MEENA (E. DAVID) VS. LOUISVILLE METRO COUNCIL, ET AL.
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RENDERED: SEPTEMBER 19, 2008; 10:00 A.M.
NOT TO BE PUBLISHED
Commonwealth of Kentucky
Court of Appeals
NO. 2007-CA-001831-MR
E. DAVID MEENA
v.
APPELLANT
APPEAL FROM JEFFERSON CIRCUIT COURT
HONORABLE SUSAN SCHULTZ GIBSON, JUDGE
ACTION NO. 07-CI-002950
LOUISVILLE METRO COUNCIL;
CITY COUNCIL OF GRAYMOOR/DEVONDALE;
HILDEBRAND 1, LLC; BROWENTON LIMITED
PARTNERSHIP; FENLEY REAL ESTATE
APPELLEES
OPINION
AFFIRMING
** ** ** ** **
BEFORE: CLAYTON, DIXON, AND WINE, JUDGES.
WINE, JUDGE: E. David Meena appeals from an order of the Jefferson Circuit
Court upholding zoning ordinances enacted by the Louisville Metro Council
(Metro Council) and the Graymoor/Devondale City Council. He argues that the
Planning Commission’s findings, as adopted by the Councils, were unsupported
by substantial evidence, and that the map amendment was clearly
inappropriate given the existing traffic problems in the area surrounding the
development. We find that the Planning Commission’s findings were supported
by substantial evidence sufficient to justify the rezoning under Kentucky
Revised Statutes (KRS) Chapter 100. Hence, we affirm.
Hildebrand 1, LLC, and Browenton Limited Partnership
(Hildebrand/Browenton) are the owners of a 37.97 acre tract of land located
at 4906 Brownsboro Road and 2000 Warrington Way (the subject property).
The subject property lies primarily within Louisville Metro, but a portion of
the property is located within the City of Graymoor/Devondale. Both cities
are located in Jefferson County, Kentucky. The subject property is bordered
on the west by Interstate 264 (I- 264), on the north by Brownsboro Road, on
the east by Warrington Way, and on the south by Carlimar Lane. At the time
of the application, the subject property was zoned R- 4 (single- family
residential) and OR-2 (office- residential).
On March 23, 2006, Fenley Real Estate (Fenley) filed an application
on behalf of Hildebrand/Browenton requesting to rezone the subject property
to PD (planned development). Fenley proposed to build a mixed- use
development consisting of commercial and office space, a six- story hotel,
residential duplexes and multi- family housing. The development is to be
known as the Midlands Project.
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Prior to filing the application for a map amendment, Fenley held
five “charette” workshops and two formal neighborhood meetings to receive
input on the effect of the development on the surrounding area. After the
application was filed, the Planning Commission referred the matter to its Land
Development & Transportation (LD&T) Committee, which conducted several
hearings. The application and development plan was also reviewed by other
agencies, including the Louisville Metro Public Works Department, the
Metropolitan Sewer District, the Air Pollution Control District, the Louisville
Metro Planning and Design Department, and the Kentucky Transportation
Cabinet. These assessments addressed noise impacts, economic impacts and
traffic impacts.
The most significant issue to arise involved the effect of the
Midlands Project on traffic around the Brownsboro Road/US 42 corridor,
including the interchange with I- 264. There are significant traffic congestion
problems in that area and the corridor currently fails state transportation
guidelines during peak afternoon periods. Given the substantial increase in
traffic that the Midlands Project would likely generate, the LD&TCommittee
recommended traffic impact studies prior to any public hearing on the
proposal.
Three traffic analyses were conducted prior to the July 2006 LD&T
meeting - October 2005, March 2006, and July 2006. Following the meetings,
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a supplemental traffic analysis (the CORSIManalysis) was conducted. After
receipt of these analyses, the Planning Commission staff recommended a
continuance of further public hearings for further evaluation of the traffic
impacts of the Midlands Project on the surrounding road system.
Following this additional review, the Planning Commission held
formal public hearings on the application on October 12, 2006, October 26,
2006, and November 30, 2006. At these meetings, the Planning Commission
heard testimony from proponents and opponents of the development. The
Planning Commission staff also submitted their recommendation that the
rezoning be approved subject to various binding elements to address the
traffic issues. Specifically, the staff recommended that Fenley be required to:
(1) install a $1.2 million roundabout at the entrance to the development; (2)
post a bond to be used by Public Works for additional roundabout
improvements; (3) post a $10,000 bond to be used by Graymoor/Devondale at
its discretion for an eight- year term to accommodate the cost of trafficcalming devices; (4) provide an additional $120,000 for the Transportation
Cabinet’s Midlands Project to improve ramp access on the US 42/I- 264
interchange; and (5) dedicate land for a slip ramp from I- 264 through the
project onto Brownsboro Road.
