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HomeMy WebLinkAboutSATURN OF FORT COLLINS PUD REFERRAL OF AN ADMINISTRATIVE CHANGE - 34 90A - LEGAL DOCS - APPEAL TO CITY COUNCIL (3)s City Attdh'iey • City of Fort Collins DATE: March 16, 1995 CONFIDENTIAL MEMORANDUM TO: Mayor and City Councilmembers FROM: W. Paul Eckman, Deputy City Attorney THRU: Steve Roy, City Attomey�� RE: Appeals Procedure -- Saturn of Fort Collins P.U.D. (Administrative Change Referral) A Notice of Appeal has been filed by Eugene A. Markley as owner of Markley Motors, Inc. with respect to the February 6, 1995 decision of the Planning and Zoning Board ("the Board") denying the Saturn of Fort Collins P.U.D. (Administrative Change Referral). ISSUES ONAPPEAL: The allegations of error in this appeal are: I. That the Planning and Zoning Board failed to properly interpret and apply relevant provisions of the Code and Charter (Section 2-48[1]). II. That the Planning and Zoning Board failed to conduct a fair hearing by considering evidence relevant to its findings which was substantially false or grossly misleading (Section 2- 48[21[c]). ANALYSIS: I. Failure to properly interpret and apply the law. This allegation permits the Council to substitute its judgment for that of the Board with respect to the interpretation of the Code and Charter. The staff, in its report to the Planning and Zoning Board, properly focused on Criterion A-2.7 (Architecture) in the Land Development Guidance System. Likewise, the Planning and Zoning Board in its decision and the Appellant in its Notice of Appeal, have focused on Criteria A-2.7. That criterion can be found on page 37 of the Land Development Guidance System. 300 LaPorte Avenue • P. O. Box 580 • Fort Collins, CO 80522-0580 • (303) 221-6520 0 § 2-51 FORT COLLINS CODE Sec.2-51. Amended notice of appeal per- mitted. An amended notice of appeal may be filed by the appellant at any time prior to the time for mailing by the City Clerk of notice of the appeal to other parties -in -interest as contained in § 2-54. Such amended notice of appeal shall contain all of the information required under § 2-49 for the original notice of appeal. Amendments to the notice of ap- peal need not be limited to those defects, if any, which have been identified by the City Attorney. (Code 1972, § 3A-6; Ord. No. 111, 1989, § 3, 8-1-89; Ord. No. 59, 1994, § 2, 4-19-94) Sec. 2-52. Cost of appeal. In all appeals except those filed by members of the City Council, the appellant shall he charged a fee of one hundred dollars ($100.) for the cost of the appeal, to be paid to the City Clerk at the time of the filing of the notice of appeal. (Code 1972, § 3A-7; Ord. No. 23, 1990, § 4, 4-3-90) Sec. 2-53. Record on appeal. Any appeal to the City Council shall be an ap- peal on the record of the hearing before the board or commission. The record provided to the City Council shall include the following: (1) Detailed minutes of the proceedings before the board or commission from which the ap- peal has been taken; (2) All exhibits, including, without limitation, all writings, drawings, maps, charts, graphs, photographs and other tangible items re- ceived or viewed by the board or commission at the proceedings; (3) A verbatim transcript of such proceedings before the board or commission. The cost of the transcript shall be borne by the city. (4) If available, a videotape recording of such proceedings before the board or commission. The cost of reproducing any such videotape for review by the City Council shall be borne by the city. Additional copies shall be pro- vided to any party -in -interest requesting the same within a reasonable period of time prior to the date for hearing the appeal, at a cost not to exceed the actual reproduction costs incurred by the city. (Code 1972, § 3A-8; Ord. No. 174, 1988, § 1, 12- 20-88; Ord. No. 23, 1990, §§ 5, 6, 4-3-90; Ord. No. 59, 1994, § 3, 4-19-94) Sec. 2-54. Scheduling of the hearing. In the event of an appeal, the City Clerk shall schedule a date for hearing the appeal before the City Council as expeditiously as possible. The City Clerk shall provide the appellant and all other parties -in -interest fourteen (14) days' written no- tice of the date, time and place of the hearing as well as the grounds for the appeal as contained in the written notice of appeal. (Code 1972, § 3A-9) Sec. 2-55. Procedure at the hearing. (a) At the hearing on the appeal by the City Council, the presentation of argument on the mer- its of the appeal shall be made in the following or- der, subject to such limitations in time and scope as may be imposed at the discretion of the Mayor: (1) Explanation of the nature of the appeal and presentation by city staff; (2) Presentation of argument by the appellant and any party -in -interest in support of the appeal; (3) Presentation of argument by any party -in - interest who is an opponent of the appeal; (4) Rebuttal presentation