Document: 473 U.S. 172 105 S.Ct. 3108 87 L.Ed.2d 126 WILLIAMSON COUNTY REGIONAL PLANNING COMMISSION, et al., Petitioners,v.HAMILTON BANK OF JOHNSON CITY. No. 84-4. Argued Feb. 19, 1985. Decided June 28, Syllabus As required under Tennessee law, in 1973 respondent's predecessor interest, a land developer, obtained petitioner Planning Commission's approval of preliminary plat for development tract. The tract was to be developed accord with the requirements county zoning ordinance "cluster" residential areas and implementing regulations. In 1977, changed so as reduce allowable density dwelling units, but Commission continued apply regulations developer's 1979, however, decided that further should governed by then effect. thereafter disapproved plats proposing remainder on various grounds, including failure comply current requirements. Respondent filed suit against its members staff (also petitioners) Federal District Court pursuant 42 U.S.C. § 1983, alleging had taken property without just compensation refusing approve proposed development. jury found respondent been denied "economically viable" use violation Just Compensation Clause Fifth Amendment, awarded damages temporary taking property. entered an injunction requiring project, granted judgment notwithstanding jury's verdict claim, concluding deprivation economic benefit from property, matter could not constitute taking. Appeals reversed, holding application government affecting owner's may taking, evidence supported finding no economically feasible during time between refusal verdict. Held: 1. Even assuming, arguendo, regulation effect which Amendment requires compensation, assuming payment money compensate such this case cannot upheld because claim is premature. has yet final decision regarding nor utilized procedures provides obtaining therefore ripe. Pp. 186-197. (a) Although plan developing rejected, it did seek variances would have allowed develop according plat. Cf. Hodel v. Virginia Surface Mining & Reclamation Assn., Inc., 452 264, 101 2352, 69 record does support denial equivalent variances. Thus, how will Respondent's contention predicated upon 1983 merit. While there requirement plaintiff exhaust administrative remedies before bringing action, question whether must exhausted conceptually distinct action judicially reviewable. 186-194. (b) require paid advance of, or contemporaneously with, If State adequate procedure seeking owner until used compensation. Under bring inverse condemnation obtain alleged certain circumstances. shown unavailable inadequate, procedure, 194-197. 2. also premature if viewed theory goes far same physical "taking," invalid exercise police power, violative Due Process Fourteenth Amendment. Resolution due process depends, significant part, analysis value investment-backed profit expectations. That measured made applied No at failed 197-200. 729 F.2d 402 (CA6, 1984) reversed remanded. Robert L. Estes, Delhi, N.Y., petitioners. Edwin S. Kneedler, Washington, D.C., amicus curiae, special leave Court. G.T. Nebel, Nashville, Tenn., respondent. Justice BLACKMUN delivered opinion 1 Respondent, subdivision, sued petitioners, Williamson County (Tennessee) Regional staff, United States Court, petitioners' laws amounted "taking" At trial, agreed $350,000 "taking." rejected reinstated appeal. Petitioners their amici urge overturn award ground regulatory interference investor's expectation within meaning Amendment,1 or, alternatively, even recompense. Before we reach those contentions, examine procedural posture claim. 2 * A. 3 responsibility land-use planning divided legislative body each State's counties regional municipal "planning commissions." responsible ordinances regulate uses particular buildings put, control population location dimensions buildings. Tenn.Code Ann. 13-7-101 (1980). commissions are more specific governing subdivision region municipality §§ 13-3-403, 13-4-303. Enforcement both accomplished part through commission recorded. 13-3-402, 13-4-302 (1980 Supp.1984). 4 Pursuant 13-7-101, "Quarterly Court," county's body, adopted areas. zoning, 5 "both size width individual lots . [a] reduced, provided overall entire remains constant provided, is, area total thus 'saved' lot pooled retained common open space." N. Williams, American Land Law 47.01, pp. 212-213 (1974). 