Additional binding elements were developed for phased approval of
building permits to ensure that traffic from the Midlands Project would not
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come “online” before road improvements were underway, including a planned
new interchange at I- 264 and Westport Road. Pursuant to this scheme,
Binding Element 26 provides that:
A detailed district development plan, for the first
phase of this project, may be issued building permits
no sooner than the awarding of the construction
contract for the Westport Rd./I- 264 interchange. This
plan shall:
(a)
Be in accordance with the approved concept
(general) plan.
(b)
the
Represent not more than 60 percent (60%) of
development as based on the total average PM
peak hour trips (gross generated trips as shown
on
p. 2 of the Traffic Impact Study dated July 7,
2006 prepared by URS Corp.).
(c)
the
the
July
Be accompanied by a traffic analysis based on
actual uses shown on the plan in comparison to
projected traffic generation presented in the
2006 traffic study presented by the applicant.
Similarly, Binding Element 27 provides:
(A)
A detailed district development plan, for any
subsequent phase(s) of this project shall:
(a)
concept
Be in accordance with the approved
(general) plan.
(b)
Be accompanied by traffic and air quality
analyses, completed per
Transportation Plan
Review (DPDS)
[Director of Planning &
Design Services]
and APCD[Air Pollution
Control District]
requirements, and based
upon the
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actual uses and projected trip
generations.
On November 1, 2006, the Planning Commission voted 9- 0 (with
one abstention) to approve the map amendment subject to binding elements
previously developed. The Planning Commission forwarded its findings and
recommendation to the Metro Council and the Graymoor/Devondale City
Council. After review by the Land Use Committee and two readings of the
proposed ordinance, the Metro Council adopted the Planning Commission’s
recommendation on February 22, 2007, with two amendments. Most
significantly, the Metro Council added the following section to Binding Element
27:
The scope of review for detailed district development
plans under this section (A) shall be as provided for
in the Land Development Code Sec. 2.8.6.A.3 and Sec.
11.4.7.F.2.
(B)
not
of
Building permits for subsequent phases shall
be issued until the earlier of (i) the completion
the Westport Road/I- 264 interchange, or (ii)
January 1, 2009.
Likewise, after holding two public readings of the proposed
ordinance, the Graymoor/Devondale City Council adopted the Planning
Commission’s recommendation on February 27, 2007.
On March 23, 2007, Meena, a nearby resident and opponent of the
development, filed an appeal pursuant to KRS 100.347(3). He argued that the
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Planning Commission’s findings were not supported by substantial evidence
and disregarded important elements of the Comprehensive Plan relating to the
traffic impacts of the Midlands Project. After reviewing the record, the circuit
court concluded that there was substantial evidence to support the Planning
Commission’s findings that the binding elements would adequately address
traffic problems and that the project would comply with the provisions of the
Comprehensive Plan. Consequently, the court determined that the Councils
did not act unreasonably or arbitrarily by adopting the Planning Commission’s
recommendation to approve the map amendment. Meena now appeals to this
Court.
Judicial review of a zoning decision is concerned with the question
of arbitrariness, and neither the trial court nor this Court is authorized to
conduct a de novo review of the decision. City of Louisville v. McDonald, 470
S.W.2d 173, 178 (Ky. 1971). Arbitrariness review is limited to the consideration
of three basic questions: (1) whether the agency acted in excess of its
statutory powers; (2) whether the agency’s proceedings were in accord with
the parties’ due process rights; and (3) whether the action taken by the
legislative body was supported by substantial evidence. American Beauty
Homes Corp. v. Louisville and Jefferson County Planning and Zoning
Commission, 379 S.W.2d 450, 456 (Ky. 1964).
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Meena does not raise any due
process issues. Rather, he contends that Fenley’s application does not meet
the requirements for granting a map amendment as set out in KRS 100.213(1):
Before any map amendment is granted, the planning
commission or the legislative body or fiscal court
must find that the map amendment is in agreement
with the adopted comprehensive plan, or, in the
absence of such a finding, that one (1) or more of the
following apply and such finding shall be recorded in
the minutes and records of the planning commission
or the legislative body or fiscal court:
(a) That the existing zoning classification given
to the property is inappropriate and that the
proposed zoning classification is appropriate;
(b) That there have been major changes of an
economic, physical, or social nature within the area
involved which were not anticipated in the adopted
comprehensive plan and which have substantially
altered the basic character of such area.