by the appellant and any party -in -interest in support of the ap- peal; (5) Rebuttal presentation by any party -in -inter- est who is an opponent of the appeal; and (6) Motion, discussion and vote by the City Council. (b) No person making a presentation to the City Council shall be subject to cross-examination ex- cept that members of the City Council and the City Attorney may inquire of such person for the purpose of eliciting information and for the pur- pose of clarifying information presented. Supp. No. 31 162 D ADMINISTRATION (c) In the event of multiple appeals involving the same decision of a board or commission, the Mayor, in his or her discretion, may modify the procedure contained in subparagraph (a) above so as to expedite the hearing of such appeals. (Code 1972, § 3A-10; Ord. No. 124, 1987, § 2, 9-1- 87; Ord. No. 174, 1988, §§ 2, 3, 12-20-88; Ord. No. 111, 1989, § 4, 8-1-89; Ord. No. 23, 1990, § 7, 4-3- 90; Ord. No. 139, 1990, 1-15-91; Ord. No. 59, 1994, § 4, 4-19-94) Sec.2-56. New evidence; scope of review; alternative actions available to the City Council; date of final ac- tion. (a) The City Council shall consider an appeal based upon the record on appeal, the relevant pro- visions of the Code and Charter and the grounds for appeal cited in the notice of appeal. New evi- dence shall not be considered on appeal except to the extent that such new evidence is offered in support of or in opposition to an allegation under § 2-48(2)c that a board or commission considered evidence relevant to its findings which was substantially false or grossly misleading. Any such new evidence shall be limited to that which di- rectly rebuts or supports the allegedly false or mis- leading evidence. The Mayor, upon the advice of the City Attorney, shall determine the admissibil- ity of all evidence at the hearing on appeal, which determination may be overturned by majority vote of the members of the Council present at the hear- ing. (b) In considering an allegation that a board or commission failed to properly interpret and apply the relevant provisions of the Code or Charter as- serted under § 2-48(1), the City Council shall de- termine how such provisions should, in the Coun- cil's judgment, be applied to the evidence con- tained in the record on appeal. § 2-71 (c) At the conclusion of such hearing, the City Council shall uphold, overturn or modify the deci- sion of the board or commission; provided, how- ever, that the City Council shall instead remand the matter for rehearing if it finds that the appel- lant was denied a fair hearing before the board or commission for any of the reasons stated in § 2- 48(2). No later than the date of its next regular meeting, the City Council shall adopt, by resolu- tion, findings of fact in support of its decision. The date of passage of such resolution shall be the date of final action of the City Council for the purpose of any subsequent judicial review of the decision of the City Council. (Code 1972, § 3A-11; Ord. No. 124, 1987, § 3, 9-1- 87; Ord. No. 23, 1990, § 8, 4-3-90; Ord. No. 67, 1993, § 3, 7-20-93; Ord. No. 59, 1994, § 5, 4-19-94) Secs. 2-57-2-70. Reserved. ARTICLE III. BOARDS AND COMMISSIONS* DIVISION 1. GENERALLY Sec. 2-71. Meetings defined, open meetings required; exceptions. (a) The following words, terms and phrases, when used in this Division, shall have the mean- ings ascribed to them in this Section: Meeting shall mean any gathering of a quorum or three (3) or more members, whichever is fewer, of any board or commission of the city, or any committee of such board or commission, at which any public business is discussed or at which any formal action may be taken, but shall not mean any chance meeting or social gathering at which the discussion of public business is not the central purpose. *Charter references -Appointive boards, Art. IV, § 1; Water Board, Art. XII, § 7. Cross references -Open meetings, § 2.621 et seq.; Liquor Licensing Authority established, § 3-31; Board of Elections cre- ated, § 7.26; Massage Licensing Authority created, § 16-16; Personnel Board created, § 21-26; Board of Trustees of the Firefighters' Pension Plan created, § 21-42; Retirement Com- mittee created, § 21-86. Supp. No. 31 163 Mayor and Members of City Council March 16, 1995 Page 2 The Appellant has, in the Notice of Appeal, included some quotations from Criterion A-2.7, which are underlined in the Notice of Appeal. (A copy of the Criterion is attached.) The first quotation is found in the "Purpose" guideline, the second quotation is found in the "Architectural Character" guideline, and the third quotation is found in the "Building Materials" guideline. As you will note, the actual criterion itself, which is posed in the form of a question, reads as follows: Is the architecture proposed for the project appropriate for the uses and activities that are planned and does it contribute to the neighborhood's appearance