Opinion ID: 2313949
Heading Depth: 1
Heading Rank: 2

Heading: the variances

Text: The one issue which is novel and important is the basis for the grant of the use variance. The pertinent section of the zoning enabling act, N.J.S.A. 40:55-39(d) authorizes the grant of a use variance upon an affirmative finding of special reasons in particular cases, together with the negative findings, applicable in all zoning relief situations, that the relief can be granted without substantial detriment to the public good and will not substantially impair the intent and purpose of the zone plan and zoning ordinance. It is long settled law in this state that this unique provision does not require that the particular premises cannot feasibly be used for a permitted use or that other hardship exists. Special reasons is a flexible concept; broadly speaking, it may be defined by the purposes of zoning set forth in N.J.S.A. 40:55-32, which specifically include promotion of health, morals or the general welfare. Ward v. Scott, 11 N.J. 117 (1952). So variances have been approved for many public and semi-public uses because they significantly further the general welfare. See, e.g., Andrews v. Board of Adjustment of the Township of Ocean, 30 N.J. 245 (1959) (parochial school in residential zone); Black v. Montclair, 34 N.J. 105 (1961) (additional parochial school building in residential zone); Burton v. Montclair, 40 N.J. 1 (1963) (private school in residential zones); Yahnel v. Board of Adjustment of Jamesburg, 79 N.J. Super. 509 (App. Div. 1963), cert. den. 41 N.J. 116 (1963) (telephone equipment building in residential zone); Kunzler v. Hoffman, 48 N.J. 277 (1966) (private hospital for emotionally disturbed in residential zone). Compare Kohl v. Mayor and Council of Borough of Fair Lawn, 50 N.J. 268 (1967); Mahler v. Board of Adjustment of Borough of Fair Lawn, 94 N.J. Super. 173 (App. Div. 1967), aff'd o.b. 55 N.J. 1 (1969). The conclusions of the Board of Adjustment and the governing body in this regard are fully supported by the very comprehensive proofs before the Board, and are worthy of full quotation. The Board said: Without regard, however, to any official federal or state requirements, the Board finds and concludes that the demand of public policy cannot be satisfied by continued confinement of non-white families in the Fourth Ward area, and that breaking the long-standing patterns of racial segregation in this city will promote the general welfare of the community. The Board further finds and concludes that the program in question will serve to alleviate urban blight; to promote the health, morals and general welfare of the residents of this City; and to encourage appropriate land use throughout the City.    The Council adopted the Board's findings and added: 2. The Council of the City of Englewood further finds that the provision of low and moderate income housing by means of a governmentally financed housing program undertaken by the Greater Englewood Housing Corporation as a non-profit qualified housing sponsor which housing is limited to cluster-type units not exceeding two stories in height serves the general welfare of the City of Englewood which has for some time last past suffered from a desperate housing shortage for low and moderate income families residing within the City of Englewood and that the present condition of low and middle income families being forced to live in substandard, unsafe and unsanitary dwellings which are in need of major repairs or are unfit for residential use or are overcrowded constitute a condition detrimental to the health, safety, morals, welfare, and reasonable comfort of all of the people of the City of Englewood and that the amelioration of this condition will result from the granting of the requested variance and thereby promote the health, safety, morals and general welfare of the City of Englewood. 3. The Council of the City of Englewood further finds that the granting of the variance requested with respect to the aforementioned premises will together with the granting of the variance applied for in the companion application heretofore referred to, will result in a racially balanced housing program in that governmentally financed low and moderate income housing will be constructed both within and without the impacted area of the Fourth Ward of the City of Englewood and the Council further finds that freedom of choice of residents of the impacted area of the Fourth Ward to reside within or without said area in safe, decent and attractive housing that they can afford serves the community's interest in achieving an integrated, just and free society and promotes the general welfare of all citizens. Also of importance in this connection is the legislative determination set forth in N.J.S.A. 55:16-2 of the statute under which GEHC was incorporated: It is hereby declared that there is a severe housing shortage in the State: that there are places in many municipalities of the State where dwellings lack proper sanitary facilities and are in need of major repairs or unfit for residential use; that these conditions are detrimental to the health, safety, morals, welfare and reasonable comfort of the people of the State; that these conditions reduce economic values and impair private investments and public revenues; that the improvement of these conditions requires the production of new dwellings at rents which the families who need housing can afford; that the creation of the agencies and corporations hereinafter described, is necessary and desirable for this purpose; that the provision of housing to make possible and to assist the clearance, planning, development or redevelopment of blighted areas, as proposed in this act, is a public purpose and a public use for which public money may be spent and private property acquired; and that the necessity in the public interest for the provisions hereinafter enacted is hereby declared as a matter of legislative determination. Plaintiffs challenge these conclusions as insufficient to constitute special reasons. Judge Trautwein held that they were legally adequate and we thoroughly concur. We specifically hold, as matter of law in the light of public policy and the law of the land, that public or, as here, semi-public housing accommodations to provide safe, sanitary and decent housing, to relieve and replace substandard living conditions or to furnish housing for minority or underprivileged segments of the population outside of ghetto areas is a special reason adequate to meet that requirement of N.J.S.A. 40:55-39(d) and to ground a use variance. Plaintiffs also challenge the agencies' findings that the negative criteria were not factually and legally met. The Board found that, by reason of the location, topography and isolation of the tract in question, as well as the design and layout of the structures proposed to be erected, such adverse effect as the proposed multi-family use may have on nearby one-family uses will be minimal, and that the relief requested may, accordingly, be granted without substantial detriment to the public good and without substantial impairment of the intent or purpose of the zone plan or zoning ordinance. The governing body concluded that this finding was supported by the evidence. The trial court agreed and we think the conclusion is irresistible in the light of the proofs. Indeed, we should observe, parenthetically, that courts rarely find land use cases where the evidence before local bodies is as comprehensive and as thoroughly presented and where, procedurally, hearings and other proceedings are as fairly, fully and meticulously conducted and resolutions and ordinances as well prepared as was done in the instant situation. Finally, plaintiffs urge that the use variance is invalid as constituting rezoning without legislative action. Stress is laid on the 10 acre size of the tract. While a zoning amendment specifically changing the use of the site (some of the zoning ordinance's multi-family districts appear to be no larger) or providing for the use as a special exception under N.J.S.A. 40:55-39(b) would have been appropriate as well, the size of the site does not preclude a use variance under the circumstances. See Kunzler v. Hoffman, supra (48 N.J. 277) (40 acre tract); Roman Catholic Diocese of Newark v. Borough of Ho-Ho-Kus, 47 N.J. 211 (1966) (20 acre school site). Leimann v. Board of Adjustment of Township of Cranford, 9 N.J. 336 (1952), relied on by plaintiffs is not apposite. At that time (d) of section 39 had not been enacted in its present form and a use variance applicant had to establish hardship. In sum, the use variance was properly granted. In fact, a denial of it under the circumstances and proofs could not well be sustained. Little need be said about the bulk variance granted under N.J.S.A. 40:55-39(c), which authorizes a variance from yard, setback, height and similar restrictions caused by exceptional site situations or conditions which would otherwise result in peculiar and exceptional practical difficulties and hardship. There is some doubt whether it was required at all, since the use variance granted approval of the specific project, the full layout of which was before the Board of Adjustment on that occasion. The relief granted by the (c) variance was from requirements which fitted single-family dwellings but made no sense for a multi-family culster-type project on a large, hilly, rocky site. If required at all, it was in fact essential by reason of the use variance previously allowed. We see nothing improper about it.