6 Cluster allows housing units grouped, "clustered" together, rather than being evenly spaced uniform lots. 7 predecessor-in-interest (developer) submitted cluster tract, Temple Hills Country Club Estates (Temple Hills), approval. time, developers review two steps. developer first submit plat, "initial sketch plan," indicating, among other things, boundaries acreage site, number basic design, existing roads, structures, lots, utility layouts, space, contour land. App. 82-5388 (CA6), 857, 871 (CA App.). Once approved, served basis preparation regulations, "will acceptance plat." Id., 872. Approval lapsed one year date approval, unless extension renewed. Ibid. official authenticated document recorded, conform substantially and, addition, include details lines all streets, boundaries, building setbacks. 875. 8 On May 3, 1973, approved Hills. 246-247. indicated 676 acres, 260 acres primarily form golf course. 422. A notation "allowable development" 736, were drawn only 469 units. remaining 276 placed left blank bore "this parcel commission." contained disclaimer "parcels note 'this commission' included gross area." 736 calculated multiplying (676) per acre (1.089). 361. "on less fifty percent (50%) lying flood plain slope grade excess twenty-five (25%)," CA 858, deduction Tr. 369. 9 Upon conveyed permanent space easement course, began roads installing project. 259-260. spent approximately $3 million another $500,000 sewer water facilities. Defendant's Ex. 96. construction begin section, section Several sections, containing 212 given 1979. 260, 270, 278, 423. well, reapproved four times period. 274, 362, 10 calculations exclude 10% account utilities. 363; 862. 1.089 1973. 862; 1169-1170, 1183. Hills, 1978. August position renewal evaluated when sought. 279-282. renewed time. 283-284. 11 January 1980, asked revised sought sections subdivision. reasoned necessary original surveying errors, available decreased inasmuch condemned parkway, marked "reserved future never platted. Plaintiff's Exs. 1078 1079; 164-168. committee Committee) appointed work revision 1081; 169-170. 12 October 1980.2 review, Committee noted several problems 304-305. First, 548 claimed difference reflected decrease 18.5 66 exclusion 44 50% slopes exceeding 25% grade. Second, cul-de-sac become parkway exceeded maximum length 1980 Third, 2,000 feet road grades Fourth, considered undevelopable Fifth, fulfilled obligations maintenance main access road. Sixth, inadequate fire protection services area, well children's recreational activities. Finally, frontage below minimum 1980. 13 recommended grant waiver cul-de-sacs, requirement. 297, 304-306. Without addressing suggestion three waived, grounds: first, attributable having 25%; second, greater 25%. 9112. 14 appealed Board Zoning "interpretation Residential [ordinance] relates Hills."3 314. November 11, determined evaluating 328. It measuring excessive grades, define manner favorable developer. 329. 15 26, respondent, Hamilton Bank Johnson City, acquired foreclosure developed, 257.65 acres. 189-190. This many parcels 1981, Commission—the subsequently times, indicating plans undeveloped areas, similar 88. new 688 units; reduction represented concession removed parkway. 424, 425. 16 18, eight reasons, cited denial, objections raised lack protection, disrepair main-access road, frontage. 370. declined follow stating lacked jurisdiction hear appeals Commission. 187-188, 360-361. B 17 Middle Tennessee, asserting estopped state law denying project.4 expert witnesses testified design meet allow build 67 409 fewer claims entitled build,5 sites result net loss over $1 million. 377. Petitioners' witness, hand, overcome 300 1467-1468. 18 After 3-week Clause, 32-33. 33-34.6 court 1981. 34. 19 favor reasoning unable derive only, deprivation, 36, 41. modified merely order parties resolve "legitimate technical questions meets regulations," id., 42, applicable local procedures.7 20 panel Sixth Circuit reversed. (CA6 1984). held denies land, 405-406. Rejecting argument complied rights taken, estoppel indicates "vested right" 407. vested right finish development, find reasonable completed, actions interfered expectation. 21 Court's stand law. analyzed relying dissent San Diego Gas Electric Co. Diego, 450 621, 636, 1287, 1296, 551 (1981), taking.8 II 22 We certiorari address Federal, State, Local governments pay landowner whose allegedly "taken" temporarily 815, 80, 83 28 (1984). contend answer negative ruling can They recognize restrictive beneficial appropriation public use, concededly According Instead, Amendment's attempt power unduly oppressive constitutionally effected eminent domain. Violations concludes, need remedied "just compensation." 