in a positive way? The guidelines cited by the Appellant are intended to assist decisionmakers in interpreting the criterion. This information helps keep the Board, (and the Council on appeal) from being arbitrary and arriving at a decision that has no rational basis. As in any quasi-judicial decision making process, it is critical that the decision be rationally based so as to avoid a challenge of arbitrary and capricious decision -making. The City's Ability to Regulate Aesthetics. The Council may be concerned about the propriety of a governmental agency dictating to a property owner the color that can be applied to a privately owned building. The question of whether a governmental agency ought to have the power to regulate the aesthetic impact (including the color) of private property has been addressed (and answered in the affirmative) by both the U.S. and Colorado Supreme Courts. The Courts have required, first, that aesthetic regulations be drafted so as not to be unconstitutionally vague or overbroad. I believe that Criterion A-2.7 passes these constitutional tests. Secondly, as mentioned above, decisionmakers must rationally base their decisions upon facts in the record so as to avoid an allegation of arbitrary or capricious decision - making. If this is done, then the government is able, legally, to regulate aesthetics. In the case of Berman v. Parker, 348 U.S. 26 (1954), the U.S. Supreme Court stated that: The concept of the public welfare is broad and inclusive .... The values it represents are spiritual as well as physical, aesthetic as well as monetary. It is within the power of the legislature to determine that the community should be beautiful as well as healthy, spacious as well as clean, well-balanced as well as carefully patrolled. Again, in 1978, the U.S. Supreme Court in Penn Central Transportation Co v New York Cites, 438 U.S. 104 (1978) that: ...we emphasize what is not in dispute .... this Court has recognized, in a number of settings, that states and cities may enact land use regulations or controls to Mayor and Members of City Council March 16, 1995 Page 3 enhance the quality of life by preserving the character and the desirable aesthetic features of a city.... Also in 1978, the Colorado Supreme Court, in South of Second Associates v. Georgetown, 580 P.2d 807 (Colo. 1978), upheld the town of Georgetown's ability to review the aesthetics of the construction of new townhouses to determine what effect the proposed construction might have upon "the general historical and/or architectural character of the structure or area". The Court noted that the phrase "historical and/or architectural significance" was defined in the ordinance and that the ordinance set forth six specific criteria that focused the attention of the planning commission and applicants on objective and discernable factors. The Court attached particular relevance to one criterion that directed the commission to consider the "architectural style, arrangement, texture and materials used on existing and proposed structures, and their relation to other structures in the area" reasoning that "these objective and easily discernable factors give substance to the ordinance's historical and/or architectural character" language. In view of this case law, examining the aesthetic impacts of the building in question under Criterion A-2.7 is, in my opinion, legally permissible, and the Council decision should be legally defensible so long as it has a rational basis. II. That the Planning and Zoning Board failed to conduct a fair hearing by considering evidence relevant to its findings which was substantially false or grossly misleading. The Appellant has indicated in the Notice of Appeal that he plans to present slides or photographs for the purpose of showing that the staff presented to the Planning and Zoning Board substantially false or grossly misleading evidence. New evidence is generally prohibited at these hearings, subject to the exception discussed below. "New evidence" would be any new testimony, documents or exhibits presented for the fast time to the Council to establish the existence or non-existence of facts. ("Argument," on the other hand, is merely a course of reasoning as to what conclusions should be reached from facts already in the record. In short, new argument is permissible, new facts are not.) The only exception to the prohibition against new evidence is that, pursuant to Section 2-56(a), new evidence may be introduced in support of or in opposition to evidence at the original hearing that was allegedly substantially false or grossly misleading. Any such new evidence must be limited to that which directly rebuts or supports the earlier false evidence. Because there is an allegation of false or misleading evidence in this case, I believe that the slides or photographs would be admissible so long as they are used for the limited purpose of showing