15 HIGH STREET, LLC v. BOROUGH OF HELMETTA PLANNING BOARD, ETC. (L-0419-20, MIDDLESEX COUNTY AND STATEWIDE) ( 2022 )

NOT FOR PUBLICATION WITHOUT THE
APPROVAL OF THE APPELLATE DIVISION
This opinion shall not "constitute precedent or be binding upon any court ." Although it is posted on the
internet, this opinion is binding only on the parties in the case and its use in other cases is limited. R. 1:36-3.
SUPERIOR COURT OF NEW JERSEY
APPELLATE DIVISION
DOCKET NO. A-1490-20
15 HIGH STREET, LLC,
Plaintiff-Respondent,
v.
BOROUGH OF HELMETTA
PLANNING BOARD (acting as
a Zoning Board of Adjustment),
Defendant-Appellant.
__________________________
Argued February 28, 2022 – Decided March 10, 2022
Before Judges Mayer and Natali.
On appeal from the Superior Court of New Jersey, Law
Division, Middlesex County, Docket No. L-0419-20.
James J. Kinneally, III argued the cause for appellant
(Marriott Callahan & Blair, PC, attorneys; James J.
Kinneally, III, on the brief).
Thomas W. Barlow argued the cause for respondent
(Lombardi & Lombardi, PA, attorneys; Thomas W.
Barlow, of counsel and on the brief).
PER CURIAM
Defendant Helmetta Planning Board, acting as the municipality's zoning
board of adjustment (Board), appeals from a December 30, 2020 order reversing
its denial of a development application filed by plaintiff 15 High Street, LLC
and remanding for the Board to approve the application with all requested
variances subject to reasonable conditions. We affirm.
We briefly summarize the facts taken from the comprehensive and
detailed written decision by Judge Thomas D. McCloskey. Plaintiff filed an
application to develop seventy age-restricted apartments in the Borough of
Helmetta. Plaintiff's application requested variances, specifically use, density,
and bulk variances, as well as preliminary and final site plan approval for the
project. The Board held public hearings on October 19, 2019, and November
13, 2019. Plaintiff presented extensive expert testimony in support of its
application from licensed professionals, including an engineer, architect, traffic
consultant, and planner. The Board presented no contrary expert testimony from
its own professional staff or other licensed professionals regarding any aspects
of plaintiff's application with the exception of a review letter from the Borough's
engineer. The review letter took no position on the approval of plaintiff's
application. During the public hearings, Board members and residents
expressed opinions and concerns regarding plaintiff's application.
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The Board denied plaintiff's application in a nine-page written resolution
adopted on January 8, 2020. The Board found plaintiff failed to meet its burden
of proof for a use variance as to the negative criteria under Sica v. Bd. of
Adjustment, 127 N.J. 152 (1992), and failed to submit sufficient evidence in
support of the other variances.
Plaintiff filed a complaint in lieu of prerogative writs seeking reversal of
the Board's denial and requesting approval of its development application. The
Board filed an answer and separate defenses. Judge McCloskey conducted a
trial on October 26, 2020 and reserved decision. After considering the hearing
transcripts, documentary evidence, briefs, and arguments of counsel, the judge
reversed and vacated the Board's denial of plaintiff's application. He found the
Board's denial of plaintiff's application was arbitrary, capricious, and
unreasonable and the record lacked sufficient evidence for the denial.
On December 30, 2020, the judge entered an "order for judgment and other
related relief" and issued a comprehensive forty-two-page written decision. The
judge directed the Board to adopt a resolution approving plaintiff's application
as submitted, granting the requested use, density, and bulk variances, and
granting preliminary and final site plan approval for the project. The judge
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expressly stated the Board could only require reasonable conditions as part of
its resolution approving plaintiff's application.
On appeal, the Board argues the judge erred in reversing its denial of
plaintiff's application and improperly substituted his judgment in approving the
project. We disagree for the detailed reasons stated by Judge McCloskey in his
thorough and comprehensive written decision. We add only the following
comments.
Our review of an action in lieu of prerogative writs challenging the
decision of a municipal body follows the same standard as the trial court in
determining whether the municipal body acted "arbitrarily, capriciously, or
unreasonably." Ten Stary Dom P'ship v. Mauro, 216 N.J. 16, 33 (2013); see also
Cohen v. Bd. of Adjustment of Rumson, 396 N.J. Super. 608, 614-15 (App. Div.