23 twice issue undecided. supra; Agins Tiburon, 447 255, 263, 100 2138, 2143, 65 106 again, properly presented, day. For jurisprudence, precept process, conclude III 24 cause viewing Clause. often referred "goes too far," Pennsylvania Coal Mahon, 393, 415, 43 158, 160, L.Ed. 322 (1922), See, e.g., Ruckelshaus Monsanto Co., 467 986, 1004-1005, 104 2862, 2873-2874, 81 815 (1984); U.S., S.Ct., 2141; PruneYard Shopping Center Robins, 74, 83, 2035, 2041, 64 741 (1980); Kaiser Aetna States, 444 164, 174, 383, 390, 62 332 (1979); Andrus Allard, 51, 65-66, 318, 326-327, 210 Penn Central Transp. New York 438 104, 124, 98 2646, 2659, 57 631 (1978); Goldblatt Hempstead, 369 590, 594, 82 987, 990, 130 (1962); Eureka 357 155, 168, 78 1097, 1104, 1228 (1958). decisions meant refer literally Taking proposition see 647-653, 1302-1304 (dissenting opinion), upheld. Because 25 clear recent decisions, effects interest ripe entity charged reached issue. example, Control Act 91 Stat. 447, 30 1201 seq., because: 26 "There indication appellees availed themselves opportunities relief requesting either variance approximate-original-contour 515(d) surface mining restrictions 522(e). [the owners] these procedures, mutually acceptable solution might regard properties, thereby obviating any constitutional questions. potential solutions confirms conclusion simply judicial resolution." 2371 (footnote omitted). 27 Similarly, supra, challenge owners 2141. City's Landmarks Preservation Grand Terminal because, although 50-story office above terminal, plan, deny enable plaintiffs 136-137, 2665-2666. Hodel. passed beyond threshold. But, like plaintiffs, appears least five ordinance, ordinance's restriction placing 1204-1205; n. supra. cul-de-sac, road-grade, requirements.9 Indeed, Nevertheless, 29 argues "did everything possible conflict commission," Brief however. There ordinance. noted, applied, neither ordinances. Further, 1981 applications writing, notice adjacent property,10 contains ever written request gave notice.11 212-213; 1255-1257. letter shortly meeting consider sketch, took after plat: 31 "[Respondent] stands ready concerning Until initial renewed, opportunity do detailed engineering impossible determine exact nature needed." 9028, p. 6. 32 clearly writing owners, "any condition grounds disapproval 933. face variance, provide information about require, hardly maintain granted. 33 Hodel, Agins, Central, then, Our reluctance compelled very inquiry "[t]he what constitutes 'taking' purposes proved problem considerable difficulty," 123, consistently factors significance impact challenged extent interferes 2659. See 1005, 2874; 2041; 175, 390. Those agency arrived final, definitive question. 34 Here, forced objections. met variance. witness who itemize objections, discern affected profitability 377; 102-104. Accordingly, determines granted, find, record, benefit" land.12 35 asserts action. Patsy Florida Regents, 457 496, 102 2557, 73 (1982). distinct, FTC Standard Oil 449 232, 243, 488, 495, 416 Bethlehem Steel Corp. EPA, 669 903, 908 (CA3 1982). generally, 13A C. Wright, Miller E. Cooper, Practice Procedure 3532.6 policies underlying concepts overlap, finality concerned decisionmaker inflicts actual, concrete injury; exhaustion generally refers injured party adverse remedy unlawful otherwise inappropriate. latter, former. 36 best illustrated comparing that, Patsy, exhaust. aggrieved declaratory validity authorities, Fallin Knox Bd. Comm'rs, 656 S.W.2d 338 (Tenn.1983); 27-8-101, 27-9-101 27-9-113, 29-14-101 29-14-113 Supp.1984), resort remedial. appeal rejection Appeals, empowered, most, rejection, participate decisionmaking. 37 Resort violated rights. contrast, conclusive determination proposed. issue; prevents variances, leaves possibility short, conclusively reviewable decision. 38 second reason doing so.13 proscribe property; proscribes 40, 2371, 40. Nor taking; " 'reasonable, provision compensation' exist Rail Reorganization Cases, 419 102, 124-125, 95 335, 349, 320 (1974) (quoting Cherokee Nation Southern Kansas R. 135 641, 659, 965, 971, 295 (1890) ). 1016, 2879-2880; Yearsley W.A. Ross Construction 309 21, 60 413, 414, 84 554 (1940); Hurley Kincaid, 285 95, 52 267, 269, 76 637 (1932). "yield[s] compensation," "has Government" Monsanto, 1013, 1018, 2878, 2881, 21. Government itself Tucker Act, 1491. 1016-1020, 2880-2882. 