that the staff "misrepresented that the buildings in the neighborhood are predominantly brick and dark in color." • Mayor and Members of City Council March 16, 1995 Page 4 PROCEDURE FOR RECEIVING EVIDENCE Section 2-55 of the Code prescribes the following manner in which presentations are to be made, subject to such limitations in time and scope as may be imposed at the discretion of the Mayor: (1) Explanation of the nature of the appeal and presentation by City staff; (2) Presentation of argument by the appellants and any party -in -interest in support of the appeal; (3) Presentation of argument by any party -in -interest who is an opponent of the appeal; and (4) Rebuttal presentations by the appellants and any party -in -interest in support of the appeal; (5) Rebuttal presentation by any party -in -interest who is an opponent of the appeal; and (6) Motion, discussion and vote by the City Council. RECORD ONAPPEAL Section 2-53 provides that the appeal shall be "on the record," which record includes the minutes of the Board meeting, as well as all exhibits received or viewed by the Board, the video tape of the proceeding and the verbatim transcript of the proceedings pertaining to the appeal. APPLICABLE LAW In addition to the appeals provisions of the Code, a copy of which is attached to this memorandum, the applicable law for the Council to consider in this appeal consists of Section 29-526 (The Land Development Guidance System). RECOMMENDATION AS TO FINDINGS After hearing all of the presentations, the Council should first decide whether the Board failed to conduct a fair hearing either because it considered evidence relevant to its findings which was Mayor and Members of City Council March 16, 1995 Page 5 substantially false or grossly misleading. If the Council determines that the Board did fail to conduct a fair hearing for the aforesaid reason, the Council shall remand the matter to the Board for rehearing as required by Section 2-56(c) of the Code. If the Council determines that the Board did not fail to conduct a fair hearing, then the Council should address the issue of whether the Board failed to properly interpret and apply the relevant provisions of the Code and Charter, and either uphold, overtum or modify the decision of the Board. If the Council finds that the Board did not properly interpret the Code and/or Charter, it would be necessary to specify the particular laws that were not properly interpreted and applied. At the next Council meeting, I will have a resolution summarizing the Council's findings and decision. SJR/WPE:med Attachments (Appeal Provisions of Code) cc: Greg Byrne, Director of Community Services and Environmental Planning Bob Blanchard, Chief Planner Steve Olt, City Planner • CHART A-2. NEIGHBORHOOD COMPATIBILITY CRITERIA A-2.7 Architecture Is the architecture proposed for the project appropriate for the uses and activities that are planned and does it contribute to the neighborhood's appearance in a positive way? PURPOSE The purpose of this criterion is to ensure that the function, quality and appearance of the proposed structure(s) is acceptable when considered within the context of the neighborhood. The appropriateness of the architecture will not be evaluated in isolation. How the architecture relates to other site design considerations and elements will be considered. The following information and illustrations delineate what aspects of architectural design are most important to the neighborhood and the community. LAND USE TRANSITION The City encourages a gradual transition between land uses, but recognizes that gradual transitions are not always possible and not always in the best interest of the community. When land uses with significantly different visual character are proposed adjacent to each other every effort should be made to create architectural compatibility through careful consideration of scale, form, materials and colors. SIZE - HEIGHT, BULK, MASS, SCALE The size of a building is an important consideration in determining whether or not a building is a good fit within the context of a neighborhood. In general, buildings should be similar in size to other buildings in the neighborhood, however, buildings can be made to be architecturally compatible through skillful design and careful orientation. 