KRS 100.193 requires that the Planning Commission prepare a
“comprehensive” plan which serves as a guide for public and private
development in the most appropriate manner. Fritz v. Lexington- Fayette
Urban County Government, 986 S.W.2d 456, 459 (Ky. App. 1998). This master
plan for an area is comprehensive in that numerous and extensive elements
or studies are to be considered in formulating and adopting the plan. KRS
100.187. Zoning changes are allowed if they are in accordance with the
comprehensive plan, or if the plan is out of touch with reality (KRS
100.213(1)(a) and (b); Wells v. Fiscal Court of Jefferson County, 457 S.W.2d 498
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(Ky. 1970)), and there is a compelling need for the proposed change
(McDonald, supra; KRS 100.213).
Meena argues that the Planning Commission lacked substantial
evidence to find that the map amendment complied with Cornerstone 2020,
the Comprehensive Plan adopted by Louisville Metro. He challenges the
Planning Commission’s findings that the site plan is compatible for the
surrounding area, and that it meets the Comprehensive Plan’s requirements
for form district and town center development. But Meena particularly takes
issue with several aspects of the Planning Commission’s findings that the
Midlands Project would meet the requirements of the mobility/transportation
guidelines set out in the Comprehensive Plan.
First, he argues that the traffic studies presented by Fenley do
not support the Commission’s conclusion that the binding elements will
adequately address the traffic issues. Second, given these concerns, he argues
that the Planning Commission should have required additional traffic studies
prior to the commencement of any construction. And third, Meena notes that
the phased approval process set out in the binding elements does not require
the completion of infrastructure improvements to the US 42/Brownsboro Road
corridor or to the Westport Road/I- 264 interchange. Based on these issues,
Meena asserts that there was no substantial evidence to support the Planning
Commission’s finding that the map amendment complied with the
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Comprehensive Plan, and as a result, the Councils’ decisions to grant the map
amendment were in excess of their statutory authority.
But as the trial court noted, the Planning Commission made
extensive findings on all of these issues. The Planning Commission found that
the subject property is not appropriately located within the Neighborhood
Form District due to its proximity to I- 264; that the Midlands Project is
compatible with the Town Center Form District; that the Midlands Project is
compatible with existing land building and land uses on contiguous properties;
and that the binding elements and phased approval process will mitigate the
traffic impacts of the development.
In its role as a finder of fact, the Planning Commission is afforded
great latitude in its evaluation of the evidence heard and the credibility of
witnesses, including its findings and conclusions of fact. Kentucky State
Racing Commission v. Fuller, 481 S.W.2d 298, 309 (Ky. 1972). Such
determinations must be upheld on appeal unless they are not supported by
substantial evidence. Danville- Boyle County Planning and Zoning Commission
v. Prall, 840 S.W.2d 205, 208 (Ky. 1992). Substantial evidence has been defined
as some evidence of substance and relevant consequence, having the fitness
to induce conviction in the minds of reasonable people. Smyzer v. B. F.
Goodrich Chemical Co., 474 S.W.2d 367, 369 (Ky. 1971).
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The Planning Commission found that the proposed zone change
conforms to the requirements of KRS 100.213 because it is in agreement with
Cornerstone 2020. We agree with the circuit court that there was substantial
evidence to support the Planning Commission’s findings that the Midlands
Project is compatible with the Town Center Form District. Likewise, there was
substantial evidence to support the Planning Commission’s conclusions that
the Midlands Project is compatible with the existing building and land uses on
contiguous properties.
The closer issue concerns the Planning Commission’s findings that
the binding elements will adequately address the traffic impacts of the
development. As Meena correctly points out, Binding Elements 26 and 27
allow the development to proceed before completion of the Westport Road/I264 interchange. And while Binding Elements 29 and 30 require Fenley to
contribute toward improvements of the US 42/I- 264 interchange, neither of
these elements tie approval of building permits to any work on the
improvements to the US 42/Brownsboro Road corridor. Given the undisputed
evidence that the US 42/Brownsboro Road corridor is inadequate for existing
traffic patterns, Meena argues that it was unreasonable for the Planning
Commission to allow the Midlands Project to proceed before necessary
infrastructure improvements are completed.
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In response, Fenley correctly notes that a planning commission is
not bound to follow every detail of a land use plan. Warren County Citizens
for Managed Growth, Inc. v. Board of Commissioners of City of Bowling Green,
207 S.W.3d 7, 17 (Ky. App. 2006), citing Ward v. Knippenberg, 416 S.W.2d 746,
748 (Ky. 1967). We also agree with Fenley that a developer can only be asked
to bear the burden of public improvements that bear a reasonable
relationship to the actual impacts of the proposed development. LexingtonFayette Urban County Government v. Schneider, 849 S.W.2d 557, 560 (Ky. App.
