincing evidence that the character of the neighborhood has substantially changed and continues to change since the adoption of the Land Use Ordinance in 2002 and there is a public need existing for rezoning to better care for the needs of the people and businesses in the area to dispose of scrap metal. Mayor and Board of Aldermen v. Estate of Lewis, 963 So.2d 1210 (Miss.Ct.App.2007). This Court cannot say that based upon the evidence before the Board of Supervisors that their decision is not fairly debatable.[sic] Saunders v. City of Jackson, 511 So.2d 902, 906 (Miss. 1987). Also Town of Florence v. Sea Lands Ltd., 759 So.2d 1221, 1224 (Miss. 2000). ¶ 33. Thomas contends that the evidence provided by Aldridge did not demonstrate a substantial change in the character of the neighborhood. We disagree. Aldridge provided various maps to the Board. The aerial map showed the location of his property in relation to other landowners. Aldridge discussed the location of current commercial and industrial businesses in relation to his facility. It is evident that the area has a mixture of agricultural, commercial, and industrial uses, despite its agricultural zoning. The Board already had granted a special exception in the area to operate a used car lot since the adoption of the ordinance. Indeed, the Board was made aware that Aldridge's property had been used for a number of years as an industrial business, a concrete plant, prior to its use as a junkyard. In addition, the Board was aware that Aldridge had been granted a special exception to operate the junkyard previously, although the circuit court had reversed that Board decision because the land was not zoned industrial at the time and in accordance with the ordinance. In other words, the Board was familiar with the land at issue and was aware that it had not been used as agricultural land for many years. ¶ 34. The land-use map showed the current land use for the whole county, with agricultural, residential, commercial, industrial, and flood-plain classifications. As noted above, a special exception to operate a used car lot was granted in the area since the adoption of the Panola County Land Use District Ordinance in 2002. In regard to the land use for the county, it was brought to the Board's attention that the Commission had determined that approximately ninety-nine percent of Panola County was designated as agricultural, with very limited industrial zoning. Additionally, the Board was made aware that the current zoning was problematic for all the businesses along Highway 6, including Aldridge's property, because the agricultural zoning did not coincide with the actual use of the properties. ¶ 35. The Panola County zoning ordinance likewise provided the formal, written guide that Panola County adopted to have orderly planning and classification of its land, and it provided the procedure to rezone land and request a special exception. The handwritten list of businesses in the county and city limits provided a reference point in connection with Aldridge's property at issue. Aldridge's counsel stated the surrounding businesses near Aldridge's property and addressed expansions of some businesses. The numerous photographs depicting Aldridge's facility and the surrounding area and other businesses provided a reference for determining how the facility was used and what area businesses were nearby. The photographs also showed that many parcels of land were used for purposes other than agriculture. ¶ 36. At the hearing, Aldridge's counsel referenced the growth in the area as evidenced by building and occupancy permits. He requested that the Board consider all documents in control of Panola County demonstrating population, business, and commercial growth. Further, Aldridge listed and requested any minutes of any agency in Panola County, including the minutes of the Panola County Land Development Commission and the minutes of the Board of Supervisors, that had any connection with Aldridge's application for rezoning and special exception. The record does contain a copy of the Board's order granting the rezoning and special exception, a copy of Aldridge's application, deed, maps, and photographs. This Court has stated that a board may draw from its own common knowledge and its own familiarity with the area when making zoning decisions. Faircloth, 592 So.2d at 943; Childs, 1 So.3d at 860. ¶ 37. This Court finds that the issue of whether there was a change in the character of the neighborhood was fairly debatable. The record contained many documents, including maps, photographs, and the transcript of the January 14 Board hearing. Aldridge's land had been used for industrial purposes for many years prior to his rezoning request. Unfortunately, the January 14, 2008, order by the Board provided no insight into the basis for the Board's decision to rezone and grant a special exception. However, the Planning Commission had recommended the rezoning and the special exception and two representatives appeared before the Board at the hearing with this recommendation. The Board adopted the Commission's recommendation, including the Commission's suggested limitations. Likewise, the Board heard and considered the evidence, including expert testimony, both for and against the rezoning, and granted the rezoning requests.