31"7l.Iallll" Thls \\\\\\ \\\\\ \\\\-Ilr \�\NOT THtS Issues that relate specifically to buildings greater than 40 feet in height are covered in Criterion Number 2.8 Building Height / Views. ARCHITECTURAL CHARACTER Building character is extremely important in a neighborhood that has developed a distinct architectural character. For example, the east and west side historic neighborhoods adjacent to downtown have a distinct historical character. Storefront buildings in the downtown area also provide a distinct architectural character to the downtown "neighborhood." New buildings in these historic districts should find ways to reflect and contribute to the established character without copying it. New buildings in hiSfOM dlStriCts shouts req cr Me historic character of the neighborhood through rper"ion of toot lines perreros of door end window placement, end the use of cherecrenstic entry features. Commercial and business uses in residential neighborhoods are more easily integrated when the commercial or office buildings are designed to be residential in character. This can be achieved through repetition of roof lines, the use of similar window and door patterns, and the use of building materials that have colors and textures similar to those existing in the neighborhood. In areas where the existing architectural character of the neighborhood is less defined, the architecture of the new development should present an attractive image and set a standard of quality for future projects or redevelopment in the area. Land Development Guidance System for Planned Unit Developments The City of Fort Collins, Colorado, Revised March 1994 -37- 0 BUILDING MATERIALS Generally building materials should be similar to the materials already being used in a neighborhood context. If dissimilar materials are being proposed, other characteristics such as scale, form, architectural detailing and color, should be examined to determine if enough similarity exists for the building to be compatible, despite the differences in materials. Materials requiring low maintenance are recommended over high maintenance materials. For example, materials with integral color are generally recommended over materials that need to be painted. Building materials should not create excessive glare. If highly reflective building materials, i.e., aluminum, unpainted metal, reflective glass, etc. are proposed, the potential for glare will be evaluated to determine whether or not the glare would create a hardship for the adjacent property owner(s), neighborhood or community. The effects of glare on vehicular safety and outdoor activities will also be considered (see page _). All sides of the building should be equally attractive. Down -grading of materials for side or back sides is generally not acceptable. COLOR Color should be used as an extension of architectural style to facilitate blending into the neighborhood, as well as providing a way of unifying the development. Usually, the color of building materials should draw from colors that already exist in the neighborhood. MECHANICAL EQUIPMENT Mechanical equipment associated with a building should always be screened from public view. The screen should be made of the same material and reflect the same architectural style as the building. Necnenical equipment on root screened worn prper w&#. Plant material used to screen ground-mounrad m hw,ca/ equ.pmant. Land Development Guidance System for Planned Unit Developments The City of Fort Collins, Colorado, Revised March 1994 WE It • § 2-34 FORT COLLINS CODE or City Council committees for which public notice is required to be given by the provisions of the Code. The posting shall include, where possible, information about the availability of agenda ma- terials. (Ord. No. 91, 1992, § 8, 9-15-92) Sees.2-35-2-45. Reserved. DIVISION 3. APPEALS PROCEDURE* See.2-46. Definitions. The following words, terms and phrases, when used in this Division, shall have the meanings ascribed to them in this Section: Appellant shall mean a party -in -interest who has taken an appeal from a board or commission to the City Council by the filing of a notice of appeal. Applicant shall mean the person who or orga- nization which submitted the application to the board or commission whose decision has been appealed. Final decision shall mean the action of a board or commission by a vote of a majority of its mem- bers when no further rehearing is available before such board or commission; provided, however, that a recommendation to the City Council from a board or commission shall not be considered as a final decision of that board or commission. New evidence shall mean any evidence relating to the proposal or application which was the sub- ject of final decision by a board or commission and which was not presented at the hearing before such board or commission. *Cross references -Appeals from the Liquor Licensing Au- thority, § 3-36; appeals from the Building Review Board may be heard by the City Council, § 5-312; appeals from the decision of the city regarding alarm permits to the City Council, § 15-36; appeals from the determinations of the Building Review Board regarding alarm permits to the City Council, § 1541(b); disapproval of pawnbroker's license may be appealed to the City Council, § 15-265(c); applicant for license regarding places of entertainment may appeal the decision to the City Council, § 15-298; appeals from the denial of the secondhand dealer's license to the City Council, § 15-318(d); appeals for denial of a