2007). We will not disturb a board's decision absent a "clear abuse of
discretion." Price v. Himeji, LLC, 214 N.J. 263, 284 (2013). Nor will we
overturn a board's decision where there is adequate evidence supporting the
decision. Burbridge v. Twp. of Mine Hill, 117 N.J. 376, 385 (1990).
A Board's resolution "must contain sufficient findings, based on the
proofs submitted, to satisfy a reviewing court that the board has analyzed the
applicant's variance request in accordance with the statute and in light of the
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municipality's master plan and zoning ordinances." N.Y. SMSA, Ltd. P'ship v.
Bd. of Adjustment of Weehawken, 370 N.J. Super. 319, 333 (App. Div. 2004).
We have rejected as deficient memorializing resolutions that "summarize[d], in
a very cursory fashion, the testimony presented by [the applicant's] witnesses,
and reiterate[d] selected comments by Board members and the public." Ibid."[S]tatements of individual Planning Board members, 'represent informal
verbalizations of the speaker's transitory thoughts, they cannot be equated to
deliberative findings of fact . . . . '" Rocky Hill Citizens for Responsible Growth
v. Plan. Bd. of Rocky Hill, 406 N.J. Super. 384, 413 (App. Div. 2009) (quoting
N.Y. SMSA, 370 N.J. Super. at 334).
Although a zoning board may reject an applicant's expert testimony, it
must do so in reliance on contrary expert testimony rather than
"bare allegations or unsubstantiated beliefs." N.Y. SMSA, 370 N.J. Super. at338 (citing Cell S. of N.J., Inc. v. Zoning Bd. of Adjustment of W. Windsor, 172
N.J. 75, 87 (2002)). A resolution relying on comments and concerns from board
members or local residents will not satisfy a board's obligation to ground its
decision on evidence presented during a hearing. Cell S. of N.J., Inc., 172 N.J.
at 88 (holding a board's decision must be "root[ed] . . . in substantiated proofs
rather than unsupported allegations."). A board's reliance upon non-expert
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testimony from its members or concerns voiced by residents rather than
qualified expert testimony to prove the adverse effects associated with a
requested variance renders a board's decision arbitrary, capricious, and
unreasonable. Ibid
Here, the judge concluded that "[w]hile a board may reject expert
testimony, it may not do so unreasonably, based only upon bare allegations or
unsubstantiated beliefs." Judge McCloskey found the Board failed to present
any contrary expert testimony to rebut or challenge plaintiff's experts' testimony.
He held "[b]y giving short-shrift to the [p]laintiff's experts' unrebutted testimony
here, the Board in voting to deny the [a]pplication ignored the greater weight of
the evidence in the record that supported a grant." As a result, Judge McCloskey
determined denial of plaintiff's application was arbitrary, capricious,
unreasonable, and improperly based on "the veiled or even expressed whims of
the Board" rather than substantial evidence in the record. The judge stated, "the
record . . . is bereft of substantial evidence to support what was set forth in the
Board's Resolution here and despite what it purported to detail otherwise."
Based on our review of the record, the Board's decision is not entitled to
any deference because the denial of plaintiff's application was arbitrary,
capricious, and unreasonable. Throughout the public hearings, plaintiff offered
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to revise its development application consistent with reasonable and appropriate
conditions suggested by the Board members or the Board's professional staff.
Despite plaintiff's offer, the Board offered no conditions "that might address the
public concerns for the development" to support approval of the application.
See PRB Enters. v. S. Brunswick Plan. Bd., 105 N.J. 1, 10 (1987) (holding a
planning board may impose appropriate conditions in conjunction with the grant
of final site plan approval). We are satisfied the Board abused its discretion by
declining to respond to plaintiff's offers to revise its development plan in
response to the concerns raised by the Board and members of the public.
We affirm for the thorough reasons stated in Judge McCloskey's written
decision. We conclude the Board's arguments are without sufficient merit to
warrant further discussion beyond our brief comments. See R. 2:11-3(e)(1)(E).
Affirmed.
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