Opinion ID: 1059172
Heading Depth: 2
Heading Rank: 1

Heading: Definition of Descriptive Summary

Text: Parsing the phrase descriptive summary into its component parts, the word descriptive modifies the word summary. Descriptive means serving to describe. Describe means to represent by words written or spoken for the knowledge or understanding of others. Webster's Third New International Dictionary 610 (1993). A summary cover[s] the main points concisely but lack[s] detailed explanation. Id. at 2289. Thus, a descriptive summary is a statement that covers the main points concisely, but without detailed explanation, in a manner that serves to describe an object for the knowledge and understanding of others. This literal definition of the phrase establishes the foundation for interpretation of what satisfies the requirements of Code § 15.2-2204(A). If the notice does not cover the main points of the proposed amendment and does not accurately describe the proposed amendment, it does not satisfy Code § 15.2-2204(A). However, the notice need not contain the full text of the proposed amendment, nor explain the proposed amendment in detail. Other language of Code § 15.2-2204(A) requires that the notice published by a locality specify the time and place of hearing at which persons affected may appear and present their views. Code § 15.2-2204(A). This language suggests that the intent of the statute is to generate informed public participation by providing citizens with information about the content of the proposed amendments and the forum for debate concerning those amendments. There is no indication that the General Assembly expected affected citizens to engage in legal research in order to decide whether to participate in the hearing or to decide what their interests may be in a proposed amendment. See also Lawrence Transfer & Storage Corp. v. Board of Zoning Appeals of Augusta, 229 Va. 568, 571, 331 S.E.2d 460, 462 (1985) (determining that the intent of subsection B of the statute replaced by Code § 15.2-2204 was to afford property owners who are closest to the land involved an opportunity to be heard by the Board.). In City of Portsmouth v. County of Norfolk, 198 Va. 247, 251, 93 S.E.2d 296, 300-01 (1956), we held that former Code § 15.1-152.5, requiring publication of an informative summary of proposed annexations, was designed to supply those who may be affected thereby, or interested therein, with certain information from which they may determine whether or not to act in support of or against the proposed annexation. [2] Although it involves a different portion of the Code, the opinion expresses the same concerns that drive the need for adequate public notice in the zoning context. We have previously stated that, as a whole, Virginia's zoning statutes are designed to prevent zoning changes from being made suddenly, arbitrarily, or capriciously. Bd. of Supervisors of Fairfax County v. Snell Construction Corp., 214 Va. 655, 658, 202 S.E.2d 889, 892 (1974). The history of Code § 15.2-2204(A) adds further illumination. Prior to 1992, the statute did not require the notice published by the locality to contain a descriptive summary or a summary of any kind. In 1992, the General Assembly inserted the descriptive summary requirement. Acts 1992 ch. 757. This change by the General Assembly suggests that it is not enough to provide information that will merely direct readers to the physical location of the actual text of the proposed amendments. The descriptive summary requirement goes beyond referral to the primary document.