1992). Nevertheless, it must always be remembered that the essential
element of all zoning is planning. Fritts v. City of Ashland, 348 S.W.2d 712,
715 (Ky. 1961).
Moreover, the applicable section of KRS 100.213 required the
Planning Commission to find that the proposed re- zoning is in agreement
with the elements of the Comprehensive Plan. While strict adherence to every
detail of the Comprehensive Plan is not necessary, a failure to ensure some
minimal compliance with the mobility/transportation guidelines would lead to
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chaotic and arbitrary development. 1 It is within this context that we must
evaluate the sufficiency of the Planning Commission’s findings.
When viewed in isolation, the individual traffic components do not
seem to address the mobility/transportation guidelines set out in Cornerstone
2020. But when viewed in their entirety, we conclude that the Planning
Commission’s findings and binding elements sufficiently address the applicable
mobility/transportation guidelines. For example, Fenley focuses heavily on
the roundabout which will be built at the Ky. 22 entrance to the Midlands
Project. Obviously, the roundabout will only facilitate access to and from the
development, and not the impact of the additional traffic upon the
surrounding streets and roads. Rather, it is merely one component in the
overall transportation scheme.
Similarly, the planned improvements to Westport Road and the
construction of an interchange at I- 264 and Westport Road cannot be viewed
1
Cornerstone 2020 sets out the intents of its mobility/transportation guidelines, in pertinent part,
as follows:
1.To provide for safe and proper functioning of the street network
with a coordinated hierarchy of arterial, collector and local roads.
2.To ensure that new developments do not exceed the carrying
capacity of streets.
3.To ensure that internal and external circulation of all new
development provides safe and efficient travel movement by all
types of transportation.
Consistent with these intents, the mobility/transportation guidelines set out policies which,
among other elements, require that the Planning Commission evaluate developments for their
impact on the roadway system and upon surrounding land uses, and require street and transit
improvements to mitigate the impacts of the development.
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in isolation. By tying approval of the Midlands Project to progress on the
Westport Road improvements, the Planning Commission implicitly found that
these improvements will take some of the additional traffic away from the US
42/Brownsboro Road corridor. The Metro Council’s amendment allows
construction to proceed before work on the Westport Road interchange is
begun. This change somewhat undermines the intent behind the binding
element, but not fatally so.
Finally, the Planning Commission’s findings do address the impact
of the Midlands Project on the US 42/Brownsboro Road corridor. The Planning
Commission proposed signal timing changes to improve traffic flow. The
Planning Commission required Fenley to contribute to a future traffic study to
address the impact of the additional traffic which the Midlands Project will
generate. And most significantly, the Planning Commission required Fenley to
dedicate land for and provide funds toward future improvements to the I264/US 42 interchange.
We agree with Meena that the efficacy of these required elements
is debatable. Nevertheless, the Planning Commission made extensive and
detailed findings that the map amendment, as subject to the binding
elements, meets the mobility/transportation guidelines as set out in
Cornerstone 2020. While there clearly was evidence to support a contrary
conclusion, we cannot say that the Planning Commission’s findings were
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unsupported by substantial evidence. In light of the conflicting evidence, the
decision to grant the map amendment is a matter within the discretion of the
Metro Council and the Graymoor/Devondale Council. Under the circumstances,
we cannot find that the Councils’ decisions to grant the map amendment were
arbitrary or in excess of their statutory authority.
Accordingly, the order of the Jefferson Circuit Court is affirmed.
ALL CONCUR.
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BRIEFS FOR APPELLANT:
BRIEF FOR APPELLEES:
Kenneth L. Sales
Rick A. Johnson
Allison B. Grant
Louisville, Kentucky
James E. Milliman
Michael F. Tigue
Louisville, Kentucky
ORAL ARGUMENT FOR
APPELLANT:
Theresa Senninger
Jonathan L. Baker
Jefferson County Attorney’s Office
Louisville, Kentucky
Kenneth L. Sales
John Singler
Louisville, Kentucky
ORAL ARGUMENT FOR
APPELLEES, HILDEBRAND 1,
LLC, BROWENTON LIMITED
PARTNERSHIP, AND FENLEY
REAL ESTATE:
James E. Milliman
ORAL ARGUMENT FOR
APPELLEE, LOUISVILLE METRO
COUNCIL:
Jonathan L. Baker
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