39 recognition suffered unsuccessfully attempted analogous Parratt Taylor, 451 527, 1908, 68 420 (1981). There, ruled person deprived random unauthorized act employee situation, Constitution predeprivation impracticable meaningful hearing deprivation. satisfied postdeprivation process. "complete" sense causing injury "unless fails loss." Hudson Palmer, 468 517, 532, 12, 3194, 3203, 393 Likewise, pretaking instead here taking.14 40 29-16-123 statutory scheme domain proceedings outlines entities 29-16-101 29-16-121. prohibited "enter[ing] [condemned] land" owner, 29-16-122, take possession following 41 "the petition inquest, had, near be, hereinbefore provided; he sue ordinary way. ." 29-16-123. courts interpreted recovery where Davis Metropolitan Govt. 620 533-534 (Tenn.App.1981); Speight Lockhart, 524 249 (Tenn.App.1975). IV turn petitioners espouse. compensation; instead, Should wish accomplish goals regulation, proceed taken. far, theory, invalidation authorized appropriate, actual damages.15 notion stems language (1922). 649, 1302 opinion). Writing Holmes stated: "The general rule while regulated extent, recognized taking." 160. argue assert word literal sense, metaphor City Cal.3d 266, 157 Cal.Rptr. 372, 376, 598 P.2d 25, (1979), aff'd, Fred F. French Investing York, N.Y.2d 587, N.Y.S.2d 5, 9, 350 N.E.2d 381, 385 (1976). presented argued, free term loosely.16 45 finds support, told, fact framed "whether stretched far" destroy rights, 159, emphasis interests: 46 "Government go some values incident diminished paying every change long recognized, enjoyed implied limitation yield power. But obviously limits, contract clauses gone. One consideration determining limits diminution. When reaches magnitude, most cases sustain act." (Emphasis added.) 47 earlier involving limitations Holmes' opinions view overly triggering means accomplishing Block Hirsh, 256 135, 156, 458, 459, 865 (1921); Water McCarter, 209 355, 529, 531, 828 (1908); Martin Columbia, 205 139, 440, 441, 51 743 (1907). 48 pass merits arguments, Viewing paid, difficult "too distinguish point becomes onerous possession.17 resolution V 49 sum, premature, Amendment.18 reverse remand consistent opinion. 50 ordered. WHITE dissents issues POWELL case. 53 BRENNAN, whom MARSHALL joins, concurring. 54 today discusses methods analyzing viable use. concludes approach, availability pursue. Ante, 185, 199-200. 55 I join without, departing my views set forth (1981) (BRENNAN, J., dissenting). "[i]nvalidation unaccompanied his taken," believe "once establishes 'taking,' demands period commencing ending chooses rescind amend regulation." 653, 655, 1304, 1305. demonstrates case, decision." 194. "[r]espondent [Tennessee's] premature." 196-197. reversing Circuit. 56 STEVENS, concurring judgment. species governmental impair private impairment occur ways. substance permanently curtail Or employed, permission way remove deprive fair return investment. convenience, former category "permanent harms" latter "temporary harms." 58 Permanent harms fall into subcategories. impermissible willing them.1 permissible compensated loss.2 they paid.3 harm inflicted third subcategory. demonstrates, exhausted, say certainty abandon prepared whatever cause. 59 litigation regulation—and exception—the contends justifies paid. convince case—that impose uncompensated owner—the express invalid, characterizing event, essence caused it. opinion, situation develops, nothing electing permanent-harm-causing regulation. jurist Oliver Wendell characterized mean canceled always give rise compensation.4 To involves harm—whether called regulate—the correctly explains know severe enough lead "go far." know, already fairly serious harm—one worth $350,000. major category—it harm." 61 Temporary resulting broad subcategories: (1) deliberate appropriate limited time; (2) by-product subcategory includes, laundry military duration World War II, Kimball Laundry 1, 1434, 93 1765 (1949), unexpired lease, General Motors Corp., 323 373, 357, 89 311 (1945)—that type inevitable cost business highly society. unfortunate disputes government's inflict them. Every successful, whole regulation—whether health regulation,5 traffic law6—he almost suffer least, usually incur expenses frequently substantial revenue losses curtailed dispute resolved. 63 situations compensable. Statutes authorize costs litigation, attorney's fees. Sometimes budgeted ultimately recovered consumers. cases—and apparently one—the effective except violated. harmed—even temporarily—without based rights.7 employed fair, entitles him recover harm. employ administration enforcement kinds not, utopian citizen completely vindicated. presume bodies boards, school make good-faith effort performing duties, involved controversies lose. though costly harmful citizen, followed, permissibility harm, fairness Conceivably prevailed unconstitutional resulted unnecessary delay plan. ante, 183, proof "that process." 