license for a mobile home park may be appealed to the City Council, § 18-5(d). Party -in -interest shall mean a person who or organization which has standing to appeal the final decision of a board or commission. Such standing to appeal shall be limited to the fol- lowing: (1) The applicant; (2) Any party holding a proprietary or posses- sory interest in the real or personal property which was the subject of the decision of the board or commission whose action is to be appealed; (3) Any person to whom or organization to which the city mailed notice of the hearing of the board or commission; (4) Any person who or organization which sent written comments to the board or commis- sion prior to the action which is to be appealed; (5) Any person who appeared before the board or commission at the hearing on the action which is to be appealed; (6) The City Council as represented by the re- quest of a single member of the City Council. (Code 1972, § 3A-2; Ord. No. 67, 1993, § 1, 7-20- 93) Cross reference -Definitions and rules of construction gen- erally, § 1-2. Sec.2-47. Certain appeals to be taken to City Council. Appeals from the following boards and commis- sions, permitted under the provisions of this Divi- sion, shall be taken to the City Council in the manner as set forth in this Division: (1) Building Review Board; (2) Fire Board of Appeals; (3) Landmark Preservation Commission; (4) Planning and Zoning Board; (5) Storm Drainage Board; Supp. No. 24 160 • 0 ADMINISTRATION (6) Zoning Board of Appeals (Code 1972, § 3A-1) Editor's note —Subsection (4) formerly referred to the Build- ing Contractor Licensing Board, which is no longer in exis- tence, being replaced by the Building Review Board pursuant to Ord. No. 93, 1987. The editor has, therefore, deleted former subsection (4) and has renumbered subsections (5)—(7) as (4)—(6). Cross references —Building Review Board, § 2.101 et seq.; Landmark Preservation Commission, § 2-276 et seq.; Planning and Zoning Board, § 2-351 et seq.; Storm Drainage Board, § 2- 411 et seq.; Zoning Board of Appeals, § 2-441 et seq.; Fire Board of appeals, §§ 9-2, 9-5. Sec.2-48. Appeal of final decision per- mitted. A party -in -interest may appeal to the City Coun- cil the final decision of any board or commission to which this appeal procedure applies in the manner provided in this Division. Except for ap- peals by members of the City Council, for which no grounds need be stated, the permissible grounds for appeal shall be limited to allegations that the board or commission committed one (1) or more of the following errors: (1) Failure to properly interpret and apply rele- vant provisions of the Code and Charter; (2) Failure to conduct a fair hearing in that: a. The board or commission exceeded its authority or jurisdiction as contained in the Code or Charter; b. The board or commission substantially ignored its previously established rules of procedure; C. The board or commission considered ev- idence relevant to its findings which was substantially false or grossly mis- leading; or d. The board or commission improperly failed to receive all relevant evidence of- fered by the appellant. (Code 1972, § 3A-3; Ord. No. 124, 1987, § 1, 9-1- 87; Ord. No. 23, 1990, § 1, 4-3-90; Ord. No. 59, 1994, § 1, 4-19-94) Sec. 2-49. Filing of notice of appeal. § 2-50 An appeal shall be taken by filing a notice of ap- peal of the final decision of a board or commission to which this Division applies with the City Clerk within fourteen (14) days after the action which is the subject of the appeal. Such notice of appeal shall be signed by all appellants and shall include the following information: (1) The action of the board or commission which is the subject of the appeal; (2) The date of such action; (3) The name, address, telephone number and relationship of each appellant to the subject of the action of the board or commission; (4) For all appeals except those filed by mem- bers of the City Council, the grounds for the appeal, including specific allegations of error and a summary of the facts contained in the record on appeal which support those allega- tions. (Code 1972, § 3A-4; Ord. No. 111, 1989, § 1, 8-1- 89; Ord. No. 23, 1990, § 2, 4-3-90; Ord. No. 67, 1993, § 2, 7-20-93) See.2-50. Review of notice of appeal by City Attorney. Within five (5) working days of the date of the filing of the notice of appeal, the notice shall be reviewed by the City Attorney for any obvious de- fects in form or substance. The City Clerk shall notify the appellant in writing by certified mail of any such defect in the notice of appeal, which no- tice shall be mailed no more than ten (10) working days from the date of filing of the notice of appeal and which shall specify the period of time within which any amended notice of appeal must be filed under § 2-51. (Code 1972, § 3A-5; Ord. No. 111, 1989, § 2, 8-1- 89; Ord. No. 23, 1990, § 3, 4-3-90) Supp. No. 31 161