182, 4. disposes controversy applicability enforceability suggest tried condemn taking" kind "[N]or shall prohibition, applies Chicago, B. Q.R. 166 226, 241, 581, 586, 979 (1897); 623, 1289, subsequent occasions, contending indicate developed. 84-85. empowered: "a. decide permit, decision, determination, [County] Building Commissioner carrying out Resolution; interpret map Resolution. "c. terms Such exceptional narrowness, shallowness, shape piece adoption topographic conditions strict provisions practical difficulties undue hardship property." 13-7-106 13-7-109 substantive equal protection. directed claims, 32. us. 238-243. 476 units: minus built longer clear, rate March 1982. 800-805; Oral Arg. light our disposition measure pending agreement whereby road-grade agreed, rebuild 35. Judge Wellford dissented. F.2d, 409. He agree formally requested mere fluctuations decisionmaking 'incidents ownership' 410, quoting reflect majority invasion, occupation, "seizure direction" landowner's 411. provided: "Variances conditions: "Where subdivider show adherence hardship, subdivider. creates increase decides topographical peculiar departure intent." 932. "Each applicant file following: requested. "b. Reason circumstances Notice "Without requested, VI 1078, 9094. wrote construed subdivision: "I adequately [subdivision] Regulations Ordinance. both, authority 10%. "In knowledge beginning character slope. Section stretch exceeds 10%; respectfully Minutes changes." Defendants' constituted nevertheless formed Commission, regulating cul-de-sacs. Absent tell interests destroyed. instructions ascertained [respondent's] [respondent] 2016. instruction seems assume rendered valueless indicates, rights," "expectation interest" completing plans. limit expected income sale 27-hole course connections large installed 191-197; 690; 2154-2155. profitable expenditures contain appear aside "reliance" expenditures, feasible. propriety applying "economic viability" test rights" interest." 66, 327, (1979) (analyzing reducing profits). sufficient "property" wished, Again, contrast actions, judgment, (1980), Exhaustion required. explained, takings occurs denied. utilize analogy imperfect extend Logan Zimmerman Brush 455 422, 1148, 71 265 (1982), established policy Unlike 2879-2880, equally post-taking "obvious reaching accurate decision," "only invoke discretion likely [deprivation] takes effect," Cleveland Education Loudermill, 470 543, 1487, 1494, 494 (1985) serve purpose making feel dealt fairly. Carey Piphus, 435 247, 262, 1042, 1051, 252 (1978). despite Logan, Parratt's Bosselman, D. Callies, J. Banta, Issue 238-255 (1973); Sterk, Liability Unconstitutional Use Regulation, Ind.L.J. 113 Oakes, "Property Rights" Constitutional Analysis Today, Wash.L.Rev. 583 (1981); Stoebuck, Police Power, Takings, Process, Wash. Lee L.Rev. 1057 Comment, Testing Validity Regulations: Substantive Superior Alternative Takings Analysis, 715 (1982); Invalidation: Availability Damages Remedy Challenging Regulations, UCLA 711 cf. Costonis, "Fair" Accommodation Power: Antidotes Impasse Controversies, 75 Colum.L.Rev. 1021 (1975) (proposing "accommodation" offer "fair compensation" far"). Coal, homeowners enjoin coal company house Pennsylvania's Kohler subsidence home industrial mercantile establishment. defense, argued required, "[i]f anthracite district affected." 400, 159. becomes, figuratively, "lawyer's physicist's hunt quark." Haar, Land-Use 766 (3d ed. 1976). Bauman, Supreme Inverse Condemnation Amendment: Brennan Confronts Inevitable Controls, Rutgers L.J. 15, 20-32 (1983); 1059-1079; Berger, Policy Problem, N.Y.U.L.Rev. 165 (1974); Sax, Private Property Public Rights, Yale 149 (1971); Van Alstyne, Damaging Search Criteria, S.Cal.L.Rev. Michelman, Property, Utility, Fairness: Comments Ethical Foundations "Just Compensation" Law, 80 Harv.L.Rev. 1165 (1967); 74 (1964). disposition, "taken," absence discussion reasonableness interest. 1005-1006, 2874-2875; 327. feasibility interests, reference portion purchased whole. 130, 2662, me, political religious views. Acres Land, 24, 451, 376 explained implies "reaches complete Siemon, Of Regulatory Other Myths, Env.L. 105, 110-117 (1985). Industrial Union Dept. Petroleum Institute, 448 607, 2844, 1010 Raymond Motor Transportation, Inc. Rice, 434 429, 787, 664 Memphis Light, Div. Craft, 436 1554,

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